United States Department of Agriculture 

Forest Service 

 

Photo of Wayne National Forest 

Fiscal Year 2008 

President’s Budget 

Budget Justification
FY 2008 Budget Justification USDA Forest Service

 

PREFACE 

The fiscal year (FY) 2006 estimates in the Budget Justification have been adjusted to be 

on a comparable basis with the FY 2007 and FY2008 estimates. At the time of the 

preparation of these estimates, the Department is funded in FY 2007 by a Continuing 

Resolution through February 15, 2007. The FY 2007 estimates are based on the 

estimated full year amounts available under the Continuing Resolution. Those amounts 

are the lower of the FY 2007 amount passed by the House or the current rate based on the 

FY 2006 appropriations. 
FY 2008 Budget Justification USDA Forest Service

Revised February 23, 2007 

Errata to Fiscal Year 2008 Budget Justification

This table shows revisions and additions to the USDA Forest Service FY 2008 Budget 

Justification. Changes listed below are included in the FY 2008 Budget Justification 

posted on the Forest Service internet site; dates of revisions are shown on revised pages. 

Page Location Date of Change / Change 

OverviewPages 7-8 Legislative Proposals 2/6/07 Revised language on Legislative 

Proposals section 

OverviewTable H Table H – 

Activity/Output 

Measures 

2/6/07 Several footnotes in WFPR & 

NFLM added 

OverviewTable J Table J – Timber Sale 

Program 

2/6/07 KV Volume updated; footnote 

removed 

Overview – 

Page 5 

Second Paragraph, Line 

7 

2/8/07 800 million acres should be 800 

million board feet 

Appropriation 

Language 

Changes 

6-12 

1st paragraph after Sec 

418. 

2/12/07 Removed first sentence of 

paragraph. 

Special 

Exhibit 1 

17-1 to 17-11 

Allocation Tables 2/23/07 Wildland Firefighters 

appropriation spread to regions 

Overview 

Page 1 

Paragraph 2 2/23/07 Amount of decrease corrected 

from $64.25 million 

Special 

Exhibit 21 

17-97 to 

17-98A 

Reforestation needs 

table – page 17-98A 

2/23/07 Third page was left out of 

original document 

Overview 

Table F-3 

3-Year Receipts Table 

Page F-3 

2/23/07 Payments to States Act of 

1908 amount for FY 2008 changed from 

$11,280 to $81,688; totals changed as well 

Permanent 

Appropriations 

Pages 15-1 to3 and 

15-48 

2/23/07 Same as above 

Overview 

Table D-4/5 

3-Yeaar Summary of 

Appropriations 

Pages D-4 and D-5 

2/23/07 Page D-4 – same as above 

Page D-5 – Grand Total FY 2008 Budget 

changed as a result of above change 

Wildland 

Firefighters 

Chapter 10 - Entire 

chapter 

2/23/07 Entire chapter added 

Wildland Fire 

Management 

Chapter 11 – Entire 

chapter 

2/23/07 Entire chapter added 

Table of 

Contents 

Pages ii and iii 2/23/07 Inserted WFF and WFM 

subsection pagination 
 

 

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U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised March 30, 2007 

Additional Errata to Fiscal Year 2008 Budget Justification

This table shows additional revisions and additions to the USDA Forest Service FY 2008 

Budget Justification since the first errata posting on February 23, 2007. Changes listed 

below are included in the FY 2008 Budget Justification posted on the Forest Service 

internet site; dates of revisions are shown on revised pages. 

Section Location Date of Change / Change 

OverviewTable D Page D-5 3/30/07 Subtotal, FS non-emergency in 

FY 2008 should be $4,619,866, the same as 

the grand total; Percent Change is -8% 

Overview – 

Table H 

Page H-3 3/30/07 Under Recreation, Heritage, and 

Wilderness, heritage assets measure prior to 

FY 2008 included all assets; starting in FY 

2008, it tracks only priority assets. Measure 

split into two measures to highlight change 

Budget and 

Strategic Plan 

Pages 3-1,6,9,12,13 3/30/07 Permanent Funds in FY 2006 

shown under Goal 2 should have been under 

Goal 5 

 State and 

Private 

Forestry 

Page 8-1 3/30/07 Footnote for Emergency and 

Supplemental funds left off Appropriations 

table 

National 

Forest System 

 Page 9-25, Annual 

Output Measures Table 

3/30/07 Same change as in Overview 

Table H, page 3. 

National 

Forest System 

Page 9-38 Grazing 

Management BLI table 

3/30/07 Program Changes and Program 

Change Percent incorrect for both activities 

Permanent 

Funds 

Page 15-22 Table C 3/30/07 Added a table of additions to 

the Land and Facility Conveyance listing 

and removed Deputy Tower site (r-9) from 

the list of sites to be dropped 

Trust Funds Page 16-4,5 K-V 

Planned Program of 

Work FY 2007 -2008 

3/30/07 Tables on pages 16-4 and 16-5 

replaced 

Special 

Exhibits 

Table of Contents 3/30/07 Added Special Exhibit 29 to 

Table 

Special 

Exhibit 10 

Page 17-44, Indirect 

Costs 

3/30/07 Cost Pool 9 assessment should 

be based on $1.48 per gross square foot. 

Special 

Exhibit 29 

Pages 17-129 to 17-164. 

Performance 

Management System 

3/30/07 Added Performance 

Management Report as requested in 

Congressional Directive in P.L. 109-54 
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Table of Contents 

and Acronyms 

 
 

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FY 2008 Budget Justification USDA Forest Service

Table of Contents i 

USDA Forest Service 

FY 2008 Budget Justification 

Table of Contents 

 

Page

Overview ................................................................................................................................. 1-1 

Budget At A Glance ................................................................................................................. 2-1

Budget and Strategic Plan....................................................................................................... 3-1 

Performance Management...................................................................................................... 4-1

National Fire Plan ................................................................................................................... 5-1

Appropriation Language Changes......................................................................................... 6-1

Forest and Rangeland Research............................................................................................. 7-1 

State and Private Forestry ...................................................................................................... 8-1

Forest Health Management.................................................................................................. 8-3 

 Federal Lands................................................................................................................. 8-5 

 Cooperative Lands ......................................................................................................... 8-9 

 Cooperative Fire Protection ............................................................................................... 8-13

 State Fire Assistance.................................................................................................... 8-14

 Volunteer Fire Assistance............................................................................................ 8-16 

 Cooperative Forestry.......................................................................................................... 8-18 

 Forest Stewardship....................................................................................................... 8-20 

 Forest Legacy Program................................................................................................ 8-24 

 Urban and Community Forestry .................................................................................. 8-28 

 Economic Action Programs ......................................................................................... 8-32 

 Forest Resources Information and Analysis ................................................................ 8-34 

 International Forestry......................................................................................................... 8-36 

National Forest System............................................................................................................ 9-1 

Land Management Planning ................................................................................................ 9-6 

 Inventory and Monitoring.................................................................................................. 9-20

 Recreation, Heritage, and Wilderness................................................................................ 9-24 

 Wildlife and Fisheries Habitat Management .................................................................... 9-32 

 Grazing Management......................................................................................................... 9-38 

 Forest Products................................................................................................................... 9-42 

 Vegetation and Watershed Management ........................................................................... 9-48 

 Minerals and Geology Management.................................................................................. 9-56 

 Landownership Management............................................................................................. 9-64 

 Law Enforcement Operations ............................................................................................ 9-70 
FY 2008 Budget Justification USDA Forest Service

Table of Contents ii 

Revised February 23, 2007 

Page

National Forest System (continued) 

 Valles Caldera National Preserve ...................................................................................... 9-75 

 Centennial of Service Challenge........................................................................................ 9-77 

Wildland Firefighters ......................................................................................................... 10-1 

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

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

 Suppression........................................................................................................................ 11-9 

 Fire Operations – Other ................................................................................................... 11-14 

 Hazardous Fuels......................................................................................................... 11-15

 Rehabilitation............................................................................................................. 11-20 

 Fire Research and Development ................................................................................ 11-22 

 Joint Fire Sciences Program....................................................................................... 11-27 

 Forest Health Management – Federal Lands ............................................................. 11-31 

 Forest Health Management – Cooperative Lands...................................................... 11-35 

 State Fire Assistance.................................................................................................. 11-39 

 Volunteer Fire Assistance.......................................................................................... 11-41 

 

Capital Improvement and Maintenance.............................................................................. 12-1 

Facilities............................................................................................................................. 12-4 

 Roads .............................................................................................................................. 12-17 

 Trails .............................................................................................................................. 12-25 

 Deferred Maintenance and Infrastructure Improvement.................................................. 12-29 

Land Acquisition.................................................................................................................... 13-1 

 Acquisition of Lands for National Forests Special Acts.................................................... 13-1 

 Acquisition of Lands to Complete Land Exchanges.......................................................... 13-2 

Other Appropriations

 Range Betterment Fund ..................................................................................................... 14-1

 Gifts, Donations, and Bequests for Forest and Rangeland Research................................. 14-3 

 Management of National Forest Lands for Subsistence Uses ........................................... 14-4 

 

Permanent Appropriations................................................................................................... 15-1 

 Brush Disposal................................................................................................................... 15-4 

 Licensee Program (Smokey Bear and Woodsy Owl) ........................................................ 15-5 

 Restoration of National Forest Lands and Improvements ................................................. 15-8 

 Recreation Enhancement Program..................................................................................... 15-9 

 Land and Facility Enhancement Fund ............................................................................. 15-12 

 Timber Roads - Purchaser Election Program................................................................... 15-23 

 Timber Salvage Sale Fund............................................................................................... 15-24 

 Stewardship Contracting.................................................................................................. 15-26

 Timber Sales Pipeline Restoration Fund.......................................................................... 15-29 

 Roads and Trails (10 Percent Fund)................................................................................. 15-31 

 Midewin National Tall Grass Prairie Rental Fee Fund ................................................... 15-33 
FY 2008 Budget Justification USDA Forest Service

Table of Contents iii 

Revised February 23, 2007 

Permanent Appropriations (continued) 

 Midewin National Tall Grass Prairie Restoration Fund .................................................. 15-35 

 Operation and Maintenance of Quarters.......................................................................... 15-36 

 Land Between the Lakes Management Fund................................................................... 15-38 

 Administration of Rights-of-Way and Other Land Uses ................................................. 15-40 

 Forest Botanical Products ................................................................................................ 15-43

 Valles Caldera Fund......................................................................................................... 15-45 

 Payment Funds................................................................................................................. 15-48 

Trust Funds............................................................................................................................ 16-1 

 Cooperative Work - Knutson-Vandenberg (K-V) Fund .................................................... 16-2 

 Cooperative Work - Other ................................................................................................. 16-8 

 Land Between the Lakes.................................................................................................. 16-10 

 Reforestation.................................................................................................................... 16-12 

Special Exhibits

 1 Allocations by Regions, Stations, and Area, FY 2006-2008 ....................................... 17-1 

 2 Business Operations Transformation......................................................................... 17-12 

3 Chief’s Reserve Fund................................................................................................. 17-15 

4 Conservation Education............................................................................................. 17-18 

 5 Deferred Maintenance and Asset Management ......................................................... 17-22 

 6 Facilities Maintenance Assessment ........................................................................... 17-29 

 7 Federal Excess Personal Property and Firefighter Property ...................................... 17-31 

 8 Fire Transfers – FY2006............................................................................................ 17-33 

 9 Forest Products Laboratory Modernization ............................................................... 17-34 

 10 Indirect Costs ............................................................................................................. 17-41 

 11 Invasive Species......................................................................................................... 17-49 

 12 Knutson-Vandenberg (K-V) Financial Status............................................................ 17-56 

 13 National Energy Policy.............................................................................................. 17-57 

 14 National Forest Land Adjustment for Rural Communities Act................................. 17-62 

 15 National Scenic and Historic Trails ........................................................................... 17-64 

 16 Northwest Forest Plan................................................................................................ 17-71 

 17 Office of General Counsel Reimbursement............................................................... 17-74 

 18 Office of Tribal Relations .......................................................................................... 17-75 

 19 Partnerships................................................................................................................ 17-78 

 20 President’s Management Agenda .............................................................................. 17-82 

 21 Reforestation.............................................................................................................. 17-97 

 22 Research and Development Threat Assessment Centers........................................... 17-99 

 23 Service First ............................................................................................................ 17-104 

 24 Unobligated Balances .............................................................................................. 17-106 

 25 Wood Education and Resource Center .................................................................... 17-108 

 26 Working Capital Fund, Forest Service..................................................................... 17-112 

 27 Working Capital Fund and Greenbook Charges, USDA......................................... 17-113 

 28 Working Capital Fund – Forest Service Fleet Management.................................... 17-127 

 

Authorities.............................................................................................................................. 18-1 
FY 2008 Budget Justification USDA Forest Service

Acronyms iv 

Acronyms 

ALP Automated Land Program 

ANILCA Alaska National Interest Lands Conservation Act of 1980 

AML Abandoned Mine Lands 

APD Application for Permit to Drill 

APHIS Animal and Plant Health Inspection Service 

ARS Agricultural Research Service 

ASC Albuquerque Service Center 

BAER Burned Area Emergency Rehabilitation 

BF Board Feet 

BLI Budget Line Item 

BMP Best Management Practice 

BLM Bureau of Land Management (USDI) 

BOC Budget Object Classification 

BOR Bureau of Reclamation (USDI) 

BPR Business Process Reengineering 

CCF Hundred Cubic Feet 

CCS Challenge Cost Share 

CDW Corporate Data Warehouse 

CE Categorical Exclusion 

CERCLA Comprehensive Environmental Response, Compensation, and 

Liability Act 

CFR Code of Federal Regulations 

CI&M Capital Improvement and Maintenance 

CIP Capital Improvement Plan 

CSREES Cooperative State Research, Education and Extension Services 

CUFFA Cabin Use Fee Fairness Act 

CWA Clean Water Act 

CWKV Cooperative Work Knutson-Vandenberg Fund 
FY 2008 Budget Justification USDA Forest Service

Acronyms v 

CWPP Community Wildfire Protection Plan 

CY Calendar Year 

DASP Disaster Assistance Support Program (International Forestry) 

DN Decision Notice 

DHS Department of Homeland Security 

DOE Department of Energy 

DOI Department of the Interior 

EA Environmental Assessment 

EAP Economic Action Programs 

EBLI Expanded Budget Line Item 

ECAP Environmental Compliance and Protection 

EDRR Early Detection and Rapid Response 

EIS Environmental Impact Statement 

EMS Environmental Management System 

EO Executive Order 

ESA Endangered Species Act 

F&AM Fire and Aviation Management 

FA&O Fire, Administrative and Other (facilities) 

FAR Federal Acquisitions Regulation 

FASAB Financial Accounting Standards Advisory Board 

FEPP Federal Excess Personal Property 

FEIS Final Environmental Impact Statement 

FFIS Foundation Financial Information System 

FIA Forest Inventory and Analysis 

FIDO Forest Inventory Data Online 

FOG Field Operations Guide (Disaster Assessment and Response) 

FPA Fire Program Analysis 

FPL Forest Products Laboratory (Madison, WI) 

FRIA Forest Resources Information and Analysis 

FS Forest Service 

FSFREA Forest Service Facility Realignment and Enhancement Act 
FY 2008 Budget Justification USDA Forest Service

Acronyms vi 

FSH Forest Service Handbook 

FSP Forest Stewardship Program 

FTE Full-time Equivalent 

FY Fiscal Year 

FWS Fish and Wildlife Service (USDI) 

GAO Government Accountability Office 

GIS Geographic Information System 

GSTC Geospatial Service and Technology Center 

HFI Healthy Forests Initiative 

HFRA Healthy Forests Restoration Act of 2003 

ICS Incident Command System 

IITF International Institute of Tropical Forestry (Puerto Rico) 

INFRA Forest Service Infrastructure Database 

JFSP Joint Fire Science Program 

K-V Knutson-Vandenberg 

LANDFIRE Landscape Fire and Resource Management Planning Tool 

LBL Land Between the Lakes 

LEI Law Enforcement and Investigations 

LMP Land Management Plan 

LSR Late Successional Reserve 

LTSP Long Term Soil Productivity 

MBF Thousand Board Feet (forestry volume measurement) 

MEL Most Efficient Level (Wildland Fire Management staffing) 

MMBF Million Board Feet (forestry volume measurement) 

MNTP Midewin National Tallgrass Prairie 

MTDC Missoula (MT) Technology Development Center 

NA Northeastern Area of State and Private Forestry 

NEPA National Environmental Policy Act 

NFF National Forest Foundation 

NFMA National Forest Management Act 

NFP National Fire Plan 
FY 2008 Budget Justification USDA Forest Service

Acronyms vii 

NFS National Forest System 

NFWF National Fish and Wildlife Foundation 

NGO Non-governmental Organization 

NIDRM National Insect and Disease Risk Map 

NIMS National Information Management System 

NIPF Non-industrial Private Forest (landowner) 

NPS National Park Service (USDI) 

NRCS Natural Resources Conservation Service (USDA) 

NRS Northern Research Station (Newtown Square, PA) 

NWFP Northwest Forest Plan 

OBPA Office of Budget and Program Analysis of the USDA 

OHV Off Highway Vehicle 

OIG Office of the Inspector General 

OMB Office of Management and Budget 

OWCP Office of Worker’s Compensation Program 

PAOT Persons At One Time (measure of recreation site capacity) 

PAR Performance and Accountability Report 

PART Program Assessment Rating Tool 

PCT Pre-commercial Thinning 

PIT Passport in Time 

P.L. Public Law 

PMA President’s Management Agenda 

PMF Presidential Management Fellow (employment program) 

PNW Pacific Northwest Research Station (Portland, OR) 

PSW Pacific Southwest Research Station (Albany, CA) 

QA/QC Quality Assurance/Quality Control 

RAC Resource Advisory Committee 

RAVAR Rapid Assessment of Values at Risk 

R&D Research and Development 

RO Regional Office 

R-1 Northern Region (Region One – Missoula, MT) 
FY 2008 Budget Justification USDA Forest Service

Acronyms viii 

R-2 Rocky Mountain Region (Region Two – Golden, CO) 

R-3 Southwestern Region (Region Three – Albuquerque, NM) 

R-4 Intermountain Region (Region Four – Ogden, UT) 

R-5 Pacific Southwest Region (Region Five – Vallejo, CA) 

R-6 Pacific Northwest Region (Region Six – Portland, OR) 

R-8 Southern Region (Region Eight – Atlanta, GA) 

R-9 Eastern Region (Region Nine – Milwaukee, MN) 

R-10 Alaska Region (Region Ten – Juneau, AK) 

REA Recreation Enhancement Act 

RCRA Resource Conservation and Recovery Act 

RMRS Rocky Mountain Research Station (Fort Collins, CO) 

ROD Record of Decision 

ROW Right-of-Way 

RSAC Remote Sensing Applications Center 

RSFMP Recreation Site Facility Master Plan 

RWU Research Work Unit 

SAI Sale Area Improvement (Plan) 

SAP Spatial Analysis Program 

SCI Stratified Cost Index 

SCSEP Senior Community Service Employment Program 

SDTDC San Dimas (CA) Technology Development Center 

SPA Strategic Program Area 

S&PF State and Private Forestry 

SPOT Strategic Placement of Treatment Studies 

SRS Southern Research Station (Asheville, NC) 

STRATUM Street Tree Resource Analysis Tool for Urban Managers 

SUPO Surface Use Plan of Operation 

TAV Technical Assistance Visit 

TMDL Total Maximum Daily Load 

TRACS Trail Assessment and Condition Survey 

TSI Timber Sale Improvement 
FY 2008 Budget Justification USDA Forest Service

Acronyms ix 

TVA Tennessee Valley Authority 

U&CF Urban and Community Forestry 

U.S.C. United States Code 

USAID United States Agency for International Development 

USDA United States Department of Agriculture 

USDHS United States Department of Homeland Security 

USDI United States Department of the Interior 

USDOE United States Department of Energy 

WBUG Woody Biomass Utilization Group 

WCF Working Capital Fund 

WERC Wood Education and Resource Center (Princeton, WV) 

WFDSS Wildland Fire Decision Support System 

WFLC Wildland Fire Leadership Council 

WFM Wildland Fire Management 

WO Washington Office (Forest Service Headquarters) 

W&SR Wild and Scenic River 

WUI Wildland Urban Interface 

YCC Youth Conservation Corps 
FY 2008 Budget Justification USDA Forest Service

 

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Overview 
 

 

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United States Department of Agriculture 

Forest Service 

Photo of Wayne National Forest taken by Rich Jones. 

Fiscal Year 2008 

President’s Budget 

OVERVIEW
 

 

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U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 i 

Table of Contents 

Overview ................................................................................................................................1 

FY 2008 Budget: Current Management Landscape, Responsive Strategy, 

Management Efficiencies to Date ........................................................................................2 

Legislative Proposals ............................................................................................................7 

Appendices.............................................................................................................................9 

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

B ... Forest Service Organization 

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

D ... Three-Year Budget Summary of Appropriations 

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

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

G ... FY 2004-08 Strategic Plan 

H ... Activity Output Measures 

I ... FY 2008 Capital Improvement Projects 

J ... Timber Harvest Volume, FY 2006-FY 2008 

K ... FY 2008 Proposed Land Acquisition Program 

L ... FY 2008 Proposed Forest Legacy Program 

M ... Five-Year Healthy Forest Initiative Funding, and Accomplishments 
 

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U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 23, 2007 Page 1 

Overview 

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

193 million acres of national forests and grasslands, provides States, tribes, and private 

forest landowners with technical and financial assistance, and conducts innovative 

research into sustaining global forest resources for future generations. 

The Fiscal Year (FY) 2008 President’s Budget request for the Forest Service totals $4.13 

billion in discretionary appropriations, a $64.525 million decrease from FY 2007. The FY 

2008 Budget responds to our Nation’s priorities of fighting the War on Terror and 

reducing the Federal deficit while it maintains funding levels for priority agency 

programs. Program reductions necessary to support agency priorities are substantially 

offset by process improvements and cost reductions from a restructuring of national and 

regional Forest Service headquarters. 

The FY 2008 President’s Budget is displayed below. 

 FY 2007 Pay & Other Cost Program FY 2008 

Appropriation Title Estimate Costs Reductions Changes Budget 

Research $280,318 $5,458 -$2,500 -$20,276 $263,000

State and Private Forestry $228,608 $1,808 -$3,354 -$24,604 $202,458

National Forest System $1,443,659 $28,709 -$61,338 -$66,653 $1,344,377

Wildland Firefighters [$213,265] --- --- [$6,445] $219,710

Wildland Fire Management $1,810,566 $29,396 -$17,284 -$173,761 $1,648,917

Capital Improvement and Maintenance $411,025 $6,333 -$10,196 $15,403 $422,565

Land Acquisition $8,784 $193 -$282 $8,292 $16,987

Other Appropriations $8,438 $96 -$109 $434 $8,859

Total Discretionary Appropriations $4,191,398 $71,993 -$95,063 -$41,455 $4,126,873

Total Mandatory Appropriations $821,141 $5,634 $0 -$304,190 $522,585

Subtotal, Regular Appropriations $5,012,539 $77,627 -$95,063 -$345,645 $4,649,458

Supplemental & Emergency 

Appropriations $0 --- --- --- $0

Grand Total, Forest Service $5,012,539 $77,627 -$95,063 -$345,645 $4,649,458
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page 2 

FY 2008 Budget: Current Management Landscape, Responsive 

Strategy, Management Efficiencies to Date 

Current Management Landscape 

In its second century of service, the Forest Service faces diverse challenges, including 

restoring fire-adapted forests to more resilient conditions, providing natural resource 

materials to the American public, sustaining recreation opportunities, mitigating the loss 

of open space, combating the spread of invasive species, restoring watershed health, and 

more. The agency pursues these activities during a period of rapid fragmentation, 

intensive development, and landscape change. 

The number of private residences in the Wildland-Urban Interface (WUI) adjacent to 

national forest land is increasing exponentially, complicating the agency’s land and 

resource management, fire suppression, and law enforcement responsibilities. In recent 

decades, global climate change along with historic wildland fire suppression efforts, have 

allowed trees and underbrush to increase in density. Long-term deterioration of forest 

health has also contributed to more fire-prone conditions within our national forests. As 

a result, Forest Service activities to protect life, property, and natural resources from 

wildland fire have become more complex and demanding. Placing a high priority on 

wildland fire suppression has resulted in a dramatic impact on the agency’s budget. 

During the 2006 fire season the United States experienced more than 96,000 incidents 

and almost 9.9 million acres burned, with approximately 4.9 million acres burned on nonFederal lands. Nation-wide in 2006, the acres burned were 131 percent greater than the 

acres burned in 2000, almost 1 million acres greater than 2005; and 65 percent greater 

than the ten-year average. The agency spent $1.5 billion in suppression costs, on over 2 

million acres burned. Nearly $400 million was spent on 20 of the largest fires. During 

2006 the Nation had 14 fires topping 100,000 acres in size, five of these occurred on 

national forests.
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page 3 

Rising 10-Year Fire Suppression Average

The Forest Service’s annual fire suppression costs have exceeded $1 billion in 4 of the 

last 7 years. Consequently, the 10-year average suppression cost figure, which is used to 

determine the annual suppression request, continues to increase. The budget reflects the 

President’s commitment to eliminating the deficit by 2012 while supporting our Nation’s 

highest priorities, and ensures that funding is available to address the agency’s most 

critical programs. 

Forest Service Fire Suppression Obligations

0

200,000

400,000

600,000

800,000

1,000,000

1,200,000

1,400,000

1,600,000

1997 1998 1999 2000 2001 2002 2003 2004 2005 2006

Fiscal Year

Nominal Dollars (Thousands)

Effect of Wildand Fire Management on Agency Budget 

Over the past 18 years, the Wildland Fire Management portion of the Forest Service 

Budget has increased from 13 percent to 45 percent. Though the largest component of 

the Wildland Fire Management account is Fire Suppression, it also includes 

Preparedness, Hazardous Fuels Reduction, and other budget line items. 

1991

13%

87%

 

2000

79%

21%

 

2008

55%

45%

 

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page 4 

FY 2008 Budget: Responsive Strategy 

The FY 2008 President’s Budget request of $4.127 billion represents a 1.6 percent 

decrease from the FY 2007 Estimate, and a 1.8 percent reduction from FY 2006 funding 

levels. Within that total, the agency makes some clear shifts in response to current 

challenges: the Budget makes important changes to the Wildland Fire account, maintains 

funding for the Healthy Forests Initiative, fully funds the Northwest Forest Plan, and 

emphasizes public health and safety by proposing a significant increase in the Law 

Enforcement Operations budget. These increases are offset by reductions in lower 

priority programs in order to support our Nation’s priorities of fighting the War on 

Terror, sustaining the momentum of economic recovery, and reducing the Federal deficit. 

Wildland Fire

The FY 2008 Budget request responds to escalating fire costs by providing funding for 

suppression at the 10-year average level, adjusted for inflation. The FY 2008 Budget 

funds Suppression at $911 million, an increase of 23 percent over the FY 2007 level of 

$741 million. The Forest Service plans to implement new performance measures, from 

the program assessment rating tool (PART) which include, percent change from the10-

year average for the number of wildfires controlled during initial attack, and percent of 

fires not contained in initial attack that exceed a stratified cost index. The FY 2008 

Budget also introduces the concept of a risk-based fire suppression approach. Under the 

risk-based approach, wildland fires would be suppressed on a priority basis as determined 

by considering private property, infrastructure, and human values at greatest risk, and 

setting suppression priorities accordingly. In FY 2008 we will increase our ability to 

make risk-informed decisions by using new tools that will help managers decide how to 

respond to fires. These include improved fire behavior monitoring and prediction tools, 

along with improved assessment of cost and benefits of alternative suppression strategies. 

In addition to fully funding the 10-year average of Fire Suppression, the 2008 Budget 

provides $55 million for research to address risks from catastrophic wildland fires, and 

also pursues a more efficient and precise structure by establishing a new Wildland 

Firefighter appropriation, funded at $219.7 million. By establishing a single account for 

professional wildland firefighters, the Budget enhances performance, improves 

accountability, and provides the Forest Service greater efficiency in managing wildland 

fires and in supporting all-hazard responses through the National Incident Management 

System. 

Healthy Forests

The Healthy Forests Initiative (HFI) was launched in 2002 to reduce administrative 

process delays and expedite project implementation. In 2003, Congress passed the 

Healthy Forests Restoration Act (HFRA), which complements the Healthy Forests 

Initiative and provides improved statutory processes for hazardous fuel reduction projects 

on certain types of at-risk National Forest System (NFS) and Bureau of Land
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 8, 2007 Page 5 

Management (BLM) lands. HFRA also provides other authorities and direction to help 

reduce hazardous fuel and restore healthy forest and rangeland conditions on lands of all 

ownerships. 

The FY 2008 budget provides over $600 million in support of the Healthy Forests 

Initiative. This level of funding includes $292 million for hazardous fuels reduction on a 

target of 3 million acres. The budget provides that at least 40 percent of hazardous fuels 

funding is available for projects that contribute to the goal of improving the condition 

class on at least 250,000 acres by the end of FY 2008 through the use of Healthy Forest 

Restoration Act and Healthy Forests Initiative authorities. The Budget includes a timber 

sales target of 3.5 billion board feet, including 800 million board feet through full funding 

and implementation of the Northwest Forest Plan. In addition, a $17 million increase in 

Capital Improvement and Maintenance will maintain the road infrastructure needed to 

support Northwest Forest Plan timber sales. 

Law Enforcement Operations

The FY 2008 President’s Budget proposes a $13 million increase in Law Enforcement 

Operations. Increased illegal activities have caused significant resource impacts and 

continue to put both public and employee health and safety at risk. The increase in 

funding will put 47 more officers out on patrol, helping to reduce illegal occupancy on 

national forests by drug cartels, increase public and employee security, and protect 

natural resources. 

Other Programs

In order to fund high priority programs, the Budget makes hard tradeoffs among other 

programs. Moreover, the Budget also reflects efficiencies gained through the 

centralization of business operations, planning rule revisions, and renewed focus on 

collaborative management. The agency will further its efforts to optimize organizational 

efficiency by restructuring leadership and program management functions at its national 

and regional offices. In order to provide additional funding for on-the-ground 

performance, many headquarters and regional activities will be consolidated on a 

centralized basis, and appropriate program management functions will be zoned across 

multiple regions. The Forest Service will realize personnel cost decreases of 

approximately 25 percent in national and regional office operations by the end of FY 

2009, as well as gain operational effectiveness throughout the organization. An executive 

steering team, led by Eastern Regional Forester Randy Moore, has been appointed to 

oversee this effort. 

Management Efficiencies to Date 

Several momentous achievements during FY 2006 set the Forest Service in sound fiscal 

and management position to address current challenges and implement the FY 2008 

program of work. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page 6

Business Process Reengineering

In 2006, the Forest Service continued its rigorous Business Process Reengineering effort. 

When completed, the agency’s restructuring of Human Capital Management, Budget and 

Finance, and Information Services Organization functions will result in net cost 

reductions of nearly $100 million between FY 2005 and FY 2008. In 2006, the Forest 

Service received its fifth consecutive “clean audit,” and remains off of the Government 

Accountability Office’s high-risk list. 

New Planning Rule

The new Forest Service Planning Rule, finalized in 2006, involves the public at every 

stage of the planning process, and focuses analyses on projects implementing land use 

plans rather than the creation of the plans themselves. Under this new rule, the time 

required to write forest plans will be cut in half, and forest plan revisions will take 2 to 3 

fewer years to complete. The new planning rule is one of many ways in which the Forest 

Service has adapted to a more demanding, complex environment while operating more 

efficiently and maintaining productivity. 

Implementation of the Healthy Forests Initiative

During FY 2006, the Forest Service continued to make significant progress under the 

President’s Healthy Forests Initiative. As discussed earlier, the Healthy Forests Initiative 

has streamlined administrative process and expedited priority projects to aid restoration 

of national forests and grasslands to more resilient conditions. Under the program in 

2006, the agency performed hazardous fuels treatments on more than 2.5 million high 

priority acres to reduce the risk of wildland fire and long-term resource damage. 

Collaborative Management

The Forest Service continues to leverage its resources by partnering across boundaries 

with diverse stakeholders through creative programs such as the Youth Conservation 

Corps, which accomplishes needed work on public lands while providing employment to 

youth from all social, economic, ethnic, and racial classifications. Stewardship 

contracting projects provide another example by contributing to the development of 

sustainable rural communities, restoring and maintaining healthy forest ecosystems, and 

providing a continuing source of local income and employment. These projects use 

contract instruments that authorize the disposal of NFS timber incidental to and in 

exchange for services to be performed on NFS lands. The Forest Service is aggressively 

implementing this authority, with the projected value of stewardship contracts increasing 

from $53 million in FY 2006, to $65 million in FY 2007, and $71 million in FY 2008. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 6, 2007 Page 7 

Conclusion 

By virtue of its multi-use mission, the U.S. Forest Service provides a diverse array of 

resources and services to the American public. The agency has risen to the challenge of 

sustaining these responsibilities in the midst of a complex and evolving management and 

natural resource landscape, and while supporting national priorities of deficit reduction. 

The FY 2008 Budget maintains high priority programs and focuses attention on process 

efficiencies, collaborative management, and a comprehensive restructuring of leadership 

and program management functions to improve performance and efficiencies. 

Legislative Proposals 

Continuing Transitional Support to Rural Communities through the 

National Forest Land Adjustment for Rural Communities Act 

The FY 2008 President’s Budget introduces the National Forest Land Adjustment for 

Rural Communities Act, which would authorize the Secretary of Agriculture (Secretary) 

to sell designated National Forest System (NFS) lands and retain the receipts. The 

authorization would allow receipts to the Treasury to be used as a source of funding for 

payments to State and local jurisdictions under a four year continuation of the Payments 

to States program, and for acquisition of land for the NFS system, conservation 

education, access to public lands, habitat improvement, and to cover administrative costs 

of disposal. 

The Secure Rural Schools and Community Self-Determination act of 2000 (SRS) (P.L. 

106-393) was enacted to provide transitional assistance to rural counties affected by the 

decline in revenue from timber harvests on Federal lands. Traditionally, these counties 

relied on a share of receipts from timber harvests to supplement local funding for school 

systems and roads. On September 30, 2006, the SRS authorization ended. The last 

payment under this authorization was made in December 2006. The Administration 

continues to support a 1-year extension of the SRS Act with agreed-upon full offsets as 

an interim step. The Budget underscores the President’s continuing commitment to 

States and counties impacted by the ongoing loss of receipts associated with lower timber 

harvests on Federal lands. The National Forest Land Adjustment for Rural Communities 

Act is included in the FY 2008 President’s Budget to provide four additional years of 

payments to fund transition payments targeted to the areas of greatest need to provide 

counties some additional time before payments are phased out. Under the proposal, half 

of land sales proceeds will be available to offset county payments and half will be 

available for national forest acquisition in the states in which lands are sold. Counties 

benefit from four additional years of payments, and states receive an environmental 

benefit from exchanging land with low environmental value for lands with high 

environmental value. 

The National Forest Land Adjustment for Rural Communities Act would authorize the 

Secretary of Agriculture to provide a reliable source of funding for a 4-year extension of 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 6, 2007 Page 8 

SRS and also provide a source of funding to improve the conservation of our national 

forests and grasslands. The bill would authorize the Secretary, when in the public 

interest, to sell National Forest System land or interests in land that the Secretary 

determines to be eligible for disposal. These parcels meet criteria identified in existing 

national forest land management plans as potentially suitable for conveyance. Many of 

these lands are isolated from other contiguous National Forest System land, and because 

of their location, size, or configuration are not efficient to manage as a component of the 

National Forest System. Management of isolated tracts can be expensive because of 

boundary management and encroachment resolution costs. The sale of these lands will 

not compromise the health or integrity of the National Forest System; instead, it will 

allow the agency to consolidate Federal ownership and reduce management costs. Land 

sales would be limited to a list of lands identified by the Secretary. 

This proposed legislation would authorize the Secretary to sell sufficient National Forest 

System land to fund an $800 million account. Under the bill, 50 percent of the receipts 

obtained from land sales would be used to make SRS Act payments over 4-year period 

with a gradual phase-out. Funds from the sales of NFS land would be available 

beginning with the Secure Rural Schools payment for FY08 and would correspond to a 

decreasing schedule of payments through the payment for FY 2011, through which the 

program would terminate. The other 50 percent of receipts from land sold within a State 

would be used for conservation purposes. 

Funds from the land sales account would be in addition to payments to the States from 

annual timber and other receipts on national forests and Bureau of Land Management 

(BLM) lands. For administrative purposes, the Secretary of Agriculture would also make 

the supplemental payments from this account for specific BLM lands. Timber receipts are 

expected to rise over the next 5 years, which should further help reduce the impact of the 

payment phase-out. 

 

The bill would also authorize the establishment of a national advisory board to advise the 

Secretary on the use of the proceeds from those land sales. State governments will be 

encouraged to participate in formulating recommendations to the national advisory board 

Secretary for habitat improvement projects and land acquisition needs. By selling lands 

that are inefficient to manage or have limited ecological values, and purchasing critical, 

environmentally sensitive lands, the Forest Service will maintain the integrity of the 

National Forest System while funding payments under the Act in a fiscally responsible 

manner. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page 9

Appendices 

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

B ... Forest Service Organization 

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

D ... Three-Year Budget Summary of Appropriations 

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

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

G ... FY 2004-08 Strategic Plan 

H ... Activity Output Measures 

I ... FY 2008 Capital Improvement Projects 

J ... Timber Harvest Volume, FY 2006-FY 2008 

K ... FY 2008 Proposed Land Acquisition Program 

L ... FY 2008 Proposed Forest Legacy Program 

M ... Five-Year Healthy Forest Initiative Funding, and Accomplishments 
 

(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page A - 1 

Appendix A 

Forest Service Mission, Goals, and Objectives 

Mission 

Sustain the health, diversity, and productivity of the Nation’s forests and 

grasslands to meet the needs of present and future generations. 

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

natural resource heritage. This relationship is characterized by the principles of 

sustaining our natural resources for future generations, producing personal and 

community well-being, and providing economic wealth for the Nation. 

Goals and Objectives 

The Forest Service’s National Strategic Plan outlines the agency’s over-arching goals 

and objectives. The agency has six strategic goals: 

• Reduce the risk from catastrophic wildland fire. Restore the health of the 

Nation’s forests and grasslands to increase resilience to the effects of wildland 

fire. 

• Reduce the impacts from invasive species. Restore the health of the Nation’s 

forests and grasslands to be resilient to the effects of invasive insects, pathogens, 

plants, and pests. 

 

• Provide outdoor recreation opportunities. Provide high-quality outdoor 

recreational opportunities on forests and grasslands, while sustaining natural 

resources, to meet the Nation’s recreational demands. 

• Help meet energy resource needs. Contribute to meeting the Nation’s need for 

energy. 

• Improve watershed condition. Increase the number of forest and grassland 

watersheds that are in fully functional hydrologic condition. 

• Conduct mission-related work in addition to that which supports the agency 

goals. Conduct research and other mission-related work to fulfill statutory 

stewardship and assistance requirements. 

There are 16 strategic objectives (outlined in Section G of this Overview) to guide 

program implementation. Each objective has corresponding performance measures that 

track progress in reaching the 6 goals included in the plan. 
 

(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page B-1

Appendix B 

Forest Service Organization 

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

agency. The Chief reports to the Under Secretary for Natural Resources and 

Environment in the U.S. Department of Agriculture (USDA), an appointee of the 

President confirmed by the Senate. The Chief’s staff provides broad policy and direction 

for the agency, works with the Administration to develop a budget to submit to Congress, 

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

agency. There are five deputy chiefs for the following areas: National Forest System; 

State and Private Forestry; Research and Development; Business Operations; and 

Programs, Legislation, and Communication.

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

research stations and research work units; and the Northeastern Area Office for State and 

Private Forestry. Each level has responsibility for a variety of functions. 

Ranger District: The Forest Service has more than 600 ranger districts. Each district has 

a staff of 10 to 100 people under the direction of a district ranger, a line officer who 

reports to a forest supervisor. The districts vary in size from 50,000 acres to more than 1 

million acres. Most on-the-ground activities occur on ranger districts, including trail 

construction and maintenance, operation of campgrounds, and management of vegetation 

and wildlife habitat. 

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

Each administrative unit is typically comprised of several ranger districts, under the 

overall direction of a forest supervisor. Within the supervisor's office, the staff 

coordinates activities among districts, allocates the budget, and provides technical 

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

foresters. 

Region: The Forest Service has nine regions, each encompassing a broad geographic 

area, and headed by a regional forester who reports directly to the Chief. The regional 

forester has broad responsibility for coordinating activities among the various forests 

within the region, for providing overall leadership for regional natural resource and social 

programs, and for coordinated regional land use planning. 

Northeastern Area: The Northeastern Area Office for State and Private Forestry 

includes three field offices and Grey Towers Historic Site. The area director, like 

regional foresters, reports directly to the Chief. The area director leads and helps support 

sustainable forest management and use across the landscape to provide benefits to the 

people of the 20 Northeastern and Midwestern States and the District of Columbia.
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page B-2

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

Development organization includes five research stations, the Forest Products 

Laboratory, and the International Institute of Tropical Forestry. Station directors, like 

regional foresters, report to the Chief. Research stations include Northern, Pacific 

Northwest, Pacific Southwest, Rocky Mountain, and Southern. There are 92 research 

work units located at 67 sites throughout the United States. 

Centralized Business Services: In FY 2006 the agency finalized centralizing three 

major functional areas: Budget and Finance (B&F), Information Resources Management 

(IRM), and Human Resources Management (HRM). All three functions report to the 

Deputy Chief for Business Operations. Most employees in two of these areas, B&F and 

HRM, are (or will be) located at the Albuquerque Service Center (ASC). Some IRM 

employees are at the ASC but most are housed in locations across the country. 

The map below provides the locations of the national forests and grasslands. For more 

information about the Forest Service, visit our web site at http://www.fs.fed.us. 

USDA Forest Service 

Map of Organizational Units 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Appendix C: 

Ten Year Graph of Forest Service Budget Authority 

Forest Service Budget 

(1999-2006 Enacted, 2007 Estimate, 2008 President's Budget)

$0

$500

$1,000$1,500$2,000$2,500$3,000$3,500$4,000$4,500$5,000

Nominal Dollars (in Millions)

Discretionary $2,759 $2,811 $4,374 $3,784 $3,956 $4,192 $4,238 $4,201 $4,1

Mandatory $685 $632 $828 $665 $658 $876 $892 $795 $8

Supplementals and Emergency $108 $242 $62 $346 $919 $724 $582 $177 $

1999 2000 2001 2002 2003 2004 2005 2006 20
(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page D-1

Appendix D

Three-Year Summary of Appropriations 

 

 FY 2008 Percent

 FY 2006 FY 2007 FY 2008 vs of 

 Final Estimate Budget FY 2007 Change

 (dollars in thousands) 

Discretionary Appropriations 

 

Forest & Rangeland Research 

Research and Development $277,711 $280,318 $263,000 -$17,318 -6%

Total, Forest & Rangeland Research $277,711 $280,318 $263,000 -$17,318 -6%

 

State and Private Forestry 

Forest Health Management 

Forest Health Fed Lands $53,163 $52,419 $52,959 $540 1%

Forest Health Coop Lands $46,904 $46,247 $38,130 -$8,117 -18%

Total, Forest Health Mmgt $100,067 $98,666 $91,089 -$7,577 -8%

 

Cooperative Fire Assistance 

State Fire Assistance $32,895 $32,434 $33,122 $688 2%

Volunteer Fire Assistance $5,912 $5,829 $9,000 $3,171 54%

Total, Cooperative Fire Assistance $38,807 $38,263 $42,122 $3,859 10%

 

Cooperative Forestry 

Forest Stewardship $34,144 $33,666 $20,000 -$13,666 -41%

Forest Legacy $56,524 $9,280 $29,311 $20,031 216%

Urban & Community Forestry $28,413 $28,015 $17,436 -$10,579 -38%

Economic Action $9,537 $9,404 $0 -$9,404 -100%

Forest Res Info & Analysis $4,588 $4,524 $0 -$4,524 -100%

Total, Cooperative Forestry $133,206 $84,889 $66,747 -$18,142 -21%

 

International Forestry $6,886 $6,790 $2,500 -$4,290 -63%

 

Subtotal, Regular Appropriations $278,966 $228,608 $202,458 -$26,150 -11%

 

Emergency & Supplemental Funding $30,000 $0 $0 $0 

 

Total, S&PF $308,966 $228,608 $202,458 -$26,150 -11%

 

 

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page D-2

 

Three-Year Summary of Appropriations 

 

 FY 2008 Percent

 FY 2006 FY 2007 FY 2008 vs of 

 Final Estimate Budget FY 2007 Change

 (dollars in thousands) 

 

National Forest System 

Land Management Planning $57,675 $57,547 $52,607 -$4,940 -9%

Inventory & Monitoring $166,638 $166,269 $146,462 -$19,807 -12%

Recreation, Wilderness & Heritage $258,797 $260,648 $231,400 -$29,248 -11%

Wildlife & Fish Management $131,734 $131,443 $117,633 -$13,810 -11%

Grazing Management $47,826 $47,720 $47,025 -$695 -1%

Forest Products $277,583 $310,114 $318,562 $8,448 3%

Vegetation & Watershed Management $179,852 $179,454 $154,322 -$25,132 -14%

Minerals & Geology Management $84,164 $83,978 $70,835 -$13,143 -16%

Landownership Management $90,932 $90,731 $80,840 -$9,891 -11%

Law Enforcement Operations $110,937 $110,692 $123,841 $13,149 12%

Valles Caldera $5,074 $5,063 $850 -$4,213 -83%

Centennial of Service Challenge $4,434 $0 $0 $0 0%

Subtotal, Regular Appropriations $1,415,646 $1,443,659 $1,344,377 -$99,282 -7%

 

Supplemental & Emergency Funding $40,000 $0 $0 $0 

 

Total, NFS $1,455,646 $1,443,659 $1,344,377 -$99,282 -7%

 

Wildland Firefighters [$189,666] [$213,265] $219,710 [$6,445] [3%]

 [Bracketed figures compare FY2008 funding to prior years.] 

Total, Wildland Firefighters [$189,666] [$213,265] $219,710 [$6,445] [3%]

 

 

Wildland Fire Management 

Preparedness $660,705 $655,887 $349,082 -$306,805 -47%

 [Including Wildland Firefighter funds for comparison] [$568,792] [-$87,095] [-13%]

 

Fire Operations - Suppression 

Regular Appropriations $690,186 $741,477 $911,032 $169,555 23%

 Supplemental & Emergency funding $100,000 $0 $0 $0 

Total, Fire Ops - Suppression $790,186 $741,477 $911,032 $169,555 23%

 

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page D-3

 

Three-Year Summary of Appropriations 

 

 FY 2008 Percent

 FY 2006 FY 2007 FY 2008 vs of 

 Final Estimate Budget FY 2007 Change

 (dollars in thousands) 

Fire Operations - Other 

Hazardous Fuels $280,119 $291,792 $291,533 -$259 0%

Rehab & Restoration $6,189 $5,000 $0 -$5,000 -100%

Fire Research & Development $22,789 $22,800 $22,000 -$800 -4%

Joint Fire Sciences Program $7,882 $13,000 $8,000 -$5,000 -38%

NFP Forest Health - Fed Lands $14,779 $14,800 $14,252 -$548 -4%

NFP Forest Health - Coop Lands $9,853 $10,000 $10,014 $14 0%

NFP State Fire Assistance $45,816 $43,000 $35,004 -$7,996 -19%

NFP Volunteer Fire Assistance $7,773 $12,810 $8,000 -$4,810 -38%

Total, Fire Ops - Other $395,200 $413,202 $388,803 -$24,399 -6%

 

Subtotal, Regular Appropriations $1,746,091 $1,810,566 $1,648,917 -$161,649 -9%

 

Supplemental & Emergency funding 

 included in Suppression $100,000 $0 $0 $0 

Total, WFM $1,846,091 $1,810,566 $1,648,917 -$161,649 -9%

 

Capital Improvement & Maintenance 

Facilities $123,698 $117,874 $119,647 $1,773 2%

Roads $220,688 $210,297 $227,431 $17,134 8%

Trails $74,205 $70,711 $66,387 -$4,324 -6%

Deferred Maintenance $12,743 $12,143 $9,100 -$3,043 -25%

Subtotal, Regular Appropriations $431,334 $411,025 $422,565 $11,540 3%

 

Supplemental & Emergency Funding $7,000 $0 $0 $0 

 

Total, CI&M $438,334 $411,025 $422,565 $11,540 3%

 

Land Acquisition 

Land Acquisitions $41,772 $7,500 $15,703 $8,203 109%

Acquisition of Lands for National 

 Forests, Special Acts $1,053 $1,053 $1,053 $0 0%

Acquisition of Lands to Complete 

 Land Exchanges $231 $231 $231 $0 0%

Subtotal, Regular Appropriations $43,056 $8,784 $16,987 $8,203 93%

 

Total, Land Acquisition $43,056 $8,784 $16,987 $8,203 93%

 

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 23, 2007 Page D-4

 

Three-Year Summary of Appropriations 

 

 FY 2008 Percent

 FY 2006 FY 2007 FY 2008 vs of 

 Final Estimate Budget FY 2007 Change

 (dollars in thousands) 

Other Appropriations 

Gifts, Donations, and Bequests for 

 Research $63 $63 $56 -$7 -11%

Range Betterment Fund $3,130 $3,500 $3,750 $250 7%

Subsistence Mgmt (R10) $4,975 $4,875 $5,053 $178 4%

Total, Other Appropriations $8,168 $8,438 $8,859 $421 5%

 

Subtotal, Discretionary Appropriations -- 

 non-emergency 

$4,200,972 $4,191,398 $4,126,873 -$64,525 -2%

 

Supplemental & Emergency Funding $177,000 $0 $0 $0 

 

Total, Discretionary Appropriations $4,377,972 $4,191,398 $4,126,873 -$64,525 -2%

 

Mandatory Appropriations 

 

Permanent Appropriations 

Brush Disposal $11,591 $11,000 $11,000 $0 0%

Licensee Program $84 $51 $65 $14 27%

Restoration of Forestlands & 

 Improvements $2,871 $8,000 $2,500 -$5,500 -69%

Federal Lands Recreation 

 Enhancement Fund $53,444 $54,900 $54,900 $0 0%

Federal Lands and Facilities 

 Enhancement Fund $39,130 $48,000 $50,000 $2,000 4%

Timber Roads - Purchaser Election $6,800 $4,000 $4,000 $0 0%

Timber Salvage Sale $66,963 $66,000 $67,000 $1,000 2%

Stewardship Contracting $3,631 $6,000 $6,000 $0 0%

Timber Sales Pipeline Restoration $3,316 $4,700 $4,800 $100 2%

Roads and Trails $15,268 $15,300 $15,300 $0 0%

Midewin - Rental Fees $357 $400 $400 $0 0%

Midewin - Restoration $0 $10 $0 -$10 -100%

Operation & Maintenance of Quarters $7,819 $8,000 $8,000 $0 0%

LBL Management Fund $3,552 $3,500 $3,700 $200 6%

Administration of Rights 0f Way $884 $4,300 $4,600 $300 7%

Forest Botanical Products $867 $1,900 $1,900 $0 0%

Valles Caldera Fund $0 $750 $750 $0 0%

Total, Permanent Appropriations $216,577 $236,811 $234,915 -$1,896 -1%

 

Payment to States $427,768 $431,060 $97,788 -$333,272 -77%

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised March 30, 2007 Page D-5

Three-Year Summary of Appropriations 

 

 FY 2008 Percent

 FY 2006 FY 2007 FY 2008 vs of 

 Final Estimate Budget FY 2007 Change

 (dollars in thousands) 

Discretionary Appropriations 

Trust Funds 

Cooperative Work - KV $77,584 $75,000 $75,000 $0 0%

Cooperative Work - Other $42,985 $48,000 $55,000 $7,000 15%

Subtotal, Cooperative Work $120,569 $123,000 $130,000 $7,000 6%

LBL Trust Fund $256 $270 $290 $20 7%

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

Total, Trust Funds $150,825 $153,270 $160,290 $7,020 5%

 

Total, Mandatory Appropriations $795,170 $821,141 $522,585 -$298,556 -36%

 

Subtotal, FS non-emergency $4,996,142 $5,012,539 $4,619,866 -$392,673 -8%

Subtotal, FS supplemental & emergency $177,000 $0 $0 $0 

 

Grand Total, FS $5,173,142 $5,012,539 $4,619,866 -$392-673 -8%
(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page E -1

Appendix E 

Three-Year Summary of Full-Time Equivalents 

 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 FTEs FTEs FTEs FY 2007 

Discretionary Appropriations 

 

Forest & Rangeland Research 

Forest & Rangeland Research 2,134 2,108 1,935 -173

Fire Research & Development 152 174 174 0

Joint Fire Sciences Program 0 0 0 0

Gifts, Donations, and Bequests for Research 0 0 0 0

Total, Forest & Rangeland Research 2,286 2,282 2,109 -173

 

State & Private Forestry 

Forest Health Management 

Forest Health - Fed Lands 335 344 343 -1

NFP Forest Health - Fed Lands 95 120 119 -1

Forest Health - Coop Lands 47 49 49 0

NFP Forest Health - Coop Lands 13 16 16 0

Total--Forest Health Management 490 529 527 -2

 

Cooperative Fire Protection 

State Fire Assistance 50 50 49 -1

NFP State Fire Assistance 1 2 2 0

Volunteer Fire Assistance 0 0 0 0

NFP Volunteer Fire Assistance 0 0 0 0

Total--Cooperative Fire Protection 51 52 51 -1

 

Cooperative Forestry 

Forest Stewardship 73 72 70 -2

Forest Legacy 23 24 25 1

Urban & Community Forestry 58 57 55 -2

Economic Action 5 5 0 -5

Forest Res Info & Analysis 17 17 0 -17

Total--Cooperative Forestry 176 175 150 -25

 

International Forestry 24 24 13 -11

Total, State & Private Forestry 741 780 741 -39

 

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page E -2

 

Three-Year Summary of Full-Time Equivalents 

 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 FTEs FTEs FTEs FY 2007 

 

National Forest System 

Land Management Planning 427 416 384 -32

Inventory & Monitoring 1,189 1,177 1,002 -175

Recreation, Wilderness, & Heritage 2,476 2,498 2,198 -300

Wildlife & Fish Management 1,151 1,144 964 -180

Grazing Management 454 453 420 -33

Forest Products 2,663 2,748 2,952 204

Vegetation & Watershed Management 1,444 1,452 1,145 -307

Minerals & Geology Management 611 619 451 -168

Landownership Management 788 797 654 -143

Law Enforcement Operations 737 739 786 47

Valles Caldera National Preserve 0 0 0 0

Centennial of Service 25 0 0 0

NFP-Rehabilitation and Restoration 27 36 0 -36

Total, National Forest System 11,992 12,079 10,956 -1,123

 

Wildland Firefighters (WFF)* [2,995] [3,015] 3,200 [185]

 --- --- 3,200 3,200

Wildland Fire Management (WFM) 

Preparedness 4,860 4,863 1,307 -3,556

Fire Operations - Suppression 6,695 5,672 5,645 -27

Fire Operations - Other 

Hazardous Fuels 1,947 2,040 2,031 -9

Total, Wildland Fire Management 13,502 12,575 8,983 -3,592

 

TOTAL, WFF and WFM 13,502 12,575 12,183 -392

 

Capital Improvement & Maintenance 

Facilities 528 489 456 -33

Roads 1,393 1,234 1,312 78

Trails 640 576 508 -68

Deferred Maintenance 35 27 22 -5

Total, Capital Improvement & Maintenance 2,596 2,326 2,298 -28

 

Land Acquisitions 

Land Acquisitions 115 72 71 -1

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0

Total, Land Acquisitions 116 73 72 -1

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page E -3

 

Three-Year Summary of Full-Time Equivalents 

 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 FTEs FTEs FTEs FY 2007 

Other Appropriations 

Range Betterment Fund 15 14 18 4

Management of NF Lands for Subsistence Uses 23 25 25 0

Total--Other Appropriations 38 39 43 4

 

Total, Discretionary Appropriations 31,271 30,154 28,402 -1,752

 

Total, Mandatory Appropriations 3,060 2,809 2,489 -320

Total, Working Capital Fund 529 525 500 -25

Emergency Funding FTEs 47 30 0 -30

Grand Total, Forest Service 34,907 33,518 31,391 -2,127

 

* Wildland Firefighters is a new appropriation for FY 2008. Numbers in brackets represent the FTEs in 

Preparedness in previous fiscal years that are equivalent to those in FY 2008 budget request. 
 

(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page F - 1 

Appendix F

Three-Year Receipts by Source and Payments to States 

 FY 2006 FY 2007 FY 2008 

Revenues and Receipts ACTUAL ESTIMATE ESTIMATE

 

Deposits in the National Forest Fund, and the National 

Grasslands Fund. 

National Forest Fund Receipts for Sale of Products or 

Use of Land 

 Timber 84,428 90,000 95,000

 Grazing 5,900 7,000 7,500

 Land Uses 11,552 12,000 12,500

 Recreation, Admission, and User Fees 48,795 50,000 50,000

 Power 2,400 2,500 2,600

 Minerals 2,883 3,250 3,400

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Subtotal 155,958 164,750 171,000

 

National Grasslands Fund and Land Utilization 

Projects Receipts 

 Grazing 700 700 700

 Minerals 42,000 45,000 47,250

 Other 340 340 340

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Subtotal 43,040 46,040 48,290

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Subtotal of Receipts that are deposited into the National 

Forest Fund, and the National Grasslands Fund. 198,998 210,790 219,290

 

 

National Forest Fund Receipts, National Grassland 

Receipts, and/or Land Utilization Project Receipts which 

are transferred to Permanent and Other Appropriations 

by Special Acts 

 Acquisition of Lands for National Forests, Special 

Acts 1,053 1,069 1,069

 Ten-Percent Roads and Trails Fund 15,268 15,300 15,300

 Range Betterment Fund (50 Percent Grazing) 3,130 3,500 3,750

 Timber Roads--Purchaser Election Program 6,800 4,000 4,000

 Timber Sales Pipeline Restoration Fund 3,316 4,700 4,800

 Midewin NTP Rental Fees 357 400 400

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Subotal--Transfers to Permanent Appropriations and 

Others 29,924 28,969 29,319

 

 

Total -- National Forest Fund Receipts, National 

Grasslands Receipts, and Land Utilization Project 

Receipts on deposit that are the source of funds for 

Payments to States, or any returns to the Treasury 169,074 181,821 189,971

 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page F - 2 

 

Three-Year Receipts by Source and Payments to States 

 FY 2006 FY 2007 FY 2008 

Revenues and Receipts ACTUAL ESTIMATE ESTIMATE

Receipts that are considered to be National Forest Fund 

Receipts for the purposes of the 1908 Act, but which are 

deposited directly into the following Permanent and Trust 

Funds 

Timber Sale Area Improvement (Knutson-Vandenberg 

Fund) 77,584 75,000 75,000

Timber Salvage Sales 66,963 66,000 67,000

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Subotal--Deposits to Permanent and Trust Appropriations 144,547 141,000 142,000

 

Credits to Timber Purchasers that are considered to be 

National Forest Fund receipts for the purposes of the 1908 

Act, but are not a receipt of funds. 

Timber Roads 

Purchaser Credit Program 1,086 1,000 1,000 

Specified Road Costs 19,361 20,000 20,000 

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Subotal--Credits 20,447 21,000 21,000

 

Grand Total -- National Forest Fund, National Grasslands 

Fund and Land Utilization Project Receipts, plus deposits 

and credits deemed to be National Forest Fund for purposes 

of the 1908 Act 363,992 372,790 382,290

 

Permanent Appropriations, Cooperative Work, and Other 

Appropriations not deemed to be National Forest Fund 

receipts for the purposes of the 1908 Act 

 Brush Disposal 11,591 11,000 11,000

Stewardship Contracting retained receipts 3,631 6,000 6,000

 Cooperative Contributions 42,985 48,000 55,000

 Midewin NTP Restoration Fund & Rental Fees 0 10 0

 Licensee Programs 84 51 65

Federal Lands Recreation Enhancement Fund 53,444 54,900 54,900

 Operation and Maintenance of Quarters 7,819 8,000 8,000

Federal Land and Facility Enhancement Fund 39,130 48,000 50,000

 Restoration of Forestlands and Improvements 2,871 8,000 2,500

 Acquisition of Lands to Complete Land Exchanges 444 234 234

 Gifts, Donations, and Bequests for Research 584 63 65

 Administration of Rights-of-Way, Other Land Uses 884 4,300 4,600

 Land Between the Lakes (LBL) Management Fund 3,552 3,500 3,700

 Land Between the Lakes (LBL) Trust Fund 256 270 290

 Valles Caldera Fund 0 750 750

Forest Botanical Products 867 1,900 1,900

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Total -- Receipts deposited for Permanent Appropriations, 

Cooperative Work, and Other Appropriations 168,142 194,978 199,004

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Total--Forest Service Receipts 541,611 575,737 589,613
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

Revised February 23, 2007 Page F - 3 

Three-Year Receipts by Source and Payments to States 

 

 FY 2006 FY 2007 FY 2008 

Revenues and Receipts ACTUAL ESTIMATE ESTIMATE

 

Revenues received by other agencies for activities on National 

Forest Lands 

Power Licenses on Public Domain Lands, estimated 1/ 20,000 20,000 20,000

Mineral Leases on Public Domain Lands, Acquired Lands, and 

Oregon and California Grant Lands, estimated 1/ 765,000 765,000 775,000

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Total -- Revenues to other agencies for activities on National 

Forest Lands 785,000 785,000 795,000

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Grand Total--Revenues and Receipts from National 

Forest Lands 1,326,611 1,360,737 1,384,613

 

Payments and Transfers for Sates and Counties. 2/ 

Payments and Transfers from National Forest Fund Receipts 

Payment to Minnesota 2,101 2,101 2,100

Payments to States, Act of 1908 3/ 6,657 6,385 81,688

Secure Rural Schools & Community Self-Determination Act 

Payment to States, Title I & III 75,367 139,841 0

Transfer to Forest Service, Title II 33,642 32,259 0

Payments from U.S. Treasury funds 

Secure Rural Schools & Community Self-Determination Act 

Payment to States, Title I & III 295,916 236,874 0

Payments from National Grasslands and Land Utilization Project 

receipts 

Payments to Counties 14,085 13,600 14,000

 ▬▬▬▬▬ ▬▬▬▬▬ ▬▬▬▬▬

Total--Payments and Transfers for States and Counties 427,768 431,060 97,788

 

Funds to Treasury for National Forest Fund Receipts after 

Payments and Transfers 0 0 30,000

 

Funds to Treasury for National Grasslands and Land Utilization 

Projects after Transfers by Special Acts 0 30,000 34,000

 

1/ Represents receipts from National Forest System lands which are deposited directly to Department of Interior 

and Department of Energy. 

2/ Payments and Transfers made from the National Forest Fund are earned in the previous fiscal year and paid from 

those previous years' receipts in the fiscal year shown. 

3/ FY 2008 amount represents optimal payments to states (in excess of 25% of eligible receipts above) due to 

uncertainty of predicting revenue. 
 

(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page G-1 

Appendix G 

FY 2004 – FY 2008 STRATEGIC GOALS AND OBJECTIVES 

The Forest Service’s 2004-2008 National Strategic Plan outlines the agency’s strategic goals and 

objectives. The Forest Service’s six strategic goals are accompanied by 16 strategic objectives 

that guide program implementation and corresponding performance measures. 

In early FY 2007, the Forest Service will complete the 3-year update of its Strategic Plan, in 

accordance with the Government Performance and Results Act. The update process will ensure 

continuity with the current plan and will be tiered to the USDA Strategic Plan, FY 2005-2010. 

See Table on Next Page 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page G-2 

Strategic Goal Agency Objectives Performance Measures 

1.1 a: Number of acres of hazardous fuels treated 

in the wildland-urban interface and percent 

identified as high priority through collaboration 

consistent with the 10-year Comprehensive 

Strategy Implementation Plan. 

1.1 b: Number of acres in the wildland-urban 

interface treated per $1 million gross investment. 

1.1 c: Number of acres of hazardous fuels treated 

in Condition Classes 2 or 3 in Fire Regimes 1, 2, 

or 3 outside the wildland-urban interface, and 

percent identified as high priority through 

collaboration consistent with the 10-Year Plan. 

1.1 d: Number of acres treated outside the 

wildland-urban interface per $1 million gross 

investment. 

1.1 e: Number of acres in Condition Classes 2 or 

3 in Fire Regimes 1, 2, or 3, treated by all land 

management activities that improve condition 

class, and percent that were identified as high 

priority through collaboration consistent with the 

10-Year Plan. 

1.1 f: Percent of mechanically treated acres to 

reduce hazardous fuels with byproducts used. * 

1.1: Improve the health of National 

Forest System lands that have the 

greatest potential for catastrophic 

wildland fire. 

1.1 g: Number of acres brought into stewardship 

contracts. * 

1.2.a: Percent of unplanned and unwanted 

wildland fires controlled during initial attack. * 

1.2.b: Number of acres burned by unplanned and 

unwanted wildland fires. * 

1.2: Consistent with resource 

objectives, wildland fires are 

suppressed at a minimum cost, 

considering firefighter and public 

safety, benefits, and values to be 

protected. 

1.2.c: Percent of large fires in which the value of 

resources protected exceeds the cost of 

suppression. * 

1.3 a: Percent of communities at risk with 

completed and current fire management plans or 

risk assessments. * 

1. Reduce the risk 

from catastrophic 

wildland fire 

1.3: Assist 2,500 communities and 

those non-National Forest System 

lands most at risk with developing 

and implementing hazardous fuels 

reduction and fire prevention plans 

and programs. 

1.3 b: Number of acres covered by partnership 

agreements. * 

2.1 a: Availability and reliability of the annual 

National Risk Assessment survey. 

 2.1 b: Acres treated for selected invasive 

species. 

2. Reduce the 

impacts from 

invasive species 

2.1: Improve the effectiveness of 

treating selected invasive species on 

the Nation’s forests and grasslands. 2.1 c: Percent change in the rate of spread of 

selected invasive species. 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page G-3 

Strategic Goal Agency Objectives Performance Measures 

3.1 a: Miles and percent of trail network 

maintained to standard. * 

3.1 b: The 3-year average number of fatalities on 

the passenger car road network. * 

3.1 c: Number and percent of facilities 

maintained to standard. * 

3.1 d: Number and percent of facilities and sites 

that meet accessibility standards. * 

3.1: Improve public access to 

National Forest System land and 

water and provide opportunities for 

outdoor health-enhancing activities. 

3.1 e: Number of rights-of-way acquired to 

provide public access. 

3. Provide outdoor 

recreational 

opportunities 

3.2: Improve the management of 

off-highway-vehicle use to protect 

natural resources, promote safety of 

all users, and minimize conflicts 

among various uses through the 

collaborative development and 

implementation of locally based 

travel management plans. 

3.2.a: Percent of National Forest System lands 

covered by travel management implementation 

plans. 

4.1: Work with other agencies to 

identify and designate corridors for 

energy facilities, improve the 

efficiency of processing permit 

applications, and establish 

appropriate land tenure (including 

transferability clauses) in easements 

and other authorizations to provide 

for long-term project viability. 

4.1.a: Percent of energy facility and corridor 

applications approved within prescribed 

timeframes. * 

4. Help meet 

energy resource 

needs 

4.2: Stimulate commercial use of 

small-diameter trees from National 

Forest System lands for biomass 

energy. 

4.2.a: Total biomass from small-diameter and 

low-value trees used for energy production. * 

5.1.a: Number of inventoried forest and grassland 

watersheds in fully functioning condition as a 

percent of all watersheds. 

5.1: Assess and restore high-priority 

watersheds and maintain riparian 

habitat in these watersheds. 5.1.b: Acres of nonindustrial private forest land 

under approved stewardship management plans. 

5.2.a: Percent of projects on National Forest 

System lands fully implementing best 

management practices (BMPs). 

5.2: Monitor water quality impacts 

of activities on National Forest 

System lands. 5.2.b: Allotment acres and percent administered 

to 100 percent of standard. 

5.3 a: Terrestrial and aquatic habitat enhanced to 

achieve desired ecological conditions. 

5. Improve 

watershed 

condition 

5.3: Restore and maintain native and 

desired nonnative plant and animal 

species diversity in terrestrial and 

aquatic ecosystems and reduce the 

rate of species endangerment by 

contributing to species recovery. 

5.3.b: Value of partnership contributions that 

support habitat enhancement. 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page G-4 

Strategic Goal Agency Objectives Performance Measures 

6.1.a: Percent of the Nation for which forest 

inventory and analysis information is accessible 

 6.1: Provide current resource data, to external customers. 

monitoring, and research information 

in a timely manner. 

6.1.b: The percent of research and development 

products or services that meet customer 

expectations as assessed through targeted, 

standardized evaluations. 

6.2.a: Review of financial statement audits and 

implementation of corrective actions based on 

audit findings. 

6.2.b: Average number of days between fiscal 

obligation and transaction data entry into the 

Foundation Financial Information System. 

6.2.c: Extent to which performance data are 

current and complete. 

6.2.d: Number of accounting adjustments 

required to reconcile agency quarterly reports 

with Federal Treasury reports. 

6.2: Meet Federal financial 

management standards and integrate 

budget with performance. 

6.2.e: Number of "business operations internal 

control weaknesses" identified in annual financial 

statement audits. 

6.3: Maintain the environmental, 

social, and economic benefits of 

forests and grasslands by reducing 

their conversion to other uses. 

6.3.a: Acres of land adjustments to conserve the 

integrity of undeveloped lands and habitat quality. 

* 

6. Conduct 

mission-related 

work in addition to 

that which 

supports the 

agency goals 

6.4.a: Number of firefighters injured in fire6.4: Maintain Office of Safety and related incidents. 

Health Administration standards. 6.4.b: Number of new Office of Workers’ 

Compensation Program cases. 

6.5.a: Number and percent of Land and Resource 

Management Plans developed and revised. 

6.5.b: Percent of data in information systems that 

is current to standard. 

6.5: Develop and maintain the 

processes and systems to provide and 

analyze scientific and technical 

information to address agency 

priorities. 6.5.c: Number and percent of forest plan 

monitoring reports completed. 

* These performance measures have been identified through the PART process as 

needing to be updated. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 6, 2007 Page H-1 

Appendix H

Output / Outcome Measures 

The following table of measures presents Forest Service outputs according to 

appropriation, budget line item (BLI), and activity measure. The agency manages work 

activities and outputs to achieve long-term, on-the-ground outcomes. 

The activity/output table consolidates information that is presented throughout this 

document by BLI. Please refer to those sections for more detailed discussions about the 

measurements and the agency’s plans for meeting output targets. 

Appropriation Output/Outcome by Activity 

Budget Line Item 

Measure 

FY 2006 

Plan 

FY 2006 

Actual 

FY 2007 

Plan 

FY 2008 

Plan 

Forest and Rangeland Research 

Percentage of Research and Development 

products and services that meet customer 

expectations* 

72% 72% 72% 72%

Percent of Nation with accessible FIA 

data** 88% 84% 88% 90%

* Beginning in FY 2006, this measure is formulated from the American Customer Satisfaction Index, an 

independently administered survey. 

** Beginning in FY 2006, this measure is based on percent of States, rather than percent of land area as in 

past years. 

State and Private Forestry 

Forest Health Management - Federal Lands 

Federal acres treated - Invasives 79,700 111,600 89,863 88,220

Federal acres treated - Native pests 47,300 26,846 47,214 31,522

Forest Health Management - Cooperative Lands 

Cooperative lands acres treated - Invasives 670,275 589,298 517,384 458,081

Cooperative lands acres treated - Native 

pests 160,117 134,346 91,234 61,254

State Fire Assistance 

Communities assisted (number) 6,653 4,290 5,278 5,455

Volunteer Fire Assistance 

Volunteer fire departments assisted 

(number) 2,800 3,062 2,800 4,389

Forest Stewardship 

Non-industrial private forestlands (NIPF) 

under approved stewardship management 

plans 1,575,000 1,409,170 1,500,000 850,000

Number of NIPF stewardship management 

plans 16,250 12,243 12,500 7,700

Forest Legacy Program 

Acres of land adjustments to conserve the 

integrity of undeveloped lands and habitat 

quality 230,000 361,467 20,000 60,000

Parcelization of forests avoided (number of 

parcels prevented) (Targets under 

development) * Baseline 19,342 1,000 3,200

* This is a new measure. The FY 2007 and FY 2008 targets reflect only 1 year of parcelization data; 

eventually, a 3-year average will be used. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 6, 2007 Page H-2 

Appropriation Output/Outcome by Activity 

Budget Line Item 

Measure 

FY 2006 

Plan 

FY 2006 

Actual 

FY 2007 

Plan 

FY 2008 

Plan 

Urban and Community Forestry 

Technical assists to communities (number of 

communities assisted)* 6,200 6,364 5,800 ---

Volunteer assistance generated (days)* 220,000 223,688 220,000 ---

Percentage of people living in communities 

managing programs to plant, protect, and 

maintain their urban and community trees and 

forests. 38% 37% 38% 37%

Percentage of people living in communities 

developing programs and/or activities to plant, 

protect, and maintain their urban and 

community trees and forests. 35% 36% 35% 20%

* Activity not tracked after FY 2007. 

International Forestry 

Acres of migratory habitat restored 130,000 130,000 130,000 65,000

National Forest System 

Land Management Planning 

Number of land management plan revisions or 

creations underway 51 50 41 33

Number of land management plan 

amendments underway 33 23 33 40

Inventory and Monitoring 

Acres of inventory data collection and entry 

completed* 30,273,000 28,781,899 --- ---

Acres of legacy data migrated* 73,285,000 6,807,747 --- ---

Acres of inventory data collected and acquired --- --- 16,362,000 14,600,000

Number of annual monitor and evaluation 

reports completed 90 84 --- ---

Number of annual monitoring requirements 

completed --- --- 3,000 1,200

Number of landscape scale ecosystem 

assessments completed** 69 68 --- ---

Number of broadscale assessments 

underway** 18 29 --- ---

Number of ecosystem assessments 

completed** --- --- 53 0

* Activity not tracked after FY 2006 

** Activity redefined in FY 2007. Broadscale and landscape scale assessments combined into 

ecosystem assessments. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

RevisedMarch 30, 2007 Page H-3 

Appropriation Output/Outcome by Activity 

Budget Line Item 

Measure 

FY 2006 

Plan 

FY 2006 

Actual 

FY 2007 

Plan 

FY 2008 

Plan 

Recreation, Heritage, and Wilderness 

Number of recreation site capacity (PAOT 

days) operated to standard 80,999,000 82,482,208 76,300,000 70,655,000

Percentage of NFS lands covered by travel 

management plans resulting in visitor safety, 

resource protection using best management 

practices and less visitor conflict with off-road 

vehicle usage 1% 0.3% 21% 48%

Number of recreation interpretation & 

education products provided to standard* 13,460 15,725 9,200 ---

Number of recreation special use 

authorizations administered to standard 11,899 10,091 9,335 7,910

Number of heritage assets managed to 

standard** 6,531 5,399 6,250 ---

Number of priority heritage assets managed to 

standard** --- --- --- 2,275

Number of wilderness areas managed to 

minimum stewardship level 99 61 74 87

Number of wild & scenic river areas meeting 

statutory requirements*** --- 47 51 55

Customer satisfaction with value for fee paid 83 82 84 85

* Not tracked after FY 2007 

** Definition changed in FY 2008 to include only priority heritage assets 

*** Definition changed from "...areas managed to standard" in FY 2008 

Wildlife and Fisheries Habitat Management 

Miles of stream habitat restored or enhanced* 1,457 1,655 1,300 900

Acres of lake habitat restored or enhanced** 13,742 15,996 8,600 7,500

Acres of terrestrial habitat enhanced 196,716 278,811 146,000 110,000

Number of wildlife interpretation & education 

products provided*** 2,053 3,554 1,665 ---

* Definition changed from "Miles of stream enhanced" starting in FY 2007. 

** Definition changed from "Acres of lake enhanced" starting in FY 2007. 

***Activity not tracked after FY 2007. 

Grazing Management 

Allotment acres and per cent administered to 

100 percent of Forest Plan standards 

23,089,000 

(25%) 

49,583,208 

(54%) 

21,517,618 

(23%) 

22,857,000

(25%)

Number of grazing allotments with signed 

decision notices 484 443 321 480
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 6, 2007 Page H-4 

Appropriation Output/Outcome by Activity 

Budget Line Item 

Measure 

FY 2006 

Plan 

FY 2006 

Actual 

FY 2007 

Plan 

FY 2008 

Plan 

Forest Products 

Approved timber sale NEPA documents 

(through appeal and litigation)* 405 N/A --- ---

Volume of regular timber sold (Hundred Cubic 

Feet)** 3,417,500 2,956,316 4,200,000 4,600,000

Volume of regular timber harvested (CCF)*** 3,071,084 4,427,703 4,600,000 4,000,000

Number of special forest product permits 

issued**** 165,806 136,051 146,000 ---

* Activity not tracked during or after FY 2006. 

**Activity reworded from "timber volume sold" in FY 2008. 

***Activity reworded from "Timber volume harvested" in FY 2008. (Actual harvest volume includes 

regular plus salvage sales.) 

**** Activity "number of special forest products permits administered" redefined to "permits issued" in 

FY 2007 and dropped in FY 2008. 

Vegetation and Watershed Management 

Acres of forest vegetation improved 54,482 62,185 77,400 72,800

Establish Forest Vegetation acres 32,526 33,827 34,200 13,130

Acres of rangeland vegetation improved 1,751,300 1,755,824 1,726,440 1,794,000

Acres of watershed improvement 13,027 16,934 12,200 13,000

Acres of noxious weeds and invasive plants 

treated 80,800 79,069 115,702 129,000

Number of air quality services provided* 322 345 330 ---

*Activity not tracked after FY 2007. 

Minerals and Geology Management 

Number of mineral operations administered 13,267 15,152 13,533 11,955

Number of mineral applications processed* 6,548 11,632 9,445 6,705

Number of AML safety risk features mitigated 

to "no further action** 312 346 539 474

Number of administrative units where audits 

were conducted 17 20 34 33

Number of contaminated or disturbed sites 

which have been mitigated *** 25 115 80 ---

Percentage of contaminated sites mitigated 

**** --- --- --- 20%

Percentage of backlog (existing at the end of 

FY 03) in APDs reduced. 86% 90% 100% 100%

* Activity redefined in FY 2007 from "Number of mineral operations processed" 

**In FY 2008, accomplishments represent planned completion of multi-year projects. In FY 2006-2007, 

planned accomplishments included on-going multi-year projects that would not be completed until 

future years. 

*** Not tracked after FY 2007. 

**** New activity starting in FY 2008. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 24, 2007 Page H-5 

Appropriation Output/Outcome by Activity 

Budget Line Item 

Measure 

FY 2006 

Plan 

FY 2006 

Actual 

FY 2007 

Plan 

FY 2008 

Plan 

Landownership Management 

Acres of land adjustments to conserve the 

integrity of undeveloped lands and habitat 

quality* 20,824 14,719 12,515 10,015

Land ownership title cases resolved through 

litigation or processed through administrative 

procedure** 274 282 --- ---

Number of title management cases resolved or 

completed to standard*** --- --- 240 185

Miles of landownership boundary line 

marked/maintained to standard 2,304 2,334 2,080 1,855

Number of land use authorizations 

administered to standard 6,373 12,708 12,170 9,845

Number of land use proposals and applications 

processed 1,725 4,611 5,120 4,220

* Activity redefined; FY2006 was "Land ownership acres adjusted", FY 2007 was "Acres acquired or 

conveyed" 

** Activity not tracked after 2006. 

*** Activity not tracked before 2007. 

Law Enforcement Operations 

Percent of reported incidents with action was 

taken 60% 65% 65% 80%

Percent of cases closed 75% 77% 77% 82%

Wildland Fire Management 

Preparedness 

Percent change from the 10-year average for 

the number of wildfires controlled during 

initial attack* +/- 0.5% -0.4% +/- 0.5% +/- 0.5%

Percent change from the 10-year average for 

the number of human-caused wildfires* -2.0% 4.5% -2.0% -2.0%

Chains per hour ** 15,130 13,920 --- ---

Percent of wildland fires suppressed during 

initial attack (less than 300 acres)** 99% 98% --- ---

* New activity beginning in FY 2007. 

**Activity not tracked after FY 2006. 

Fire Operations 

Suppression 

Gross fire suppression costs per acre* $676 $745 $676 ---

Percent of fires not contained in initial attack 

that exceed a Stratified Cost Index (SCI) 24% 26.5% 21% 20%

Three-year percent of fires not contained in 

initial attack that exceed a Stratified Cost 

Index (SCI)** --- --- 25.3% 23.1%

*Activity not tracked after FY 2007. 

**New activity beginning in FY 2007. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 6, 2007 Page H-6

Appropriation Output/Outcome by Activity 

Budget Line Item 

Measure 

FY 2006 

Plan 

FY 2006 

Actual 

FY 2007 

Plan 

FY 2008 

Plan 

Hazardous Fuels 

Acres of non-Wildland-Urban Interface 

hazardous fuels mitigated 510,000 409,467 350,000 300,000

High-priority acres treated in the WildlandUrban Interface 1,383,000 1,045,202 1,400,000 1,500,000

Acres of hazardous fuels reduction 

obtained through other land management 

activities 870,000 1,092,917 1,150,000 1,150,000

Total acres treated in Wildland Urban 

Interface (WUI) and non-WUI and also 

acres treated for other vegetation 

management activities that achieved fire 

objectives as a secondary benefit. 2,763,000 2,547,586 2,900,000 2,950,000

Percentage of total National Forest System 

land base for which fire risk is reduced 

though movement to a better condition 

class. 1.0% 1.1% 2.0% 3.0%

Acres moved to a better condition class per 

million dollars gross investment. 2,408 1,934 2,550 2,700

Number and percent of acres treated to 

restore fire-adapted ecosystems which are: 

(1) Moved toward desired conditions, and 

(2) Maintained in desired conditions. --- 

(1) 991,075; 

39%

(2) 830,081; 

33% 

(1) 1,160,000; 

40% 

(2) 1,015,000; 

35% 

(1) 1,180,000; 

40%

(2) 1,121,000; 

38%

Percent of treated acres identified in 

Community Wildfire Protection Plans or 

equivalent plans. --- 17.0% 22.5% 28.0%

Rehabilitation (NFP) 

Rehabilitation projects completed 20 N/A 20 0

Fire Research and Development (NFP) 

Percent of R&D products and services that 

meet customer expectations 72% 72% 72% 72%

Forest Health Management - Federal Lands (NFP) 

Acres treated on cooperative lands under 

NFP-Invasives 1,641 1,588 0 0

Federal acres treated under NFP-Native 

pests 43,632 39,668 20,455 13,784

Forest Health Management - Cooperative Lands (NFP) 

Acres treated on cooperative lands under 

NFP-Invasives 205,355 192,850 150,174 125,270

Acres treated on cooperative lands under 

NFP-Native pests 2,364 8,441 6,745 4,534

State Fire Assistance (NFP) 

Communities at risk from wildfire assistedNFP 10,763 7,150 6,765 5,577

Volunteer Fire Assistance (NFP) 

Volunteer fire departments assisted-NFP 3,800 4,058 5,650 4,075
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 6, 2007 Page H-7

Appropriation Output/Outcome by Activity 

Budget Line Item 

Measure 

FY 2006 

Plan 

FY 2006 

Actual 

FY 2007 

Plan 

FY 2008 

Plan 

Capital Improvement and Maintenance 

Facilities 

Facilities condition index * 87% 89% 87% 90%

Percent of facilities with "Good" or "Fair" 

condition rating** 47% 64% 67% 72%

Number and percentage of outdoor recreation 

facilities maintained to standard 

9,865

70% 

9,770 

69% 

9,835 

70% 

9,960 

71%

Major project list facilities accomplished on 

time and within budget*** 51 39 50 50

* A ratio of the cost of remedying maintenance deficiencies to the current replacement value, commonly 

used by private firms to monitor condition of facilities. 

** Facility condition rating is a subset of the facility condition index. The rating percentage applies to 

those facilities with a completed condition survey (92% completed) and does not represent anticipated 

improvements to overall facility condition. 

*** Activity redefined from "Number of projects completed " starting in FY 2008. 

Roads 

Miles of high clearance and closed roads 

receiving maintenance* 26,465 28,598 14,000 16,000

Miles of passenger car road maintenance and 

capital improvement 39,043 43,073 24,530 28,000

Miles of roads decommissioned 355 682 430 375

Miles of road reconstruction and capital 

improvement** 548 179 146 50

Percent of road and trail rights-of-way 

acquired that provide public access through 

easement acquisitions or land adjustments*** 94% 94% 90% 90%

* Activity includes closed roads in FY 2006, but not in later years. 

** Activity not tracked after FY 2007. 

*** Activities are accomplished with multiple funds (CIM roads, CIM Deferred Maintenance, Roads& 

Trails 10% Fund, CIM Trails, and NF Land Management Planning 

Trails 

Miles of trail maintained to standard 20,577 24,860 22,470 20,650

Miles of system trail improved to standard 1,076 1,410 1,130 1,035

Land Acquisition 

Number of acres acquired or donated* 37,345 49,363 15,705 8,175

Priority acres acquired or donated that reduce 

the conversion of forests, grasslands, and 

aquatic and riparian ecosystems to 

incompatible uses in order to improve and 

maintain ecological conditions for federally 

listed and candidate species, species of 

concern, and species of interest 26,635 31,460 11,000 5,750

*Activity "National Forest System acres acquired" redefined in FY 2007 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 6, 2007 Page H-8

Appropriation Output/Outcome by Activity 

Budget Line Item 

Measure 

FY 2006 

Plan 

FY 2006 

Actual 

FY 2007 

Plan 

FY 2008 

Plan 

Other Appropriations 

Brush Disposal 

Acres of harvest related woody fuels treated 45,207 29,130 50,000 32,000

Timber Salvage Sales 

Number of Planned Salvage Timber Sales* 211 570 --- ---

Prepare Salvage Timber Sales (Hundred Cubic 

Feet - CCF)** 1,336,245 1,862,175 --- ---

Hundred cubic feet (CCF) of salvage timber 

volume sold*** --- --- 1,300,000 2,275,000

Hundred cubic feet (CCF) of salvage timber 

volume harvested  854,903 See note** ** 812,000 1,530,000

* Activity not tracked after 2006. 

*** New output measure starting in FY 2007 

**** Output "Administer Salvage Timber Sales (Hundred Cubic Feet)" redefined after FY 2006. Actual 

accomplishments are included within Forest Products 

Range Betterment Fund 

Structures Improved* 600 44 500 500

* FY 2006 accomplishment data underreported in the database of record. Reporting instructions will be 

clarified for FY 2007 forward. 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page I - 1 FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 1 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Regionwide Planning & Design * 23 211 234 3,500 Regionwide Minor Construction ** 1,559 1,559 803 840 R101 MT 1 Bitterroot West Fork/Sula RS Wastewater 

Upgrades N 338 338 200

R102 MT 1 Helena Lincoln Sewer Connection N 759 759 200 R103 ID 1

Idaho Panhandle

Avery RS Water/Wastewater Replacement N 884 884 700 300 

R104 ID 1

Idaho Panhandle Sam Owen Utility Rehab N 357 357 255

 TOTAL $ 380 $ 1,559 $ 0 $ 2,192 $ 4,131 $ 803 $ 2,195 $ 3,800 $ 0

REGION 2

 Fire Recreation Recreation FA&O FA&O TOTAL 

Cong Fac? Facilities Facilities Facilities Facilities Facilities

ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads

Regionwide Planning & Design * 171 36 24 222 453 119 3,554 1,275 

Regionwide Minor Construction ** 

R201 CO 4

Arapaho/Roosevelt Redfeather Bunkhouse Rehab

Y 250 250 260

R202 CO 3

Med Bow/Routt

Hahn's Peak Lake Campground Rehab N 171 305 476 149 421

R203 WY At Large

Med Bow/Routt Saratoga Eng Storage/Cache

Y 570 570 54 

R204 CO 3 GMUG Montrose Bunkhouse

Y 808 808 259 25 

R205 WY At Large Bighorn Sheridan Work Center Rehab N 317 57 374 99

R206 WY At Large Shoshone

Falls Campground Rehab, Loop B N 390 171 561 33 138 38 2 

R207 CO 4

Arapaho/Roosevelt Land Acquisition N 250 250 25 

R208 CO 3 GMUG Island Lake Recreation Area N 250 533 783 355 322

 TOTAL $ 982 $ 1,045 $ 591 $ 1,907 $ 4,525 $ 656 $ 1,553 $ 3,642 $ 1,277

Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. 

** Capital improvement projects costing less than $250,000.

Construction

Outyear Funding.

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

FY 2008 Facilities Funding

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

 costs beyond

FY 2008

Outyear Funding.

FY 2008 Facilities Funding
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page I - 2 FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 3 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads All All Regionwide Planning & Design * 58 39 97 1,371 510 All All Regionwide Minor Construction ** 241 229 470 216 R301 AZ 1 Prescott Verde Valley Administrative Site

Y 1,651 1,651 330 651 3,116 

R302 AZ 1 Apache-Sit. Rim Lakes Complex Phase 1 N 349 349 373 259 686 1,317 

R303 AZ 8 Coronado

Rose Canyon Campground Phase 1 N 806 806 400 850 1,650 400 

R304 NM 2 Lincoln

Sleepygrass Campground/Picnic Ground N 803 803 213 225 TOTAL $ 2,016 $ 280 $ 0 $ 1,880 $ 4,176 $ 1,532 $ 1,985 $ 6,823 $ 2,227

REGION 4

 Fire Recreation Recreation FA&O FA&O TOTAL 

Cong Fac? Facilities Facilities Facilities Facilities Facilities

ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads

Regionwide Planning & Design * 55 105 160 30 5,200 1,600 

Regionwide Minor Construction ** 

R401 ID 2 Sawtooth NF

Redfish Lake Complex DM Reduction (Phase 2) N 140 140 350 210

R402 CA 3

HumboltToiyabe NF Markleeville-Turtlerock Fire Station Relocation (Phase 2) Y 1,460 1,460 235 2,135 

R403 ID 2 Sawtooth NF

Stanley Housing Deferred Maintenance Reduction N 335 335 117

R404 UT 2 Dixie NF

Pine Valley Recreation Area Reconstruction (Phase 1) N 740 740 740 172 1,500 1,500 

 TOTAL $ 140 $ 795 $ 335 $ 1,565 $ 2,835 $ 1,120 $ 734 $ 8,835 $ 3,100

Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. 

** Capital improvement projects costing less than $250,000.

Outyear Funding.Outyear Funding.

FY 2008

FY 2008 Facilities Funding Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008 Facilities Funding Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page I - 3 FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 5 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Regionwide Planning & Design * 504 4 91 21 620 48 5,300 1,500 Regionwide Minor Construction ** 240 240 2,176 110 R501 CA 26 Angeles Crystal Lake Recreation Area Phase 3 N 805 805 530 557 R502 CA 2 & 4 Lassen Deer Creek/Almanor Toilet Replacement N 598 598 246 R503 CA 4 Tahoe Bullards Bar Drinking Water 

System Reconstruction N 226 264 490 112 

R504 CA 4 Tahoe

Yuga River Campground Drinking Water System Reconstruction N 117 138 255 58 

R505 CA 21 Sierra Dinkey Mill Station

Y 830 830 628 96

R506 CA 4 Modoc Big Valley Barracks

Y 706 706 16 60

R507 CA 4 LTBMU

Meeks Bay Guard Engine Station Y 540 540 23 

 TOTAL $ 2,024 $ 382 $ 1,563 $ 1,115 $ 5,084 $ 3,398 $ 1,262 $ 5,300 $ 1,500

REGION 6

 Fire Recreation Recreation FA&O FA&O TOTAL 

Cong Fac? Facilities Facilities Facilities Facilities Facilities

ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads

Regionwide Planning & Design * 150 125 275 6,900 

Regionwide Minor Construction ** 697 697 697

R601 WA 4 OWE Cle Elum Office Addition N 1,000 1,000 1,000R602 OR 4 Umpqua N. Umpqua Fire Warehouse

Y 600 600 600

R603 OR 2 Ochoco

Rager Water System Rehabilitation Phase 1 N 340 340 340 420  TOTAL $ 0 $ 847 $ 0 $ 2,065 $ 2,912 $ 0 $ 2,637 $ 7,320 $ 0

Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. 

** Capital improvement projects costing less than $250,000.

Outyear Funding.

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

FY 2008 Facilities FundingFY 2008 Facilities Funding

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

Outyear Funding.
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page I - 4 FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 8 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Regionwide Planning & Design * 260 75 335 260 3,560 Regionwide Minor Construction ** 705 705 165 R801 TX 1 Texas NFs in Texas Supervisors Office - Phase 1 N 2,500 2,500 1,000 R802 VA 9 GW-Jefferson Beartree Recreation Area Water System N 350 350 300 R803 GA 9 Chatt-Oconee Tallulah-Chattooga Ranger District Office N 2,600 2,600 R804 KY 5 Daniel Boone Natural Arch Phase 3 N 350 350 48 R805 NC 11 NF's in N Carolina Cullasaja/Dry Fall Corridor Recreation Rehab N 360 360 228 TOTAL $ 1,320 $ 705 $ 0 $ 5,175 $ 7,200 $ 0 $ 1,001 $ 4,560 $ 0 REGION 9 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Regionwide Planning & Design * 426 426 100 5,316 900 Regionwide Minor Construction ** R901 NH 2 White Mountain White Mountain Administrative Site N 6,300 6,300 400 702 R902 IL Shawnee Vienna Administrative Site, Phase 2 N 318 318 50 TOTAL $ 0 $ 0 $ 0 $ 7,044 $ 7,044 $ 550 $ 702 $ 5,316 $ 900 Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. ** Capital improvement projects costing less than $250,000.

Outyear Funding.Outyear Funding.

Construction

FY 2008 Facilities Funding Amount of

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond costs beyond

FY 2008FY 2008

FY 2008 Facilities Funding
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page I - 5 FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 10 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Regionwide Planning & Design * 114 140 175 76 505 1,330 150 Regionwide Minor Construction ** 302 510 812 201 R1001 AK At Large Tongass False Island Remote Facility N 1,177 1,177 493 R1002 AK At Large Tongass Yakutat Water and Wastewater N 387 387 152 R1003 AK At Large Tongass Blind Slough Picnic Area Construction/Reconstruction N 671 59 730 54 34 R1004 AK At Large Tongass Situk River Wildlife Viewing N 130 390 520 140 R1005 AK At Large Chugach Whittier Fire Hall Demolition N 475 475 128 TOTAL $ 915 $ 891 $ 1,037 $ 1,763 $ 4,606 $ 194 $ 1,008 $ 1,330 $ 150 RESEARCH STATIONS Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Lab Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads All All Resrch-wide Planning & Design * 110 563 673 11,175 All All Resrch-wide Minor Construction ** 885 885 150 S001 WI 2 FPL, Madison Forest Products Lab Modernization, Phase II N 15,000 15,000 3,742 15,508 S002 OR 5 PNW, Corvallis Corvallis Lab Entrance and Floor Repair N 253 253 253 S003 MT At Large RMRS, Missoula Missoula Fire HVAC/ Energy/Backup Power Y 619 619 400 S004 MI 1 NRS, Houghton Houghton Mesocosm N 990 990 S005 NH 1 NRS, Durham Durham Lab Renovation N 850 850 44 S006 WA 4 PNW, Wenatchee Wenatchee Lab Accessibility N 354 354 354 S007 PR PR IITF, Puerto Rico IITF Headquarters Renovation N 400 473 873 400 TOTAL $ 0 $ 0 $ 2,586 $ 17,911 $ 20,497 $ 0 $ 5,343 $ 26,683 $ 0 Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. ** Capital improvement projects costing less than $250,000.

Outyear Funding.

FY 2008 Facilities Funding Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

FY 2008 Facilities Funding Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

Outyear Funding.
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2008 President’s Budget 

February 5, 2007 Page I - 6 FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) TOTAL REGIONS/STATIONS Recreation Recreation FA&O FA&O TOTAL Facilities Facilities Facilities Facilities Facilities Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Total Regions 7,777 6,504 3,526 24,706 42,513 8,253 13,077 46,926 9,154 Total Stations 0 0 2,586 17,911 20,497 0 5,343 26,683 0 Subtotal $ 7,777 $ 6,504 $ 6,112 $ 42,617 $ 63,010 $ 8,253 $ 18,420 $ 73,609 $ 9,154 Washington Office Program Management -- Facilities Project List 441 369 347 2,409 3,566 0 0 0 0 Albuquerque Service Center Business Management -- Facilities Project List 657 550 517 3,590 5,314 0 0 0 0 TOTAL - Facilities $ 8,875 $ 7,423 $ 6,976 $ 48,616 $ 71,890 $ 8,253 $ 18,420 $ 73,609 $ 9,154

Outyear Funding.

FY 2008 Facilities Funding Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

Revised February 6, 2007 Page J-1

Appendix J

 

1 Includes both regular and salvage timber volume. 

Program Components and Costs of the Timber Sales Program, 

FY 2006 – FY 2008

 

BOARD FEET 2006 2007 2008

Final Programmed Estimate

National Forest System Forest Products 

 Funding (Dollars in thousands) $277,583 $310,114 $318,562

 Volume Sold (MMBF) 1,529 2,100 2,300

Salvage Sale Fund

 Funding (Dollars in thousands) $75,846 $74,800 $74,000

 Volume Sold (MMBF) 671 650 1,000

Emergency Supplemental for Hurricane Katrina Recovery

 Funding (Dollars in thousands) $13,897 N/A N/A

 Volume Sold (MMBF) 303

Knutson -Vandenberg Funds (with Forest Products produced)

 Funding (Dollars in thousands) $40,000 $18,766 $16,000

 Volume Sold (MMBF) 329 150 200

Timber Sales Pipeline Restoration Fund (Sale Preparation only) 

 Funding (Dollars in thousands) $2,487 $3,525 $3,600

Road Construction/Reconstruction for Timber Sales and Land 

Stewardship Contracting (Dollars in thousands)

 Forest Service Engineering Support @ $30/MBF $85,050 $87,000 $105,000

Total, Timber Sales Program

 Funding (Dollars in thousands) $485,017 $494,205 $510,662

 Volume Sold (MMBF) 2,832 2,900 3,500

 Average unit cost ($/MBF) $171.26 $170.42 $145.90

Total, Timber Harvest (MMBF)1 2,296 2,300 2,000
 

(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page K - 1 

Appendix K 

FY 2008 Proposed Land Acquisition Program 

(Dollars in Thousands) 

Project 

National 

Forest State 

Performance 

Objective(s) 1/ Amount 

Cartwright Ranch Tonto AZ 3.1,5.1,6.3 850 

Garner Ranch San Bernardino CA 3.1,5.1,6.3 650 

Maine Access White Mountain ME 2.1,3.1,5.1,6.3 500 

Pacific Northwest Streams Project Multiple OR/WA 3.1,5.1,6.3 1,000 

Sun Ranch BeaverheadDeerlodge MT 1.1,2.1,3.1,5.1,6.3 4,500 

Thunder Mountain Payette ID 3.1,5.1,6.3 500 

 Total Purchase $8,000 

Acquisition Management 

Critical Inholdings/Wilderness 

Protection 

Land Exchange Equalization 

Payment 

 

Multiple 

Multiple 

 7,703 

0 

0 

 Total $15,703 

1/ Performance objectives referred to are from the USDA Forest Service Strategic Plan for Fiscal Years 

2004-08. 
 

 

(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page L - 1 

Appendix L

FY 2008 Proposed Forest Legacy Program 

(Order reflects rank in priority) 

Rank State Project Name Funding 

1 GA Paulding County Land area $3,500,000 

2 NH Ossipee Pine Barrens $2,380,000 

3 ME Lower Penobscot Forest $3,300,000 

4 AL Mobile Tensaw Delta $2,000,000 

5 TX Turkey Creek $1,500,000 

6 MI Northern Great Lakes Forest Project $2,000,000 

7 MN Koochiching $1,750,000 

8 VA Nottoway River $1,500,000 

9 MT North Swan River Valley $2,000,000 

10 UT Chalk Creek South Fork #2 $990,000 

11 HI Kealakekua Ranch $1,989,000 

12 WV South Branch $750,000 

13 TN Big Forks $1,000,000 

14 CT Skiff Mountain Phase II $581,000 

 Administrative Funding $4,071,000 

 Total $29,311,000 
 

 

(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page M - 1 

Appendix M 

UNITED STATES DEPARTMENT OF AGRICULTURE 

Healthy Forests Initiative 

(Dollars in Thousands) 

 

2004 

Enacted 

2005 

Enacted 

2006 

Enacted 

2007 

Estimate 

2008 

Budget 

Department of the Interior1/ 

Hazardous Fuels $183,896 $201,409 $208,113 $199,787 $202,792 

Joint Fire Sciences 3,951 3,945 2,956 2,956 2,000 

Forest Management 44,277 49,068 50,302 52,214 49,917 

Vegetation & Watershed 8,143 9,746 9,724 9,688 14,575 

Wildlife & Fish 9,843 12,560 15,044 15,006 14,957 

Rangeland Management 23,375 23,059 23,059 22,631 23,100 

DOI Total 273,485 299,787 309,198 302,282 307,341 

 

Forest Service 

Research 19,000 19,285 24,000 28,000 28,000 

State & Private Forestry: 

 Forest Health Management 5,030 29,575 26,502 22,409 15,000 

 State Fire Assistance (SFA) 7,500 14,443 30,788 31,500 27,500 

 SFA - Emergency Supplemental for 

 Southern California 10,000 0 0 0 0 

 Economic Action Programs 1,000 0 0 0 0 

National Forest System: 

 Forest Products 39,988 54,640 68,310 76,598 78,691 

 Vegetation & Watershed 48,710 56,884 75,834 75,371 65,524 

 Wildlife & Fish 13,649 17,170 17,721 17,088 15,295 

 Stewardship Contracting 2/ 0 32,400 53,460 64,800 71,000 

Wildland Fire Management: 

 Hazardous Fuels 3/ 258,332 262,593 281,793 291,792 291,583 

 Southern California Earmark - Haz Fuels 0 30,000 0 0 0 

 National Fire Plan R&D 11,000 14,339 13,000 13,000 13,000 

 Joint Fire Sciences 4,000 3,944 6,000 4,875 4,000 

FS Total 418,209 535,273 597,408 625,433 609,593 

 

Grand Total Funding 691,694 835,060 906,606 927,715 916,934 

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2008 President’s Budget

February 5, 2007 Page M - 2 

UNITED STATES DEPARTMENT OF AGRICULTURE 

Healthy Forests Initiative 

(Dollars in Thousands) 

 

2004 

Enacted

2005 

Enacted

2006 

Enacted

2007 

Estimate

2008 

Budget

Acres treated for Hazardous Fuels Reduction: 

 -Acres Treated with Haz Fuels 1,261 1,269 1,106 1,055 1,061 

 - Accomplish with Other Funds 370 350 350 350 350 

 

DOI Total 1,631 1,619 1,456 1,405 1,411 

 

Forest Service - Haz Fuels Funds 

 - Acres Treated Inside WUI 1,311 1,194 1,045 1,400 1,500 

 - Acres Treated Outside WUI 492 470 409 350 300 

 

 - Accomplish With Other Funds 4/ 758 1,058 1,093 1,150 1,150 

FS Total 2,561 2,722 2,547 2,900 2,950 

 

Grand Total Acres 4,192 4,341 4,003 4,305 4,361 

 

1/ Department of the Interior (DOI) budget figures were extrapolated from the existing DOI budget 

structure to fit the categorical format of this table. 

2/ Accomplishments from large Stewardship Contracts (>100,000 acres) are reported in the year in which 

task orders are issued for the work, rather than the entire scope of the contract. 

3/ FY 2004 and FY 2005 Hazardous Fuels figures include supplementals for So. California fuels 

treatments. 

4/ Forest Service FY 2006, FY 2007 and FY 2008 targets for Hazardous Fuels Reduction accomplished 

with other funds include acres treated as a secondary benefit to other land management activities, and 

estimated acres treated through: Wildland Fire Use events, Hazard Mitigation Grants awarded under the 

State Fire Assistance program, and activities of the Southern Nevada Public Lands Management Act. 
Budget At A Glance 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification 

Budget at a Glance 2-1

FY 2008 Forest Service Budget at a Glance

FY 2006 

Enacted

FY 2007 

Estimate

Pay & Other 

Cost Changes 

(1)

Cost 

Reductions 

(2)

Program 

Changes

P

277,711 280,318 5,458 -2,500 -20,276 

 Reduce the Risk from Catastrophic Wildland Fire 30,302 34,792 683 -313 -2,258  Reduce the Impacts from Invasive Species 36,878 37,251 650 -298 -6,250  Provide Outdoor Recreation Opportunities 9,231 7,458 148 -68 -426  Help Meet Energy Resource Needs 16,730 11,702 273 -125 1,314  Improve Watershed Condition 94,117 90,655 1,753 -803 -7,109  Mission Related Work - All Other 90,453 98,460 1,951 -893 -5,547 

 [Forest Inventory & Analysis] [$59,380] [$59,329] 

* R&D categorizes work by Strategic Goal rather than specific activities 

278,966 228,608 1,808 -3,354 -24,604 

 53,163 52,419 1,004 -1,313 849  46,904 46,247 144 -564 -7,697  32,895 32,434 147 -502 1,043 

5,912 5,829 0 -117 3,288 

 34,144 33,666 210 -346 -13,530  56,524 9,280 70 -148 20,109  28,413 28,015 166 -306 -10,439 

9,537 9,404 0 0 -9,404 4,588 4,524 0 0 -4,524 6,886 6,790 67 -58 -4,299 

1,415,646 1,443,659 28,709 -61,338 -66,653 

57,675 57,547 1,054 -2,341 -3,653 

Maintain Land Management Plans 22,576 35,543 656 -1,457 -2,936 Create/Revise Land Management Plans 35,099 22,004 398 -884 -717 

166,638 166,269 2,882 -6,336 -16,353 

Resource Inventories for Planning & Assessments 25,393 --- --- --- --- Manage Natural Resource Information System 36,436 --- --- --- --- Conduct Strategic Resource Inventories --- 71,496 1,304 -2,867 -3,655 Monitor & Evaluate LMPs & Resource Condition 45,806 --- --- --- --- Conduct Land Management Plan Monitoring --- 83,135 1,577 -3,468 -1,060 Conduct Landscape Scale Ecosystem Assessments 48,258 --- --- --- --- Conduct Broad Scale Ecosystem Assessments 10,745 --- --- --- --- Conduct Ecosystem Assessments --- 11,638 0 0 -11,638 

Appropriation  Budget Line Item 

 Activity

Forest and Rangeland Research *State and Private Forestry

Forest Health Fed LandsForest Health Coop LandsState Fire AssistanceVolunteer Fire AssistanceForest StewardshipForest LegacyUrban & Community ForestryEconomic ActionForest Res Info & AnalysisInternational Forestry

National Forest System

Land Management PlanningInventory and Monitoring

(2) Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel.(1) Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation payments, and 

Fund charges.
FY 2008 Budget Justification 

Budget at a Glance 2-2

FY 2008 Forest Service Budget at a Glance

FY 2006 

Enacted

FY 2007 

Estimate

Pay & Other 

Cost Changes 

(1)

Cost 

Reductions 

(2)

Program 

Changes

P

1,415,646 1,443,659 28,709 -61,338 -66,653 

258,797 260,648 5,882 -11,069 -24,061 

Operate Developed Sites 91,460 --- --- --- --- Manage General Forest Areas 44,486 --- --- --- --- Provide Rec Info, Interpretation, & Education 23,176 --- --- --- --- Manage Recreation Operations --- 161,794 3,656 -6,879 -14,695 Administer Rec Special Use Authorizations 41,467 41,533 953 -1,793 -3,199 Manage Heritage Resources 25,740 25,348 567 -1,068 -2,724 Manage Wilderness 32,468 --- --- --- --- Manage Wilderness and Wild & Scenic Rivers --- 31,973 706 -1,329 -3,443 

131,734 131,443 2,749 -5,613 -10,946 

Manage Stream Habitat 40,038 --- --- --- --- Manage Lake Habitat 11,517 --- --- --- --- Manage Aquatic Habitat --- 50,367 1,055 -2,154 -4,004 Manage Terrestrial Habitat 71,142 73,048 1,527 -3,115 -6,122 Provide Wildlife Interpretation & Education 9,037 8,028 168 -344 -821 

47,826 47,720 1,100 -2,313 518 

Manage Grazing Allotments 32,576 23,720 749 -1,575 131 Prepare Grazing Allotment NEPA 15,250 24,000 351 -738 387 

277,583 310,114 6,562 -14,629 16,515 

Plan Timber Sales 119,006 --- --- --- --- Prepare Timber Sales 88,904 --- --- --- --- Plan and Prepare Timber Sales --- 232,371 4,968 -11,076 22,054 Administer Timber Sales 60,103 67,623 1,594 -3,553 4,581 Special Forest Products 9,570 10,120 0 0 -10,120 

179,852 179,454 3,400 -7,421 -21,111 

Improve Forest Vegetation 37,564 42,082 834 -1,821 -3,220 Establish Forest Vegetation 39,521 39,455 309 -674 -24,996 Manage Rangeland Vegetation 24,187 21,035 484 -1,056 1,525 Maintain & Improve Watershed Conditions 52,098 50,274 1,159 -2,527 3,646 Manage Noxious Weeds and Invasive Plants 21,802 22,251 511 -1,115 1,612 Manage Air Quality 4,680 4,357 104 -227 320 

Appropriation  Budget Line Item 

 Activity

Recreation, Heritage, and Wilderness

National Forest System

Wildlife and Fisheries Habitat ManagementGrazing ManagementForest ProductsVegetation and Watershed Management

(2) Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel.(1) Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation payments, and Fund charges.
FY 2008 Budget Justification 

Budget at a Glance 2-3

FY 2008 Forest Service Budget at a Glance

FY 2006 

Enacted

FY 2007 

Estimate

Pay & Other 

Cost Changes 

(1)

Cost 

Reductions 

(2)

Program 

Changes

P

1,415,646 1,443,659 28,709 -61,338 -66,653 

84,164 83,978 1,312 -3,050 -11,405 

Administer Minerals Operations 28,073 30,232 556 -1,292 -4,424 Process Mineral Applications 22,296 23,514 439 -1,020 -3,739 Manage Geologic Resources & Hazards 8,872 7,668 128 -298 -1,833 Manage Environmental Compliance 7,572 2,957 79 -183 332 Manage Environmental Restoration 17,351 13,684 12 -27 -756 AML Safety Risk Mitigated-Not funded FY06 --- 5,923 99 -230 -986 

90,932 90,731 1,874 -3,954 -7,811 

Adjust Land Ownership 17,431 15,792 327 -689 -1,664 Protect Land Ownership Title 10,511 9,523 215 -453 -826 Locate Land Boundaries 23,547 22,342 472 -998 -640 Administer Land Use Authorizations 22,093 22,539 433 -913 -2,845 Administer Land Use Proposals 17,350 20,535 427 -901 -1,836 

110,937 110,692 1,894 -4,612 15,867 

Enforce Laws & Regulations 67,671 67,315 1,217 -2,963 9,740 Investigate Crime 43,266 43,377 677 -1,649 6,127 

5,074 5,063 0 0 -4,213 

4,434 0 0 0 0 

Wildland Firefighters (3) [$189,666] [$213,265] --- --- [$6,445] 

1,746,091 1,810,566 29,396 -17,284 -173,761 

660,705 655,887 10,988 -8,595 -309,198 690,186 741,477 12,917 0 156,638 280,119 291,792 4,647 -7,278 2,372 

Non-Wildland-Urban Hazard Fuels 92,317 72,948 1,000 -1,566 -9,658 Wildland-Urban Hazard Fuels 187,802 218,844 3,647 -5,712 12,030 

6,189 5,000 0 0 -5,000 

22,789 22,800 453 -406 -847 

7,882 13,000 0 0 -5,000 

14,779 14,800 340 -397 -491 

9,853 10,000 45 -151 120 

45,816 43,000 6 -457 -7,545 

7,773 12,810 0 0 -4,810 

(2) Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel.(1) Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation payments, and 

Fund charges.

NFP Volunteer Fire AssistanceJoint Fire SciencesNFP Forest Health Fed LandsNFP Forest Health Coop LandsNFP State Fire AssistanceFire Operations - SuppressionHazardous FuelsNFP Rehabilitation and RestorationNFP Fire R&DValles Caldera National PreserveCentennial of Service Challenge

Wildland Fire Management

PreparednessMinerals and Geology ManagementLandownership Management

National Forest System

Law Enforcement Operations

(3) Wildland Firefighters is a new appropriation for FY 2008. Numbers in brackets represent the funding and FTEs in Preparedness in previous fiscal years that 

2008 budget request.Appropriation  Budget Line Item 

 Activity
FY 2008 Budget Justification 

Budget at a Glance 2-4

FY 2008 Forest Service Budget at a Glance

FY 2006 

Enacted

FY 2007 

Estimate

Pay & Other 

Cost Changes 

(1)

Cost 

Reductions 

(2)

Program 

Changes

P

Capital Improvement & Maintenance 431,334 411,025 6,333 -10,196 15,403 

123,698 117,874 1,321 -2,671 3,123 

Maintain Facilities 50,310 58,091 702 -1,582 6,397 Improve Facilities 73,388 59,783 619 -1,089 -3,274 

Roads 220,688 210,297 3,395 -5,426 19,165 

Passenger Car Roads 106,539 89,796 1,483 -2,370 6,692 High Clearance & Closed Roads 29,425 13,381 230 -368 1,047 Decommission Roads 8,943 5,575 8 -12 -959 Improve Roads 75,781 101,545 1,675 -2,677 12,385 

Trails 74,205 70,711 1,546 -1,926 -3,944 

Maintain Trails 41,324 41,612 922 -1,149 -2,318 Improve Trails 32,881 29,099 624 -777 -1,626 

Deferred Maintenance 12,743 12,143 71 -173 -2,941 

Land Acquisition 43,056 8,784 193 -282 8,292 

Land Acquisition 41,772 7,500 191 -282 8,294 

 Land Acquisition Mgmt 12,220 7,500 191 -282 294  Purchase Land 24,552 0 0 0 8,000 

Acquire Lands Special Acts 1,053 1,053 2 0 -2 Complete Land Exchanges 231 231 0 0 0 

8,168 8,438 96 -109 434 

63 63 0 0 -7 

3,130 3,500 22 0 228 

 Subsistence Management (R10) 4,975 4,875 74 -109 213  Total - Discretionary Funds 4,200,972 4,191,398 71,993 -95,063 -41,455  Total - Mandatory Funds 795,170 821,141 5,634 0 -304,190 

Grand Total 4,996,142 5,012,539 77,627 -95,063 -345,645 

Appropriation  Budget Line Item 

 Activity

Facilities

Other Appropriations

Gifts & DonationsRange Betterment Fund

(2) Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel.(1) Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation payments, and 

Fund charges.
FY 2008 Budget Justification USDA Forest Service

Budget at a Glance 2-5

Explanation of Pay & Other Cost Changes 

(Dollar amounts shown in thousands) 

Additional Operational Costs from 2007 and 2008 January Pay Raises 

2007 Pay Raise (final quarter of 2007) Compensation.................................+$12,221 

 Benefits..................................+$2,987 

2008 Pay Raise (first three quarters of 2008) Compensation....................+$43,515 

 Benefits...........................+$10,637 

Total Compensation.......................................................................+$54,152 

Total Benefits..........................................................................+$15,208 

Total Pay Costs........................................................................+$69,360 

These adjustments are for an additional amount needed in 2008 to fund the remaining 3-month 

portion of the estimated cost of the, on average, 2.2 percent pay increases effective in January 

2007 and the additional costs of funding an estimated 3.0 percent January 2008 pay increase for 

GS-series employees and the associated pay rate changes made in other pay series. These 

adjustments include employee compensation & benefits. 

Other Uncontrollable Cost Changes 

Rental Payments to General Service Administration (GSA) and Others........+$4,104 

2008 increase based on actual 2006 agency payments for rent to GSA, rent to others, and 

communications & utilities projected forward using OMB non-pay inflation factors of 2.5% for 

2007 and 2.4% for 2008. The adjustment is for changes in the costs payable to General Service 

Administration (GSA) and others resulting from changes in rates for office and non-office space. 

USDA Working Capital Fund & Greenbook Changes ..........................+$3,277 

The change reflects expected changes in the charges for services funded through the USDA 

Working Capital Fund (WCF) and Greenbook. 2008 increase based on 2007 charges projected 

forward using OMB non-pay inflation factor of 2.4 percent for 2008. Greenbook charges for 

GSA Space, Unemployment Compensation, and Worker’s Compensation not included in this 

calculation. 

Unemployment Compensation Charge Changes .................................+$886 

Unemployment Compensation is not reflected in the benefits included in Pay Costs above. 2008 

increase based on 2007 agency payments for Unemployment Compensation charges projected 

forward using OMB non-pay inflation factors of 2.5 percent for 2007 and 2.4 percent for 2008. 

The adjustment is for estimated changes in the costs of unemployment compensation claims to 

be paid to the Department of Labor, Federal Employees Compensation Account, in the 

Unemployment Trust Fund, pursuant to Public Law 96–499.
 

(This page inserted to format for duplex printing) 
 

Budget and 

Strategic Plan 
 

(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-1 

Revised March 30, 2007 

Budget and Strategic Plan 

The FY 2008 President’s Budget includes funding levels necessary to best implement the 

mission and goals of the National Strategic Plan. The following table compares the FY 

2006 Enacted and FY 2007 Estimate levels with the FY 2008 President’s Budget by 

strategic goal. 

Strategic Plan Goal 

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008 

Pres Budget 

Goal 1: Reduce Catastrophic Wildland Fire Risk $1,869,036 $1,919,229 $1,976,407

Goal 2: Reduce Impacts from Invasive Species $125,383 $129,350 $117,830

Goal 3: Provide Outdoor Recreation Opportunities $764,518 $772,371 $760,756

Goal 4: Help Meet Energy Resource Needs $108,345 $108,897 $102,233

Goal 5: Improve Watershed Condition $1,146,497 $1,098,516 $983,202

Goal 6: Other Forest Service Programs & Activities $1,043,941 $1,070,000 $741,275

Total, All Funds – Non Emergency $5,057,720 $5,098,363 $4,681,703

Total Emergency Funds, Goal 1 (P.L. 109-289) $100,000 --- ---

Total Emergency Funds – Other Goals $77,000 --- ---

TOTAL, ALL FUNDS $5,234.720 $5,098,363 $4,681,703

Every Forest Service activity is coded to one of the strategic goals and objectives. Each 

goal also includes performance measures to track results. The tables in the following 

section describe in detail the strategic goals, objectives, and associated performance 

measures. The graph below shows the FY 2008 President’s Budget by strategic goal. 

All Goal Funding - FY 2008 President's Budget

Total - $4,681,703

Goal 2: Reduce 

Impacts from 

Invasive Species

3%

Goal 4: Help 

Meet Energy 

Resource Needs

2%

Goal 1: Reduce 

Catastrophic 

Wildland Fire 

Risk 

42%

Goal 3: Provide 

Outdoor 

Recreation 

Opportunities

16%

Goal 5: Improve 

Watershed 

Condition

21%

Goal 6: Other 

Forest Service 

Programs & 

Activities

16%
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-2 

Goals, Objectives, and Performance Measures

Strategic Goal Agency Objectives Performance Measures 

1.1 a: Number of acres of hazardous fuels 

treated in the Wildland-Urban Interface and 

percent identified as high priority through 

collaboration consistent with the 10-year 

Comprehensive Strategy Implementation Plan. 

1.1 b: Number of acres in the Wildland-Urban 

Interface treated per $1 million gross 

investment. 

1.1 c: Number of acres of hazardous fuels 

treated in Condition Classes 2 or 3 in Fire 

Regimes 1, 2, or 3 outside the Wildland-Urban 

Interface, and percent identified as high 

priority 

through collaboration consistent with the 10- 

Year Plan. 

1.1 d: Number of acres treated outside the 

Wildland-Urban Interface per $1 million gross 

investment. 

1.1 e: Number of acres in Condition Classes 2 

or 3 in Fire Regimes 1, 2, or 3, treated by all 

land management activities that improve 

condition class, and percent that were 

identified as high priority through collaboration 

consistent with the 10-Year Plan. 

1.1 f: Percent of mechanically treated acres to 

reduce hazardous fuels with byproducts used. 

1.1: Improve the health of National 

Forest System lands that have the 

greatest potential for catastrophic 

wildland fire. 

1.1 g: Number of acres brought into 

stewardship contracts. 

1.2.a: Percent of unplanned and unwanted 

wildland fires controlled during initial attack. * 

1.2.b: Number of acres burned by unplanned 

and unwanted wildland fires. 

1.2: Consistent with resource 

objectives, wildland fires are 

suppressed at a minimum cost, 

considering firefighter and public 

safety, benefits, and values to be 

protected. 

1.2.c: Percent of large fires in which the value 

of resources protected exceeds the cost of 

suppression. 

1.3 a: Percent of communities at risk with 

completed and current fire management plans 

or risk assessments. 

1. Reduce the risk 

from catastrophic 

wildland fire 

1.3: Assist 2,500 communities and 

those non-National Forest System 

lands most at risk with developing 

and implementing hazardous fuels 

reduction and fire prevention plans 

and programs. 

1.3 b: Number of acres covered by partnership 

agreements. 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-3 

Strategic Goal Agency Objectives Performance Measures 

2.1 a: Availability and reliability of the annual 

National Risk Assessment survey. 

2.1 b: Acres treated for selected invasive 

species. * 

2. Reduce the 

impacts from 

invasive species 

2.1: Improve the effectiveness of 

treating selected invasive species on 

the Nation’s forests and grasslands. 

2.1 c: Percent change in the rate of spread of 

selected invasive species. 

3.1 a: Miles and percent of trail network 

maintained to standard. * 

3.1 b: The 3-year average number of fatalities 

on the passenger car road network. 

3.1 c: Number and percent of facilities 

maintained to standard. * 

3.1 d: Number and percent of facilities and 

sites that meet accessibility standards. 

3.1: Improve public access to 

National Forest System land and 

water and provide opportunities for 

outdoor health-enhancing activities. 

3.1 e: Number of rights-of-way acquired to 

provide public access. 

3. Provide outdoor 

recreational 

opportunities 

3.2: Improve the management of offhighway-vehicle use to protect 

natural resources, promote safety of 

all users, and minimize conflicts 

among various uses through the 

collaborative development and 

implementation of locally based 

travel management plans. 

3.2.a: Percent of National Forest System lands 

covered by travel management implementation 

plans. * 

4.1: Work with other agencies to 

identify and designate corridors for 

energy facilities, improve the 

efficiency of processing permit 

applications, and establish 

appropriate land tenure (including 

transferability clauses) in easements 

and other authorizations to provide 

for long-term project viability. 

4.1.a: Percent of energy facility and corridor 

applications approved within prescribed 

timeframes. 

4. Help meet 

energy resource 

needs 

4.2: Stimulate commercial use of 

small-diameter trees from National 

Forest System lands for biomass 

energy. 

4.2.a: Total biomass from small-diameter and 

low-value trees used for energy production. 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-4 

Strategic Goal Agency Objectives Performance Measures 

5.1.a: Number of inventoried forest and 

grassland watersheds in fully functioning 

condition as a percent of all watersheds. 

5.1: Assess and restore high-priority 

watersheds and maintain riparian 

habitat in these watersheds. 5.1.b: Acres of non-industrial private forest 

land under approved stewardship management 

plans. 

5.2.a: Percent of projects on National Forest 

System lands fully implementing best 

management practices (BMPs). 

5.2: Monitor water quality impacts of 

activities on National Forest System 

lands. 5.2.b: Allotment acres and percent 

administered to 100 percent of standard. 

5.3 a: Terrestrial and aquatic habitat enhanced 

to achieve desired ecological conditions. 

5. Improve 

watershed 

condition 

5.3: Restore and maintain native and 

desired nonnative plant and animal 

species diversity in terrestrial and 

aquatic ecosystems and reduce the 

rate of species endangerment by 

contributing to species recovery. 

5.3.b: Value of partnership contributions that 

support habitat enhancement. 

6.1.a: Percent of the Nation for which forest 

inventory and analysis information is 

accessible to external customers. 

6.1: Provide current resource data, 

monitoring, and research information 

in a timely manner. 6.1.b: The percent of research and development 

products or services that meet 

customer expectations as assessed through 

targeted, standardized evaluations. * 

6.2.a: Review of financial statement audits and 

implementation of corrective actions based on 

audit findings. 

6.2.b: Average number of days between fiscal 

obligation and transaction data entry into the 

Foundation Financial Information System. 

6.2.c: Extent to which performance data are 

current and complete. 

6.2.d: Number of accounting adjustments 

required to reconcile agency quarterly reports 

with Federal Treasury reports. 

6.2: Meet Federal financial 

management standards and integrate 

budget with performance. 

6.2.e: Number of "business operations internal 

control weaknesses" identified in annual 

financial statement audits. 

6.3: Maintain the environmental, 

social, and economic benefits of 

forests and grasslands by reducing 

their conversion to other uses. 

6.3.a: Acres of land adjustments to conserve 

the integrity of undeveloped lands and habitat 

quality. * 

6.4.a: Number of firefighters injured in firerelated incidents. 

6. Conduct 

mission-related 

work in addition 

to that which 

supports the 

agency goals 

6.4: Maintain Office of Safety and 

Health Administration standards. 6.4.b: Number of new Office of Workers’ 

Compensation Program cases. 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-5 

Strategic Goal Agency Objectives Performance Measures 

6.5.a: Number and percent of Land and 

Resource Management Plans developed and 

revised. 

6.5.b: Percent of data in information systems 

that is current to standard. 

6. Conduct 

mission-related 

work in addition 

to that which 

supports the 

agency goals 

6.5: Develop and maintain the 

processes and systems to provide and 

analyze scientific and technical 

information to address agency 

priorities. 6.5.c: Number and percent of forest plan 

monitoring reports completed. 

 * These performance measures have been identified through the PART Process as 

needing to be updated. 

Strategic Goals

Goal 1: Reduce Catastrophic Wildland Fire Risk 

Goal 1: Reduce Catastrophic Wildland Fire Risk 

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008 

Pres Budget 

Forest & Rangeland Research $30,302 $34,792 $31,693

State and Private Forestry $86,695 $81,026 $84,215

Wildland Firefighters * [$189,666] [$213,265] $219,710

Wildland Fire Management $1,738,453 $1,803,411 $1,640,789

Total, Appropriated Funds $1,855,450 $1,919,229 $1,976,407

Permanent Funds $13,586 $0 $0

Subtotal, Non-emergency funding $1,869,036 $1,919,229 $1,976,407

Emergency Funding (P.L. 109-289) $100,000 $0 $0

TOTAL, ALL FUNDS $1,969,036 $1,919,229 $1,976,407

* Wildland Firefighters is a new appropriation for FY 2008. Funding in brackets represents the equivalent 

portion of Preparedness funding from prior fiscal years. 

Wildland fire is a natural component of ecosystem processes and, conversely, is also a 

threat to both communities and the environment. The challenge is to manage wildland 

fire within its place in natural systems while reducing the risk of losses from catastrophic 

fire. The agency addresses the complex challenge on both Federal and non-Federal lands 

by identifying when and where priority work can be implemented and specific field level 

projects that affect future fire behavior. The Forest Service, State foresters, and local fire 

departments assist private landowners in this challenge through the Firewise program. 

Firewise assists property owners in the Wildland-Urban Interface in increasing the 

survivability of their homes from wildfires and preventing fires. 

The likelihood of loss from natural or human causes depends on the vulnerability of the 

ecosystems at the time of the event. Many ecosystems must be returned to, and 

maintained in, a resilient state to mitigate loss from unexpected events. Natural factors, 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-6 

Revised March 30, 2007 

including prolonged drought and lower than average precipitation, contribute 

significantly to the risk of wildland fire. Other factors include arson and accidental 

human-caused fires, as well as administrative appeals of proposed fuel treatment projects 

and litigation. While wildland fire is an element of natural ecosystem processes, 

catastrophic wildland fire is not. 

The President’s Budget currently proposes a $209,000 decrease within the hazardous 

fuels budget line item. The Forest Service plans to reduce hazardous fuels on 1.95 million 

acres in high priority areas, including 1.54 million acres in the Wildland Urban Interface 

(WUI) and an additional 411,000 in non-WUI areas. In FY 2008, emphasis will shift to 

more expensive WUI acres, resulting in reduced treatments outside the WUI. 

The agency will also provide 5,455 communities with fire mitigation and prevention 

assistance through the Cooperative Fire Protection program, and will provide additional 

financial assistance to communities for an estimated 5,577 projects. The agency will also 

assist over 6,700 volunteer fire departments in becoming better equipped and prepared. 

Goal 2: Reduce the Impacts from Invasive Species

Goal 2: Reduce Impacts from Invasive Species 

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008 

Pres Budget 

Forest & Rangeland Research $36,878 $37,251 $34,897

State and Private Forestry $59,065 $62,693 $51,496

National Forest System $21,802 $22,251 $23,259

Wildland Fire Management $7,638 $7,155 $8,178

Total, Appropriated Funds $125,383 $129,350 $117,830

Permanent Funds $0 $0 $0

TOTAL, ALL FUNDS $125,383 $129,350 $117,830

The threat of invasive species has become one of the most significant environmental and 

economic issues facing the Nation. The number of infestations and impacts from them 

are increasing every year. Concerns over the invasive species problem have reached 

global proportions. There has been a significant Federal and State response to addressing 

the issue. With the passage of the Executive Order 13112 and the establishment of the 

National Invasive Species Council in 1999, Federal agencies have increased their 

coordination and collaboration to deal with the host of species threatening the nation. 

The Forest Service recognizes the danger invasive species pose to ecosystem health, the 

economy, and the agency’s mission. The Forest Service has identified the invasive 

species threat as one of four significant threats affecting National Forest System lands, as 

well as neighboring State, tribal, and private lands. Invasive species cost the public more 

than $138 billion per year in damage, loss, and control costs (Pimental et al. 2000. 

BioScience 50:1 pp 53-65). The 2000 Resource Planning assessment estimated 3.5 

million national forest acres were infested with invasive plants. About half the species 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-7 

currently on the endangered species list are at risk because of competition and loss of 

habitat traceable to invasive species. 

Forest Service funding in FY 2008 will help mitigate impacts of invasive species by 

several methods. The national risk assessment survey reviews and documents forest 

health conditions on Federal and cooperative forest lands. The agency will provide 

invasive species protection on 

over 670,000 Federal and cooperative forest lands across the Nation through specially 

designed treatments. Approximately 133,500 acres of national forest lands will be treated 

for invasive and noxious weeds. The International Forestry program cooperates with 

numerous foreign countries to prevent the introduction of new exotic plant, insect and 

pathogen species into the country that could become invasive pests if released. 

Goal 3 – Provide Outdoor Recreation Opportunities

Goal 3: Provide Outdoor Recreation Opportunities 

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008 

Pres Budget 

Forest & Rangeland Research $9,231 $7,458 $6,987

National Forest System $270,051 $267,464 $238,431

Capital Improvement and Maintenance $392,966 $392,069 $403,663

Total, Appropriated Funds $672,248 $666,991 $649,081

Permanent Funds $53,507 $60,300 $58,600

Trust Funds $38,763 $45,080 $53,075

TOTAL, ALL FUNDS $764,518 $772,371 $760,756

The Forest Service offers a wide range of recreation opportunities and services in various 

settings. Camping, picnicking, winter sports, hunting, fishing, hiking, and sightseeing in 

the backcountry or urban areas, as well as visiting cultural sites and visitor centers are all 

a part of the recreation program. Major operational components of delivering this goal 

include the administration and management of recreation infrastructure (facilities, roads 

and trails), human - wildlife interaction, wilderness and heritage resources, partnerships 

and tourism, interpretive services, recreation special uses, congressionally designated 

areas, and national forest scenic by-ways. 

Abundant forests and rangelands, clean water and air, and habitat for wildlife and fish 

enhance recreation activities. National forests and grasslands contain some of America’s 

most important wildlife habitat resources - over 200,000 miles of fishable streams, 

including over 50 percent of the Nation’s premier trout and salmon habitat; over 2 million 

acres of lakes; 80 percent of the elk and bighorn sheep habitat in the lower 48 States; 28 

million acres of wild turkey habitat; and over 5 million acres of wetlands. Sustainable 

management of these resources is major factor in providing quality outdoor recreation. 

The President’s Budget proposes nearly $7 million in research and development 

activities, assessing the impacts of off-highway vehicles and subsequent restoration 

needs; trends, human behavior, and public values regarding outdoor recreation; and other 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-8 

needs pertinent to helping meet the Nation’s demand for outdoor recreation. The 

President’s Budget proposes over $640 million in the National Forest System and Capital 

Improvement and Maintenance to support this goal. 

During FY 2008, the agency will maintain 44,000 miles of roads, maintain nearly 6,950 

recreation sites to specified standards, and maintain or improve over 21,650 miles of 

hiking trails. 

Goal 4 – Help Meet Energy Resource Needs 

Goal 4: Help Meet Energy Resource Needs 

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008 

Pres Budget 

Forest & Rangeland Research $16,730 $11,702 $15,653

State and Private Forestry $1,478 $0 $0

National Forest System $89,812 $96,820 $81,705

Total, Appropriated Funds $108,020 $108,522 $97,358

Permanent Funds $325 $375 $4,875

TOTAL, ALL FUNDS $108,345 $108,897 $102,233

America presently faces its most serious energy crisis since the oil embargoes of the 

1970s. Domestic energy consumption currently exceeds production. Net imports of 

energy on a BTU basis are expected to constitute approximately 32 percent of domestic 

energy consumption in 2030. The increased production imbalance and implied 

dependence on foreign oil could jeopardize the Nation’s economy, standard of living, and 

security. Recognizing the gravity of the situation, in his second week in office President 

George W. Bush established a National Energy Policy Group to develop a policy 

framework that would “promote dependable, affordable, and environmentally sound 

production and distribution of energy for the future.” The National Energy Policy Group 

finalized the National Energy Policy; the Research, State and Private Forestry, and 

National Forest System programs play important roles in implementing the Policy’s 

recommendations. Recommendations include increasing domestic production of 

traditional energy sources (e.g., oil, natural gas, and coal) in environmentally sound 

ways; capitalizing on the potential of woody biomass as a renewable energy source; 

increasing local industrial and community infrastructure necessary for harvesting, 

processing, and marketing biomass for energy and other bioproducts; and enhancing our 

existing infrastructure for transmitting energy across the country. 

On August 8, 2005, the Energy Policy Act of 2005 was signed into law by President Bush 

to ease growing energy problems by establishing a comprehensive, long-range energy 

policy. The Act provides tax incentives and loan guarantees for traditional energy 

production as well as newer, more efficient energy technologies and conservation. 

The agency will direct $15.7 million toward energy research and development in FY 

2008. Projects will include leasing and development of substantial quantities of oil, gas, 

coal, coal bed methane and geothermal energy. This level of funding will allow full 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-9 

Revised March 30, 2007 

consideration of environmental issues in close coordination with the States and other 

agencies. It will also increase the total biomass generated from National Forest System 

lands originating from small diameter and low valued trees to be used for energy 

production. 

The Landownership Management program will direct $5.0 million towards energy in FY 

2008. Emphasis will continue on processing of new energy-related land use applications 

and on eliminating the backlog of pending applications and expired authorizations in 

order to get the production on-line and to markets. In response to the Energy Policy Act 

of 2005, the agency will complete the designation of utility rights-of-way corridors for 

oil, gas, and hydrogen pipelines in 11 Western States, incorporating these into forest land 

management plans and begin work necessary to designate corridors in the remaining 

States. 

The President’s Budget also proposes funding level of $6.15 million to refocus research 

to wood-based biofuels development and conversion processes; biorefinery applications; 

energy efficient housing; and processing and manufacturing energy reduction, life cycle 

analysis of wood, and marketing analysis for energy and bio-based products. Progress 

will continue in developing efficient woody cellulosic ethanol conversion processes, 

contributing to U.S. energy independence. 

Goal 5 – Improve Watershed Condition

Goal 5: Improve Watershed Condition 

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008 

Pres Budget 

Forest & Rangeland Research $94,117 $90,655 $81,383

State and Private Forestry $34,144 $33,666 $20,000

National Forest System $702,267 $665,539 $629,267

Capital Improvement and Maintenance $38,368 $18,956 $18,902

Other Appropriations $3,130 $3,500 $3,750

Total, Appropriated Funds $872,026 $812,316 $753,302

Permanent Funds $83,380 $100,200 $97,900

Trust Funds $191,091 $186,000 $132,000

TOTAL, ALL FUNDS $1,146,497 $1,098,516 $983,202

Over 60 million people receive at least a portion of their water from national forests and 

grasslands. This resource is a particularly scarce commodity in the arid West where 

many communities depend on national forests for their water. Many municipal 

watersheds in the Western States are at risk from catastrophic wildland fire and 

degradation from excessive use. 

Careful planning for, and management of, basic physical and biological resources 

provides the foundation for healthy, viable watersheds, and for the social and economic 

needs of communities. Benefits of improved watershed conditions include improved 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-10 

water quality, quantity, and timing of flows; improved forage conditions; healthier, 

more resilient forests; improved fish and wildlife habitats resulting in more robust 

populations; a reduction of risks associated with destructive wildfires; and resistance to 

the establishment and spread of invasive species. 

Watershed research provides science-based validation of the effectiveness of current 

methods and techniques to improve watersheds. It provides new information and 

techniques to more effectively and efficiently achieve this goal, and helps managers 

predict future resource condition changes due to natural and human caused processes 

and actions. 

The FY 2008 President’s Budget will strategically focus available resources to improve 

watershed conditions. The proposed budget for Vegetation and Watershed 

Management program will provide for establishment of forest vegetation on over 

13,130 acres, improve forest vegetation over 72,800 acres, and improve rangeland 

vegetation on over 1,794,000 acres. In addition, the proposed budget for Grazing 

Management will provide 22,857,000 grazing allotment acres managed to 100 percent 

of Forest Plan standards. The proposed budget for Wildlife and Fisheries Habitat 

Management will provide wildlife habitat on 1,400 miles of streams, 12,900 lake acres 

and 189,000 terrestrial acres will be restored or enhanced. 

Goal 6 – Mission Related Work in Addition to that which Supports the Agency 

Goals 

Goal 6: Other Forest Service Programs & Activities 

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008 

Pres Budget 

Forest & Rangeland Research $90,453 $98,460 $92,387

State and Private Forestry $97,584 $51,223 $46,747

National Forest System $331,714 $391,585 $371,715

Land Acquisition $43,056 $8,784 $16,987

Other Appropriations $5,038 $4,938 $5,109

Total, Appropriated Funds $567,845 $554,990 $532,945

Permanent Funds $476,096 $515,010 $208,330

TOTAL, ALL FUNDS $1,043,941 $1,070,000 $741,275

The programs in this section are critical to the overall mission of the agency and support 

one or more of the agency goals. The President’s Budget proposes approximately $533 

million to accomplish Goal 6. 

In FY 2008, the agency will provide quality research products and service that meet 72 

percent of customer expectations. In addition, the Forest Inventory and Analysis program 

will cover 94 percent of the Nation. With the proposed request of $15.7 million in Land 

Acquisition, the agency will acquire 15,705 critical acres that will provide public access 

for outdoor recreation and improve and maintain ecological conditions for threatened and 

endangered species on National Forest System (NFS) lands. The President’s Budget also 

proposes $123.8 million in Law Enforcement Operations to protect NFS lands, the 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-11 

public, and Forest Service employees. In FY 2008, the agency will continue to meet 

finance and budget performance standards. 

The tables on the following pages show a matrix of strategic goal funding and FTEs for 

fiscal years 2006 through 2008. 
FY 2008 Budget Justification USDA Forest Service

Budget and Strategic Plan 3-12 

Revised March 30, 2007 

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 1: Reduce Castrophic Wildland Fire Risk

$30,302 235 $34,792 265 $31,693 235 -$3,099 -30

S&PF: Forest Health Management - Federal Lands $30,577 192 $29,964 196 $31,210 202 $1,246 6

S&PF: Forest Health Management - Coop Lands $17,311 17 $12,799 18 $10,883 18 -$1,916 0

$32,895 50 $32,434 50 $33,122 49 $688 -1

$5,912 0 $5,829 0 $9,000 0 $3,171 0

Wildland Firefighters* [$189,666] [2,995] [$213,265] [3,015] $219,710 3,200 [$6,445]

$660,705 4,860 $655,887 4,863 $349,082 1,307 -$306,805 -3,556

$690,186 6,695 $741,477 5,672 $911,032 5,645 $169,555 -27

$280,119 1,947 $291,792 2,040 $291,533 2,031 -$259 -9

$6,189 27 $5,000 36 $0 0 -$5,000 -36

$22,789 152 $22,800 174 $22,000 174 -$800 0

$7,882 0 $13,000 0 $8,000 0 -$5,000 0

WFM: NFP-Forest Health Management-Fed Lands $14,316 0 $12,731 103 $13,284 111 $553 8

WFM: NFP-Forest Health Management-Coop Lands $2,678 0 $4,914 7 $2,804 5 -$2,110 -2

$45,816 1 $43,000 2 $35,004 2 -$7,996 0

$7,773 0 $12,810 0 $8,000 0 -$4,810 0

Total-Appropriated Funds (Non-Emergency) $1,855,450 14,176 $1,919,229 13,426 $1,976,357 12,979 -$162,582 -3,647

Permanent Funds $13,586 109 $0 0 $0 0 $0 0

$100,000

$1,969,036 14,285 1,919,229 13,426 1,976,357 12,979 -162,582 -3,647

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 2:Reduce Impacts from Invasive Species

$36,878 283 $37,251 254 $34,897 256 -$2,354 2

$22,586 143 $22,455 148 $21,749 141 -$706 -7

$29,593 30 $33,448 31 $27,247 31 -$6,201 0

$6,886 24 $6,790 24 $2,500 13 -$4,290 -11

$21,802 169 $22,251 180 $23,259 172 $1,008 -8

$463 95 $2,069 17 $968 8 -$1,101 -9

$7,175 13 $5,086 9 $7,210 11 $2,124 2

Total-Appropriated Funds (Non-Emergency) $125,383 757 $129,350 663 $117,830 632 -$11,520 -31

$0 0 $0 0 $0 0 $0 0

$125,383 757 $129,350 663 $117,830 632 -$11,520 -31

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 3:Provide Outdoor Recreation Opportunities

$9,231 70 $7,458 57 $6,987 51 -$471 -6

$258,797 2,476 $260,648 2,498 $231,400 2,198 -$29,248 -300

$9,037 76 $8,028 69 $7,031 59 -$997 -10

$2,217 13 $0 0 $0 0 $0 0

$392,966 2,363 $392,069 2,239 $403,663 2,206 $11,594 -33

Total -Appropriated Funds $672,248 4,998 $668,203 4,863 $649,081 4,514 -$19,122 -349

$53,507 488 $60,300 542 $58,600 542 -$1,700 0

Trust Funds $38,763 0 $45,080 236 $53,075 251 $7,995 15

$764,518 5,486 $773,583 5,641 $760,756 5,307 -$12,827 -334

FY 2006 - FY 2008 Funding and FTEs by Strategic Goal

FY 2006 - FY 2008 Funding and FTEs by Strategic Goal

(dollars in thousands)

FY 2006 Enacted FY 2007 Estimate FY 2008 Budget FY 2008 vs FY 2007

Forest & Rangeland Research

Permanent Funds

Total Funding - Goal 3

NFS: Wildlife and Fish Habitat Management

NFS: Centennial of Service Challenge

Capital Improvement & Maintenance

WFM: NFP - Forest Health, Cooperative Lands

NFS: Recreation, Heritage & Wilderness Resources

Permanent Funds

Total Funding - Goal 2

FY 2007 Estimate FY 2008 Budget FY 2008 vs FY 2007

(dollars in thousands)

FY 2006 Enacted

WFM: Preparedness

Forest & Rangeland Research

S&PF: State Fire Assistance

S&PF: Volunteer Fire Assistance

WFM: NFP State Fire Assistance

*Emergency Funds, FY 2006 come from P.L. 109-289, the Department of Defense Appropriations Act, 2007.

(dollars in thousands)

WFM: NFP Volunteer Fire Assistance

Emergency Funds*

Total Funding - Goal 1

NFS: Vegetation and Watershed

WFM: NFP - Forest Health, Federal Lands

WFM: Operations -Suppression

WFM: Operations - Hazardous Fuels

WFM: NFP - Rehabilitation

FY 2006 - FY 2008 Funding and FTEs by Strategic Goal

* Wildland Firefighters is a new appropriation for FY 2008. Numbers in brackets represent the funding and FTEs in Preparedness in previous fiscal years that are equivalent to those 

in FY 2008 budget request.

FY 2007 Estimate

WFM: NFP - Research and Development

WFM: NFP - Joint Fire Science

S&PF: Forest Health, Federal Lands

S&PF: Forest Health, Cooperative Lands

FY 2006 Enacted FY 2008 Budget FY 2008 vs FY 2007

Forest & Rangeland Research

International Forestry
FY 2008 Budget Justification USDA Forest Service

Revised March 30, 2007 3-13 

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 4:Help Meet Energy Resource Needs

$16,730 128 $11,702 115 $15,653 116 $3,951 1

S&PF: Economic Action Programs* $1,478 0 $0 0 $0 0 $0 0

$50,369 349 $53,746 412 $44,266 342 -$9,480 -70

$39,443 351 $43,074 378 $37,439 300 -$5,635 -78

Total -Appropriated Funds $108,020 828 $108,522 905 $97,358 758 -$11,164 -147

$325 1 $375 1 $4,875 26 $4,500 25

$108,345 829 108,897 906 $102,233 784 -$6,664 -122

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 5: Improve Watershed Condition

$94,117 722 $90,655 684 $81,383 598 -$9,272 -86

$34,144 73 $33,666 72 $20,000 70 -$13,666 -2

$73,651 646 $0 0 $0 0 $0 0

NFS: Wildlife and Fish Habitat Management $122,697 1,075 $123,415 1,075 $110,602 905 -$12,813 -170

NFS: Grazing Management $47,826 454 $47,720 453 $47,025 420 -$695 -33

NFS: Forest Products $277,583 2,663 $310,114 2,748 $318,562 2,952 $8,448 204

NFS: Vegetation and Watershed Management $153,370 1,246 $152,846 1,237 $126,509 938 -$26,337 -299

NFS: Minerals and Geology Management $24,923 200 $30,232 207 $26,569 109 -$3,663 -98

NFS: Centennial of Service Challenge $2,217 13 $0 0 $0 0 $0 0

Capital Improvement & Maintenance - Roads $38,368 233 $18,956 87 $18,902 92 -$54 5

Other Appropriations: Range Betterment Fund $3,130 15 $3,500 14 $3,750 18 $250 4

Total -Appropriated Funds $872,026 7,340 $811,104 6,577 $753,302 6,102 -$22,938 -88

$83,380 664 $100,200 678 $97,900 674 -$2,300 -4

Trust Funds $191,091 0 $186,000 1,084 $132,000 862 -$54,000 -222

$1,146,497 8,004 $1,097,304 8,339 $983,202 7,638 -$79,238 -314

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 6:Mission Related Work in Addition to That Which Supports the Agency Goals

$90,453 696 $98,460 733 $92,387 679 -$6,073 -54

S&PF: Forest Legacy $56,524 23 $9,280 24 $29,311 25 $20,031 1

S&PF: Urban and Community Forestry $28,413 58 $28,015 57 $17,436 55 -$10,579 -2

S&PF: Economic Action Program $8,059 5 $9,404 5 $0 0 -$9,404 -5

S&PF: Forest Resource and Inventory Analysis $4,588 17 $4,524 17 $0 0 -$4,524 -17

$57,675 427 $57,547 416 $52,607 384 -$4,940 -32

$92,987 543 $166,269 1,177 $146,462 1,002 -$19,807 -175

NFS: Vegetation and Watershed Management $4,680 29 $4,357 35 $4,554 35 $197 0

NFS: Minerals and Geology Management** $8,872 $62 $0 0 $0 0 $0 0

NFS: Landownership Management $51,489 437 $47,657 419 $43,401 354 -$4,256 -65

NFS: Law Enforcement Operations $110,937 737 $110,692 739 $123,841 786 $13,149 47

NFS: Valles Caldera National Preserve $5,074 0 $5,063 0 $850 0 -$4,213 0

Land Acquisition $43,056 116 $8,784 73 $16,987 72 $8,203 -1

Other Appropriations: Gifts, Donations & Requests $63 0 $63 0 $56 0 -$7 0

Other Appropriations: Subsistence Management $4,975 23 $4,875 25 $5,053 25 $178 0

Total -Appropriated Funds $567,845 3,173 $554,990 3,720 $532,945 3,417 -$22,045 -303

$476,096 235 $515,010 268 $178,738 134 -$336,272 -134

$1,043,941 3,408 $1,070,000 3,988 $711,683 3,551 -$358,317 -437

(dollars in thousands)

FY 2006 Enacted FY 2007 Estimate FY 2008 Budget FY 2008 vs FY 2007

Permanent Funds

Total Funding - Goal 6

FY 2006 - FY 2008 Funding and FTEs by Strategic Goal

(dollars in thousands)

FY 2006 Enacted FY 2007 Estimate FY 2008 Budget FY 2008 vs FY 2007

FY 2006 - FY 2008 Funding and FTEs by Strategic Goal

* All funding for Inventory and Monitoring moved to Goal 6 in FY 2007

Forest & Rangeland Research

NFS: Land Management Planning

NFS: Inventory and Monitoring*

Permanent Funds

Total Funding - Goal 5

* Inventory and Monitoring broadscale assessment activities moved to Goal 6 (All Other) in FY 2007 and combined with "Landscape Scal Assessments" into activity 

"Number of ecosystem assessment activities completed

NFS: Inventory and Monitoring*

Forest & Rangeland Research

NFS: Minerals and Geology Management

Permanent Funds

Total Funding - Goal 4

FY 2006 - FY 2008 Funding and FTEs by Strategic Goal

S&PF: Forest Stewardship

* Economic Action Programs were moved to Goal 6 in FY 2006, but funding was provided for "Fuels for Schools" via a congressional earmark and is more appropriate for Goal 4.

NFS: Landownership Management

Forest & Rangeland Research

(dollars in thousands)

FY 2006 Enacted FY 2007 Estimate FY 2008 Budget FY 2008 vs FY 2007

** Funding for Minerals and Geology Management - Manage Geologic Resources and Hazards moved to Goal 5 in FY 2007.
(This page inserted to format for duplex printing) 
Performance 

Management 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-1 

Performance Management 

Included in this section is an overview of the Program Assessment Rating Tool efforts, as 

well as a listing of Corrective Action Plans for Executive Priority measures with material 

variances from targets. 

Program Assessment Rating Tool (PART) Overview 

The Program Assessment Rating Tool (PART) is used to evaluate the strengths and 

weaknesses of agency programs. It is a rigorous process that uses a standard set of 

questions applied to all programs to assess a program’s purpose and design, how well the 

program supports an agency’s strategic goals and objectives, how well it is managed, and 

results achieved by the program. Programs are scored using five categories: effective; 

moderately effective; adequate; ineffective; and, if the program does not have adequate 

performance measures, results not demonstrated. Programs receiving a score of results 

not demonstrated must complete a PART reassessment. 

Program Assessment Summary 

The Forest Service has completed 12 PART assessments to date (through the FY 2008 

President’s Budget Request). Four of these were reassessments from earlier PART 

analyses, which resulted in improved performance measures and improved scores. 

Below is a summary of assessments by program area, which includes actions taken to 

improve PART scores. A schedule for PART assessments in FY 2009 will be 

announced later in FY 2007. 

Figure 1: PART Schedule for the U.S. Forest Service 

Budget Year Program Assessed Status

Wildland Fire Management

Capital Improvement and Maintenance

Land Acquisition

Forest Legacy

Invasive species

Forest Legacy Reassessment

Energy

Recreation

Land Acquisition Reassessment

Watershed Management

Wildland Fire Management Reassessment

Invasive Species Reassessment

Legend

Moderately Effective

Adequate

Results Not Demonstrated

Reassessment Demonstrating Improvement

2008

2004

2005

2006

2007
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-2 

Wildland Fire Management 

 

Initial Assessment: Fiscal Year 2004 President’s Budget Request 

Rating: Results Not Demonstrated (RND) 

Reassessment Completed: Fiscal Year 2008 President’s Budget Request 

Rating: Adequate 

USDA Wildland Fire Management PART Performance Measures 

• Percentage of total National Forest System land base for which fire risk is reduced 

though movement to a better condition class 

• Percent change from the 10 year average for (1) number of wildfires controlled 

during initial attack and (2) number of human caused wildfires 

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

• Total acres treated in Wildland Urban Interface (WUI) and non-WUI and also acres 

treated for other vegetation management activities that achieved fire objectives as a 

secondary benefit 

• Acres moved to a better condition class per million dollars gross investment 

Actions Taken To Improve PART Score 

Partnership Development

Since the original PART assessment, the Forest Service has worked in cooperation 

with the Department of the Interior and States to develop a 10-year Comprehensive 

Strategy. 

The Forest Service and the Department of Interior, in coordination with the National 

Association of State Foresters, developed templates for Master Cooperative Fire 

Agreements with Cost Share guidelines, and for cost share agreements on multijurisdictional fires. 

Performance Measures Changes

The agency, in cooperation with the Department of the Interior, worked to improve 

performance measures that are contained in the National Fire Plan 10-Year 

Comprehensive Strategy. In addition, the agency is reporting on specific 

performance measures associated with fire suppression costs as directed by Congress. 

Program Cost Reductions 

The agency has reported on the many actions taken to date to reduce costs. Most 

actions have occurred since the RND rating. 

Independent Reviews 

Fire and Aviation Management (FAM) revised its cost containment review process 

for regional, national and independent panel reviews. The new methodology helps 

ensure that review teams will evaluate the most significant cost drivers and hold line 
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-3 

officers accountable for implementing the recommendations made by the review 

teams. 

Capital Improvement and Maintenance 

Initial Assessment: Fiscal Year 2004 President’s Budget Request 

Rating: Adequate 

Actions Taken To Implement PART Recommendations 

• Use enhanced disposal authority to reduce the number of excess facilities; align the 

road system with available resources; and assess projects for efficiency 

improvements. 

• Continue facility and developed recreation site master planning efforts to identify 

optimum locations, sizes, and numbers of facilities to reduce future maintenance 

needs.

Capital Improvement and Maintenance PART Performance Measures 

• Facilities Condition Index (a ratio of the cost of remedying maintenance deficiencies 

to the current replacement value, commonly used by private firms to monitor 

condition of facilities) 

• Miles of passenger car road maintenance and capital improvement 

• Miles of trail maintained to standard 

Land Acquisition 

Initial Assessment: Fiscal Year 2005 President’s Budget Request 

Rating: Results Not Demonstrated (RND) 

Reassessment Competed: Fiscal Year 2007 President’s Budget Request 

Rating: Adequate 

Land Acquisition PART Performance Measures 

• Percentage of priority acres acquired or donated that reduce the conversion of forests, 

grasslands, and aquatic and riparian ecosystems to incompatible uses in order to 

improve and maintain ecological conditions for federally listed and candidate species, 

species of concern, and species of interest 

• Priority acres acquired or donated that reduce the conversion of forests, grasslands, 

and aquatic and riparian ecosystems to incompatible uses in order to improve and 

maintain ecological conditions for federally listed and candidate species, species of 

concern, and species of interest 

• Percentage of acquisition cases completed within 18 months 

• Percentage of priority acres acquired or donated that provide for public access for 

high quality outdoor recreational opportunities on National Forest System land 
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-4 

• Priority acres acquired or donated that provide for public access for high quality 

outdoor recreational opportunities on National Forest System land 

• Percentage of total acquisition cost per acre attributed to third party and private 

landowner participation 

• Dollar cost or expenditure per acre purchased or donated 

Actions Taken To Improve PART Score 

Establish National Priorities

The Forest Service modified the Land Acquisition Prioritization System (LAPS) 

to more closely align project selection criteria with the Agency’s Strategic Plan. 

Performance Measures Changes

The Forest Service developed two new outcome measures for acres acquired that 

increase public access, recreation opportunities, and habitat for threatened and 

endangered species. 

Forest Legacy 

 

Initial Assessment: Fiscal Year 2005 President’s Budget Request 

Rating: Results Not Demonstrated (RND) 

Reassessment Completed: Fiscal Year 2006 President’s Budget Request 

Rating: Moderately Effective 

Forest Legacy Program PART Performance Measures 

• Acres of land adjustments to conserve the integrity of undeveloped lands and habitat 

quality 

• Parcelization of forests avoided (parcels prevented) (Targets under development) 

• Number of perpetual conservation easements 

• Number of fee simple purchases (number of tracts purchased) 

• Total FLP cost or expenditure per acre protected from conversion 

• Average length of time between project proposal, funding and completion 

Actions Taken To Improve PART Score 

• The agency developed and implemented new outcome and efficiency measures that 

more accurately capture the benefits of the program. The program developed a 

national 5-year program strategic direction that sets national program goals and 

measures performance annually. In addition, the program will undergo periodic 

independent assessments of program management effectiveness. 

• As a part of the Continuous Program Improvement effort, the program is refocusing 

statewide assessment of needs. 
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-5 

Invasive Species 

Initial Assessment: Fiscal Year 2006 President’s Budget Request 

Rating: Results Not Demonstrated (RND) 

Reassessment Completed: Fiscal Year 2008 President’s Budget Request 

Rating: Adequate 

Invasive Species PART Performance Measures 

• Percent of acres at risk of mortality due to insect pests and diseases, or of infestation 

by invasive plants on which risk is reduced 

• Number of priority acres successfully treated for invasive species annually. 

• Cost per acre treated to reduce risk 

• Number of treated acres monitored annually 

• Score of Research and Development (R&D) customers reporting satisfaction with 

accessibility, relevance, outcome and cost effectiveness of tools developed, delivered, 

and used 

• The 5-year running average of the number of Research and Development (R&D) 

tools developed, delivered, and used 

• Cost per Research and Development (R&D) tool developed, delivered, and used 

Actions Taken To Improve PART Score 

Updated the National Insect and Disease Risk Map (NIDRM)

The NIDRM enhances the agency’s ability to control and manage insect and 

disease outbreaks. Annual priorities are established for mitigating the risk of 

future outbreaks based, in large part, on the 2006 update of the National Insect 

and Disease Risk Map (NIDRM) and goals from the Healthy Forests Restoration 

Act of 2003. The NIDRM is a peer reviewed, science based effort that identified 

58 million acres at risk for 25 percent mortality over the next 15 years. 

Performance Measures Changes

The agency developed new measures that are aimed at refining outcome-based 

performance measures as well as efficiency measures, both of which attempt to 

look at the environmental and economic effects of treatments. 

Independent Review

An independent program review was completed during fiscal year 2006. 

Energy 

Initial Assessment: Fiscal Year 2007 President’s Budget Request 

Rating: Adequate 
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-6 

Energy Resource Needs PART Performance Measures 

• Percentage of backlog (existing at the end of FY 03) in applications for permit to drill 

(APDs) reduced 

• Percentage of lease applications processed within prescribed timeframes 

• Percentage of backlog (existing at the end of FY 2003) in lease applications reduced 

• Number of new applications for permit to drill (APDs) processed within prescribed 

timeframes 

• Number of new lease applications processed within prescribed timeframes. 

• Number and percentage of operations administered to standard 

• Percentage of applications for permit to drill (APDs) processed within prescribed 

timeframes 

Actions Taken To Implement PART Recommendations 

• Initiated a comprehensive energy program evaluation by an independent consultant to 

focus on the processing of oil and gas lease nominations and applications for permit 

to drill and the administration of oil and gas operations. 

• Worked with the Bureau of Land Management (BLM) to reduce the backlog of lease 

applications by implementing authorities provided by the Energy Policy Act of 2005. 

• Supporting efforts with the BLM to implement a joint data retrieval system for oil and 

gas leasing and permitting, as well as geothermal leasing and operations. 

Recreation 

Initial Assessment: Fiscal Year 2007 President’s Budget Request 

Rating: Moderately Effective 

Recreation PART Performance Measures 

• Number of NFS travel management plans completed 

• Number of wild and scenic rivers meeting statutory requirements 

• Number and percentage of outdoor recreation facilities maintained to standard 

• Cost per visitor at developed and recreation fee sites 

• Percentage of Research and Development products and services that meet customer 

expectations 

• Cost per visitor contact 

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

easement acquisitions or land adjustments 

• Percent of recreation site capacity operated and maintained to standard 

• Percent of NFS visitors participating in outdoor based physical activities 

• Number of wilderness areas managed to minimum stewardship level 

• Percent of recreation customers satisfied with outdoor recreation services and 

facilities provided in a sustainably managed natural setting 

• Percentage of NFS lands covered by travel management plans resulting in visitor 

safety, resource protection using best management practices and less visitor conflict 

with off-road vehicle usage 
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-7 

• Number of rights-of-way acquired to provide public access 

• Percent of National Forest route designations completed 

• Customer satisfaction with value for fee paid 

Actions Taken To Implement PART Recommendations 

• Amended the draft 2007-2012 Forest Service Strategic Plan to include recreation as a 

strategic goal and recreation program performance measures that link improvements 

in program performance. 

• Optimize available resources by completing business plans for each national forest or 

grassland recreation area 

• Improve revenue and cost data for the program, using actual utilization and service 

delivery cost data, and implementing key recommendations on data reliability and 

use. 

• Initiated Recreation Site Facility Master Planning, including highlighting the 

significance of public participation. 

Watershed Management 

Initial Assessment: Fiscal Year 2008 President’s Budget Request 

Rating: Results Not Demonstrated (RND) 

Reassessment: Not scheduled at this time 

Watershed Management PART Performance Measures 

• Acres of watershed improvement

• Acres or miles of aquatic habitat enhanced to achieve desired ecological conditions as 

described in Forest Land Management Plans

• Acres of terrestrial habitat enhanced to achieve desired ecological conditions 

described in Forest Land Management Plans

• Allotment acres and per cent administered to 100 percent of Forest Plan standards

• Establish Forest Vegetation in Acres

• Acres of non-industrial private forest (NIPF) land under approved stewardship 

management plans

• The number National Forest System impaired water segments removed from the 

EPA/States listing of impaired waters (CWA Section 303(d))

Actions Taken to Improve PART Score 

• The Forest Service is developing an improvement process which includes improved 

outcome and efficiency performance measures that link to the Strategic Plan Goals 

and Objectives. 

• The Forest Service is developing and implementing a strategy to prioritize watersheds 

for management activities as the basis for program allocations. 
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-8 

Corrective Action Plans for Executive Priority Measures with 

Material Variances from Targets 

Introduction 

This section describes and explains the unmet targets for the executive priority measures 

from Fiscal Year 2006 that are aligned to the Forest Service Strategic Goals and 

Objectives. These measures update the Corrective Action Plans displayed in the agency's 

annual Performance and Accountability Report. Performance accountability is an 

integral part of Forest Service operating standards for work planning and accomplishment 

reporting. The agency assigns targets to WO staff, regions, stations, and the Northeastern 

Area based on the agency’s strategic plan goals and objectives, and input from executive 

leaders as to on-the-ground capability. Each unit within the agency develops a program 

of work consisting of specific projects planned in the Forest Service WorkPlan system 

that includes accomplishments based on congressional direction, the strategic plan, 

resource management plans, and budget allocations. Project plans are reviewed and 

updated throughout the fiscal year to reflect changed conditions. 

Accomplishment data is gathered at the national forest level, reported in a designated 

database, and summarized to the region and agency level for use by internal and external 

customers. Accomplishments for key performance measures are used as part of the 

annual performance evaluations of the Regional Foresters and other Senior Executive 

Service members. 

In 2005, the Forest Service issued an internal directive to improve internal controls over 

performance data reporting. Managers, supervisors, and project staff continually review 

the completeness and quality of the data at the ranger district, national forest, and 

regional levels. The Forest Service requires regional level line officers to certify the 

validity and reliability of key performance data, and to document data items that do not 

meet the standard. On-site activity and program reviews conducted by Washington 

Office staff enhance the review and analysis of information reported during the year. 

Year-end accomplishment reports are analyzed and agency level corrective action plans 

are developed for unmet measures. 

Following are both specific and generic explanations (OMB Circular A-11 Section 230.2) 

for variances from the targets based on final accomplishments for FY 2006. Included in 

the "explanation and action plan" section for each performance measure is a discussion of 

any material inadequacies of the data, explanations for the variance, and the necessary 

corrective actions, if applicable. 
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-9 

FY 2006 National Accomplishments with a Material Difference short of 

targets (defined by 5 percent criteria) 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp. % 

of Target 

Target Accomp 

EP1.3B Number of acres covered by partnership 

agreements 

54% 152,750 81,966

EP5.1A Percent of inventoried forest and grassland 

watersheds in fully functioning condition as a 

percent of all watersheds 

78% 40% 31%

EP5.1B Acres of NIPF Lands Under Approved 

Stewardship Management Plans 

89% 1,575,000 1,409,170

EP6.5B Number of land management plan (LMP) 

monitoring and evaluation reports completed 

93% 90 84

EP6.5C Number of LMP revisions or creations 

completed 

45% 20 9

EP6.5D Number of grazing allotments with signed 

decision notices 

92% 484 443

Explanations and Action Plans 

Partnership Agreements 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP1.3B Number of acres covered by partnership 

agreements 

54% 152,750 81,966

Extremely dry conditions in the South and West limited prescribed burning possibilities, 

and instead acres were treated with mechanical treatments. These treatments are more 

expensive and so total treatments were reduced given available funding. No action 

necessary at this time. With more favorable weather conditions, accomplishments will 

reach expected levels.

Watershed Condition 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP5.1A Percent of inventoried forest and grassland 

watersheds in fully functioning condition as a 

percent of all watersheds 

78% 40% 31%

The continued effects from Hurricanes Katrina and Rita and the severe fire season in the 

western regions this year have deteriorated conditions in a number of watersheds during 

this year. The agency is using several programs to help rehabilitate those watersheds. 
FY 2008 Budget Justification USDA Forest Service

Performance Management 4-10 

NIPF Lands Under Stewardship Management Plans 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP5.1B Acres of NIPF Lands Under Approved 

Stewardship Management Plans 

89% 1,575,000 1,409,170

State and territorial partners implemented, for the first time, a substantially revised set of 

national program standards and guidelines. These have initially reduced overall program 

accomplishment in terms of owners and acres. In addition, substantial program resources 

were invested this year in the further development of the Spatial Analysis Project and 

WebDET tool. 

Land Management Plan (LMP) Monitoring and Evaluation Reports 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP6.5B Number of land management plan (LMP) 

monitoring and evaluation reports completed 

93% 90 84

Fewer than expected monitoring reports were completed due to reduced personnel 

availability. Personnel were pulled to assist with fighting the severe fire season, as well 

as Land Management Plan development on some units. For this reason, less than 

expected monitoring took place during the year. The agency expects to make up this 

shortfall in FY 2007. 

Land Management Plan (LMP) Revisions or Creations 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP6.5C Number of LMP revisions or creations 

completed 

45% 20 9

In FY 2006, regions targeted 20 forest plan revisions to be completed. Completion was 

delayed due to national changes in the interpretations of the new planning rule and 

associated directives. In addition, the WO has modified its guidance. Subsequent public 

comments have necessitated rewriting some of the plan components as well as expanding 

document review steps prior to publishing final plans. 
FY 2008 Budget Justification USDA Forest Service

 

Performance Management 4-11

Grazing Allotments 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP6.5D Number of grazing allotments with signed 

decision notices 

92% 484 443

Shortfall was due to late season fires resulting in increased permit administration 

workload which included temporary closures of allotments and loss of range 

improvements. This situation pulled personnel and delayed work on allotments. The 

agency expects to make up the shortfall in FY 2007. 

FY 2006 National Accomplishments with a Material Difference 

Exceeding Targets (defined by 5 percent criteria) 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp. % 

of Target 

Target Accomp 

EP1.3A Percent of communities at risk with completed 

and current fire management plans or risk 

assessments 

123% 23% 28%

EP2.1A Number of acres treated for selected invasive 

species, noxious weeds and invasive plants on 

National Forest system and State & Private 

lands 

154% 655,515 1,011,560

EP3.1A Miles of trail maintained to standard 121% 20,557 24,931

EP3.1 B Miles of road maintained 112% 65,508 73,579

EP4.1A Percent of energy and or oil and gas 

applications processed within prescribed 

timeframe 

157% 45% 71%

EP5.3B Miles of stream habitat enhanced 114% 1,457 1,655

EP5.3C Acres of lake habitat enhanced 116% 13,742 15,996

EP6.1A Percent of the Nation for which forest inventory 

and analysis (FIA) information is accessible to 

external customers 

117% 72% 84%

EP6.3A Acres of lands acquired or adjusted, including 

fee title and conservation easements, to 

conserve the integrity of undeveloped lands and 

habitat quality on National Forest System and 

State & Private lands 

148% 288,369 425,737
FY 2008 Budget Justification USDA Forest Service

 

Performance Management 4-12

Explanations and Action Plans 

Communities At Risk 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP1.3A Percent of communities at risk with completed 

and current fire management plans or risk 

assessments 

123% 23% 28.4%

State foresters in the South and West placed added emphasis on accomplishment, 

contributing to the over accomplishment. No action necessary. 

Invasive Species 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP2.1A Number of acres treated for selected invasive 

species, noxious weeds and invasive plants on 

National Forest system and State & Private lands 

154% 655,515 1,011,560

Over-accomplishment is due to increased performance by partners and other Federal 

agencies in Gypsy Moth and other invasive species prevention, suppression and 

restoration. No action required. 

Trail Maintenance 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP3.1A Miles of trail maintained to standard 121% 20,557 24,931

Regions exceeded targets based on leveraging more in partnership support and 

agreements than anticipated. The agency is working on developing a method to more 

accurately determine targets and report accomplishments. No action necessary. 

Road Maintenance 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP3.1 B Miles of road maintained 112% 65,508 73,579
FY 2008 Budget Justification USDA Forest Service

 

Performance Management 4-13

The program continues to refine this measure to allow for more accurate planning and 

reporting. The Forest Service expects to clarify the measure and complete systems 

modifications for implementation during FY2007-2008. 

Oil and Gas Applications 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP4.1A Percent of energy and or oil and gas applications 

processed within prescribed timeframe 

157% 45% 71%

Some of the regions exceeded the national target of 45 percent by successfully processing 

surface use plans of operations and lease nominations within the recommended 

timeframes. In addition, some of the regions successfully reduced the number of oil and 

gas applications in the backlog, thus exceeding the national target. 

Stream Habitat 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP5.3B Miles of stream habitat enhanced 114% 1,457 1,655

Regions exceeded targets based on leveraging more in partnership support and 

agreements than anticipated. The agency is working on developing a method to more 

accurately determine targets and report accomplishments. No action necessary. 

Lake Habitat 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP5.3C Acres of lake habitat enhanced 116% 13,742 15,996

Regions exceeded targets based on leveraging more in partnership support and 

agreements than anticipated. The agency is working on developing a method to more 

accurately determine targets and report accomplishments. No action necessary. 
FY 2008 Budget Justification USDA Forest Service

 

Performance Management 4-14

FIA Information 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP6.1A Percent of the Nation for which forest inventory 

and analysis (FIA) information is accessible to 

external customers 

117% 72% 84%

Regions exceeded the targeted amount by 17 percent, due to additional efforts by state 

and federal FIA field crews. No action necessary. 

Land Acquisition and Adjustment 

Exec 

Priority 

FY 2006 Accomplishment Measure Accomp % 

of Target 

Target Accomp 

EP6.3A Acres of lands acquired or adjusted, including 

fee title and conservation easements, to conserve 

the integrity of undeveloped lands and habitat 

quality on National Forest System and State & 

Private lands 

148% 288,369 425,737

It is difficult to predict when land protection projects will close. Some projects closed 

earlier in FY 2006. No action necessary. 
FY 2008 Budget Justification 

Performance Management 4-15

The agency’s Performance Accountability Report covers measures determined prior to PART measures being se

In addition to the Executive Priority Performance measures, the agency also tracks PART measures to gauge pro

The following table is a roll up of performance against PART measures. 

Measure 

06 Accomp 

% of Target 06 Target 

06 

Accomp 07 Target 

USDA Wildland Fire Management PART Performance Measures Percentage of total National Forest System land base for which fire risk is reduced though movement to a better condition class 

110% 1% 1.1% 2% 

Percent change from the 10 year average for (1) number of wildfires controlled during initial attack * and (2) number of human caused wildfires** 

100%

-6.8%

+/- .5% 

-2% 

-.4%

4.7%

+/- .5%

-2%

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

110% 24% 26.5% 21% 

Total acres treated in Wildland Urban Interface (WUI) and non-WUI and also acres treated for other vegetation management activities that achieved fire objectives as a secondary benefit 

86% 2,900,000 2,500,000 2,900,000 

Acres moved to a better condition class per million dollars gross investment 

80% 2,408 1,934 2,553 

Invasive Species PART Performance Measures Percent of acres at risk of mortality due to insect pests and diseases, or of infestation by invasive plants on which risk is reduced 

104% 6.9% 7.16% 8.7% 

Number of priority acres successfully treated for invasive species annually. 

161% 610,800 981,242 757,421 

Cost per acre treated to reduce risk 94% $91.79 $86.12 $93.88 Number of treated acres monitored annually 749% 122,160 915,563 129,140 Score of Research and Development (R&D) customers reporting satisfaction with accessibility, relevance, outcome and cost effectiveness of tools developed, delivered, and used 

1005 72 72 74 
FY 2008 Budget Justification 

Performance Management 4-16

Measure 

06 Accomp 

% of Target 06 Target 

06 

Accomp 07 Target 

The 5-year running average of the number of Research and Development (R&D) tools developed, delivered, and used 

129% 133 171 142 

Cost per Research and Development (R&D) tool developed, delivered, and used 

57% $426,000 $242,000 $426,000 

Recreation PART Performance Measures Number of NFS travel management plans completed 5% 38 2 77 Number of wild and scenic rivers meeting statutory requirements 

Baseline only Not 

available 

Not 

available

No

available

Number and percentage of outdoor recreation facilities maintained to standard 

95%95%

9,865 

68% 

9,424

65%

9,460

65%

Cost per visitor at developed and recreation fee sites 113% $2.80 $3.17 $2.60 Percentage of Research and Development products and services that meet customer expectations 

na Baseline 72% No

reported

Cost per visitor contact 115% $1.18 $1.36 $1.18 Percent of road and trail rights-of-way acquired that provide public access through easement acquisitions or land adjustments 

100% 94% 94% 90% 

Percent of recreation site capacity operated and maintained to standard 

155% 40% 62% 65% 

Percent of NFS visitors participating in outdoor based physical activities 

103% 69% 71% 70% 

Number of wilderness areas managed to minimum stewardship level 

63% 99 61 74 

Percent of recreation customers satisfied with outdoor recreation services and facilities provided in a sustainable managed natural setting 

102% 83% 85% 84% 

Percentage of NFS lands covered by travel management plans resulting in visitor safety, resource protection using best management practices and less visitor conflict with off-road vehicle usage 

30% 1% .3% 21% 
FY 2008 Budget Justification 

Performance Management 4-17

Measure 

06 Accomp 

% of Target 06 Target 

06 

Accomp 07 Target 

Number of rights-of-way acquired to provide public access 

745 152 112 175 

Percent of National Forest route designations completed 

30% 1% .3% 21% 

Customer satisfaction with value for fee paid 99% 83% 82% 84% Energy Resource Needs PART Performance Measures Percentage of backlog (existing at the end of FY 03) in applications for permit to drill (APDs) reduced 

105% 86% 90% 100% 

Percentage of lease applications processed within prescribed timeframes 

17% 47% 8% 50% 

Percentage of backlog (existing at the end of FY 2003) in lease applications reduced 

127% 15% 19% 18% 

Number of new applications for permit to drill (APDs) processed within prescribed timeframes 

33% 325 115 325 

Number of new lease applications processed within prescribed timeframes 

49% 1,200 585 1,400 

Number and percentage of operations administered to standard 

324%325%

1,000 

20% 

3,240

65%

1,000

20%

Percentage of applications for permit to drill (APDs) processed within prescribed timeframes 

70% 47% 33% 50% 

National Forest Improvement and Maintenance PART Performance Measures Facilities Condition Index (a ratio of the cost of remedying maintenance deficiencies to the current replacement value, commonly used by private firms to monitor condition of facilities) 

103% .87 .90 .90 

Miles of passenger car road maintenance and capital improvement 

108% 39,932 43,300 24,103 

Miles of trail maintained to standard 113% 19,990 22,599 22,470 Forest Legacy Program PART Performance Measures Acres of land adjustments to conserve the integrity of undeveloped lands and habitat quality 

157% 230,000 361,467 20,000 
FY 2008 Budget Justification 

Performance Management 4-18

Measure 

06 Accomp 

% of Target 06 Target 

06 

Accomp 07 Target 

Parcelization of forests avoided (parcels prevented) (Targets under development) 

na Baseline 19,342 No

available

Number of perpetual conservation easements 121% 33 40 40 Number of fee simple purchases (number of tracts purchased) 

220% 10 22 13 

Total FLP cost or expenditure per acre protected from conversion 

117% $259 $303 $475 

Average length of time between project proposal, funding and completion 

129% 24 months 31 months 24 months 

Land Acquisition PART Performance Measures Percentage of priority acres acquired or donated that reduce the conversion of forests, grasslands, and aquatic and riparian ecosystems to incompatible uses in order to improve and maintain ecological conditions for federally listed and candidate species, species of concern, and species of interest 

97% 65% 63% 65% 

Priority acres acquired or donated that reduce the conversion of forests, grasslands, and aquatic and riparian ecosystems to incompatible uses in order to improve and maintain ecological conditions for federally listed and candidate species, species of concern, and species of interest 

118% 26,635 31,460 28,000 

Percentage of acquisition cases completed within 18 months 

223% 40% 89% 75% 

Percentage of priority acres acquired or donated that provide for public access for high quality outdoor recreational opportunities on National Forest System land 

115% 85% 98% 90% 

Priority acres acquired or donated that provide for public access for high quality outdoor recreational opportunities on National Forest System land 

141% 34,830 49,044 36,000 
FY 2008 Budget Justification 

Performance Management 4-19

Measure 

06 Accomp 

% of Target 06 Target 

06 

Accomp 07 Target 

Percentage of total acquisition cost per acre attributed to third party and private landowner participation 

na Baseline 11.3% 12% 

Dollar cost or expenditure per acre purchased or donated 

103% $1,381 $1,420 $1,380 

*10 year average for wildfires controlled during initial attack is 98.3% **10 year average for number of human caused wildfires is 3,765 
(This page inserted to format for duplex printing) 
National Fire Plan 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-1

Wildland Fire Management – The Interagency National Fire Plan 

Background 

In response to the unprecedented fire season of 2000, the President requested a report 

recommending how to respond to severe, ongoing fire activity, reduce impacts of fires on 

rural communities and the environment, and ensure sufficient firefighting resources in the 

future. The report, Managing the Impacts of Wildfire on Communities and the 

Environment: A Report to the President in Response to the Wildfires of 2000, became 

the cornerstone of what is known as the National Fire Plan (Plan or NFP). The NFP 

implementation plan has been adopted by Federal agencies and western governors, in 

collaboration with county commissioners, State foresters, and tribal officials. 

The Plan (www.fireplan.gov) addresses five key points: Firefighting, Rehabilitation, 

Hazardous Fuels Reduction, Community Assistance, and Accountability. Working 

collaboratively, the United States Department of Agriculture (USDA), Forest Service, 

and four Department of the Interior (DOI) bureaus (the Bureau of Indian Affairs, Bureau 

of Land Management, National Park Service, and Fish and Wildlife Service), developed 

consistent guidelines, policies and actions that provide seamless wildland fire protection. 

The Departments continue to work together on planning and budgeting processes. 

The Wildland Fire Leadership Council (WFLC) provides oversight for implementation of 

the Plan. This council includes executive level members from both the Departments of 

the Interior and Agriculture, the individual bureaus, and representatives from the U.S. 

Fire Administration, the Western Governor’s Association, the National Association of 

Counties, the National Association of State Foresters, and the Inter-Tribal Timber 

Council. The Council addresses key policy issues such as common performance 

measures, direction for an effective hazardous fuel reduction program, and managing 

large fire suppression costs. 

Major Efforts 

The most recent products of the NFP coordination effort are: 

10-year Strategy Implementation Plan 

(http://www.fireplan.gov/reports/10-YearStrategyFinal_Dec2006.pdf) 

Cohesive Fuels Treatment Strategy 

(http://www.healthyforests.gov/CFTS_03-03-06.pdf) 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-2

The Updated 10-Year Implementation Plan was released in December 2006. 

Significant revisions of performance measures and implementation tasks are included. 

Updates also include a new section on progress-to-date, an expanded discussion on the 

importance of collaboration, and a section highlighting the characteristics of successful 

collaboration. These changes were prompted because many of the action items set forth 

in the original implementation plan have been completed. A series of groups composed 

of numerous stakeholders were convened to review past and current tasks, actions, and 

performance measures for the update. The Departments have adopted these measures for 

FY 2007. This budget justification report is structured to address the updated goals and 

measurements. 

In February 2006, the Departments released a Cohesive Fuels Treatment Strategy 

(Strategy). The Strategy addresses the need to reduce the risk of catastrophic wildland 

fires by reducing fuels build-up in forests and woodlands; and by reducing threats from 

flammable invasive species on rangelands, in the most efficient and effective manner 

possible. The Strategy centers around four principles: prioritization, coordination, 

collaboration, and accountability, and emphasizes creating effective fuel treatments 

(areas of reduced fire behavior such as; lower flames and/or slower spread) across the 

landscape, by using a scientific approach to remove fuels. 

Summary 

In the six years since the inception of the National Fire Plan, the guiding principals of 

prioritization, coordination, collaboration, and accountability have resulted in major 

changes in the fire program and public land management. 

• The strategies, policies, and oversight of the WFLC contribute to the significant 

progress the Departments have made in NFP efforts toward a seamless wildland 

fire management program. 

• Increased collaboration with State, local community, and Tribal partners to 

identify and treat high priority hazardous fuels problems, focused in the Wildland 

Urban Interface, continues to progress as a result of the implementation of the 

NFP. 

• The Departments are providing for expanded community and private sector 

involvement, enhanced contracting opportunities for local communities, and local 

participation in setting fuel treatment priorities. 

• Standards for accountability and measuring program performance have been 

established, ensuring continued improvement in our ability to track and support 

program planning, implementation, and effectiveness. 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-3

NATIONAL FIRE PLAN – COMMON PERFORMANCE MEASURES

DEPARTMENT OF THE INTERIOR AND FOREST SERVICE FY 2006—2007* 

 INTERAGENCY COMBINED MEASURES 

FY 2006 

Actual 

FY 2007 

Plan 

FY 2008 

Request 

Percent of unplanned and unwanted fires controlled 

during initial attack 97% 97% N/A* 

Number of high-priority acres treated in the WUI. 1,577,539 1,885,000 1,993,000 

Number of acres in condition class 2 or 3 treated 

outside the WUI in fire regimes 1, 2, or 3. 753,581 749,000 698,000 

Number of acres in fire regimes 1, 2, or 3 moved to a 

better condition class 994,000 952,600 1,140,780 

Number of acres in fire regimes 1, 2, or 3 moved to a 

better condition class per million dollars gross 

investment A/ 

5,159 5,870 6,249 

 A/ This measure includes only Hazardous Fuels Reduction accomplishments and funding, not all acres with change in condition 

class. 

*Note: With new measures from the updated 10-year Strategy Implementation Plan, FY 

2007 will be used as a baseline and reporting with new measures will begin in 2007 and 

2008. The Forest Service programs will be implementing and reporting against approved 

Program Assessment and Rating Tool (PART) measures beginning in 2006 for the 

wildland fire appropriation. 

The new measures in future budget justifications will be: 

Goal #1 Improve Fires Prevention and Suppression

Percent change from 10-year average for: percent wildfires controlled during initial 

attack. 

Percent of fires not contained in initial attack that exceed a stratified cost index. 

Goal #2 Reduce Hazardous Fuels

Number of acres treated per million dollars gross investment in WUI and non-WUI areas. 

Percent of collaboratively identified high priority acres treated where fire management 

objectives are achieved as identified in applicable management plans or strategies. 

Goal #3 Restoration and Post-Fire Recovery of Fire-Adapted Ecosystems

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

moved to a better [lower] condition class. 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-4

Goal #4 Promote Community Assistance

Number of green tons and/or volume of woody biomass from hazardous fuel reduction 

and restoration treatments on Federal land that are made available for utilization through 

permits, contracts, grants, agreements, or equivalent. 

Relationship to Other Initiatives 

In August 2002, the Healthy Forests Initiative (HFI) was launched with the intent to 

reduce the risks severe wildfires pose to people, communities, and the environment. This 

initiative implements both core components of the National Fire Plan and the 10-Year 

Comprehensive Strategy through administrative reforms, reducing the adverse human and 

environmental impacts of wildland fire. The HFI effort garnered broad support that led 

to the enactment of the Healthy Forests Restoration Act of 2003 (HFRA). The primary 

goal of HFRA is to reduce fire danger and return the nation’s forests and rangelands to a 

more resilient state. Community Wildfire Protection Plans (CWPPs), which allow local 

input on where and how Federal agencies implement fuels reduction projects on Federal 

lands, are integral to HFRA. Tools provided by congressional actions and by HFI, such 

as categorical exclusions for meeting environmental analysis requirements, save time and 

money. HFRA improvements allow for timely analysis of management actions proposed 

to protect forests, woodlands, shrublands, and grasslands from unnaturally intensive and 

destructive fires. These initiatives together help to improve the condition of public lands; 

increase firefighter safety; and conserve landscape attributes valued by society. 

An emerging area within hazardous fuels reduction is the utilization of woody biomass. 

Woody biomass is the by-product of restoration and hazardous fuel reduction treatments, 

(i.e. limbs, tops, needles, leaves, and other woody parts). Woody biomass utilization can 

help reduce or offset the cost and increase the quality of restoration or hazardous fuel 

reduction projects. 

 Recent examples of progress under the HFI/HFRA by DOI and the Forest Service 

include: 

• Increased training and communication efforts internally, which resulted in 

increased use of the provisions of the HFRA and HFI, to better protect 

communities and the environment from the impacts of catastrophic wildland fire. 

• Provided technical and professional assistance, toward the creation of CWPPs 

which analyze and prioritize fuel hazard reduction and forest restoration projects 

across land ownerships. 

 

• Implemented actions recommended within CWPPs, which strengthens 

collaborative efforts with stakeholders, to address landscape level, integrated, 

hazardous fuels treatments for high priority areas across all ownerships.
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-5

• Formed a Federal Woody Biomass Utilization Working Group with the 

Department of Energy to promote and support the utilization of woody biomass 

and woody biomass products from forest and woodland treatments. 

• Entered a cooperative agreement with the National Association of Conservation 

Districts (local boards developing locally driven solutions to natural resource 

concerns) to engage local communities in biomass utilization to stimulate 

economic development and offset the costs of implementing the National Fire Plan 

hazardous fuels reduction program

Fire Research and Technology 

During the late 1990s, the Western United States experienced a dramatic increase in 

wildland fire activity. On the heels of this increase, the Joint Fire Science Program 

(JFSP) was established to provide scientific information and support for wildland fuel 

and fire management programs. The purpose of JFSP is to provide wildland fire and fuels 

information and tools to specialists and managers, helping them to make the best possible 

decisions and develop sound, scientifically valid plans. JFSP received specific direction 

from Congress to address: fuels inventory and mapping, evaluation of fuels treatments, 

scheduling of fuels treatments, development of protocols for monitoring and evaluation, 

post-fire rehabilitation and stabilization, local assistance, and aircraft-based remote 

sensing. Research sponsored by JFSP also examines fire related issues including air 

quality, smoke management, and social aspects of fire and fuels management. 

Examples of tools generated by Forest Service and JFSP research teams include 

integrated fire and weather maps to generate 3-to-12 month fire forecasts; imagery-based, 

burn-severity maps used by Burned Area Emergency Response (BAER) teams to 

stabilize soils and reduce erosion; and development of a fiberboard structural product 

made from by-products of hazardous fuels treatments. Current and future plans include:

• Developing and improving tools such as fire behavior models like FSPRO, which 

helps managers to make informed decision based on probabilities of fire spread and 

behavior, or values at risk models such as RAVAR, which assists in prioritization of 

suppression efforts.

• Studying the various aspects of wildland fire management including; firefighter and 

public safety, fire weather and behavior, smoke dispersion, and post-fire 

susceptibility to invasive species, in order to address current and anticipated 

management problems. 

• Synthesizing a large body of fire science into a fully linked and searchable hypertext 

system via the internet, the Encyclopedia of Southern Fire Science. 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-6

Interagency 

Three-Year National Fire Plan Funding Table 

(Dollars in thousands) 

 

AGENCY/Program 

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008 

President's 

 Budget 

FY 2008 

 vs. 

 FY 2007 

 INTERIOR 

Preparedness 268,839 274,801 268,334 -6,467 

Suppression 230,721 257,041 294,398 37,357 

Other Operations: 

 Hazardous Fuels Reduction 208,113 199,787 202,792 3,005 

 Burned Area Rehabilitation 24,116 24,286 24,591 305 

 Fire Facilities 7,734 7,338 7,734 396 

 Joint Fire Science Program 5,911 6,000 4,000 -2,000 

 State and Local Assistance 9,852 0 0 0 

Other Operations Total 255,726 237,411 239,117 1,706 

Subtotal, DOI 755,286 769,253 801,849 32,596 

Supplementals 100,000 0 0 0 

Total, DOI 855,286 769,253 801,849 32,596 

 FOREST SERVICE 

Wildland Firefighters [189,666] [213,265] 219,710* 219,710* 

Preparedness 660,705 655,887 349,082** -306,805** 

Fire Suppression Operations 690,186 741,477 911,032 169,555 

Other Operations: 

 Hazardous Fuels Reduction 280,119 291,792 291,583 -209 

 Rehabilitation 6,189 5,000 0 -5000 

 Fire Plan Research and Development 22,789 22,800 22,000 -800 

 Joint Fire Science Program 7,882 13,000 8,000 -5000 

 Forest Health Management (Federal lands) 14,779 14,800 14,252 -548 

 Forest Health Management (co-op lands) 9,853 10,000 10,014 14 

 State Fire Assistance 45,816 43,000 35,004 -7,996 

 Volunteer Fire Assistance 7,773 12,810 8,000 -4,810 

Other Operations total 395,200 413,202 388,853 -24,349 

Subtotal, Forest Service 1,746,091 1,810,566 1,868,677 58,111 

Supplementals 100,000 --- --- --- 

Total, Forest Service 1,846,091 1,810,566 1,868,677 58,111 

* This is a new appropriation for FY 2008. Bracketed numbers show equivalent amounts within the Wildland Fire Management 

appropriation in previous years. 

** There is no net change in number of firefighters resulting in the creating of the Wildland Firefighter account. Funds are moved from the 

 Wildland Fire appropriation and into the new account Wildland Firefighters. 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-7

Interagency 

Three-Year National Fire Plan Funding Table 

(Dollars in thousands) 

AGENCY/Program 

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008 

President's 

 Budget 

FY 2008 

 vs. 

 FY 2007 

 INTERIOR & FOREST SERVICE 

Wildland Firefighters [189,666] [213,265] 219,710* 219,710* 

Preparedness 929,544 930,688 617,416 -313,272 

Fire Suppression Operations 920,907 998,518 1,205,430 206,912 

Other Operations: 

Hazardous Fuels Reduction 488,232 491,579 494,375 2,796 

Rehabilitation 30,305 29,286 24,591 -4,695 

Joint Fire Science Program 13,793 19,000 12,000 -7,000 

Fire Plan Research and Development 22,789 22,800 22,000 -800 

Forest Health Management (Federal lands) 14,779 14,800 14,252 -548 

Forest Health Management (co-op lands) 9,853 10,000 10,014 14 

State Fire Assistance 9,852 43,000 35,004 -7,996 

Volunteer Fire Assistance 7,773 12,810 8,000 -4,810 

State and Local Assistance 9,852 0 0 0 

Other Operations total 607,232 643,275 620,236 -23,039 

Subtotal 2,457,683 2,572,481 2,662,792 90,311 

Supplementals 200,000 --- --- --- 

Grand Total 2,657,683 2,572,481 2,662,792 90,311 

* This is a new appropriation for FY 2008. Bracketed numbers show equivalent amounts within the Wildland Fire Management 

appropriation in previous years. 

There is no net change in number of firefighters resulting in the creating of the Wildland Firefighter account. Funds are moved from the 

Wildland Fire appropriation and into the new account Wildland Firefighters. 

FY 2008 PLANNED ACTIVITIES

Strategic Priorities 

• Continue to work in a collaborative manner with States, Tribes, non-governmental 

organizations, and other partners to ensure the accomplishment of mutual objectives. 

• Continue the integration of program funding to accomplish HFI and HFRA objectives 

efficiently and effectively. 

• Emphasize the integration of Community Wildfire Protection Plans with Federal 

hazardous fuels mitigation priorities. 

Goal 1 – Improve Fire Suppression and Prevention

• Continue to implement large fire suppression operations cost containment strategies. 

• Report on percent change from 10-year average for: percent wildfires controlled 

during initial attack.

• Continue implementation and expanded use of Appropriate Management Response

(risked-base approach) and Wildland Fire Use to reduce suppression cost. These 

efforts will include a more extended use of wildland fire decision support information 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-8

and analytical tools to examine values-at-risk and potential risk associated with 

individual incidents.

• Researchers will continue working to improve firefighting preparedness through tools 

and models developed to predict activities such as wildfire behavior and effects. 

Examples are FSPRO, which helps managers to make informed decision based on 

probabilities of fire spread and behavior, and values at risk models such as RAVAR, 

which assists in prioritization of suppression efforts. 

Goal 2 - Reduce Hazardous Fuels

• Treat approximately 2.9 million acres of hazardous fuel to reduce flammability of 

forests, woodlands, shrublands, and grasslands, including 2 million acres in the WUI 

areas and 868,000 acres in areas outside of WUI areas. 

• Reduce fuel loads on an estimated additional 1.5 million acres as a secondary benefit 

of other vegetation management activities, Wildland Fire Use events, Hazard 

Mitigation Grants awarded under the State Fire Assistance program, and activities of 

the Southern Nevada Public Lands Management Act. 

• Continue participation in the Federal Woody Biomass Utilization Working Group to 

promote and support the utilization of woody biomass and woody biomass products 

from forest and woodland treatments. 

Goal 3 - Restoration and Post-Fire Recovery of Fire-Adapted Ecosystems 

Part A – Restoration of Fire Adapted Ecosystems 

• Promote the increase of wildland fire use, consistent with land and resource 

management plans and public and firefighter safety and report these acres annually in 

future Budget Justifications. 

Part B – Post Fire Recovery of Fire Adapted Ecosystems 

• Implement emergency stabilization treatments on lands that are severely burned in 

2008. 

• Rehabilitate and restore burned areas through reforestation, seeding, road and trail 

restoration, invasive plant treatment, heritage site restoration, grazing management, 

insect and disease treatment, watershed restoration, and restoration of streams, roads, 

and trails. 

• Continue to reforest burned areas through a five-year cost-share agreement with 

American Forests for Wildfire ReLeaf. 

• Continue the Interagency Program to Supply and Manage Native Plant Materials, a 

long-term strategy to improve nursery and plant material center infrastructure, 

monitoring of restoration effects, and public/private partnerships. 

Goal 4 – Promote Community Assistance

• Partner with the National Fire Protection Association, State, Federal and nonprofit 

partners to encourage community responsibility for hazard mitigation through land 

use planning, building codes, landscaping codes, zoning, and community fire 

protection planning through the Firewise Communities Program. 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-9

• Provide technical assistance, training, supplies, and equipment to more than 6,500 

small rural communities and 5,075 volunteer fire departments. 

• Use CWPPs to help guide fuel hazard reduction and forest restoration project 

selection across ownership on a landscape scale. 

• Increase firefighting capacity by providing technical assistance, training, supplies, 

and equipment to 940 small rural communities through Ready Reserve (DOI) and 

Volunteer Fire Assistance (USDA Forest Service) programs. 

• Provide more than $21 million for technical and financial assistance to States to 

enhance firefighting capacity at the State and local levels. 

FY 2007 GOALS

Goal 1 – Improve Fire Suppression and Prevention

• Maintain an interagency 97 percent initial attack success rate. 

• Provide a firefighting fleet of 2,116 engines, dozers, and water/foam tenders, and over 

210 aircraft. 

Goal 2 - Reduce Hazardous Fuels

• Treat approximately 2.9 million acres of hazardous fuel to reduce flammability of 

forests, woodlands, shrublands, and grasslands, including 1.9 million acres in the 

WUI areas and 987,000 acres outside of WUI areas. 

• Use CWPPs to help guide fuel hazard reduction and forest restoration project 

selection across ownership on a landscape scale. 

• Continue participation in the Federal Woody Biomass Utilization Working Group to 

promote and support the utilization of woody biomass and woody biomass products 

from forest and woodland treatments. 

Goal 3 - Restoration and Post-Fire Recovery of Fire-Adapted Ecosystems 

Part A – Restoration of Fire Adapted Ecosystems 

• Promote the increase of wildland fire use, consistent with land and resource 

management plans and public and firefighter safety and report these acres annually in 

future Budget Justifications. 

Part B – Post Fire Recovery of Fire Adapted Ecosystems 

• Implement rehabilitation projects in the highest priority areas identified within areas 

burned during the fires of 2005-2007. Treatments include; reforestation, seeding, 

road and trail restoration, invasive plant treatment, heritage site restoration, grazing 

management, insect and disease treatment, watershed restoration, and restoration of 

streams, roads, and trails. 

• Continue to reforest burned areas through a five-year cost-share agreement with 

American Forests for Wildfire ReLeaf. 

• Continue the Interagency Program to Supply and Manage Native Plant Materials, a 

long-term strategy to improve nursery and plant material center infrastructure, 

monitoring of restoration effects, and public/private partnerships 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-10

Goal 4 – Promote Community Assistance

• Provide more than $51 million to States in technical assistance, training, supplies, and 

equipment to more than 7,765 small rural communities and 6,650 volunteer fire 

departments. 

• Partner with the National Fire Protection Association, State, Federal and nonprofit 

partners to encourage community responsibility for hazard mitigation through land 

use planning, building codes, landscaping codes, zoning, and community fire 

protection planning through the Firewise Communities Program. 

2006 

A PROGRESS REPORT FROM

THE DEPARTMENTS OF THE INTERIOR AND AGRICULTURE

Hazardous Fuels Reduction and Landscape Restoration 

(Thousands of Acres) 

Wildland Urban Interface Non-Wildland Urban Interface 

Rx Fire Mechanical Other Total Rx Fire Mechanical Other Total Grand 

Total 

2006 

*FS 800 700 100 1,600 600 300 0 900 2,500 

DOI 200 200 100 600 400 200 200 900 1,500 

Total 1,000 900 200 2,200 1,000 500 200 1,800 4,000 

2001-2006 

FS 

Total 5,200 2,000 400 7,500 3,100 1,200 100 4,300 11,900 

DOI 

Total 1,200 1,200 300 2,600 3,200 1,100 800 5,100 7,800 

Grand 

 Total 6,400 3,200 700 10,100 6,300 2,300 900 9,400 19,700 

* All treatment work that reduces hazardous fuel or improves condition class, including State Fire Assistance Hazard 

Mitigation Grants and Wildland Fire Use 

Table Data Source: 2001-2003, National Fire Plan Annual Report; 2004-2006, FS - NFPORS Excel Extract; DOI - 

NFPORS Management Dashboard. Table adapted from Healthy Forests 2006 final accomplishment report. 

FY 2006 INTERAGENCY ACCOMPLISHMENTS 

Goal 1 – Improve Fire Suppression and Prevention

• Suppressed approximately 21,400 wildfires, which burned approximately 3.8 million 

acres of National Forest and Forest Service and DOI lands, and those they protect.

• Strengthened program performance measures through revision of the National Fire 

Plan 10 Year Comprehensive Implementation Strategy. These new measures include: 

monitoring and analyzing large fire suppression expenditures with the Stratified Cost 

Index; maintaining Initial Attack success; reducing the number of human caused 
FY 2008 Budget Justification USDA Forest Service

National Fire Plan 5-11

ignitions; and, monitoring the number and percent of communities-at-risk covered by 

a Community Wildfire Protection Plan. 

• Implemented actions to address increasing suppression costs. These included, 

emphasizing land management decisions that affect fuel loading and resource 

protection, increasing the skills and numbers of local firefighters, advancing 

integrated data management, and developing metrics and accountability measures to 

evaluate managerial cost effectiveness. 

Goal 2 - Reduce Hazardous Fuels

• Treated 4 million acres of hazardous fuels, using hazardous fuels and other program 

funds, to reduce flammability of forests, woodlands, shrublands, and grasslands, 

including over 2.5 million acres in WUI areas and approximately 1.5 million acres in 

non-WUI areas. 

Goal 3 - Restoration and Post-Fire Recovery of Fire-Adapted Ecosystems 

Part A – Restoration of Fire Adapted Ecosystems 

• Managed unplanned ignitions on 199,000 acres through Wildland Fire Use (WFU) 

incidents to accomplish resource management objectives. Emphasized increased 

wildland fire use in land management planning with the long term objective to 

increase the utilization of wildland fire use to accomplish resource objectives, 

including fuels management. 

• Implemented the Coordinated Resource Offering Protocol (CROP) in conjunction 

with Strategic Placement of Treatments (SPOTS) for ecosystem restoration and 

hazardous fuel reduction. Ten areas across the nation are engaged in an Interagency 

effort to level the annual biomass offering between agencies, reducing investment risk 

to private parties interested in participating in creating biomass utilization 

opportunities from hazardous fuel reduction and forest restoration activities

Part B – Post Fire Recovery of Fire Adapted Ecosystems 

• Assessed and implemented emergency stabilization treatments on 1,058 projects that 

initiated recovery on 2.3 million acres. In addition, work was completed on 3,454 

miles of roads, trails, streams and other lineal features to reduce the impacts of floods 

and other post-fire effects. 

• Continued the Interagency Program to Supply and Manage Native Plant Materials 

that works with growers to collect native plant material and develop supplies for 

restoration needs. 

• Implemented the agreement with American Forests for Wildfire ReLeaf to 

supplement reforestation efforts of burned areas. This is a matching fund agreement 

that resulted in a private funding contribution of over $200,000 for reforestation 

efforts. 

Goal 4 – Promote Community Assistance

• Assisted almost 9,000 communities in the form of risk assessments, fire prevention 

programs, fire management planning, and hazardous fuel mitigation projects. 
(This page inserted to format for duplex printing) 
Appropriation 

Language Changes 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-1 

Appropriation Language and Proposed Changes in Language 

Material proposed for deletion is enclosed in bold brackets; new language is underlined 

and bold. 

FOREST AND RANGELAND RESEARCH 

1. 

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

$263,000,000, to remain available until expended. 

1. Reflects change in the level of funding. 

STATE AND PRIVATE FORESTRY 

1. 

1. 

For necessary expenses of cooperating with and providing technical and financial 

assistance to States, territories, possessions, and others, and for forest health 

management, including treatments of pests, pathogens, and invasive or noxious 

plants and for restoring and rehabilitating forests damaged by pests or invasive 

plants, cooperative forestry, and education and land conservation activities and 

conducting an international program as authorized, $202,458,000, to remain 

available until expended, as authorized by law of which $29,311,000 is to be 

derived from the Land and Water Conservation Fund. 

1. Reflects change in the level of funding. 

NATIONAL FOREST SYSTEM 

1. 

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

management, protection, improvement, and utilization of the National Forest 

System, $1,344,377,000 to remain available until expended, which shall include 50 

percent of all moneys received during prior fiscal years as fees collected under the 

Land and Water Conservation Fund Act of 1965, as amended, in accordance with 

section 4 of the Act (16 U.S.C. 4601-6a(i). 

1. Reflects change in the level of funding. 

WILDLAND FIREFIGHTERS 

 1. For necessary expenses for wildland firefighters on National Forest System 

lands, for emergency fire suppression on or adjacent to such lands or other 

lands under fire protection agreement, $219,710,000, to remain available until 

expended.

1. This is a new appropriation to enhance performance, improve accountability 

and provide the Forest Service greater efficiency and flexibility in managing 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-2 

wildland fires, and in supporting all-hazard response, assist the agency in 

funding and tracking expenses in emergency wildland fire suppression work. 

WILDLAND FIRE MANAGEMENT 

1. 

 2. 

 

 2. 

1. 

 1. 

 

 1. 

 1. 

1. 

 

 2. 

 3. 

2. 

For necessary expenses for forest fire pre-suppression activities on National Forest 

System lands, for emergency fire suppression on or adjacent to such lands or other 

lands under fire protection agreement, hazardous fuels reduction on or adjacent to 

such lands, and for emergency rehabilitation of burned-over National Forest 

System lands and water, $1,648,918,000, to remain available until expended: 

Provided, That such funds including unobligated balances under this heading, are 

available for repayment of advances from other appropriations accounts previously 

transferred for such purposes: Provided further, That such funds shall be available 

to reimburse State and other cooperating entities for services provided in response 

to wildfire and other emergencies or disasters to the extent such reimbursements by 

the Forest Service for non-fire emergencies are fully repaid by the responsible 

emergency management agency: Provided further, That, notwithstanding any 

other provision of law, $8,000,000 of funds appropriated under this 

appropriation shall be used for Fire Science Research in support of the Joint 

Fire Science Program: Provided further, That all authorities for the use of 

funds, including the use of contracts, grants, and cooperative agreements, 

available to execute the Forest and Rangeland Research appropriation, are 

also available in the utilization of these funds for Fire Science Research:

Provided further, That funds provided shall be available for emergency 

rehabilitation and restoration, hazardous fuels reduction activities in the urbanwildland interface, support to Federal emergency response, and wildfire 

suppression activities of the Forest Service: Provided further, That of the funds 

provided, $291,185,000 is for hazardous fuels reduction activities, $22,348,000 

is for research activities and to make competitive research grants pursuant to 

the Forest and Rangeland Renewable Resources Research Act, as amended 

(16 U.S.C. 1641 et seq.), $35,004,000 is for State fire assistance, $8,000,000 is

for volunteer fire assistance, $14,252,000 is for forest health activities on 

Federal lands and $10,014,000 is for forest health activities on State and 

private lands: Provided further, That amounts in this paragraph may be 

transferred to the ‘‘State and Private Forestry’’, ‘‘National Forest System’’, and 

‘‘Forest and Rangeland Research’’ accounts to fund State fire assistance, volunteer 

fire assistance, forest health management, forest and rangeland research, the Joint 

Fire Science program, vegetation and watershed management, heritage site 

rehabilitation, and wildlife and fish habitat management and restoration: [Provided 

further, That funds provided under this heading for hazardous fuels treatments may 

be transferred to and made a part of the “National Forest System” account thirty 

days after notifying the House and the Senate Committees on Appropriations:]

Provided further, That the costs of implementing any cooperative agreement 

between the Federal Government and any non-Federal entity may be shared, as 

mutually agreed on by the affected parties: Provided further, That in addition to 

funds provided for State Fire Assistance programs, and subject to all 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-3 

. 

 2. 

 

 

 

 4. 

authorities available to the Forest Service under the State and Private 

Forestry Appropriation, up to $15,000,000 may be used on adjacent nonFederal lands for the purpose of protecting communities when hazard 

reduction activities are planned on national forest lands that have the 

potential to place such communities at risk: Provided further, That included in 

funding for hazardous fuels reduction is $5,000,000 for implementing the 

Community Forest Restoration Act, Public Law 106–393, title VI, and any 

portion of such funds shall be available for use on non Federal lands in 

accordance with authorities available to the Forest Service under the State 

and Private Forestry Appropriation: Provided further, That the Secretary of the 

Interior and the Secretary of Agriculture may authorize the transfer of funds 

appropriated for wildland fire management, in an aggregate amount not to exceed 

$9,000,000, between the Departments when such transfers would facilitate and 

expedite jointly funded wildland fire management programs and projects: Provided 

further, That of the funds provided for hazardous fuels reduction, not to 

exceed $5,000,000, may be used to make grants, using any authorities 

available to the Forest Service under the State and Private Forestry 

appropriation, for the purpose of creating incentives for increased use of 

biomass from national forest lands: Provided further, That funds designated 

for wildfire suppression shall be assessed for indirect costs on the same basis 

as such assessments are calculated against other agency programs: Provided 

further, That the Secretary of Agriculture may use the amounts appropriated under 

this heading for [rehabilitation and restoration and] other activities authorized 

under this heading on lands administered by the Forest Service or on adjacent nonFederal land for activities that benefit resources on lands administered by the 

Forest Service. 

1. Reflects change in level of funding. 

2. To enhance implementation of the Healthy Forests Restoration Act of 2003. 

3. Provision unnecessary as Hazardous Fuels program funding remains in this 

appropriation. 

4. Provision no longer necessary as no funding is proposed for the program. 

CAPITAL IMPROVEMENT & MAINTENANCE 

1. 

2. 

 

 2. 

 

 

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

$421,565,000, to remain available until expended for construction, [reconstruction, 

and] capital improvement, maintenance, and acquisition of buildings and other 

facilities and infrastructure; [and decommissioning of recreation developed sites

and capital improvement and acquisition of recreation developed sites, buildings 

and other facilities,] and for construction, [decommissioning,] capital 

improvement, decommissioning, and maintenance of forest roads and trails by the 

Forest Service as authorized by 16 U.S.C. 532-538 and 23 U.S.C. 101 and 205: 

Provided, That up to $15,000,000 of the funds provided herein for road 

maintenance shall be available for the decommissioning of roads, including 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-4 

 unauthorized roads not part of the transportation system, which are no longer 

needed. 

1. Reflects change in the level of funding. 

2. Provides more specific direction on acquisition authority, on capital 

improvement authority and on maintenance and decommissioning activities 

under this heading. 

LAND ACQUISITION 

1. 

For expenses necessary to carry out the provisions of the Land and Water 

Conservation Fund Act of 1965, as amended (16 U.S.C. 460l–4 through 11), 

including administrative expenses, and for acquisition of land or waters, or interest 

therein, in accordance with statutory authority applicable to the Forest Service, 

$15,703,000, to be derived from the Land and Water Conservation Fund and to 

remain available until expended. 

1. Reflects change in the level of funding. 

ACQUISITION OF LANDS FOR NATIONAL FORESTS SPECIAL ACTS 

For acquisition of lands within the exterior boundaries of the Cache, Uinta, and 

Wasatch National Forests, Utah; the Toiyabe National Forest, Nevada; and the 

Angeles, San Bernardino, Sequoia, and Cleveland National Forests, California, as 

authorized by law, $1,053,000, to be derived from forest receipts. 

ACQUISITION OF LANDS TO COMPLETE LAND EXCHANGES 

 1. 

For acquisition of lands, such sums, to be derived from funds deposited by State, 

county, or municipal governments, public school districts, or other public school 

authorities, and for authorized expenditures from funds deposited by non-Federal 

parties pursuant to Land Sale and Exchange Acts, pursuant to the Act of December 

4, 1967, as amended (16 U.S.C. 484a), to remain available until expended. (16 

U.S.C. 4601-617a, 555a; P.L. 96-586; P.L. 76-589; and 78-301.)

1. Additional clarification of sources of authorities to acquire lands using 

specified funds. 

RANGE BETTERMENT FUND 

 For necessary expenses of range rehabilitation, protection, and improvement, 50 

percent of all moneys received during the prior fiscal year, as fees for grazing 

domestic livestock on lands in National Forests in the 16 Western States, pursuant 

to section 401(b)(1) of Public Law 94-579, as amended, to remain available until 

expended, of which not to exceed 6 percent shall be available for administrative 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-5 

expenses associated with on-the-ground range rehabilitation, protection, and 

improvements. 

GIFTS, DONATIONS AND BEQUESTS FOR FOREST AND RANGELAND 

RESEARCH 

1. For expenses authorized by 16 U.S.C. 1643(b), $56,000, to remain available until 

expended, to be derived from the fund established pursuant to the above Act. 

1. Reflects change in the level of funding. 

MANAGEMENT OF NATIONAL FOREST LANDS FOR SUBSISTENCE USES 

1. 

For necessary expenses of the Forest Service to manage Federal lands in Alaska 

for subsistence uses under title VIII of the Alaska National Interest Lands 

Conservation Act (Public Law 96–487), $5,053,000, to remain available until 

expended. 

1. Reflects change in the level of funding. 

ADMINISTRATIVE PROVISIONS 

 

 

 

Appropriations to the Forest Service for the current fiscal year shall be available 

for: (1) purchase of passenger motor vehicles, acquisition of passenger motor 

vehicles from excess sources, and hire of such vehicles; purchase, lease, operation, 

maintenance, and acquisition of aircraft from excess sources to maintain the 

operable fleet for use in Forest Service wildland fire programs and other Forest 

Service programs; notwithstanding other provisions of law, existing aircraft being 

replaced may be sold, with proceeds derived or trade-in value used to offset the 

purchase price for the replacement aircraft; (2) services pursuant to 7 U.S.C. 2225, 

and not to exceed $100,000 for employment under 5 U.S.C. 3109; (3) purchase, 

erection, and alteration of buildings and other public improvements (7 U.S.C. 

2250); (4) acquisition of land, waters, and interests therein pursuant to 7 U.S.C. 

428a; (5) for expenses pursuant to the Volunteers in the National Forest Act of 

1972 (16 U.S.C. 558a, 558b, 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 notification of the House 

and Senate Committees on Appropriations. 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-6 

 

 

Funds appropriated to the Forest Service shall be available for assistance to or 

through the Agency for International Development and the Foreign Agricultural 

Service in connection with forest and rangeland research, technical information, 

and assistance in foreign countries, and shall be available to support forestry and 

related natural resource activities outside the United States and its territories and 

possessions, including technical assistance, education and training, and cooperation 

with United States and international organizations. 

 

Funds available to the Forest Service shall be available to conduct a program of up 

to $2,500,000 for high priority projects within the scope of the approved budget 

which shall be carried out by the Youth Conservation Corps. 

Of the funds available to the Forest Service, $4,000 is available to the Chief of the 

Forest Service for official reception and representation expenses. 

 1. 

 

 2. 

 

 

Pursuant to section 405(b) and 410(b) of Public Law 101-593, of the funds 

available to the Forest Service, up to $2,500,000 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 administrative expenses or projects on or benefiting National 

Forest System lands or related to Forest Service programs: Provided, That of the 

Federal funds made available to the Foundation, no more than $200,000 shall be 

available for administrative expenses: Provided further, That the Foundation shall 

obtain, by the end of the period of Federal financial assistance, private 

contributions to match on at least one-for-one basis funds made available by the 

Forest Service: Provided further, That the Foundation may transfer Federal funds 

to a non-Federal recipient for a project at the same rate that the recipient has 

obtained the non-Federal matching funds: Provided further, That authorized 

investments of Federal funds held by the Foundation may be made only in interest 

bearing obligations of the United Sates or in obligations guaranteed as to both 

principal and interest by the United States. 

1. Reflects a change in level of funding. 

2. Reflects a change in level of funding authorized for administrative expenses. 

 

 

 1. 

Pursuant to section 2(b)(2) of Public Law 98-244, up to $2,650,000 of the funds 

available to the Forest Service shall 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 benefiting 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 subrecipients[.]: Provided 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-7 

further, That the Foundation may transfer Federal funds to a Federal or nonFederal recipient for a project at the same rate that the recipient has obtained 

the non-Federal matching funds.

1. Authorizes the transfer of foundation funds to non-Federal offices as well as 

Federal offices including those of the Forest Service. 

 

 

Funds appropriated to the Forest Service shall be available for interactions with and 

providing technical assistance to rural communities and natural resource based 

business for sustainable rural development purposes: Provided, That no more than 

2 percent of any unit’s budget may be used for such purposes: Provided further, 

That no more than 5 percent of the funds in any budget line item may be used for 

such purposes. 

 

 

Funds appropriated to the Forest Service shall be available for payments to 

counties within the Columbia River Gorge National Scenic Area, pursuant to 

sections 14(c)(1) and (2), and section 16(a)(2) of Public Law 99-663. 

 

 

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), U.S. 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. 

 

 

Any appropriations or funds available to the Forest Service may be used for 

necessary expenses in the event of law enforcement emergencies as necessary to 

protect natural resources and public or employee safety: Provided, That such 

amounts shall not exceed $500,000. 

 

 

An eligible individual who is employed in any project funded under title V of the 

Older American Act of 1965 (42 U.S.C. 3056 et seq.) and administered by the 

Forest Service shall be considered to be a Federal employee for purposes of chapter 

171 of title 28, United States Code. 

 

 

Any funds appropriated to the Forest Service may be used to meet the non-Federal 

share requirement in section 502(c) of the Older American Act of 1965 (42 U.S.C. 

3056(c)(2)). 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-8 

 1. 

 2. 

Funds available to the Forest Service, not to exceed $45,000,000, shall be 

[assessed] transferred to the Capital Improvement and Maintenance account

for the purpose of performing facilities maintenance as authorized by 7 U.S.C. 

2250. Such [assessments] transfers shall occur using a square foot rate charged 

on the same basis the agency uses to assess programs for payment of rent, utilities, 

and other support services. 

1. Provides a discretionary ceiling to the level of assessments. 

2. Enhances agency discretion in use of funds for facilities capital improvement 

and maintenance. 

GENERAL PROVISIONS 

 

SEC. 401. The expenditure of any appropriation under this Act for any consulting 

service through procurement contract, pursuant to 5 U.S.C. 3109, shall be limited 

to those contracts where such expenditures are a matter of public record and 

available for public inspection, except where otherwise provided under existing 

law, or under existing Executive order issued pursuant to existing law. 

SEC. 402. No part of any appropriation contained in this Act shall be available for 

any activity or the publication or distribution of literature that in any way tends to 

promote public support or opposition to any legislative proposal on which 

Congressional action is not complete other than to communicate to Members of 

Congress as described in 18 U.S.C. 1913.

SEC. 403. No part of any appropriation contained in this Act shall remain 

available for obligation beyond the current fiscal year unless expressly so provided 

herein. 

SEC. 404. None of the funds provided in this Act to any department or agency 

shall be obligated or expended to provide a personal cook, chauffeur, or other 

personal servants to any officer or employee of such department or agency except 

as otherwise provided by law. 

SEC. 405. Estimated overhead charges, deductions, reserves or holdbacks from 

programs, projects, activities and subactivities to support government-wide, 

departmental, agency or bureau administrative functions or headquarters, regional 

or central operations shall be presented in annual budget justifications. Advance 

notice of changes to such estimates shall be presented to the Committees on 

Appropriations. 

SEC. 406. None of the funds in this Act may be used to plan, prepare, or offer for 

sale timber from trees classified as giant sequoia (Sequoiadendron giganteum) 

which are located on National Forest System or Bureau of Land Management lands 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-9 

 1. in a manner different than such sales were conducted in fiscal year [2006] 2007. 

1. Updates fiscal year. 

1. 

SEC. 407. (a) LIMITATION OF FUNDS. – None of the funds appropriated or 

otherwise made available pursuant to this Act shall be obligated or expended to 

accept or process applications for a patent for any mining or mill site claim located 

under the general mining laws. 

(b) EXCEPTIONS. – The provisions of subsection (a) shall not apply if the 

Secretary of the Interior determines that, for the claim concerned: (1) a patent 

application was filed with the Secretary on or before September 30, 1994; and (2) 

all requirements established under sections 2325 and 2326 of the Revised Statutes 

(30 U.S.C. 29 and 30) for vein or lode claims and sections 2329, 2330, 2331, and 

2333 of the Revised Statutes (30 U.S.C. 35, 36, and 37) for placer claims, and 

section 2337 of the Revised Statutes (30 U.S.C. 42) for mill site claims, as the case 

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

(c) REPORT. - On September 30, [2007] 2008, the Secretary of the Interior shall 

file with the House and Senate Committees on Appropriations and the Committee 

on Resources of the House of Representatives and the Committee on Energy and 

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

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

Related Agencies Appropriations Act, 1997 (Public Law 104-208). 

(d) MINERAL EXAMINATIONS. – In order to process patent applications in a 

timely and responsible manner, upon the request of a patent applicant, the 

Secretary of the Interior shall allow the applicant to fund a qualified third-party 

contractor to be selected by the Bureau of Land Management to conduct a mineral 

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

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

responsibility to choose and pay the third-party contractor in accordance with the 

standard procedures employed by the Bureau of Land Management in the retention 

of third-party contractors. 

1. Updates fiscal year. 

 SEC. 408. Not applicable to the USDA Forest Service. 

 SEC. 409. Not applicable to the USDA Forest Service. 

 SEC. 410. No part of any appropriation contained in this Act shall be expended or 

obligated to complete and issue the 5-year program under the Forest and Rangeland 

Renewable Resources Planning Act. 

1. SEC. 411. Amounts deposited during fiscal year [2006] 2007 in the roads and trails 

fund provided for in the 14th 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 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-10 

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. The projects shall emphasize reducing 

risks to human safety and public health and property and enhancing ecological 

functions, long-term forest productivity, and biological integrity. The projects may 

be completed in a subsequent fiscal year. Funds shall not be expended under this 

section to replace funds which would otherwise appropriately be expended from 

the timber salvage sale fund. Nothing in this section shall be construed to exempt 

any project from any environmental law. 

1. Updates provision to apply to funds deposited in FY 2007. 

1. SEC. 412. Prior to October 1, [2007] 2008, the Secretary of Agriculture shall not 

be considered to be in violation of subparagraph 6(f)(5)(A) of the Forest and 

Rangeland Renewable Resources Planning Act of 1974 (16 U.S.C. 1604(f)(5)(A)) 

solely because more than 15 years have passed without revision of the plan for a 

unit of the National Forest System. Nothing in this section exempts the Secretary 

from any other requirement of the Forest and Rangeland Renewable Resources 

Planning Act (16 U.S.C. 1600 et seq.) or any other law: Provided, That if the 

Secretary is not acting expeditiously and in good faith, within the funding 

available, to revise a plan for a unit of the National Forest System, this section 

shall be void with respect to such plan and a court of proper jurisdiction may order 

completion of the plan on an accelerated basis. 

1. Extends provision until the end of FY 2008. 

SEC. 413. 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. 

SEC. 414. In entering into agreements with foreign countries pursuant to the 

Wildfire Suppression Assistance Act (42 U.S.C. 1856m) the Secretary of 

Agriculture and the Secretary of the Interior are authorized to enter into reciprocal 

agreements in which the individuals furnished under said agreements to provide 

wildfire services are considered, for purposes of tort liability, employees of the 

country receiving said services when the individuals are engaged in fire 

suppression: Provided, That the Secretary of Agriculture or the Secretary of the 

Interior should not enter into any agreement under this provision unless the foreign 

country (either directly or through its fire organization) agrees to assume any and 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-11 

 all liability for the acts or omissions of American firefighters engaged in 

firefighting in a foreign country: Provided further, That when an agreement is 

reached for furnishing fire fighting services, the only remedies for acts or 

omissions committed while fighting fires shall be those provided under the laws of 

the host country, and those remedies shall be the exclusive remedies for any claim 

arising out of fighting fires in a foreign country: Provided further, That neither the 

sending country nor any legal organization associated with the firefighter shall be 

subject to any legal action whatsoever pertaining to or arising out of the 

firefighter’s role in fire suppression. 

SEC. 415. In awarding a Federal contract with funds made available by this Act, 

notwithstanding Federal Government procurement and contracting laws, the 

Secretary of Agriculture and the Secretary of the Interior (the “Secretaries”) may, 

in evaluating bids and proposals, give consideration to local contractors who are 

from, and who provide employment and training for, dislocated and displaced 

workers in an economically disadvantaged rural community, including those 

historically timber-dependent areas that have been affected by reduced timber 

harvesting on Federal ands and other forest-dependent rural communities isolated 

from significant alternative employment opportunities: Provided, That 

notwithstanding Federal Government procurement and contracting laws the 

Secretaries may award contracts, grants and cooperative agreements to local nonprofit entities, Youth Conservation Corps or related partnerships with State, local 

or non-profit youth groups, or small or micro-business or disadvantaged business: 

Provided further, That the contract, grant, or cooperative agreement is for forest 

hazardous fuels reduction, watershed or water quality monitoring or restoration, 

wildlife or fish population monitoring, or habitat restoration or management: 

Provided further, That the terms “rural community” and “economically 

disadvantaged” shall have the same meanings as in section 2374 of Public Law 

101-624: Provided further, That the Secretaries shall develop guidance to 

implement this section: Provided further, That nothing in this section shall be 

construed as relieving the Secretaries of any duty under applicable procurement 

laws, except as provided in this section. 

SEC. 416. No funds appropriated in this Act for the acquisition of lands or 

interests in lands may be expended for the filing of declarations of taking or 

complaints in condemnation without the prior notification of the House and Senate 

Committees on Appropriations: Provided, That this provision shall not apply to 

funds appropriated to implement the Everglades National Park Protection and 

Expansion Act of 1989, or to funds appropriated for Federal assistance to the State 

of Florida to acquire lands for Everglades restoration purposes. 

 SEC. 417. 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 
FY 2008 Budget Justification USDA Forest Service

Appropriation Language Changes 6-12

Revised February 12, 2007 

 

1. 

 1. 

106-113; 113 Stat. 1501A-196; 16 U.S.C. 497 note), as amended, is amended-- 

(1) in subsection (a) by striking [`2006'] 2007 and inserting [`2007'] 2008; 

and 

(2) in subsection (b) by striking [`2006'] 2007 and inserting [`2007'] 2008. 

1. Extends provision until the end of FY 2008. 

 1. SEC. 418. GRAZING ALLOTMENT CATEGORICAL EXCLUSION 

AUTHORITY EXTENSION.— For fiscal year 2008, a decision made by the 

Secretary of Agriculture to authorize grazing on an allotment shall be 

categorically excluded from documentation in an environmental assessment 

or an environmental impact statement under the National Environmental 

Policy Act of 1969 (42 U.S.C. 4321 et seq.) if: (1) the decision continues 

current grazing management of the allotment; (2) monitoring indicates that 

current grazing management is meeting, or satisfactorily moving toward, 

objectives in the land and resource management plan, as determined by the 

Secretary; and (3) the decision is consistent with agency policy concerning 

extraordinary circumstances. The total number of allotments that may be 

categorically excluded under this section may not exceed 900.

1. The Rescissions Act of 1995 (P.L. 104-19, General Provisions, Sec.504), 

required each National Forest System unit establish and follow a schedule for 

the completion of NEPA provisions on all grazing allotments for which NEPA 

analysis was needed. Those units were to schedule completion of NEPA 

within 15 years. 

The Consolidated Appropriations Act of 2005 (P.L. 108-447, Title III, 

General Provisions, Sec. 339), as follows, provided original authority for use 

of Categorical Exclusions to document NEPA analysis on qualifying Range 

Allotments: Sec. 339. For fiscal year 2008, a decision made by the Secretary 

of Agriculture to authorize grazing on an allotment shall be categorically 

excluded from documentation in an environmental assessment or an 

environmental impact statement under the National Environmental Policy Act 

of 1969 (42 U.S.C. 4321 et seq.) if: (1) the decision continues current grazing 

management of the allotment; (2) monitoring indicates that current grazing 

management is meeting, or satisfactorily moving toward, objectives in the 

land and resource management plan, as determined by the Secretary; and (3) 

the decision is consistent with agency policy concerning extraordinary 

circumstances. The total number of allotments that may be categorically 

excluded under this section may not exceed 900. 
Forest and Rangeland 

Research 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-1 

Appropriation Forest and Rangeland Research 

Forest & Rangeland Research Increase or Decrease Program 

 Appropriation FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $277,711 $280,318 $5,458 -$2,500 -$20,276 $263,000 -7% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority (BA) $277,711 $280,318 $5,458 -$2,500 -$20,276 $263,000 -7% 

Full Time Equivalents (FTEs) 2,134 2,108 -173 1,935 

Estimated Funding By Activity 

Reduce the Risk from Catastrophic Wildland Fire $30,302 $34,792 $683 -$313 -$2,258 $32,904 -6% 

Reduce the Impacts from Invasive Species $36,878 $37,251 $650 -$298 -$6,250 $31,353 -17% 

Provide Outdoor Recreation Opportunities $9,231 $7,458 $148 -$68 -$426 $7,112 -6% 

Help Meet Energy Resource Needs $16,730 $11,702 $273 -$125 $1,314 $13,164 11% 

Improve Watershed Condition $94,117 $90,655 $1,753 -$803 -$7,109 $84,496 -8% 

Mission Related Work - All Other $90,453 $98,460 $1,951 -$893 -$5,547 $93,971 -6% 

 [Forest Inventory & Analysis] [$59,380] [$59,329] [$62,329] 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Outcome Measure Plan Actual Plan Plan FY 2007 

Percentage of Research and 

Development products and services that 

meet customer expectations* 72% 72% 72% 72% 0%

Percent of Nation with accessible FIA 

data** 88% 84% 88% 90% 2%

* Beginning in FY 2006, this measure is formulated from the American Customer Satisfaction Index, an 

independently administered survey. 

** Beginning in FY 2006, this measure is based on percent of States, rather than percent of land area as in 

past years. 

FY 2008 Program Changes 

The FY 2008 Budget for Research and Development is $263 million, a decrease of $20.3 

million or -7 percent from the FY 2007 Estimate. Approximately $9 million of this 

reduction is due to the elimination of unrequested Congressional earmarks. The FY 2008 

Research and Development FTE level is 1,935, a decrease of 173 FTEs from the FY 2007 

Estimate. 

Reduce the Risk from Catastrophic Wildland Fire 

The proposed funding level of $32.9 million, a decrease of $2.2 million from the FY 

2007 Estimate, will provide for continued research to improve large fire decision support, 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-2 

particularly with respect to improving managers ability to predict probability of fire 

occurrence and spread related to values at risk, long-term integrated planning, successful 

collaboration with 

communities, and further development of improved tools for integrated risk analysis. 

Less emphasis will be devoted to ecosystems effects of fire and landscape modeling. 

Reduce the Impacts from Invasive Species

The proposed funding level for FY 2008 is $31.4 million, which is a reduction of $6.2 

million from the FY 2007 Estimate. The table below identifies changes to key programs. 

 (dollars in thousands) 

Reduce Impacts from 

Invasive Species 

FY 2006

Enacted

FY 2007 

Estimate

FY 2008

President’s

Budget

Sudden Oak Death 2,428 2,428 1,928 

Hemlock Woolly 

Adelgid 

1,868 1,868 1,392 

Gypsy Moth S-T-S 1,907 1,907 500 

Biological Control of 

invasive weeds 

0 0 550 

Invasive Species Mgt 1,050 1,050 450 

Emerald Ash Borer 1,249 1,225 1,225 

Provide Outdoor Recreation Opportunities 

For this activity, the proposed funding level for FY 2008 is $7.1 million, which is a 

reduction of $414,000 from the FY 2007 Estimate. The recreation research staff will 

reassess priorities to ensure available resources are directed to the most urgent needs 

nationwide. 

Help Meet Energy Resource Needs 

The proposed funding level of $13.2 million, which is an increase of $1.3 million from 

the FY 2007 Estimate, will refocus research to wood-based biofuels development and 

conversion processes, biorefinery applications, energy efficient housing, and processing 

and manufacturing energy reduction, life cycle analysis of wood, and marketing analysis 

for energy and biobased products. Progress will continue in developing efficient woody 

cellulosic ethanol conversion processes, contributing to U.S. energy independence. 

Improve Watershed Condition 

For this activity, the proposed funding level for FY 2008 is $84.5 million, which is a 

reduction of $6.9 million from the FY 2007 Estimate. Technology transfer activities 

from long-term hydrologic studies being conducted at the Coweeta, Hubbard Brook, H.J. 

Andrews, and the Fraser Experimental Watersheds will be reduced. The implementation 

of hydrological studies in the Lower and Upper Mississippi River Valley may be delayed. 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-3 

Mission Related Work-All Other

The proposed funding level for FY 2008 is $93.9 million. This funding level provides for 

a $3 million increase in the Forest Inventory and Analysis (FIA) budget that will be used 

to offset anticipated fixed costs and reduced S&PF funding from the Forest Resources 

Information and 

Analysis program in order to sustain the annual forest inventory program in 45 states. 

Mississippi will not be transitioned to the annualized program in FY 2008. Lower 

emphasis will be directed toward forest and range management technology, valued-added 

forest-based material, and international competitiveness.

Program Description 

Forest Service Research & Development (FS R&D) strives to be recognized as a world 

leader in innovative science for sustaining global forest resources for future generations. 

FS R&D provides information and solutions to sustain forests and rangelands and the 

values they provide for people. Research scientists collaborate with industry, nongovernmental organizations, colleges and universities, State foresters, and other 

governmental agencies. Research benefits the owners and managers of working forests 

and farms, and helps restore healthy forests and protect communities. FS R&D has the 

flexibility to address today’s issues effectively and to anticipate tomorrow’s needs. 

Research is conducted at 5 research stations, the Forest Products Laboratory, and the 

International Institute of Tropical Forestry located in Puerto Rico, with 547 scientists 

located at 92 units on 67 sites located throughout the United States. This reflects the 

consolidation of the North Central and Northeastern Research Stations into a single 

Northern Research Station, and a reduction of 36 scientists through reorganizations at 

other stations and the FPL during FY 2007.

Investment Criteria 

Forest Service R&D has focused on strengthening the conformance of its research 

program to the President’s Management Agenda criteria for Federal research agencies: 

quality, relevance and performance. Efforts have included the FS R&D Strategic Plan for 

2008-2012, development of Strategic Plans for each of the Strategic Program Areas 

(SPA), and plans for national external panel reviews of each SPA, as well as reviews of 

each Research Station’s alignment with the SPAs. These include periodic peer review 

and evaluation of all scientist positions through the Research Panel Process, peer review 

of proposed study plans and manuscripts for publication, and periodic updating of Station 

Quality Assurance/Quality Control (QA/QC) plans. During 2006, a restructuring of the 

FS R&D headquarters staff was initiated to improve responsiveness of the R&D Deputy 

Area to the Investment Criteria. This restructuring is expected to improve quality, 

relevance, performance and efficiency, and will contribute to the goal of a smaller 

Washington, DC headquarters staff. (For further details, see Special Exhibit 20 on 

President’s Management Agenda)
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-4 

Wildland Fire Research

The fire research and development program provides fundamental understanding of fire 

processes, fire/ecosystem interactions, and the social and economic aspects of fire 

management, as well as knowledge and products that support operation in the four key 

areas of the National Fire Plan (NFP) and meeting the goals of the Healthy Forests 

Restoration Act (HFRA). 

Research emphasis includes fire behavior and risk, smoke modeling, improved 

characterization of fuels, effects of fire and fuels treatments on ecosystem components 

and processes, as well as on water and air quality; interactions between fire and climatic 

patterns; understanding the social factors that affect community interactions and decisionmaking; economics of fire and fuel management; effects and effectiveness of hazardous 

fuels treatments; opportunities for biomass utilization; product development from 

traditionally under-used wood sources; integration of information from all areas into 

improved understanding and modeling of landscape scale management and impacts; and 

improved application of science to meet management needs. 

Invasive Species Research

FS R&D research focuses in four invasive activity areas: prediction and prevention, early 

detection and rapid response, control and management, and restoration and rehabilitation. 

Priority invasive insect, disease, plant, aquatic, and terrestrial animal species affecting 

our nation’s forests and rangelands include hemlock woolly adelgid, Asian longhorned 

beetle, gypsy moth, emerald ash borer, southern pine beetle, western bark beetles, 

termites, Sirex wood wasp, sudden oak death, Dutch elm disease, white pine blister rust, 

beech bark disease, Atlantic salmonids in the west, earthworms in Puerto Rico, 

cheatgrass, leafy spurge, tamarisk, yellow star thistle, yellow clover, cogongrass, alligator 

grass, and Chinese privet. 

Energy Research

FS R&D actively participates in a government-wide initiative aimed at promoting 

development and use of biobased products and bioenergy, in order to increase the use of 

renewable energy sources, and foster energy conservation. Activities that support 

meeting the Nation’s energy needs include: enhancing opportunities to sustainably 

produce and process renewable forest biomass and biofuels for energy; developing 

economical, sustainable woody cropping systems to produce energy and other valueadded products; and identifying ways to increase energy conservation through changes in 

manufacturing technologies, harvesting technologies, building construction practices, and 

designed landscapes. 

Recreation Research

Recreation research provides knowledge, tools, and services to help our customers, 

partners, and other stakeholders develop high quality recreation opportunities for current 

and future generations while balancing the benefits and impacts of recreation activities on 

ecosystems and human communities. The Program delivers this information through 

three customer-focused activity areas: Core Recreation Social Science, Recreation 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-5 

Planning and Monitoring, and Recreation Program Management for the National Forest 

System. 

Watershed Research

Research on experimental watersheds and forests, including long-term ecological 

research sites provide scientific support for best management practices and other methods 

used in land and resource management. Finds are used to evaluate, protect, improve, 

restore, and monitor riparian, wildlife, and aquatic habitats and conditions in forest and 

rangeland watersheds. 

Other Mission Related Work

Additional mission related work is critical to the overall mission of the agency. FS R&D 

conducts inventory, monitoring and economic analysis using scientifically sound and 

consistent protocols to provide the contextual and scientific information necessary to 

support sound resource management planning and assessment. In addition to the FIA 

program (described separately), research in this area produces quantitative information, 

monitoring strategies, and predictive models for: 1) risk assessments of fire, insects, 

disease, and invasive species, 2) impacts of management strategies on resourcedependent communities, 3) studies of demand, supply, and price trends in various forest 

products markets, and 4) strengthening forest product market values through 

improvements in product safety, efficiency, and performance in use. 

Independent Reviews 

The Forest Products and Utilization research program was reviewed by a national 

external peer panel in FY 2006. Recommendations from this review are being used to 

evaluate the current research program, and plan future research direction at the stations 

and Forest Products Laboratory. 

A Program Assessment Rating Tool (PART) assessment was conducted for Strategic 

Plan Goal 5: Improve Watershed Condition during FY 2006. The PART review received 

a rating of Results Not Demonstrated. Activities are underway to improve the rating. 

Performance metrics and program management findings will be incorporated into FS 

R&D research. 

The Invasive Species program underwent a PART reassessment for the FY 2006 budget 

cycle and received an “adequate” rating from OMB. FS R&D has incorporated 

performance metrics and performance management findings into relevant research. 

Additionally, in FY 2006, FS R&D had an external peer review conducted on the 

effectiveness of the invasive species program. The review panel evaluated the program 

on its relevance, quality and performance and commended FS R&D for its efforts in the 

last 10 years to address invasive species knowledge gaps and its strong tradition of 

working with university collaborators. 

In FY 2006, the wildland fire research strategic plan was finalized. This plan will 

provide the basis for improving program coordination and collaboration among research 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-6 

units, and making recommendations on future program direction. In FY 2007, FS R&D 

will conduct an external peer review of the effectiveness of the wildland fire research and 

development program. A review panel of researchers and managers from universities, 

other agencies, and other Forest Service program areas will evaluate the program on its 

relevance, quality and performance in context of the Wildland Fire R&D Strategic Plan. 

In FY 2008 the panel recommendations will be used along with feedback from other 

sources to reassess fire R&D priorities, evaluate our capability and capacity to meet these 

goals and make recommendations for implementation to leadership. 

Scientific panel reviews that include stakeholders help focus research direction and 

balance research program priorities. In addition, the annual Customer Satisfaction 

Survey, first conducted in FY 2006, provides a benchmark of performance for FS R&D 

programs. 

Congressional Reports 

The Strategic Framework of Forest Products and Utilization Research and Development 

report was delivered to Congress in 2006. It was produced in response to a 

Congressional request to develop a comprehensive, agency wide wood products research 

plan intended to guide future investments in both research and facilities. 

FY 2008 Plans 

Reduce the Risk from Catastrophic Wildland Fire

• Expand studies of the physics of fire that will improve understanding of fundamental 

fire processes. Fire science research develops models that will support planning and 

decision-making for wildland fire suppression and fuels projects. Models also provide 

information to improve public and firefighter safety. 

• Continue to work with users to fully implement FSPro, a tool that maps potential fire 

perimeters and estimates the probabilities that the fire will reach these perimeters 

based on current and historic fire weather and other factors, into the Wildland Fire 

Decision Support System for routine wildland fire application. FSPro will be included 

in the beta release of this system in 2008. Data layers needed for operational use of 

RAVAR (Rapid Assessment of Values at Risk), which integrates with FSPro to 

display values at risk under different fire spread scenarios, are being developed for 

inclusion in a future release. 

• Conduct an analysis and synthesis of Burned Area Emergency Rehabilitation (BAER) 

effectiveness monitoring protocols and produce a handbook for Forest Service and 

Department of the Interior (DOI) field staff to use as they design and implement postfire monitoring programs. 

• Scientists will conduct research on the composition of the soil, nutrient availability 

and the diversity of the soil biological community on areas within the Biscuit Fire in 

Oregon which occurred in 2003. 

• Report on preliminary research aimed at an improved understanding of the effects of 

fuel structure, slope, and other characteristics on fire spread; and potential beneficial 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-7 

effects of horticultural plantings on reducing structural ignitions in the wildland-urban 

interface. 

Reduce the Impacts from Invasive Species

• A recent synthesis assessment determined the potential of Atlantic Salmon as an 

aquatic invasive species in the Pacific Northwest. Further development of a risk 

analysis of the potential of escaped farmed salmon to invade watersheds and impact 

native aquatic species on National Forests in the Northwest will include cooperation 

with National Marine Fisheries Services, other Federal and State Agencies, and 

nongovernmental organizations. 

• Assess the efficacy of integrated pest management strategies, including suppression 

trapping and infested tree removal, in reducing mountain and western pine beetlecaused tree mortality. 

• Develop and test genetic resistance against White Pine Blister Rust and Pitch Canker 

in collaboration with academic, management, and regulatory partners throughout the 

West and in New Zealand. 

• In collaboration with other Federal agencies, Forest Service Research and 

Development will continue to determine and prioritize invasive species pathways of 

introduction. This collaborative effort will also develop risk assessment tools for 

identifying invasive species such as the Phytopthora species pathogen, believed to be 

the cause of Sudden Oak Death. 

• Develop and evaluate new attractants and trapping techniques for emerald ash borer, 

and invasive bark beetles. 

Provide Outdoor Recreation Opportunities 

• Assess the impacts of off-highway vehicles (OHV) on biophysical resources and 

determine effective means of restoring habitat affected by their use. Understand 

human behavior linked with OHV impacts, and develop communication methods and 

management strategies to encourage low impact OHV use. 

• Investigate the benefits of outdoor recreation experiences with a focus on the aspects 

of nature that influence the quality of these experiences and the sense of attachment to 

place. 

• Provide information on outdoor recreation trends, public environmental values, and 

the potential effects of cultural and demographic shifts on the ways that different 

communities participate in outdoor recreation activities. 

• Assist public land law enforcement officials in understanding public interests and 

values, interactions with resource management personnel, and ways to best protect 

resource values and provide for public safety. 

• Identify factors that shape national forest-dependent community transitions from a 

commodity based economy to a recreation- and tourism-based economy, including 

infrastructure, tax structures, regulatory environment, business institutions, civic 

involvement, and leadership. 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-8 

Help Meet Energy Resource Needs

• Integrate the use of small-diameter woody material for biobased products and 

bioenergy to improve natural resource utilization, provide renewable energy, reduce 

fire and pest risks, and improve forest health. 

• Develop and deploy economical, sustainable woody cropping systems at multiple 

operational scales that can provide feedstock for biofuels and bioproducts; develop 

integrated management systems for feedstock production, harvest, utilization, and 

conversion. 

• Develop new processes for ethanol conversion from wood; small scale wood to 

energy technology; separation and production technologies for biofuels, chemicals, 

and other high value bioproducts from wood; and energy-efficient building products. 

Improve Watershed Condition

• Develop a cost benefit analysis for alternative management prescriptions and 

restoration actions.

• Deliver technological support to incorporate best management practices into land 

management plans and/or projects to protect watersheds, water quality and aquatic 

resources. 

• Research the effects of fuels management and post-fire treatments on water quality 

and quantity; on fish, wildlife, and rare plants, including threatened and endangered 

species. 

• Understand linkages between carbon dynamics, water balance, and snow and 

watershed hydrology providing critical water sources to municipalities. 

Mission Related Work-All Other

• Develop strategies for effective natural regeneration after fire and other disturbance; 

and improved methods for oak regeneration and management for fine hardwoods. 

• Research forest products trade, domestic and international timber markets, and their 

relationship to maintaining forest-based enterprises and forest communities. 

• Develop energy-efficient and light-on-the-land harvesting and transportation systems, 

more reliable and accurate nondestructive methods for evaluating wood quality, and 

new uses for under-utilized species resulting in value-added product utilization 

opportunities economically available to forest owners and managers. 

• Sustain the annualized Forest Inventory and Analysis program in 45 states and 

finalize new methods for inventorying interior Alaska. Mississippi will not be 

transitioned to annualized inventory in FY 2008. 

FY 2007 Program 

Reduce the Risk from Catastrophic Wildland Fire 

• Develop an integrated approach to forecasting fuel and fire incorporating surface fuel 

data, provide models relating fuels to forest overstory conditions, fire ignition patterns, 

and fuels and ignition models resulting in reduced risk of catastrophic wildland fire in 

the northeastern United States.
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-9 

• Document the outcomes of alternative post-fire management and fuel treatments on 

multiple sites over time to help land managers understand the uncertainties in 

management alternatives and provide on-the-ground demonstrations to the public of 

the outcomes of management. 

• Develop a prototype integrated weather/fire modeling system to produce fire spread 

forecasts for wildfires or prescribed burns. It will allow users to assess fire risk in 

terms of potential economic impact of a fire event using probabilistic risk assessment 

methods. The system will help the agency to better manage the high cost of 

firefighting. 

• Develop cost-effective methods to reduce fuel hazards through new methods for 

identifying juvenile wood, structural characteristics of wood-based composites, and 

then report on new technology that will make it possible to manufacture value-added 

products from bark and wood residues. 

• Analyze estimated value of lumber and chips from fuel-reduction thinning, and 

evaluate the productivity and cost of new types of harvesting equipment. These 

results will help to determine optimal uses for materials harvested for hazardous fuel 

reduction. 

• The Landscape Fire and Resource Management Planning Tools (LANDFIRE) Project, 

jointly funded by the Forest Service and the DOI, is using methods developed by FS 

R&D to produce consistent and comprehensive maps and data describing vegetation, 

wildland fuel, and fire regimes across the United States. Data layers for the western 

section of the United States will be completed in FY 2007. LANDFIRE products 

provide important input data for a new rapid response, risk-based wildland fire 

decision support system that focuses on providing probabilistic predictive information 

on fire spread and values at risk on large fires. This tool has the potential to lead to 

substantial cost-savings as a result of improved information to support decisions on 

tactical response and resource allocation. 

Reduce the Impacts from Invasive Species

• Develop models to predict spread of the Emerald Ash Borer in Ohio. These models 

will enable land managers to more efficiently and effectively deploy “trap trees” to 

monitor the actual spread of the insect and to prudently assess when trees may 

become hazardous, to effectively time and to efficiently budget their resources for 

tree removals. 

• Establish biological controls for the hemlock woolly adelgid, a non-native insect 

destroying eastern hemlock forests in 15 eastern states that, when healthy, sustain the 

northern forest ecosystem with an estimated timber value in excess of $7 billion. 

• Restore American elm in the Upper Mississippi watershed by distributing American 

elm seedlings, produced by a cross between Princeton and Valley Forge American 

elm cultivars, to the U.S. Fish and Wildlife Service and the U.S. Army Corps of 

Engineers. The trees will be planted at restoration sites along the Mississippi River 

from northern Illinois to Minneapolis/St. Paul where existing elms have been 

devastated by Dutch elm disease (DED) outbreaks. These are American elm cultivars 

with the highest tolerances to Dutch elm disease known, and the majority of these 

progeny have a high tolerance to DED. 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-10 

• Validate two invasive plant species models across the intermountain West to predict 

displacement of native species by cheatgrass, sagebrush and by encroaching pygmy 

conifer woodlands. 

• Evaluate the efficacy of flea beetle biological control treatments on leafy spurge, a 

well established invasive plant in the Northern Great Plains. 

• Develop a prototype multilevel early warning system for detection and assessing 

potential forest threats. Central to this system is an automated system for processing 

satellite imagery for detecting disturbances in forested systems, known as FIRST. 

• Develop a Southern Pine Beetle Hypertext Encyclopedia. This exhaustive 

compendium of research and development findings on the most important pest of 

southern forests will then become part of the Forest Encyclopedia Network 

(www.forestencyclopedia.net). 

• Complete genetic analyses of invasive fish populations, such as the snakehead, to 

allow for more efficient use of resources in preventing and managing invasive species 

that cause significant impacts to highly valued natural resources such as native 

populations of wild salmon. 

• Work with the Pennsylvania State University to evaluate the use of microwave 

techniques to kill wood decay and sapstain fungi on wood packing material, in order 

to prevent the introduction of new invasive species into the country. 

Provide Outdoor Recreation Opportunities

• Complete data collection and analysis for a national recreation and tourism 

assessment. 

• Refine and expand predictive national forest recreation use models. This work will 

enable national forest managers to efficiently use their resources to help satisfy user 

demand and protect resources from recreational pressures. 

• Complete a multiple year study of public land use for healthful purposes in three 

states that will help determine the infrastructure desired for such activities. Forest 

Service recreation managers will use this information to address issues identified in 

the Healthier U.S. Presidential Initiative. 

• Develop practical, cost-effective methods for wilderness managers to track 

cumulative changes in wilderness areas, using a set of indicators, measures and 

reporting systems. The benefits of this ongoing research include: linking 

performance measures with outcomes of wilderness stewardship, improved decision 

making and improving public trust and confidence in agency wilderness stewardship. 

Help Meet Energy Resource Needs

• Continue the “Value Prior to Processing” investigation to yield understanding of bioand thermo-based composite processing systems and how those processes can be 

integrated into the development of advanced composites having enhanced structural 

performance, improved energy-economics, and increased sustainability. 

• Initiate work on thermochemical processes to facilitate removal of inorganic-metal 

contaminants from reclaimed treated wood. This work is partially funded by U.S. 

Dept. of State and conducted in collaboration with the National Research Centre of 

Egypt. 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-11 

• Continue work to understand the biopulping mechanism and its integration into the 

biorefinery concept. An ongoing high yield pulping study is focused on using fiber 

loading technology for increasing press solid content and reducing paper drying 

energy cost. The study will also shift toward understanding nano-pore structure and it 

relation to frozen water content in wood fibers. 

• Report on the Lake States long-term soil productivity study, which documents 10 

years of soil productivity and responses after different levels of biomass harvesting. 

This work will provide scientific guidance for the development of policy and practice 

on sustainable harvesting of aspen ecosystems for biofuels, benefiting multiple 

stakeholders in the Lake States region. 

• Develop advanced decision support tools that will enable entities to quantify their 

carbon emissions and sequestration activities, and register their findings within the 

Voluntary Greenhouse Gas Reporting Program, 1605 (b). These low-cost tools will 

encourage increased carbon storage, thereby mitigating future climate change 

impacts. In addition, reporting entities may receive tradable credits from the U.S. 

Government for their emissions reductions or increased carbon storage. 

• Use a commercial wood gasifier that produces electricity, a BioMax25, to accomplish 

research on gas yields and system performance. The effect of raw materials will be 

evaluated on the yield of three combustible gases, methane, carbon monoxide, and 

hydrogen. These combustible gases are fed directly into a modified diesel engine that 

turns a turbine to produce electricity. Wood chips from a variety of sources, 

including southern pine beetle removals, hazardous fuel reductions, and Hurricane 

Katrina salvage operations, are being used in the test. 

Improve Watershed Condition

• Refine methods to study below-ground carbon allocation in trees. Being able to 

accurately measure below-ground carbon allocation is essential for modeling forest 

and ecosystem productivity and carbon sequestration. 

• Evaluate the impact of global markets on domestic timber markets and resulting 

forest condition in the United States. Global markets can impact the ability of 

landowners to manage their forests in a sustainable manner. This work will 

contribute to developing new policies to address forest sustainability issues. 

Mission Related Work-All Other

• Implement FIA’s annual forest inventory program in 46 states. Release a new set of 

on-line databases of annual inventory data, bringing the percent of the nation with 

accessible, current FIA data to 88 percent. Forest Inventory Data Online (FIDO) 

enables more powerful analyses of forest health, change, and trend information 

accessible to the public. 

• Investigate the application of nanotechnology to develop and better characterize new 

nano-based materials with superior strength and more stable surfaces. Research is 

continuing in a) bio-polymer-based wood adhesives free of formaldehyde emissions; 

b) wood preservatives free of heavy metals; c) the utilization of small diameter wood 

to improve forest health; d) biomass fuel conversion technologies; e) materials with 

enhanced resistance to fire, moisture, and light; and f) intelligent wood- and paper-
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-12 

based products that can detect moistures, temperatures, decay or imminent structural 

failure. 

FY 2006 Accomplishments

Reduce the Risk from Catastrophic Wildland Fire

• Worked with fire managers on over 70 fires to evaluate FSPro, a new tool that maps 

potential fire perimeters, estimates the probabilities that the fire will reach these 

perimeters, and evaluates values at risk under different scenarios. This combined 

information influenced operational decisions and led to substantial savings on some of 

our most difficult and expensive fires in 2006. The approach is being evaluated for 

integration into routine wildland fire application. 

• Developed the Stratified Cost Index (SCI), which has been adopted nationally as a 

wildland fire performance measure. The SCI provides a basis for comparing actual 

fire costs with an “expected” cost for fires with similar characteristics. The SCI is a 

common metric that normalizes large fire suppression costs for reviews, evaluations, 

planning, and reporting. 

• Compiled 48 fact sheets in four areas related to fuels planning: economics, 

environmental consequences, social science, and how forest structure relates to 

wildland fire behavior. This information is used to develop fuels project planning 

documents, to guide project implementation, and for National Environmental Policy 

Act analyses.

Reduce the Impacts from Invasive Species

• Completed the revision of the National Insect and Disease Risk Map (NIDRM). The 

NIDRM, is a peer reviewed, science based effort identifying 58 million acres at-risk 

for 25 percent mortality over the next 15 years. 

• Tracked and mapped the spread of tamarisk along stream corridors in Washington, 

Oregon and Idaho. The map is the first comprehensive documentation of tamarisk in 

these states and is necessary for managing the invasive shrub, which threatens native 

plant communities, wildlife habitat, some recreation, and water supplies. 

• Developed a cohesive plan to bolster research, education, monitoring, and 

management of invasive species in the 20-state region bounded by Minnesota, 

Missouri, West Virginia, and Maine. This coordinated strategy supports the National 

Strategy and Implementation Plan 

for Invasive Species Management and facilitates awareness of ongoing and planned 

activities; created targeted state level action plans; and ensured better oversight. 

• Produced tools to help manage the emerald ash borer (EAB) infestation and to 

prevent or slow the spread of this invasive species. FS scientists, in cooperation with 

Animal and Plant Health Inspection Service (APHIS) and Agricultural Research 

Service (ARS), provided effective guidelines for removal and disposal of EABinfested trees such as using heat treatment or chipping, storing firewood as split logs 

stored uncovered in the sun, and treating stumps with the herbicide Garlon® to 

prevented EAB colonization and stump sprouting. Scientists also identified EABresistant tree species in Asia, the first step to developing North American-Asian 

hybrids that could someday restore ash trees to EAB affected areas. 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-13 

• Developed a new risk map that will guide detection surveys for Phytophthora 

ramorum, the invasive exotic pathogen that can cause Sudden Oak Death. The map is 

the product of a new model to assess the potential climatic suitability for this 

pathogen across the contiguous United States. With this new knowledge, surveys can 

be concentrated in areas with a favorable or very favorable climate for the pathogen. 

These findings also reinforce the value of continued quarantines on potentially 

infected host materials to prevent the spread of the pathogen into the East. 

 

Provide Outdoor Recreation Opportunities

• FS R&D researcher, Dr. Deborah Chavez, received the American Recreation 

Coalition’s Legends award. This annual award recognizes an outstanding Forest 

Service employee making significant contributions to enhancing the nation’s outdoor 

recreation resources, facilities, and experiences. Her work contributed significantly 

to the improvement of recreation opportunities for Latinos and recreational uses on 

the San Bernardino National Forest. 

• Developed the process of stabilizing engineered wood fiber with a polyurethane or 

latex binder as an affordable alternative to bonded rubber to make recreational areas 

more universally accessible. 

Help Meet Energy Resource Needs

• Collaboratively mapped the genome of black cottonwood (Populus trichocarpa), a 

critical step in developing wood energy crops necessary to improve domestic energy 

independence. 

• Provided the Technical Guidelines for calculating emissions reductions and carbon 

sequestration as part of the completed 1605(b) Department of Energy Voluntary 

Greenhouse Gas Reporting Program Guidelines. 

• Produced an evaluation of silvicultural treatments and biomass use for reducing fire 

hazard in western states. This information is useful to developing biomass energy as 

a product. 

Improve Watershed Condition 

• Developed a riparian and aquatic state-and-transition model that combines vegetation, 

channel morphology, and valley floor form to analyze potential responses of streams 

and riparian forests to disturbances and succession, allowing planners to evaluate 

management alternatives for these sensitive habitats. 

• Conducted research on the reproductive, physiological, and environmental constraints 

affecting regeneration of native dry forest species. Results show that once the 

understory is restored to a native species mix, amelioration of stand microenvironment permits the 

recruitment of slower growing, native canopy trees. Once native species are 

established, long-term efforts to control re-invasion by exotic grasses are greatly 

minimized. 

• Established a clear link between air pollution (ozone and nitrogen deposition) and 

forest susceptibility to wildfires in southern California. This research demonstrates 

that air pollution increases the effects of other factors, including growing population 

pressures, changes in land use, historic fire suppression, and frequent droughts, on a 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-14 

forests susceptibility to wildfire. In response to this research, FS R&D now includes 

ozone and nitrogen concentrations analysis when identifying forest areas most in need 

of fire prevention and fuels reduction treatments. 

• A rhizotron was completed in Houghton, MI. One of few in the world, it is 

essentially an underground tunnel or bunker with removable window panes that look 

out into the soil, suitable for observing the soil profile without disturbing soil 

properties that are otherwise disrupted by other sampling methods. This experimental 

design allows investigators non-invasive access to soil, which is important for 

studying tree growth and yield. Research from this facility will be used to help 

manage forests for continued supplies of forest products and the health of future 

forest resources. 

Mission Related Work-All Other

• Completed the field work of a re-inventory of Mississippi through implementation of 

annual FIA program to complete a damage assessment of Mississippi forests 

following Hurricane Katrina. The re-inventory of Mississippi will continue annually 

when FIA transitions the State to the annualized survey status. Analyses and 

reporting of the Mississippi inventory will be available in FY2007, and will be used 

by forest landowners, planners and policy makers to access current and future 

investment opportunities. Assessments of the impacts of Hurricanes Katrina and Rita 

for AL, LA and TX were available immediately after the hurricanes because annual 

inventories were already in place for these states. 

• Implemented annual FIA inventory program fieldwork in 46 states, as well as a new 

National Information Management System (NIMS) across all Research Stations to 

improve timeliness, and national consistency in data compilation and inventory 

estimation. 

• Developed new FIA analytical tools (e.g. FIDO) and made inventory results and core 

tables available through FIA’s public website applications. These tools provide FIA 

data and make analyses available to access changing forest conditions at multiple 

spatial scales, manage fire risk and restore healthy forest ecosystems. FIA initiated a 

joint range monitoring pilot study in partnership with National Forest System (NFS), 

Bureau of Land Management (BLM) and Natural Resources Conservation Service 

(NRCS) to expand and enhance inventories and tools for broader landscape 

management planning. 

• Led the development of STRATUM (Street Tree Resource Analysis Tool for Urban 

Forest Managers), an easy-to-use decision-support tool that allows communities to 

analyze urban forest benefits and management needs as a basis for developing 

management plans. Using street tree data from a full or sample inventory that can be 

collected by trained volunteers, the software quantifies the value of annual benefits 

(i.e., energy conservation, air quality improvement, CO2 reduction, storm water 

control, and property value increases) and costs. 

• Played a primary role in completing 15 years of California spotted owl demographic 

and habitat selection research at three locations in the Sierra Nevada. Research 

enabled scientists and managers to understand population trends of this species at 

risk. These data were instrumental in informing the recent (May 2006) U.S. Fish and 

Wildlife Service decision to list this species under the Federal Endangered Species 
FY 2008 Budget Justification USDA Forest Service

Forest and Rangeland Research 7-15 

Act. This comprehensive dataset also provides crucial information to help understand 

how habitat conditions affect survivorship of adults and reproductive output. 
(This page inserted to format for duplex printing) 
State and 

Private Forestry 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-1 

Revised March 30, 2007

Appropriation State and Private Forestry 

State & Private Forestry Increase or Decrease Program 

 Appropriation FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $278,966 $228,608 $1,808 -$3,354 -$24,604 $202,458 -11% 

Emergency & Supplemental Appropriations* $30,000 $0 $0 

Total Enacted Budget Authority $308,966 $228,608 $1,808 -$3,354 -$24,604 $202,458 -11% 

Full Time Equivalents (FTEs) 632 642 -38 604 

Enacted Budget Authority by EBLI 

Forest Health Management - Federal Lands $53,163 $52,419 $1,004 -$1,313 $849 $52,959 2% 

Forest Health Management - Coop Lands $46,904 $46,247 $144 -$564 -$7,697 $38,130 -17% 

State Fire Assistance $32,895 $32,434 $147 -$502 $1,043 $33,122 3% 

Volunteer Fire Assistance $5,912 $5,829 $0 -$117 $3,288 $9,000 56% 

Forest Stewardship $34,144 $33,666 $210 -$346 -$13,530 $20,000 -40% 

Forest Legacy Program $56,524 $9,280 $70 -$148 $20,109 $29,311 217% 

Urban & Community Forestry $28,413 $28,015 $166 -$306 -$10,439 $17,436 -37% 

Economic Action Program $9,537 $9,404 $0 $0 -$9,404 $0 -100% 

Forest Research Information and Analysis $4,588 $4,524 $0 $0 -$4,524 $0 -100% 

International Forestry $6,886 $6,790 $67 -$58 -$4,299 $2,500 -63% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Emergency funding from P.L. 109-148 for hurricane related projects 

State and Private Forestry Programs 

State and Private Forestry provides technical and financial assistance to landowners and 

resource managers to help sustain the Nation’s urban and rural forests, and to protect 

communities and the environment from wildland fires, insects, disease, and invasive 

plants. Through a coordinated effort in management, protection, conservation education, 

and resource use, State and Private Forestry programs help facilitate sound stewardship 

across lands of all ownerships on a landscape scale, while maintaining the flexibility for 

individual forest landowners to pursue their objectives. State and Private Forestry 

programs play a key role, along with the National Forest System, Forest and Rangeland 

Research, and the Department of the Interior, in implementing the National Fire Plan to 

manage the impacts of wildland fires on communities and the environment. Funds in the 

State and Private Forestry appropriation also support the International Forestry Program. 

Forest Health Management 

The Forest Health Management (FHM) program maintains healthy, productive forest 

ecosystems by preventing, detecting, and suppressing damaging insects and diseases. 

FHM is responsible for reporting insect, disease, invasive and noxious plants, and forest 

health trends across Federal and Cooperative Lands. FHM develops and applies new and 

improved technologies for detection, prevention, and suppression of forest insects, 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-2

diseases, and invasive plants. The FY 2006 revision of the National Insect and Disease 

Risk Map is used to help identify the highest priorities of risk from forest insects and 

diseases, help set treatment priorities and guide the allocation of agency resources. 

Cooperative Fire Protection 

The program provides technical and financial assistance to States and local volunteer fire 

agencies to promote efficient fire protection on State and private lands. Program 

activities focus on protecting homes and structures in the growing wildland-urban 

interface. The program enhances State and local wildfire management capabilities. 

Cooperative Forestry 

Cooperative Forestry Programs promote working in partnership with States, tribal 

governments, communities, and private landowners to improve forest land management, 

protection, and use of forest-based goods and services. Cooperative Forestry develops 

and applies technologies and information to assist landowners and partners in the 

sustainable management of forests and related resources. Cooperative Forestry has three 

key programs: Forest Stewardship, Forest Legacy, and Urban and Community Forestry. 

International Forestry 

International Forestry programs coordinate the expertise of Forest Service land managers 

and scientists with overseas assignments in the areas of technical cooperation and policy 

assistance. Programs focus on key natural resource issues in countries with significant 

forest resources and important forest-related trade with the United States. International 

Forestry programs focus on three major areas within sustainable natural resource 

management: invasive species, migratory species, trade and economic aspects of forest 

management. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-3 Forest Health Management 

Budget Line Item Forest Health Management 

Forest Health Management Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $100,067 $98,666 $1,148 -$1,877 -$6,848 $91,089 -7% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $100,067 $98,666 $1,148 -$1,877 -$6,848 $91,089 -7% 

Full Time Equivalents (FTEs) 382 393 -1 392 

Enacted Budget Authority by EBLI 

Forest Health Management - Federal Lands $53,163 $52,419 $1,004 -$1,313 $849 $52,959 2% 

Forest Health Management - Coop Lands $46,904 $46,247 $144 -$564 -$7,697 $38,130 -17% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment 

Compensation payments, and Departmental Working Capital Fund charges. 

 

Program Description 

The Forest Health Management (FHM) program maintains healthy, productive forest 

ecosystems by preventing, detecting, and suppressing damaging insects, diseases, and 

invasive plants. FHM reports nationwide on insect, disease, invasive plants, and forest 

health trends across all types of land ownership. 

The program develops and applies new and improved technologies, such as the National 

Insect and Disease Risk Map (NIDRM), for use in forest insect, disease, and invasive 

plant surveys, monitoring, technical assistance, prevention, and suppression activities. 

The FHM program administers activities within two land management jurisdictions: 

Federal Lands: FHM activities on Federal lands are carried out in cooperation with the 

National Forest System, other Federal agencies that manage forest lands, and tribal 

governments. These activities maximize efficiency in executing a coordinated Federal 

program to detect, monitor, evaluate, prevent, suppress, and restore Federal forestlands 

and rangelands and tribal lands damaged by insects and disease. 

Cooperative Lands: FHM activities on cooperative lands are carried out in cooperation 

with the States and territories. These activities maximize efficiency in executing a 

coordinated program to detect, monitor, evaluate, prevent, suppress, and restore 

forestlands and rangelands damaged by insects, disease, and invasive plants on lands 

owned by States, local governments, private organizations, and individual land owners. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-4 Forest Health Management 

Independent Reviews 

In FY 2006, Forest Service Forest Health Management program participated in the 

Invasive Species Program Assessment Rating Tool (PART) reassessment. The program 

received a rating of Adequate. 

In FY 2007, an external review of the entire Forest Health Management program will be 

conducted as recommended in the Invasive Species PART completed during FY 2006. 

 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-5 FHM – Federal Lands 

Budget Line Item Forest Health Management 

Expanded Budget Line Item Federal Lands

Forest Health Management Increase or Decrease Program 

 Federal Lands FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $53,163 $52,419 $1,004 -$1,313 $849 $52,959 2% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $53,163 $52,419 $1,004 -$1,313 $849 $52,959 2% 

Full Time Equivalents (FTEs) 335 344 -1 343 0% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Federal acres treated - Invasives 79,700 111,600 89,863 88,220 -1,643

Federal acres treated - Native pests 47,300 26,846 47,214 31,522 -15,692

 

FY 2008 Program Changes 

The FY 2008 budget for Forest Health Management, Federal Lands is $52,959,000, a net 

program change of +$849,000 or +2 percent from the FY 2007 Estimate. 

 

The Forest Health Management, Federal Lands program will continue to meet high 

priority prevention and suppression needs of southern pine beetle and western bark 

beetles, and slowing the spread of gypsy moth, and eradication of new outbreaks on 

forest and rangelands managed by the Forest Service, other Federal agencies, and tribal 

governments. 

In FY 2008, the program will emphasize increased early survey and monitoring efforts 

against invasive species. While this refocus will yield fewer treated acres, it is integral to 

the overall Forest Health program and increases the ability to prevent and detect 

problems early, which is more cost-effective than treatments. 

 

Program Description 

The Forest Health Management, Federal Lands program provides for detection, 

monitoring, evaluation, prevention, and suppression of forest insects and diseases on 

forest and rangelands managed by the Forest Service, other Federal agencies, and tribal 

governments. For invasive plant control and management on these lands, the Forest 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-6 FHM – Federal Lands 

Health Management program is limited to technical assistance to Federal land managers. 

Forest health management specialists evaluate risk for tree mortality and determine 

prevention, suppression, maintenance, and restoration treatments based on results of these 

evaluations and surveys. Aerial and ground surveys are conducted for insects and 

diseases in areas of risk. This program monitors and assesses both short-term and longterm forest health conditions across the nation, while working to implement the goals in 

the Healthy Forests Restoration Act of 2003 through insect and disease treatments on 

priority Federal lands. 

This program enhances the agency’s ability to control and manage insect and disease 

outbreaks. Annual priorities are established for mitigating the risk of future outbreaks 

based, in large part, on the 2006 update of the National Insect and Disease Risk Map 

(NIDRM) and goals from the Healthy Forests Restoration Act of 2003. The NIDRM is a 

peer reviewed, science based effort that identifies 58 million acres at risk for 25 percent 

mortality over the next 15 years. 

The agency will use the NIDRM to help determine priority pests and placement of 

projects. The focus on prevention and treatment programs in gypsy moth, western pine 

beetle and southern pine beetle, for example, are related to these pests being some of the 

high pest agents on the risk map. Identifying these priority treatment areas will reduce the 

potential for new outbreaks. 

Through the use of the map, the national level will select the species to be funded. 

Where the actual treatments occur is decided at the local level. At this time, field offices 

are identifying site-specific locations for treatments in fiscal years 2007 and 2008 using, 

in part, the risk map. 

Independent Reviews 

In FY 2006, Forest Service Forest Health Management program participated in the 

Invasive Species Program Assessment Rating Tool (PART) reassessment. The program 

received a rating of Adequate. 

In FY 2007, an external review of the entire Forest Health Management program will be 

held as recommended in the Invasive Species PART completed during FY 2006. 

FY 2008 Plans 

Specifically, in FY 2008 the agency plans to treat native and invasive species on 

approximately 119,742 acres in high-priority areas. In addition to using the NIDRM, 

priority projects will be identified following a competitive peer-reviewed selection 

process. The Forest Health program will focus prevention and restoration efforts for 

southern pine beetle and western bark beetles on treatments of highest priority large-scale 

watersheds currently in condition classes II and III. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-7 FHM – Federal Lands 

Top priorities for acre treatments in FY 2008 include southern pine beetle, western bark 

beetles, gypsy moth, and hemlock woolly adelgid. As mentioned, the risk map helped to 

identify the priority pests. 

In selecting these priorities, the agency expects treatments will result in an additional 

119,742 acres that will be protected from damaging agents and reduced risk of mortality 

and concomitant fire risk. The placement of treatments will protect high value sites such 

as developed campgrounds, trailheads, ski areas, watersheds and areas in the wildland 

urban interface. These treatments are also expected to yield more resilient stands that 

will prevent future outbreaks. 

As noted above, the program will emphasize increased early survey and monitoring 

efforts against invasive species. While this refocus will yield fewer treated acres, it is 

integral to the overall Forest Health program and increases the ability to prevent and 

detect problems early, which is more cost-effective than treatments. 

The agency also plans on continuing an aggressive approach to reducing the spread of 

other invasive pests such as the emerald ash borer, sudden oak death, sirex woodwasp, 

Asian long-horned beetle, Port-Orford cedar root disease, and white pine blister rust. 

Also included are plans to make use of biocontrols to control unwanted pests, new 

technology that enables the treatment of individual trees in the case of emerald ash borer, 

and begin gene conservation efforts to help ensure survival of select tree species 

threatened by invasive species.

 

FY 2007 Program 

The program of work for FY 2007 identifies the treatment of native and invasive species 

on approximately 137,077 acres in high-priority areas. In addition to using the NIDRM, 

priority projects will be identified following a competitive peer-reviewed selection 

process. The Forest Health program will focus prevention and restoration efforts for 

southern pine beetle and western bark beetles on treatments of highest priority large-scale 

watersheds currently in condition classes II and III. 

Top priorities planned for acre treatments in FY 2007 include southern pine beetle, 

western bark beetles, gypsy moth, and hemlock woolly adelgid. As mentioned, the risk 

map helped to identify the priority pests. 

The Forest Health program will continue gypsy moth efforts with some refocusing on 

highest suppression areas. There are plans to treat 89,485 acres, maintain the Slow-theSpread program, and direct efforts for full eradication in newly infested areas. 

In FY 2007, the agency also plans on continuing efforts to mitigate nationwide threats to 

forest ecosystems from invasive species, such as sudden oak death and emerald ash borer 

with evaluation, monitoring, and treatments. And to protect critical ecosystems from 

established infestations of non-native insects and diseases, such as, Port-Orford cedar 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-8 FHM – Federal Lands 

root disease, white pine blister rust, hemlock woolly adelgid, emerald ash borer, and the 

sirex woodwasp. 

FY 2006 Accomplishments 

In FY 2006, the Forest Service treated native and invasive species on 138,446 acres in 

high-priority forest stands. Although acres treated for invasives exceeded the projected 

target, treatments on native pests were -43 percent below the projected target. This target 

was not met due to a variety of factors including a thinning project that was burned over 

in Nebraska. Other conditions that affected below target accomplishments included 

NEPA not being completed on time, weather factors and population flucuations of 

targeted pests. 

Priorty treatments areas focused on southern pine beetle and western bark beetle on 

treatments of highest priority large-scale watersheds currently in condition classes II and 

III, and continued full implementation of the gypsy moth slow-the-spread strategy over 

110,688 acres consisting of aerial applications and on-ground effectiveness monitoring 

across the advancing front of the gypsy moth from North Carolina to Wisconsin. The 

agency also responded to nationwide threats on forest ecosystems from non-native 

invasive species, such as new gypsy moth outbreaks, sudden oak death, and emerald ash 

borer by evaluating, monitoring, and treating the effected areas. 

In FY 2006, the NIDRM update was completed. The program also maintained 

technology development, pilot tests, and demonstrations of new technologies, materials, 

methods, and strategies to improve the efficiency of the management of forest pests. 

Agency personnel conducted survey, detection, monitoring, and evaluation of forest 

insect and disease outbreaks on Federal and tribal forestlands and woodlands on 182 

million acres and monitored and assessed both short-term and long-term forest health 

conditions across the nation to assist in the implementation of the Healthy Forests 

Restoration Act of 2003. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-9 FHM – Cooperative Lands 

Budget Line Item Forest Health Management 

Expanded Budget Line Item Cooperative Lands 

Forest Health Management Increase or Decrease Program 

 Cooperative Lands FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $46,904 $46,247 $144 -$564 -$7,697 $38,130 -17% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $46,904 $46,247 $144 -$564 -$7,697 $38,130 -17% 

Full Time Equivalents (FTEs) 47 49 49 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Cooperative lands acres treated - 

Invasives 670,275 589,298 517,384 458,081 -59,303

Cooperative lands acres treated - Native 

pests 160,117 134,346 91,234 61,254 -29,980

 

FY 2008 Program Changes 

The FY 2008 budget request for Forest Health Management, Cooperative Lands is 

$38,130,000, a net program change of -$7,697,000, or -17 percent from the FY 2007 

Estimate. 

The Forest Health Management, Cooperative Lands program will continue cooperative 

efforts with the States and territories to meet their highest priority prevention and 

suppression needs for southern pine beetle and western bark beetles, slowing the spread 

of gypsy moth, and eradication of new pest outbreaks. 

Program Description 

The Forest Health Management, Cooperative Lands program works with States and 

territories to detect, monitor, evaluate, prevent, and suppress forest insects, diseases, and 

invasive plants on forestland owned by States, local governments, private organizations, 

and private individuals. The program includes evaluating tree mortality risk and 

determining prevention, suppression, maintenance, and restoration treatments based on 

evaluation results. Invasive plant surveys determine the need for prevention, suppression, 

maintenance, and restoration treatments for cooperative lands susceptible to infestations. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-10 FHM – Cooperative Lands 

The cost of suppression and prevention projects are shared with States and other nonfederal partners on a 1:1 basis. 

This program enhances the agency’s ability to control and manage insect and disease 

outbreaks. Annual priorities are established for mitigating the risk of future outbreaks 

based, in large part, on the 2006 update of the National Insect and Disease Risk Map 

(NIDRM) and goals from the Healthy Forests Restoration Act of 2003. The NIDRM is a 

peer reviewed, science based effort that identifies 58 million acres at risk for 25 percent 

mortality over the next 15 years. 

The agency will use the NIDRM to help determine priority pests and placement of 

projects. The focus on prevention and treatment programs in gypsy moth, western pine 

beetle and southern pine beetle, for example, are related to these pests being some of the 

high-activity pest agents on the risk map. Identifying these priority treatment areas will 

reduce the potential for new outbreaks. 

Through the use of the map, the national level will select the species to be funded. 

Where the actual treatments occur is decided at the local level. At this time, field offices 

are identifying site-specific locations for treatments in fiscal years 2007 and 2008 using, 

in part, the risk map. 

The agency will expand the use of Early Detection and Rapid Response (EDRR) efforts 

to find invasive insects and diseases earlier, thereby reducing future expenditures of 

resources for these pests. This effort will involve using the public, an inexpensive source 

of an able and willing workforce, in a more active role to help in monitoring for new 

sightings of pests. 

Independent Reviews 

In FY 2006, Forest Service Forest Health Management program participated in the 

Invasive Species Program Assessment Rating Tool (PART) reassessment. The program 

received a rating of Adequate. 

In FY 2007, an external review of the entire Forest Health Management program will be 

held as recommended in the Invasive Species PART completed during FY 2006. 

FY 2008 Plans 

Specifically, in FY 2008 the agency plans to treat native and invasive species on 

approximately 519,335 acres in high-priority areas including 11,889 acres of invasive 

plant treatments. In addition to using the NIDRM, project funds will be leveraged with 

1:1 cost-share from cooperating partners. The Forest Health Management program will 

focus on treatments of highest priority large-scale watersheds currently in condition 

classes II and III. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-11 FHM – Cooperative Lands 

Top treatment priorities in FY 2008 include southern pine beetle, western bark beetles, 

gypsy moth, hemlock woolly adelgid and invasive plants. As mentioned, the risk map 

helped to identify the priority pests. 

In selecting these priorities, the agency expects treatments will result in acreage protected 

from damaging agents and reduced risk of mortality and concomitant fire risk. The 

placement of treatments will protect high value sites such as developed campgrounds, 

trailheads, ski areas, watersheds and areas in the wildland urban interface. These 

treatments are also expected to improve wildlife habitat and yield more resilient stands 

that will prevent future outbreaks. 

The agency also plans on continuing an aggressive approach to reducing the spread of 

other invasive pests such as the emerald ash borer, sudden oak death, sirex woodwasp, 

Asian long-horned beetle, Port-Orford cedar root disease, and white pine blister rust. In 

addition, aerial applications of insecticides and biologicals will continue as part of the 

gypsy moth slow-the-spread program. Another priority will be to continue the use of 

biocontrols for hemlock woolly adelgid and to begin gene conservation efforts in eastern 

hemlock to help ensure survival of this tree species threatened by invasive species. 

Continue to emphasize the use of EDRR for detection of new pest invaders to prevent 

establishment of new pests that would otherwise require the long-term allocation of 

resources to eradicate or manage. 

FY 2007 Program 

Specifically, in FY 2007 the agency plans to treat native and invasive species on 

approximately 608,618 acres in high-priority areas, including 14,348 acres of invasive 

plant treatments in 28 States and the Pacific Islands. In addition to using the NIDRM, 

project funds will be leveraged with 1:1 cost-share from cooperating partners. The Forest 

Health Management program will focus prevention and restoration efforts for southern 

pine beetle and western bark beetles on treatments of highest priority large-scale 

watersheds currently in condition classes II and III. 

Threats to forest ecosystems from invasive species, such as hemlock woolly adelgid, 

emerald ash borer, sudden oak death, sirex woodwasp and native species such as southern 

pine beetle and western bark beetle will be responded to. Gypsy moth eradication and use 

of the slow-the-spread strategy of aerial applications of insecticides and biologicals 

continues. 

Continuous monitoring and evaluation of short- and long-term forest health conditions 

will help the agency achieve the goals set forth in the Healthy Forests Restoration Act of 

2003 by treating insects and diseases on high priority cooperative lands using the risk 

map as a guide. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-12 FHM – Cooperative Lands 

EDRR is emphasized to detect new pest invaders early to prevent establishment of new 

pests and reduce the potential for the long-term allocation of resources to eradicate or 

manage pests that become established. 

FY 2006 Accomplishments 

The Forest Service assisted cooperative landowners with treatment of native and invasive 

species on 723,644 high-priority areas in condition classes II and III, including invasive 

plant management and control on 6,020 acres in 28 States and the Pacific Islands. The 

total treatment acres were below the planned level because insects and diseases have 

sudden population explosions and declines, which make predictions challenging and 

necessitate strategy shifts throughout the treatment season. 

Focused aerial applications of insecticides and biologicals as part of the gypsy moth 

slow-the-spread strategy on approximately 427,179 acres in the region between North 

Carolina to Wisconsin. 

Developed and released biocontrol agents to combat hemlock woolly adelgid which is 

decimating hemlock stands in the eastern United States. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-13 Cooperative Fire Protection 

Budget Line Item Cooperative Fire Protection 

Cooperative Fire Protection Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $38,807 $38,263 $147 -$619 $4,331 $42,122 11% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $38,807 $38,263 $147 -$619 $4,331 $42,122 11% 

Full Time Equivalents (FTEs) 50 50 -1 49 

Enacted Budget Authority by EBLI 

State Fire Assistance $32,895 $32,434 $147 -$502 $1,043 $33,122 3% 

Volunteer Fire Assistance $5,912 $5,829 $0 -$117 $3,288 $9,000 56% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

Program Description 

Cooperative Fire Protection provides technical and financial assistance to States and local 

fire agencies to promote efficient wildland fire protection on Federal, State, and private 

lands. Program activities are focused on mitigating hazards, protecting homes in the 

wildland-urban interface (WUI), and reducing Federal wildland fire suppression costs. 

Cooperative Fire Protection consists of two activities: 

State Fire Assistance: Over 1 billion acres of State and private forest and rangelands are 

under the protection of State and local fire agencies, most of those acres are adjacent to 

Federal lands, with a significant portion within the WUI. This activity provides financial 

assistance to State Foresters for all fire management activities including training, 

planning, hazardous fuel treatments, and purchase and maintenance of equipment. 

Emphasis is on fire planning to ensure that Federal, State, and local agencies deliver a 

uniform and coordinated suppression response to wildland fire. Funding enables State 

and local fire protection organizations to be effective first responders in all types of 

disasters. The Cooperative Forest Fire Prevention program is a component within this 

activity and includes the “Smokey Bear” program. 

Volunteer Fire Assistance: This activity provides technical and financial assistance 

through the States to local fire districts and departments to protect State and private 

forestlands threatened by wildfire. Local fire agencies are often the first line of defense 

in meeting expanded fire protection needs within the WUI. Volunteer and rural fire 

departments are often the only line of defense to respond to natural and human-caused 

disasters in rural America. The activity supports local fire suppression efforts by 

providing technical assistance and grants for training, fire department development and 

organization, and equipment for volunteer fire departments in communities with 

populations of less than 10,000. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-14 CFP – State Fire Assistance 

Budget Line Item Cooperative Fire Protection 

Expanded Budget Line Item State Fire Assistance

State Fire Assistance Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $32,895 $32,434 $147 -$502 $1,043 $33,122 3% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $32,895 $32,434 $147 -$502 $1,043 $33,122 3% 

Full Time Equivalents (FTEs) 50 50 -1 49 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Communities assisted (number) 6,653 4,290 5,278 5,455 177 

FY 2008 Program Changes 

The FY 2008 budget request for State Fire Assistance is $33.1 million, a net program 

change of +$1,043,000 or +3 percent from the FY 2007 Estimate. The Forest Service 

will emphasize the need to increase protection of people and their property within the 

wildland-urban interface (WUI) against catastrophic wildland fire through the Firewise 

Communities program. Emphasis will also be place on improving State and community 

capacity to address wildfires, in order to permit heightened Forest Service focus on 

implementation of the Federal Wildland Fire Policy. 

Program Description 

 

This program provides financial assistance to State Foresters for all fire management 

activities including training, planning, hazardous fuel treatments, and purchase and 

maintenance of equipment. State Fire Assistance emphasizes fire planning to ensure that 

Federal, State, and local agencies deliver a uniform and coordinated suppression response 

to wildfire. This funding enables State and local fire protection organizations to be 

effective first responders in all types of disasters. The Cooperative Forest Fire Prevention 

program is funded through the State Fire assistance program including the “Smokey 

Bear” program. 

Funds from this program also support Firewise Communities. The Firewise program is 

funded by the Forest Service, Department of the Interior, the National Fire Protection 

Association, and State partners. It is a highly successful program which emphasizes 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-15 CFP – State Fire Assistance 

individual responsibility for fire hazard mitigation on community and private property. 

The Firewise program educates and supports community leaders, fire professionals, 

planners, and individuals on wildland-urban interface fire issues; maintains an 

educational website; and provides varied assistance to organizations and individuals for 

wildland fire mitigation around structures. Firewise leverages Federal dollars by seeding 

local projects; each Federal dollar spent on Firewise garners $4 in local matching funds 

dedicated to reducing the number of communities at risk from wildland fire. 

FY 2008 Plans 

• Continue efforts that focus strategic, technical, and financial assistance to the States 

to reduce hazardous fuels and strengthen the shared capacity in the protection of nonFederal wildlands and rural lands from wildfire. 

• Emphasize training and wildfire community planning to deliver an efficient and 

effective fire suppression response and prioritization of hazardous fuel conditions. 

• Deliver an estimated 5,455 direct assists to communities for plans, assessments, and 

hazard mitigation projects in critical high-risk WUI areas. 

• Continue utilizing public service announcements, education, and partnerships to 

reduce the risk of fire losses. 

• Continue support for the Firewise program nationwide. 

FY 2007 Program 

• Focus strategic, technical, and financial assistance to the States to strengthen the 

shared capacity in the protection of non-Federal wildlands and rural lands from 

wildfire. 

• Emphasize training and fire planning to deliver an efficient and effective fire 

suppression response and prioritization of hazardous fuel conditions. 

• Assist an estimated 5,278 communities with plans, assessments, prevention programs, 

and hazard mitigation projects in critical high-risk WUI areas. 

• Continue utilizing public service announcements, education, and partnerships to 

reduce the risk of fire losses. 

• Continue support for the Firewise program nationwide. 

FY 2006 Accomplishments 

• Provided assistance to 4,290 communities in the form of risk assessments, fire 

prevention programs, fire management planning, and hazardous fuel mitigation 

projects. 

• Certified, by Firewise, 23 new communities for a total of 141 Firewise communities. 

Both State Fire Assistance in the Wildland Fire Management and this program 

contribute to Firewise accomplishments. 

• Trained 54,000 State agency and volunteer firefighters nationwide. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-16 CFP –Volunteer Fire Assistance 

Budget Line Item Cooperative Fire Protection 

Expanded Budget Line Item Volunteer Fire Assistance 

Volunteer Fire Assistance Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $5,912 $5,829 $0 -$117 $3,288 $9,000 56% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $5,912 $5,829 $0 -$117 $3,288 $9,000 56% 

Full Time Equivalents (FTEs) 0 0 0 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Volunteer fire departments assisted 

(number) 2,800 3,062 2,800 4,389 1,589 

FY 2008 Program Changes 

The FY 2008 budget for Volunteer Fire Assistance is $9 million, a net program change of 

+$3.3 million or +56 percent from the FY 2007 Estimate. 

The substantial funding increase will provide additional assistance to nearly 1,600 

communities that are at risk from catastrophic wildfire by enabling the acquisition of 

firefighting equipment, personal protective equipment, and training needs. Emphasis will 

be place on improving local capacity to address wildfires that permits a heightened Forest 

Service focus on implementation of the Federal Wildland Fire Policy. 

Program Description 

This program provides technical and financial assistance through the States to local 

communities to protect State and private forestlands threatened by wildfire. Local fire 

agencies are the first line of defense in meeting expanded fire protection needs within the 

Wildland Urban Interface (WUI). Volunteer and rural fire departments are often the only 

line of defense to respond to natural and human-caused disasters in rural America. The 

program supports local fire suppression efforts by providing technical assistance and 

grants for training, fire department development and organization, and equipment for 

volunteer fire departments in communities with populations of less than 10,000. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-17 CFP –Volunteer Fire Assistance 

FY 2008 Plans 

• Continue to work with states to provide grants in support of the critical needs of 

approximately 4,389 rural volunteer fire departments and communities, nearly 1,600 

more communities than in prior years. 

• Emphasize building community fire suppression capacity for communities at greatest 

risk from wildland fire, and provide funding for essential training and equipment. 

• Assist rural fire departments by providing local leadership in the completion of 

community wildfire protection plans. 

• Continue to assist rural fire departments with training in the National Incident 

Management System in order to allow departments to more effectively coordinate 

with State and national wildfire and emergency organizations. 

FY 2007 Program 

• Continue to work with the states to provide grants in support of the critical needs of 

approximately 2,800 rural volunteer fire departments and communities. 

• Emphasize optimal wildfire risk mitigation for communities at greatest risk from 

wildland fire, and funding for essential training and equipment. 

• Emphasize training for rural fire departments in the National Incident Management 

System in order to allow departments to more effectively coordinate with State and 

national wildfire and emergency organizations. 

• Assist rural fire departments in providing local leadership in the completion of 

community wildfire protection plans. 

FY 2006 Accomplishments 

• The Volunteer fire assistance program provided assistance to 3,062 communities by 

providing funds to purchase firefighting and safety equipment, and to complete 

training in wildland firefighting. 

• The Volunteer Fire Assistance program assisted in forming approximately 20 new 

fire departments in communities with populations of less than 10,000. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-18 Cooperative Forestry 

Budget Line Item Cooperative Forestry 

Cooperative Forestry Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $133,206 $84,889 $446 -$800 -$17,788 $66,747 -21% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $133,206 $84,889 $446 -$800 -$17,788 $66,747 -21% 

Full Time Equivalents (FTEs) 176 175 150 

Enacted Budget Authority by EBLI 

Forest Stewardship $34,144 $33,666 $210 -$346 -$13,530 $20,000 -40% 

Forest Legacy Program $56,524 $9,280 $70 -$148 $20,109 $29,311 217% 

Urban & Community Forestry $28,413 $28,015 $166 -$306 -$10,439 $17,436 -37% 

Economic Action Program $9,537 $9,404 $0 $0 -$9,404 $0 -100% 

Forest Research Information and Analysis $4,588 $4,524 $0 $0 -$4,524 $0 -100% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

Program Description 

Cooperative Forestry promotes working in partnership with States, tribal governments, 

communities, and private landowners to improve management, protection, and use of 

forest-based goods and services while building civic capacity to achieve long-term goals 

for sustainable development. 

The Cooperative Forestry programs are: 

Forest Stewardship Program – The Forest Stewardship Program encourages the longterm stewardship of private forest lands in important watersheds, by strategically 

targeting technical assistance and providing landowners with comprehensive multiresource forest management plans. The program also assists State forest agencies and 

tribal partners with the development and production of high-quality tree and forest plant 

seedling stock for forest restoration and enrichment activities. 

Forest Legacy Program – Forest Legacy plays a unique role in protecting working 

forestland and open space from conversion to non-forest uses, and in reducing the 

occurrence of forest fragmentation. Encroachment of unplanned development on large 

tracts of forest, coastal areas, and in municipal watersheds has threatened vital forest 

values and functions across the nation. Forest Legacy works with State government and 

local entities to safeguard priority areas through the purchase of conservation easements 

or fee simple title. 

Urban and Community Forestry – The Urban and Community Forestry (U&CF) 

program advances the maintenance, restoration, and expansion of trees and forest cover 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-19 Cooperative Forestry 

in cities, suburbs and towns nationwide. Annually, the program assists between 4,000 

and 7,000 communities and many local volunteer organizations in assessing, retaining, 

and protecting essential natural resources in the midst of land use changes and economic 

development. In partnership with State Forestry agencies and national nonprofit 

organizations, the U&CF program provides focused assistance to help communities 

achieve sustainable local programs characterized by comprehensive urban and 

community forest management plans, tree ordinances and policies, professional staff, and 

local citizen advocacy/advisory groups. 

Economic Action Programs – No funding is proposed for this program in FY 2008. 

Forest Resources Information and Analysis – This program will be fully funded under 

Forest and Rangeland Research in FY 2008. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-20 CF – Forest Stewardship 

Budget Line Item Cooperative Forestry

Expanded Budget Line Item Forest Stewardship Program 

Forest Stewardship Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $34,144 $33,666 $210 -$346 -$13,530 $20,000 -40% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $34,144 $33,666 $210 -$346 -$13,530 $20,000 -40% 

Full Time Equivalents (FTEs) 73 72 -2 70 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Non-industrial private forestlands (NIPF) 

under approved stewardship 

management plans 1,575,000 1,409,170 1,500,000 850,000 -650,000

Number of NIPF stewardship 

management plans 16,250 12,243 12,500 7,700 -4,800

FY 2008 Program Changes 

The FY 2008 budget request for the Forest Stewardship Program is $20 million, a net 

program change of -$13.53 million or -40 percent from the FY 2007 Estimate. Funding 

will be targeted to areas of national priority as defined through the Forest Stewardship 

Program Spatial Analysis Project and other agency direction. 

During FY 2008, all States and Territories, will for the first time, track program 

accomplishments cumulatively and spatially, through the use of the WebDET, a webbased geodatabase management tool created by the Forest Service and the Environmental 

Systems Research Institute, Inc., or other equivalent geodatabase editing and 

maintenance programs. The use of a central geodatabase to spatially track program 

accomplishments will permit associations with resource elements and landscape 

attributes, thus results (program outcomes) will be more clearly demonstrated. Spatial 

accomplishment tracking and the delineation of landscape focus areas though the Forest 

Stewardship Spatial Analysis (SAP) project will also enable State and territorial partners 

to make more efficient use of limited program resources by focusing efforts where 

potential is highest for maximizing resource management outcomes and addressing 

threats such as fire and insect pest infestations. 

 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-21 CF – Forest Stewardship 

Program Description 

Approximately 363 million acres or 48 percent of all forestland in the United States is 

under nonindustrial or private family ownership. This forest land, and the roughly 10 

million landowners currently responsible for managing it, contribute significantly to 

America's clean water and air, wildlife habitat, recreational resources, and timber 

supplies. The Forest Stewardship program helps sustain this private forestland and 

essential public goods by providing forest landowners with long-term technical 

assistance, access to a variety of incentive and educational programs, and high-quality 

nursery stock for reforestation and forest restoration projects. 

Forest Stewardship management plans provide landowners with practical guidance for 

achieving their own unique objectives in a way that also maximizes public goods and 

services provided by forests, such as clean drinking water, clean air, carbon sequestration, 

wood fiber, recreation, and scenic landscapes. Technical and planning assistance is 

targeted to affect, on a landscape scale, strategically important forest resource areas that 

are identified using geographic information and spatial analysis technologies, areas where 

return on federal investment will be maximized in terms of intended resource outcomes. 

The program also sustains and improves supplies of high quality, genetically improved 

tree seed and planting stock for reforestation and forest ecosystem restoration efforts on 

private, State, and tribal land. In addition, the Forest Stewardship program partners with 

Forest Service Research and Development and the Natural Resources Conservation 

Service to support the National Agroforestry Center, a world class facility that 

successfully transfers sustainable farm forestry and agroforestry technologies to 

thousands of land management professionals each year. 

 

Because all Forest Stewardship activities are coordinated with, and delivered through, the 

State and territorial forest agency partners, the program leverages substantial non-Federal 

financial and human resources each year. States are required to match Federal funds 

dollar for dollar, but most far exceed this level. 

Independent Reviews 

Program performance measures were considered in FY 2006, under an OMB PART 

review of Forest Service strategic goal number five: Improve watershed condition. The 

PART review received a rating of Results not Demonstrated. Activities are underway to 

improve the rating. 

FY 2008 Plans 

• Develop an additional 7,700 multi-resource management plans to guide the long-term 

active management of approximately 850,000 acres of strategically important 

nonindustrial private forest (NIPF) lands, family and tribal forest land, with resulting 

improvements in the condition of associated forest resource elements including soil, 

water, biodiversity, timber, wildlife habitat, forest health, and recreation. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-22 CF – Forest Stewardship 

• Use Spatial Analysis Program (SAP), GIS analyses and maps of program 

accomplishments to focus program assistance and identify and foster strategic 

partnerships with other governmental and nongovernmental organizations for 

landscape-scale planning and resource management projects. 

• Fully implement Forest Stewardship plan field auditing program to measure the 

program’s cumulative impact on landscapes within these areas of highest potential in 

terms of resource outcomes. 

• Support landscape-scale, multi-landowner planning efforts in strategically important 

watersheds, and in wildland-urban interface areas to help protect the nation’s supply 

of clean water and protect communities from the threat of wildfire. 

• Support the innovative technology transfer efforts of the National Agroforestry 

Center and the forest species gene conservation activities of the national 

Reforestation, Nurseries, and Genetic Resources (RNGR) cross deputy area team. 

FY 2007 Program 

• Develop approximately 12,500 management plans covering more than 1,500,000 

acres of NIPF and tribal lands, with resulting improvements in the condition of 

associated forest resource elements including soil, water, biodiversity, timber, 

wildlife habitat, forest health, and recreation.

• Complete SAP geographic delineation of areas of highest program potential, in terms 

of forest resource values and threats, in each State and territory to enable strategic 

program planning and delivery. 

• Complete the development, deployment, and adoption of WebDET, a web based data 

entry and plan writing tool that will automate accomplishment tracking, spatially 

relate management and planning accomplishments to associated forest landscape 

features, and thus improve Forest Service’s ability to define program 

accomplishments in terms of resource outcomes with links to current issues of 

national concern and emphasis. 

• Enable the management of small diameter and underutilized wood biomass on private 

lands in order to improve forest health and reduce the risk of wildland fire and insect 

or forest pest infestations. 

• Assist States and tribal governments with the production, distribution, and planting of 

high quality, culturally significant forest and riparian species. 

FY 2006 Accomplishments 

• Provided 12,243 multi-resource Forest Stewardship plans to guide the long-term 

active management of 1,409,170 acres of NIPF and tribal lands with resulting 

improvements in the condition of associated forest resource elements including soil, 

water, biodiversity, timber, wildlife habitat, forest health, and recreation.

• Provided direct technical assistance to an additional 518,000 landowners nationwide 

in the by way of silvicultural prescriptions, management plan revisions, workshops, 

and property visits.
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-23 CF – Forest Stewardship 

• Began implementing newly revised Forest Stewardship Program National Standards 

and Guidelines to: provide direction for defining areas of highest program potential; 

update management plan content requirements; and provide guidance for a 

management plan implementation monitoring program.

• Supported actions by the National Agroforestry Center to encourage the integration of 

trees and cropping systems to improve water quality, reduce soil erosion, and provide 

wildlife habitat.

• Supported the national Reforestation, Nurseries, and Genetic Resources Team; the 

National Seed Laboratory; and the Intertribal Nursery Council in successful efforts to 

conserve and produce high quality native forest seedling stock for a wide variety of 

public, private, and tribal reforestation and ecosystem restoration efforts. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-24 CF – Forest Legacy 

Budget Line Item Cooperative Forestry

Expanded Budget Line Item Forest Legacy Program 

Forest Legacy Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $56,524 $9,280 $70 -$148 $20,109 $29,311 217% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $56,524 $9,280 $70 -$148 $20,109 $29,311 217% 

Full Time Equivalents (FTEs) 23 24 1 25 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

Performance Measures 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Acres of land adjustments to conserve 

the integrity of undeveloped lands and 

habitat quality 230,000 361,467 20,000 60,000 40,000 

Parcelization of forests avoided ( number 

of parcels prevented) (Targets under 

development) * Baseline 19,342 1,000 3,200 2,200 

* This is a new measure. The FY 2007 and FY 2008 targets reflect only 1 year of parcelization data; 

eventually, a 3-year average will be used. 

FY 2008 Program Changes

The FY 2008 budget for the Forest Legacy Program is $29,311,000, a net program 

change of +$20,109,000, or +217 percent from the FY 2007 Estimate. 

Forty-one states submitted 82 proposed projects to the Forest Service for FY 2008 

funding consideration by the national selection panel. The proposed projects total almost 

$192 million and have combined support from 518 distinct individuals and organizations. 

Increased funding will fund 14 projects, which were chosen based on a set of 

prioritization criteria. 

Program Description 

The Forest Legacy Program assists states and private landowners to conserve 

environmentally important forests threatened by conversion to non-forest uses through 

the acquisition of land or interests in land. The program operates on a “willing buyer – 

willing seller” basis and is a non-regulatory, incentive-based land conservation program. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-25 CF – Forest Legacy 

This program ensures that both traditional uses of private lands and the public values of 

America's forest resources are protected for future generations. 

Fifty-seven percent of our Nation’s forests are privately owned, totaling 429 million 

acres. Family forest owners and timber companies are facing increasing pressure from 

rising real estate prices and other development pressures, often resulting in the 

parcelization of ownership and conversion of forests to other land uses. Changes in 

ownership and land use reduce public recreation opportunities, decrease fish and wildlife 

habitat, degrade water quality, weaken resource-based economies, and diminish general 

quality of life. The Forest Legacy Program provides financial incentives to private 

landowners to conserve their forests thereby prevent conversion and fragmentation. 

To date, more than 1.4 million acres of environmentally important private lands have 

been protected through the Forest Legacy Program and strong partnerships with States, 

land trusts, private landowners, forest industry, and others. While the program requires a 

25 percent non-Federal match, the program averages at least a 50 percent non-Federal 

match. 

By ensuring that the private forest land base is protected for future forest uses, the 

program promotes conserving open space by improving the capability of the Nation’s 

forests to provide desired sustainable levels of uses, values, products, and services. 

Independent Reviews 

The Forest Legacy Program has undergone independent evaluations from OIG, GAO, 

and the House of Representatives Committee on Appropriations. These reviews have all 

indicated the program is valuable and effective, but a number of suggested reforms have 

been implemented, which have strengthened program management, operations, and 

performance and accountability. 

The program was evaluated in FY 2003 using the Program Assessment Rating Tool 

(PART) and underwent a reassessment in FY 2004, which yielded a score of “moderately 

effective.” 

FY 2008 Plans 

• Focus on land conservation for funded projects and due diligence for proposed 

projects. 

• The FY 2008 target is an estimated 60,000 acres protected. Because projects take an 

average of two years to complete, the FY 2008 target for “acres protected” is 

estimated using a three year average of costs per acre. 

• The 14 projects proposed for funding will likely conserve 97,000 acres of important 

forest resources over the course of FY 2008, FY 2009, and FY 2010. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-26 CF – Forest Legacy 

FY 2008 Proposed Forest Legacy Program 

(Order reflects rank in priority) 

Rank State Project Name Funding 

1 GA Paulding County Land area $3,500,000 

2 NH Ossipee Pine Barrens $2,380,000 

3 ME Lower Penobscot Forest $3,300,000 

4 AL Mobile Tensaw Delta $2,000,000 

5 TX Turkey Creek $1,500,000 

6 MI Northern Great Lakes Forest Project $2,000,000 

7 MN Koochiching $1,750,000 

8 VA Nottoway River $1,500,000 

9 MT North Swan River Valley $2,000,000 

10 UT Chalk Creek South Fork #2 $990,000 

11 HI Kealakekua Ranch $1,989,000 

12 WV South Branch $750,000 

13 TN Big Forks $1,000,000 

14 CT Skiff Mountain Phase II $581,000 

 

Administrative Funding (includes grants to 

states for program oversight & management) $4, 071,000 

 Total $29,311,000 

FY 2007 Program 

• Conserve 20,000 acres through conservation easements and fee simple purchases. 

o Projects were selected by a nationally competitive process. 

o Projects will be accomplished through strong partnerships that historically match 

Federal funds with up to a 50 percent match. 

• Provide technical and financial assistance to the 46 participating States and territories, 

including updating their state-wide Assessment of Need (AON). A number of new 

states are completing assessments and it is anticipated that one state may join the 

Forest Legacy Program in FY 2007. 

• Work with State agencies to identify significant projects through a process conducted 

with a broad-based State Forest Stewardship Coordinating Committee. 

FY 2006 Accomplishments 

• Protected 361,467 acres on 62 tracts of important forests through conservation 

easements and fee simple purchases, exceeding the target by more than 57 percent. 

o Acquired conservation easements on 311,079 acres from willing private forest 

landowners. 

o Acquired 50,388 acres through fee simple purchases. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-27 CF – Forest Legacy 

o Based on state estimates, the program prevented the parcelization of the 62 tracts 

into 19,342 separate tracts. 

• Added one new state to the program - Arkansas. 

• Hired a Forest Legacy Program appraiser for the Southern Region to review 

appraisals; ensuring they meet Federal appraisal standards, and to conduct quality 

assurance inspections of State appraisal procedures. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-28 CF – Urban and Community Forestry 

Budget Line Item Cooperative Forestry

Expanded Budget Line Item Urban and Community Forestry 

Urban & Community Forestry Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $28,413 $28,015 $166 -$306 -$10,439 $17,436 -37% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $28,413 $28,015 $166 -$306 -$10,439 $17,436 -37% 

Full Time Equivalents (FTEs) 58 57 -2 55 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Technical assists to communities 

(number of communities assisted)* 6,200 6,364 5,800 --- n/a

Volunteer assistance generated 

(days)* 220,000 223,688 220,000 --- n/a

Percentage of people living in 

communities managing programs to 

plant, protect, and maintain their urban 

and community trees and forests. 38% 37% 38% 37% -1%

Percentage of people living in 

communities developing programs 

and/or activities to plant, protect, and 

maintain their urban and community 

trees and forests. 35% 36% 35% 20% -15%

* Activity not tracked after FY 2007. 

FY 2008 Program Changes 

The FY 2008 budget request for Urban and Community Forestry is $17.4 million, a net 

program change of -$10.4 million or -37 percent from the FY 2007 Estimate. 

Program delivery, which had been providing financial, technical, and educational 

assistance to communities, will shift to providing technical and educational assistance, 

along with limited financial assistance on urban and community forest management. 

 

Program Description 

 

The Urban and Community Forestry (U&CF) program is unique within the agency 

because it specifically addresses forestry within communities and metropolitan areas 

where 80 percent of the Nation's population resides. The purpose of the program is to 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-29 CF – Urban and Community Forestry 

improve the condition and extent of trees and forests in cities, suburbs, and towns 

nationwide. This improvement is accomplished by providing technical, financial, 

educational, and research services to communities so they can plant, protect, and 

maintain their community trees and forests, and use the wood from these trees to 

maximize environmental, economic, and social benefits. The U&CF program is 

delivered primarily at the local community level through State forestry agencies, the 

program’s legislatively designated primary partner. 

U&CF provides technical and financial assistance to the cities, suburbs, and towns of all 

50 States, 9 U.S. territories, and affiliated Pacific Island nations, primarily through the 

State forestry agencies. The second part of this delivery mechanism functions through a 

diverse and continually expanding partnership network of local governments, community 

organizations, and volunteers who establish, restore, and maintain forest cover within 

communities nationwide. U&CF works with Research and Development, to conduct 

national assessments of urban forests and to develop and transfer tools and technologies 

that are used by groups, individuals, and organizations to better manage their community 

forests. 

States report that U&CF projects routinely attract one million hours or more of volunteer 

participation annually. States also report that local and State funds and resources, 

including volunteer resources, provide at least 3:1 in matching funding for Federal U&CF 

grants, exceeding the required 1:1 match. Projects supported with U&CF grants also help 

States and cities respond to changing demographics by increasing community 

involvement in tree planting and urban watershed restoration efforts and sponsoring 

environmental education targeted to children and adults from diverse cultural 

backgrounds. 

FY 2008 Plans 

• Provide technical and limited financial assistance to States, tribes, and other partners 

to enhance their ability to manage, protect, restore, and maintain urban forests and 

natural environments. 

• Track the program’s success in assisting communities to develop effective, selfsustaining U&CF programs. Monitor performance-based allocation and 

accomplishment reporting system focusing on communities that have attained one or 

more of the national performance measures: 1) hiring professional staff, 2) adopting 

tree ordinances and policies, 3) implementing an urban forest management plan, and 

4) establishing a local advocacy/advisory organization. 

• Provide technical and limited financial support to national nonprofit organizations 

and associations to continue outreach, education, and technical assistance activities in 

support of national, regional, state, and community urban and community forestry 

efforts. 

• Assist communities in the management of their urban and community forests and 

open spaces. Provide tools including the i-Tree urban and community forestry 

analysis and benefits assessment software, and provide technical assistance to 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-30 CF – Urban and Community Forestry 

communities on the Green Infrastructure approach to the establishment and 

conservation of urban and community forest and natural resource ecosystems. 

• Continue the national cost-share grant program in coordination with the National 

Urban and Community Forest Advisory Council (NUCFAC). 

FY 2007 Program 

• Provide technical and financial assistance to States, tribes, and other partners to 

enhance their ability to manage, protect, restore, and maintain their urban forests and 

natural environments. 

• Support Green Infrastructure training courses focusing on the Lower Mississippi 

Alluvial Valley and the western sub-basins of the Mississippi River Basin through the 

Conservation Fund, USDA National Agroforestry Center, and members of the 

National Association of Regional Councils and the Western Forestry Leadership 

Coalition. 

• Continue Urban Forest Health Monitoring (UFHM) pilot projects in Colorado and 

Tennessee. Complete pilot projects reports for Wisconsin, Maryland, Massachusetts, 

and New Jersey. The program, in conjunction with State partners, seeks to continue 

funding UFHM activities nationwide. 

• Continue the annual national cost-share grant program in coordination with 

NUCFAC. 

• Continue to improve the new Community Accomplishment Reporting System 

(CARS) by adding GIS mapping capability to provide visual tracking of program 

activities and accomplishments by Census defined places by State and nationwide. 

• Continue financial support for the i-Tree suite of urban and community forest benefits 

assessment and management tools. Technical assistance and training for i-Tree users 

will continue to be provided through the web, by phone, and train-the-trainer 

workshops. The i-Tree partnership will continue to distribute the i-Tree software 

upon request and make periodic updates available over the web site. It is anticipated 

that over 2,000 copies of i-Tree will be distributed to communities by the end of FY 

2007. 

FY 2006 Accomplishments 

• Assisted 6,364 communities with developing or established U&CF programs, in 

which over 164,000,000 people live, based on Census 2000 data. This population 

represents approximately 73 percent of the people living in communities with the 

potential to develop programs to care for their trees and urban forest resources. 

• Collected data for the second year in the Community Accomplishment Reporting 

System (CARS). CARS support the new U&CF program performance-based 

allocation methodology and accountability measures. All States, territories, and the 

District of Columbia responded with on-time reporting into the system. 

• Awarded, in cooperation with the NUCFAC, $791,797 in challenge cost-share grants 

to 12 organizations. The organizations matched those funds with an additional 

$834,056, resulting in a total investment of $1,625,853. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-31 CF – Urban and Community Forestry 

• Provided grants to multiple national nonprofit organizations and associations to 

continue their outreach, education, and technical assistance activities in support of 

national, regional, state, and community level urban and community forestry efforts. 

• Released i-Tree, a new suite of urban and community forest benefits assessment and 

management tools, developed by Forest Service research scientists. U&CF and 

Research and Development formed a unique partnership with nonprofit organizations 

and a private sector company to disseminate this tool to communities and to deliver 

training and technical assistance. By the end of FY 2006, the partnership distributed 

over 600 copies of i-Tree software to communities across the Nation. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-32 CF – Economic Action Programs 

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Economic Action Programs 

Economic Action Programs Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $9,537 $9,404 $0 $0 -$9,404 $0 -100% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $9,537 $9,404 $0 $0 -$9,404 $0 -100% 

Full Time Equivalents (FTEs)* 5 5 -5 0 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Includes 1 FTE under National Fire Plan 

FY 2008 Program Changes 

No funding is proposed in the FY 2008 President’s Budget request for Economic Action 

Programs. 

Because other USDA Rural Development programs, such as Business and Industry 

guaranteed loans; Intermediary Relending Program; and Cooperative Development 

Grants, can address priority needs in rural areas via several programs that assist forestbased industries, the FY 2008 budget proposes no funding for this program. In addition, 

the President’s Management Agenda calls for significant increases in stewardship 

contracting that will benefit local businesses by allowing private companies, communities 

and others to retain forest and rangeland products in exchange for the service of thinning 

trees and brush and removing dead wood. This fosters a public/private partnership to 

restore forest and rangeland health by giving those who undertake the contract the ability 

to invest in equipment and infrastructure. 

Program Description 

Economic Action Programs (EAP) build capacity within communities to take strategic 

action and effectively engage in and contribute to the sustainable management of natural 

resources from the local to national level. The program roles of EAP include: 

• Enhance the ability of private enterprises to treat forestland, utilize restoration byproducts, and meet energy resource needs. 

• Stimulate local community action to care for forests and grasslands. 

• Develop collaborative actions across ownership or agency boundaries. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-33 CF – Economic Action Programs 

FY 2008 Plans 

None. 

FY 2007 Program 

Continue to manage prior-year grants and projects. 

FY 2006 Accomplishments 

Successfully implemented all planned projects, except the grant for Custer County, Idaho, 

which was not authorized. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-34 CF – Forest Resources Information 

 and Analysis 

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Forest Resources Information and Analysis 

Forest Resources Information & Analysis Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $4,588 $4,524 $0 $0 -$4,524 $0 -100% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $4,588 $4,524 $0 $0 -$4,524 $0 -100% 

Full Time Equivalents (FTEs) 17 17 -17 0 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2008 Program Changes 

In FY 2008 no funding is proposed for Forest Resources Information and Management. 

Prior to FY 2008, the Forest Inventory and Analysis (FIA) program delivery has been 

based on funding from both Forest and Rangeland Research and State and Private 

Forestry (S&PF). Beginning in FY 2008, the FIA program delivery will fall solely under 

Forest and Rangeland Research. 

Program Description 

The Forest Resources Information and Analysis budget provides funding to support the 

implementation of the Forest Inventory and Analysis (FIA) program. FIA is the Nation’s 

forest census, reporting on status and trends in the Nation’s forested resources. State and 

Private Forestry utilizes FRIA funds to provide cost-share financial assistance to States in 

coordination with Research and Development’s FIA program. FIA is the only resource 

inventory program that monitors the extent, condition, uses, impacts of management, and 

health of forest ecosystems across all ownerships of the United States. The goal is to 

accelerate the inventory cycle in all participating States. 

FY 2008 Plans 

• No funding is proposed for this program in FY 2008. 

FY 2007 Program 

• Support the FIA annual forest inventory program in 46 States. 

• Release a new corporate database of annual inventory data for public use that enables 

more powerful analyses of change and trend information and forest health data. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-35 CF – Forest Resources Information 

 and Analysis 

FY 2006 Accomplishments 

• Implemented the FIA’s annual forest inventory program in 46 States, as well as the 

Caribbean and Pacific Islands. 

• Developed the National Information Management System for managing all fieldsampled data. 

• Developed a web-based data compilation and analysis engine allowing users to access 

data and results in a consistent manner across the country. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-36 International Forestry 

Budget Line Item International Forestry

International Forestry Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $6,886 $6,790 $67 -$58 -$4,299 $2,500 -63% 

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 

Total Enacted Budget Authority $6,886 $6,790 $67 -$58 -$4,299 $2,500 -63% 

Full Time Equivalents (FTEs) 24 24 -11 13 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Acres of migratory habitat restored 130,000 130,000 130,000 65,000 -65,000

FY 2008 Program Changes 

The FY 2008 budget request for International Forestry is $2.5 million, a net program 

change of -$4.3 million or -63 percent from the FY 2007 Estimate. There are 13 FTEs 

in the program in FY 2008, a decrease of 11 FTEs from the FY 2007 Estimate. 

International Programs will continue to leverage funding from diverse partners as it has 

successfully done over the past ten years. The program receives full funding for the 

Disaster Assistance Support Program from the U.S. Agency for International 

Development, Office of Foreign Disaster Assistance. Additional resources and funding 

for technical and policy collaboration came from sources for technical and policy 

collaboration include the U.S. Department of State, numerous non-governmental 

organizations, the U.S. Agency for International Development (USAID), and host 

country institutions. Financial support from partner organizations increased over the past 

10 years, accounting for nearly 60 percent of International Forestry funding outside of the 

Congressional appropriation. 

Program Description 

International Forestry coordinates the expertise of Forest Service land managers and 

scientists through overseas assignments in technical cooperation, policy assistance and 

disaster response. The focus is on key natural resource issues in countries with 

significant forest resources and important forest product related trade with the United 

States. The program has five major components centered on the mission of productive 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-37 International Forestry 

engagement with domestic and international partners that lead to improved natural 

resource management worldwide which are: 

Conserving migratory species habitat: Critical habitat for many migratory species 

is diminishing worldwide, threatening their survival. These species and their 

habitats are important both ecologically and economically. Much of this activity 

centers on species that migrate to areas outside the U.S. where riparian and 

wetland areas are not adequately protected. International Forestry supports 

domestic habitat restoration to reverse the decline of many species, an investment 

that is lost when the winter habitat of these birds in other countries is unprotected. 

Promoting balance in global timber trade: As one of the world's largest traders in 

forest products, the U.S. is a key negotiator on environmental and trade issues, 

both of which impact the viability of forests. Without this input, other countries 

can produce forest products for the world market without adequate environmental 

protection standards. Since their prices do not reflect the full cost of regeneration, 

countries can ‘dump’ underpriced forest products on the market, hurting 

competitiveness of U.S. industries. Even more damaging to the U.S. producers is 

the stream of illegal wood that enters the market. The Forest Service plays a key 

role in the President’s Initiative on Illegal Logging by cooperating with the U.S. 

State Department and several non-governmental organizations to address the large 

volume of illegally sourced timber and associated forest products and to promote 

legal sourcing of timber in China, Russia and Indonesia. The Forest Service 

offers policy training and technical assistance to overseas partners in all areas of 

sustainable forest management. 

Mitigating impacts from invasive species: Numerous invasive plant and animal 

species that have been introduced from foreign countries pose risks to forests, 

rangelands and grasslands in the United States. The Asian Long-Horned Beetle 

alone could inflict billions of dollars of loss to the U.S. economy if the pest 

spreads across the country. International Forestry works with overseas partners to 

prevent new introductions of invasive pests and to develop reliable mitigation 

practices for established invasive species. 

The Disaster Assistance Support Program (DASP): Established in 1985, DASP 

provides the USAID, Office of Foreign Disaster Assistance with emergency 

response logistical support, aviation management, telecommunications, disaster 

preparedness planning and training, and on-site coordination support during active 

disasters. DASP developed the International Assistance System for coordinating 

international assistance provided in response to domestic disasters in cooperation 

with the Federal Emergency Management Agency. 

Developing market based strategies to mitigate climate change: The Forest 

Service is engaged internationally to gain information on developing market 

based strategies that mitigate climate change. In moving away from centralized 

management of forests, some countries overseas have pioneered market based 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-38 International Forestry 

innovations. These include carbon trading which has potential application here as 

the U.S. further develops market for carbon sequestration. 

Independent Reviews 

International Forestry will develop performance measures in cooperation with external 

partners and the Office of Management and Budget during FY 2007 for implementation 

in FY 2008. 

FY 2008 Plans 

• Trade and economic policy promoting sustainable forest management: the Forest 

Service supports the President’s Initiative on Illegal Logging through cooperation 

with the U.S. State Department and several non-governmental organizations and will 

convene workshops to address the large volume of illegally sourced timber and 

associated forest products. 

• Invasive species mitigation: continue ongoing efforts to prevent invasive plant and 

animal species introductions from foreign countries through management and 

research activities that address international issues on detection, eradication, and 

control of invasive species that are established in, or are likely to be introduced into, 

the United States. 

• Conservation of migratory species habitat: support ongoing programs and overseas 

partnerships addressing habitat restoration and protection on 65,000 acres overseas 

for U.S. migratory birds and other identified key species. 

• Disaster Assistance Support Program: with full funding for the Disaster Assistance 

Support Program from the USAID, Office of Foreign Disaster Assistance, the DASP 

will continue ongoing programs and partnerships, while providing opportunities for 

Forest Service employees to respond to foreign disasters. Focus on technical 

assistance, systems development, and adaptation of the Incident Command System 

(ICS) to the international humanitarian context, as well as to provide emergency 

response training, equipment and supplies as directed. 

• Developing market based strategies to mitigate climate change: International 

Forestry will help fund a meeting, to be hosted by Russia, of the heads of forestry 

agencies from large, forested countries in the world including Canada, Mexico Brazil, 

Indonesia, China, India, Russia and countries in the Congo Basin. These countries 

together represent about 60 percent of the world’s forest cover. The meeting will 

focus on the probable impact of climate change on forests, mitigation measures, and 

improved carbon sequestration on forests to avoid deforestation. An important 

element of the discussion will be a comparison of market based mechanisms that 

facilitate carbon sequestration. The hope is to find ways, including market based 

mechanisms, to maintain carbon sequestration in the Russian Boreal Forest-the 

largest contiguous forest on earth. 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-39 International Forestry 

FY 2007 Program 

• Continuation of ongoing technical support programs, training and partnerships, both 

domestically and overseas, addressing sustainable forest management, habitat 

restoration and protection for migratory birds and other species on existing and 

potential U.S. threatened species lists with the continuing expectation for 

collaborative restoration of 130,000 acres of migratory species habitat. 

• Provide ongoing support to Forest Service research and development for mitigation 

practices and control strategies for invasive pests that are likely to affect the U.S., as 

well as for species currently active in the U.S. in support of the USDA Forest Service 

National Strategy and Implementation Plan for Invasive Species Management. 

Support a biocontrol workshop in China that is co financed by the FS Forest Health 

Management Program. The Chinese are matching funds and resources in order to 

make sure that all the biocontrol research on existing invasives are shared and 

vetted—which could save millions of dollars in future mitigation stateside. Further, 

International Forestry is currently assisting the Chinese in Yunnan Province, the 

source of many existing invasive species in the US such as Sudden Oak Death, with 

improved forest health monitoring and documentation of their pests and diseases. 

This effort will assist us to identify potential invasives not yet in the US, and it is 

hoped to develop prevention and control before they arrive here. 

• For the DASP, ongoing support to international disaster response and emergency 

management efforts, with partner funding from the USAID, Office of U.S. Foreign 

Disaster Assistance. Work will focus on adaptation of the ICS to the international 

context, and provision of unique technical and emergency management skills and 

resources to support disaster responses worldwide. 

FY 2006 Accomplishments 

• Collaborated on mitigation practices and control strategies for invasive pests that are 

likely to affect the U.S., as well as for species currently active in the U.S. in support 

of the USDA Forest Service National Strategy and Implementation Plan for Invasive 

Species Management. 

• Supported programs and partnerships overseas addressing 130,000 acres of habitat for 

their restoration and protection for migratory birds and other species on existing and 

potential U.S. threatened species lists. 

• Leveraged more than $12 million in funding from the U.S. Agency for International 

Development, the State Department and other organizations. With this almost two to 

one match, we partnered on joint projects with Ducks Unlimited Inc., The Nature 

Conservancy and others who themselves leverage much more funding. 

• The DASP developed the International Assistance System concept of operations for 

use in coordinating international assistance to domestic disasters, which was an 

outcome from findings after hurricanes Katrina and Rita in 2005. DASP responded to 

the South Asia earthquake, to ongoing drought in Ethiopia, to the armyworm outbreak 

in Tanzania and supported the USDA in avian flu response planning. Supported 

international disaster response and emergency management activities. Work focused 

on technical assistance, training and systems development. Major products included 
FY 2008 Budget Justification USDA Forest Service

State and Private Forestry 8-40 International Forestry 

a new release of an updated and improved Field Operations Guide for Disaster 

Assessment and Response (FOG), an industry standard reference guide for 

international disaster responders. 
National Forest 

System 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-1 

Appropriation National Forest System 

National Forest System Increase or Decrease Program 

 Appropriation FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $1,415,646 $1,443,659 $28,709 -$61,338 -$66,653 $1,344,377 -5% 

Emergency & Supplemental 

Appropriations* $40,000 $0 $0 $0 $0 

Total Enacted Budget Authority $1,455,646 $1,443,659 $28,709 -$61,338 -$66,653 $1,344,377 -5% 

Full Time Equivalents (FTEs) 11,965 12,043 10,956 

Enacted Budget Authority by EBLI 

Land Management Planning $57,675 $57,547 $1,054 -$2,341 -$3,653 $52,607 -6% 

Inventory & Monitoring $166,638 $166,269 $2,882 -$6,336 -$16,353 $146,462 -10% 

Recreation, Wilderness & Heritage $258,797 $260,648 $5,882 -$11,069 -$24,061 $231,400 -9% 

Wildlife & Fish Management $131,734 $131,443 $2,749 -$5,613 -$10,946 $117,633 -8% 

Grazing Management $47,826 $47,720 $1,100 -$2,313 $518 $47,025 1% 

Forest Products $277,583 $310,114 $6,562 -$14,629 $16,515 $318,562 5% 

Vegetation & Watershed Management $179,852 $179,454 $3,400 -$7,421 -$21,111 $154,322 -12% 

Minerals & Geology Management $84,164 $83,978 $1,312 -$3,050 -$11,405 $70,835 -14% 

Landownership Management $90,932 $90,731 $1,874 -$3,954 -$7,811 $80,840 -9% 

Law Enforcement Operations $110,937 $110,692 $1,894 -$4,612 $15,867 $123,841 14% 

Valles Caldera $5,074 $5,063 $0 $0 -$4,213 $850 -83% 

Centennial of Service Challenge $4,434 $0 $0 $0 $0 $0 --- 

FY 2007 funding based on annualizing Continuing Resolution (CR) amount. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* Emergency FY 2006 includes $20,000,000 funding for hurricane damage related projects included in P.L. 109-148 and $20,000,000 in P.L. 109-234 

National Forest System Programs 

The National Forest System (NFS) appropriation provides funds for the stewardship and 

management of 193 million acres of Federal lands. These lands make up one of the 

Nation’s most unique public land legacies. 

Land Management Planning 

Land management plans establish a framework for conforming to laws and regulations 

governing National Forest System management. Land management planning is focused 

on the concept of sustainability under planning regulations that require national forests 

and grasslands to conduct evaluations addressing ecological, social, and economic issues 

of broad geographic scale. Land management plans may be continuously updated 

through amendments or revisions and are required by the National Forest Management 

Act (NFMA) to be formally revised every 10 to 15 years to address changing conditions 

related to natural resources, management goals, new science findings, and public use. A 

land management plan provides a framework for natural resource management activities 

and for project and activity-level planning at the forest and ranger district levels. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-2 

Inventory and Monitoring 

Inventory and Monitoring funds resource inventories, ecosystem assessments, 

monitoring, and both annual and comprehensive evaluations, management of Forest 

Service Natural Resource Applications (FSNRAs) and corporate Geographic Information 

Systems (GIS), and resource mapping activities conducted in support of the creation, 

revision, and amendment of land management plans. It also funds the establishment and 

the general coordination costs associated with Environmental Management Systems 

(EMS), collection of tabular and spatial information in support of land management 

planning, as well as actual broad scale and landscape scale ecosystem assessment 

activities. 

Resource inventories are designed to meet land management planning needs and 

contribute towards achieving a number of the agency’s strategic goals and objectives. 

Monitoring and evaluation activities provide information that supports land management, 

while specific resource condition information is used in national assessments. Broad 

scale ecosystem assessments are conducted at forest-wide or larger scales, and focus on 

analyzing and providing information that assists the agency in revising, creating, or 

amending land management plans. They are used to identify and prioritize projects 

implementing land management plans. 

Recreation, Heritage, and Wilderness 

The Forest Service Recreation program provides a wide range of recreation settings, 

services, and delivery systems available to the public that are consistent with good land 

stewardship. The agency hosted over 192 million visits on national forests in FY 2005, 

in activities such as camping, picnicking, winter sports, hunting, fishing, and visiting of 

cultural sites. The Federal Lands Recreation Enhancement Act of 2005, replaced the 

Recreation Fee Demonstration program, and supports the Recreation program by 

supporting on-the-ground operations, maintenance, and improvements. 

The Recreation program oversees the management and administration of developed 

recreation sites including campgrounds and day-use areas, recreation special use 

authorizations such as ski areas, lodges and resorts, and outfitter-guides. The Wilderness 

program manages wilderness areas and wild and scenic rivers designated under the 

National Wilderness Preservation System and the National Wild and Scenic River 

System. The Heritage program provides protection of significant heritage resources, and 

provides interpretive, educational, site stewardship, and scientific and technical 

information to governmental entities, the public, and tribes on land and resource 

management 

Wildlife and Fisheries Habitat Management 

National forests and grasslands provide habitat for thousands of vertebrate, invertebrate 

and plant species. Essential work performed on national forests and grasslands includes 

managing habitats and providing the ecological conditions necessary to maintain the 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-3 

diversity, viability, and productivity of plant and animal communities, and to provide for 

their use and enjoyment by current and future generations. In addition, over 200,000 

miles of fishable streams are located within national forest and grasslands, including over 

50 percent of the Nation’s premier trout and salmon habitat, over 2 million acres of lakes, 

and 5 million acres of wetlands. 

Annually, approximately 40 million visits on national forests are primarily for hunting, 

fishing, or wildlife viewing. Implementation of this program results in enhanced 

opportunities for consumptive, commercial, subsistence, and other beneficial uses of fish 

and wildlife resources. It also provides for non-consumptive uses such as wildlife 

viewing and photography, appreciation of nature, and outdoor education. 

Grazing Management 

The Grazing Management program manages the vast and diverse rangeland resources on 

approximately 92 million acres of National Forest System (NFS) lands to maintain a 

sustainable supply of forage for livestock and wildlife. The program seeks to maintain 

open space and habitat connectivity by linking NFS grazing authorizations to privately 

owned lands managed for agricultural production; and to support the nations’ rural 

communities by helping sustain the ranching and farming lifestyle with their associated 

family values. 

The Grazing Management program prepares environmental analyses NEPA for making 

subsequent decisions for allotment management, including implementation of the 

adaptive management strategies incorporated into many decisions and administering 

grazing allotments for compliance with land management plans, and any biological 

opinions issued by the U.S. Fish and Wildlife Service for those grazing permits. 

Forest Products 

The timber sale component of the Forest Products program is an important tool for 

accomplishing vegetation management objectives on national forest lands and also 

provides a supply of forest products to society. Timber sales provide the means to 

accomplish changes in forest structure that can improve wildlife habitat, and also help 

accomplish large-scale watershed restoration needs by reducing accumulated ground and 

ladder. Timber sales also provide employment opportunities for sustaining local 

communities. The Forest Products program also provides special forest products desired 

by the public, including fuelwood, Christmas trees, greenery, poles and posts, medicinal 

plants, and native species for transplanting. 

Stewardship contracting is another important tool for accomplishing resource 

management objectives, such as fuels reduction, while providing jobs for communities 

and products for the consumer. This tool will be important in implementing the Healthy 

Forests Restoration Act of 2003. The stewardship contracting authority provides some 

innovative approaches, such as the exchange of goods for services and the application of 

excess receipts from one contract to other stewardship projects. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-4 

Vegetation and Watershed Management 

The Vegetation and Watershed Management program focuses on restoration, 

enhancement, and maintenance of watershed conditions, and includes management of 

soil, air, water, and forest and rangeland vegetation. Management of these basic 

biological and physical resources is the basis for many of the benefits derived from NFS 

lands, including improved wildlife and fish habitat, improved range and forest stand 

conditions, improved water quality and timing of flows, and cleaner air. 

This program includes reforestation and timber stand improvement treatments, which are 

important activities for restoring lands affected by wildfires; replanting following timber 

harvest; controlling stand density, species composition, and structure; and reducing 

woody fuels. This program also includes a major component of invasive plant (both 

aquatic and terrestrial) management activities across the NFS, including noxious weed 

management activities. 

Minerals and Geology Management 

Program emphasis for the Minerals and Geology Management program is given to 

inspection and monitoring of mineral operations; environmental review of proposed 

operations; providing professional expertise in sustainable forest management, watershed 

health, and public safety; and management of significant geologic resources. In support 

of the National Energy Policy, the program is focused on reducing the backlog of oil and 

gas lease nominations and applications for permits to drill. The geologic component 

provides information on geologic and paleontologic conditions for land management 

decisions and project design, evaluates resources such as ground water, and protects sites 

having scientific or educational use. 

The Environmental Compliance and Protection (ECAP) program provides for the cleanup 

of hazardous substances on national forest lands to improve and protect watershed 

conditions and human and ecological health. The Abandoned Mine Land (AML) 

program focuses specifically on cleaning up abandoned mines in high priority 

watersheds. In addition to cleanup projects, the program is establishing an environmental 

management system that includes environmental compliance audits to systematically 

improve environmental performance of the agency. 

Landownership Management 

The Landownership Management program protects national forest lands and resources 

through legally defensible and marked land boundaries, secure title and ownership, land 

adjustment, and land use. Land consolidation through acquisition or exchange enables 

the agency to better manage Federal lands within or adjacent to national forest boundaries 

and to help reduce future management costs; respond to urban and community needs; 

address fragmentation; promote conservation; and improve aquatic, forest, and rangeland 

ecosystems. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-5 

Administrative benefits are achieved by minimizing land survey and fire management 

costs, reducing national forest boundaries, protecting property rights, acquiring rights-ofway, authorizing special land uses, and simplifying road management. Many of these 

activities are essential to local economies; the sustainable supply of goods and services; 

and for the public’s enjoyment, future use, and access to NFS lands. 

Law Enforcement Operations 

The Forest Service Law Enforcement and Investigations program is charged with 

providing a patrol presence and prompt response to public and employee safety incidents 

and violations of laws and regulations on national forest lands, as well as protecting 

natural resources and other property under the agency’s jurisdiction. Law enforcement 

cooperates with other Federal, State, and local law enforcement agencies and other Forest 

Service programs to accomplish these goals, to conduct criminal investigations, and to 

reduce the production and smuggling of cannabis and other controlled substances on NFS 

lands. 

Valles Caldera National Preserve 

The Valles Caldera Preservation Act (P.L. 106-248) was established to protect and 

preserve the scientific, scenic, geologic, watershed, fish, wildlife, historic, heritage, and 

recreational values on the Preserve, and to provide for multiple use and sustained yield of 

renewable resources within its boundaries. In addition, the Act requires the tract to 

continue to be managed as an operating ranch. The Valles Caldera Trust, a government 

corporation, assumed management of the Preserve in August 2002, and is responsible for 

its own financial management. While the Trust continues to become fully functional, the 

appropriation will be used for management of the Preserve. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-6 Land Management Planning

Budget Line Item Land Management Planning

Land Management Planning Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $57,675 $57,547 $1,054 -$2,341 -$3,653 $52,607 -6% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $57,675 $57,547 $1,054 -$2,341 -$3,653 $52,607 -6% 

Full Time Equivalents (FTEs) 427 416 -32 384 

Estimated Funding by Activity 

Maintain Land Management Plans $22,576 $35,543 $656 -$1,457 -$2,936 $31,806 -8% 

Create/Revise Land Management Plans $35,099 $22,004 $398 -$884 -$717 $20,801 -3% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Number of land management plan 

amendments underway 33 23 33 40 7 

Number of land management plan 

revisions or creations underway 51 50 41 33 -8

 

FY 2008 Program Changes 

The FY 2008 budget request for Land Management Planning is $52.6 million, a net 

program change of -$3.6 million, or -6 percent from the FY 2007 Estimate. There are 

384 FTEs in the program for FY 2008, a decrease of 32 FTEs from the FY 2007 

Estimate. 

Program priorities in Land Management Planning include completing plan revisions 

under the 2005 Planning Rule, conducting roadless area evaluations and rulemaking, and 

completing critical plan amendments. 

Specific priorities for each activity are as follows: 

Maintain Land Management Plans – The agency will complete 40 plan amendments 

addressing critical issues. Some units with completed plan revisions will conduct 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-7 Land Management Planning

comprehensive evaluations to determine whether their plans need to be updated. This 

evaluation will begin the transition to the continuous planning mode envisioned under 

the 2005 Planning Rule. 

Create/Revise Land Management Plans – Priority will continue to be placed on 

completing the 16 plan revisions scheduled for FY 2008. The agency intends to 

complete all of the 41 revisions currently underway by the end of FY 2009. 

Program Description 

The National Forest Management Act (NFMA) requires that each unit of the National 

Forest System (NFS) have a land management plan (LMP) that may be continuously 

amended, as appropriate, but is formally revised every 10 to15 years to address changing 

conditions and new information related to natural resources, management goals, and 

public use. These plans establish a framework for conforming to laws and regulations 

governing national forest and grassland management such as the Multiple-Use Sustained 

Yield Act, Clean Air Act, Clean Water Act, Endangered Species Act, and other laws. 

There are 127 land management plans (LMPs) that have been created under the 

requirements of the NFMA to guide the management of 155 national forests, 20 

grasslands, and other unique units of the National Forest System (e.g., Lake Tahoe Basin 

Management Unit, Midewin Tallgrass Prairie, and Land Between the Lakes National 

Recreation Area). Revisions of specific plans have been underway since the late 1980’s 

and the first plan revision on the George Washington National Forest was completed in 

1993. Through the end of FY 2006, 52 plans have been revised and 2 new plans created, 

which is about 40% of the total. All of these plans were developed and revised under the 

1982 Planning Rule. Two plans scheduled to be completed in FY 2007 will also be 

completed under the 1982 Rule because the forest supervisors chose not to transition to 

the 2005 Rule due to progress made with the public under the 1982 Rule. All other plan 

revisions underway (39) and revisions not yet started (33) will be completed under the 

2005 Planning Rule. It is expected that the first round of revisions will be completed by 

FY 2014. 

The Land Management Planning budget line item consists of the following activities: 

Maintain Land Management Plans - Forest Plan Maintenance includes: (amendments, 

corrections, adjustments) including any analysis needed after legal notice initiating an 

amendment. This activity also includes all appeals, litigation, and objections to forest 

plan amendments and requests under the Data Quality Act for correction of data used 

in these activities. 

Create/Revise Land Management Plans - Includes all work activities associated with 

plan revision and creation and including those identified in the 2005 Planning Rule 

(e.g., public involvement, development of plan components, content analysis of 

public comments, etc.). This activity also includes all appeals, litigation, and 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-8 Land Management Planning

objections to forest plan revisions and creations and requests under the Data Quality 

Act for correction of data used in these activities. 

FY 2008 Plans 

Maintain Land Management Plans

• Complete 40 LMP amendments for addressing the results of the DOI EIS on energy 

corridor location which are limited in scope and more cost effective due to 

standardization. 

• Implement a broad range of NEPA policy and implementation improvements in 

support of land management planning and monitoring. 

• Continue implementation of the 2005 Planning regulations and directives. 

Create/Revise Land Management Plans 

• Complete 16 national forest or grassland LMP revisions. (See the Land Management 

Plan – First Round Revision Status table listed below for the national forests or 

grasslands.) 

FY 2007 Program 

Maintain Land Management Plans

• Initiate a broad range of NEPA policy and implementation improvements in support 

of land management planning and monitoring. 

• Complete 33 LMP amendments. 

• Complete policy directives and guidance for implementing the 2005 Planning Rule. 

Create/Revise Land Management Plans

• Complete 8 LMP revisions (national forests or grasslands). 

• Continue LMP revisions on 33 national forests and grasslands. 

FY 2006 Accomplishments 

Maintain Land Management Plans

• Completed 37 LMP amendments. 

• Completed NFMA planning regulations. 

Create/Revise Land Management Plans 

• Initiated 12 LMP revisions (national forests or grasslands) 

• Completed 9 LMP revisions (national forests or grasslands) 

• Continued revision work on 41 LMPs (national forests or grasslands) 

(See the Land Management Plan – First Round Revision Status table listed below for 

the national forests or grasslands.) 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-9 Land Management Planning

Land Management Plan Revisions - Status and Due Dates 

The National Forest Management Act (NFMA) requires that each unit of the National 

Forest System have a land management plan (LMP) that is formally revised at least every 

15 years. It takes 5 to 6 years to develop a new LMP or revise an existing LMP under the 

1982 planning regulations. Under the 2005 Planning Rule, LMP revisions will take about 

3 years to complete; however, those which were initiated under the 1982 Rule, and are 

transitioning to the 2005 Rule, are taking longer because of the need to work with the 

public on making the changes the new rule requires. A comprehensive evaluation will 

also be completed every five years or in advance of a revision or amendment to 

determine the need to change a plan and provide focus for the revision or amendment. 

The NFMA planning process is complex and schedules are sometimes determined by 

court decisions and direction. A national LMP revision schedule that identifies an even 

flow of LMP revision work was developed, and is periodically updated and posted on the 

Forest Service Ecosystem Management Coordination Staff website at 

www.fs.fed.us/emc/nfma/index.htm. This schedule focuses the timing of future revision 

efforts around groups of neighboring national forests with similar ecological, social, and 

economic issues. This enables the agency to achieve process efficiencies and improve 

the effectiveness of collaboration with the public. The national schedule also considers 

current litigation and settlements in prioritizing revisions. 

The following exhibit displays the current status of LMP revisions for each unit 

according to the national revision schedule. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-10 Land Management Planning

Land Management Plan – First Round Revision Status 

 

Northern Region 

Region 1 

13 units 

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Beaverhead-Deerlodge X 

Bitterroot X 

Clearwater X 

Custer X 

Dakota Prairie Grasslands X 

Flathead X 

Gallatin X 

Helena X 

Idaho Panhandle X 

Kootenai X 

Lewis & Clark X 

Lolo X 

Nez Perce X 

Regional Total 1 6 2 0 0 4 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-11 Land Management Planning

Land Management Plan – First Round Revision Status (Continued) 

Rocky Mountain Region 

Region 2 

14 units 

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Arapaho-Roosevelt X 

Black Hills X 

Bighorn X 

Cimarron-Comanche 

National Grassland X 

Grand Mesa, Uncompahgre, 

Gunnison X 

Medicine Bow X 

Nebraska X 

Pike-San Isabel X 

Rio Grande X 

Routt X 

San Juan X 

Shoshone X 

Thunder Basin 

National Grassland X 

White River X 

Regional Total 9 1 2 0 2 0 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-12 Land Management Planning

Land Management Plan – First Round Revision Status (Continued) 

Southwest Region 

Region 3 

12 units 

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Apache-Sitgreaves X 

Carson X 

Cibola X 

Cibola (National Grassland) X 

Coconino X 

Coronado X 

Gila X 

Kaibab X 

Lincoln X 

Prescott X 

Santa Fe X 

Tonto X 

Regional Total 0 0 0 0 7 5 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-13 Land Management Planning

Land Management Plan – First Round Revision Status (Continued) 

Intermountain Region 

Region 4 

14 units

Revisions 

completed 

prior to FY

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Ashley X

Boise X 

Bridger-Teton X 

Caribou X 

Dixie X 

Fishlake X 

Humboldt–Toiyabe XX X 

Manti-La Sal X 

Payette X 

Sawtooth X 

Salmon-Challis X 

Targhee X 

Uinta X 

Wasatch-Cache X 

Regional Total 7 0 4 0 2 1
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-14 Land Management Planning

Land Management Plan – First Round Revision Status (Continued) 

Pacific Southwest Region 

Region 5 

18 units 

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Angeles X 

Cleveland X 

Eldorado X 

Inyo X 

Klamath X 

Lake Tahoe Basin X 

Los Padres X 

Lassen X 

Mendocino X 

Modoc X 

Plumas X 

San Bernardino X 

Sequoia X 

Shasta-Trinity X 

Sierra X 

Six Rivers X 

Stanislaus X 

Tahoe X 

Regional Total 4 0 0 0 3 11 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-15 Land Management Planning

Land Management Plan –First Round Revision Status (Continued) 

Pacific Northwest Region 

Region 6 

19 units 

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Colville X 

Deschutes X 

Fremont X 

Gifford Pinchot X 

Malheur X 

Mt. Baker Snoqualmie X 

Mt. Hood X 

Ochoco X 

Okanogan X 

Olympic X 

Rogue River X 

Siskiyou X 

Siuslaw X 

Umatilla X 

Umpqua X 

Wallowa-Whitman X 

Wenatchee X 

Willamette X 

Winema X 

Regional Total 0 0 6 0 2 11 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-16 Land Management Planning

Land Management Plan – First Round Revision Status (Continued) 

Southern Region 

Region 8 

19 units 

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Caribbean X 

Chattahoochee-Oconee X 

Cherokee X 

Croatan X 

Daniel Boone X 

Francis Marion X 

George Washington X 

Jefferson X 

Kisatchie X 

Land Between the Lakes 

NRA (new plan) X 

Nantahala-Pisgah X 

NFs in Alabama X 

NFs in Florida X 

NFs in Mississippi X 

NFs in Texas X 

Ouachita X 

Ozark-St. Francis X 

Sumter X 

Uwharrie X 

Regional Total 16 0 2 0 0 1
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-17 Land Management Planning

Land Management Plan – First Round Revision Status (Continued) 

Eastern Region 

Region 9 

16 units 

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Allegheny X 

ChequamegonNicolet X 

Chippewa X 

Finger Lakes X 

Green Mountain X 

Hiawatha X 

Hoosier X 

Huron-Manistee X 

Mark Twain X 

Midewin National Tallgrass 

Prairie (new plan) X 

Monongahela X 

Ottawa X 

Shawnee X 

Superior X 

Wayne X 

White Mountain X 

Regional Total 15 1 0 0 0 0 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-18 Land Management Planning

Land Management Plan – First Round Revision Status (Continued) 

Alaska Region 

Region 10 

2 units

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Chugach X 

Tongass X 

Regional Total 2 0 0 0 0 0 

All Regions 

127 units 54 8 16 0 16 33 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-19 Land Management Planning

Land Management Plans – Second Round of Revisions 

Intermountain 

Region 

Region 4 

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Caribou Y 

Regional Total 0 0 0 0 0 1 

Southern Region 

Region 8 

Revisions 

completed 

prior to FY 

2007 

Revisions 

expected 

to be 

completed 

in FY 2007

Revisions

expected 

to be 

completed 

in FY 2008

Revisions 

to be 

initiated in

FY 2008 

Revisions 

continuing 

in 

FY 2008 

Revisions

beginning 

between 

FY 2009 to 

FY 2011 

Francis Marion Y 

George Washington Y 

Regional Total 0 0 0 0 1 1 

All Regions 0 0 0 0 1 2 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-20 Inventory & Monitoring 

Budget Line Item Inventory and Monitoring 

Inventory & Monitoring Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $166,638 $166,269 $2,882 -$6,336 -$16,353 $146,462 -10% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $166,638 $166,269 $2,882 -$6,336 -$16,353 $146,462 -10% 

Full Time Equivalents (FTEs) 1,189 1,177 -175 1,002 

Estimated Funding by Activity* 

Resource Inventories for Planning & Assessments $25,393 --- --- --- --- --- 

Manage Natural Resource Information System $36,436 --- --- --- --- --- 

Conduct Strategic Resource Inventories --- $71,496 $1,304 -$2,867 -$3,655 $66,278 -5% 

Monitor & Evaluate LMPs & Resource Condition $45,806 --- --- --- --- --- 

Conduct Land Management Plan Monitoring --- $83,135 $1,577 -$3,468 -$1,060 $80,184 -1% 

Conduct Landscape Scale Ecosystem Assessments $48,258 --- --- --- --- --- 

Conduct Broad Scale Ecosystem Assessments $10,745 --- --- --- --- --- 

Conduct Ecosystem Assessments --- $11,638 $0 $0 -$11,638 $0 -100% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Activities redefined for FY 2007. Resource Inventories and Natural Resource Information Systems are combined into Conduct 

Strategic Resource Inventories. Landscape Scale and Broad Scale Ecosystem Assessments have been combined into Conduct Ecosystem

Assessments. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Acres of inventory data collection 

and entry completed* 30,273,000 28,781,899 --- --- ---

Acres of legacy data migrated* 73,285,000 6,807,747 --- --- ---

Acres of inventory data collected and 

acquired --- --- 16,362,000 14,600,000 -1,762,000

Number of annual monitor and 

evaluation reports completed 90 84 --- --- ---

Number of annual monitoring 

requirements completed --- --- 3,000 1,200 -1,800

Number of landscape scale 

ecosystem assessments completed** 69 68 --- --- ---

Number of broadscale assessments 

underway** 18 29 --- --- ---

Number of ecosystem assessments 

completed** --- --- 53 0 -53

* Activity not tracked after FY 2006 

** Activity redefined in FY 2007. Broadscale and landscape scale assessments combined into ecosystem 

assessments. 

 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-21 Inventory & Monitoring 

FY 2008 Program Changes 

The FY 2008 budget request for Inventory and Monitoring is $146.5 million, a net 

program change of -$16.4 million, or -10 percent from the FY 2007 Estimate. There are 

1,002 FTEs in the program for FY 2008, a decrease of 175 FTEs, or -14.9 percent, from 

the FY 2007 Estimate. 

National forests will focus on forest plan monitoring, establishing and fully implementing 

Environmental Management Systems (EMS), conducting comprehensive evaluations in 

advance of plan revisions, and ensuring that inventories, data management and corporate 

data systems support business requirements. 

An Environmental Management System will be established on an additional 50 National 

Forest System (NFS) units. At the end of FY 2008, each national forest will have an 

Environmental Management System, fulfilling the 2005 Planning Rule requirement that 

an EMS be in place prior to amendment or revision of land management plans. As 

shown in the table above, Conducting Ecosystem Assessments will receive no funding in 

2008 in order to support the priority of establishing Environmental Management Systems. 

Program Description 

Program objectives are to: improve the knowledge base to enhance scientific 

understanding of ecosystems, including human uses; fulfill agreements for inventory and 

monitoring results with domestic and international partners; provide continuous data, 

information, and analyses to decision makers for adaptive management of national forests 

and grasslands; and provide the information necessary to assess the viability and 

responsiveness of Forest Service programs and support cost-effective program delivery; 

and fulfill agreements for inventory and monitoring results with domestic and 

international partners. 

Conduct Resource Inventories – Resource inventories are designed to meet land 

management planning, ecosystem assessment, comprehensive evaluation and multiple 

program needs for tabular and spatial information. Resource inventory activities include: 

• Information collection, and data entry and storage (including migration of legacy 

data), and storage of data in corporate systems; 

• Data evaluation and analyses to identify accuracy and data classifications; 

• The documentation and performance of quality control procedures and compilation of 

metadata; and 

• Resource mapping activities. 

Information needed to evaluate the context and consequences of decisions being 

addressed in the land management planning process is generated through inventory and 

mapping work, ultimately resulting in Land Management Plan revisions, creations, 

amendments or updates that are scientifically and legally defensible. Tabular and spatial 

data assist the agency in improving its capability to provide sustainable levels of a broad 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-22 Inventory & Monitoring 

spectrum of uses, values, products, and services as identified in LMPs and ecosystem 

assessments. 

This activity also includes the development, maintenance, and management of Forest 

Service Natural Resource Applications (FSNRAs) – corporate resource information and 

geographic information systems (GIS) that store inventory and monitoring data needed to 

meet agency business requirements, such as land management planning, resource 

program management, and project level planning. The management of FSNRAs consists 

of the development and maintenance of the Natural Resource Information System 

(NRIS), the Infrastructure and permit management database (Infra), and the Automated 

Lands Project (ALP). 

Conduct Monitoring and Evaluation – This activity includes monitoring, evaluation and 

reporting activities that provide information needed to support land management planning 

and two specific types of resource condition information (i.e., visitor use and air quality 

monitoring) used in national assessments. Program focus is on identifying changing 

conditions over time and monitoring the implementation and effectiveness of Land 

Management Plans. Monitoring activities include the collection of tabular and spatial 

data, as well as data entry, storage, analysis, mapping and stewardship work. The output 

measure for this activity will change from monitoring reports completed to monitoring 

requirements completed. Since the number of requirements included in a plan varies 

widely, tracking monitoring requirements will provide a more accurate indication of 

performance. 

Another activity funded by the Inventory and Monitoring program is the Environmental 

Management Systems (EMS), required by the 2005 Planning Rule. An EMS is a 

comprehensive approach to improving the management of environmental issues, or 

environmental performance, on a unit. While the funding for EMS establishment will 

come from the Inventory and Monitoring BLI, ongoing implementation and maintenance 

will be supported by other National Forest System budget line items. 

Conduct Ecosystem Assessments - Assessments evaluate current and desired resource 

conditions, at or above the watershed scale, and improve the knowledge base of the 

agency for subsequent decision-making at the land management plan and project levels. 

With the increased priority on monitoring and the use of existing information for annual 

and 5-year evaluations, the Conduct Ecosystem Assessments activity will not be funded 

in 2008. 

FY 2008 Plans 

Conduct Resource Inventories

• Manage, develop, operate, and maintain corporate systems such as Forest Service 

Natural Resource Applications (FSNRAs) and GIS tools. 

• Collect and acquire 14.6 million acres of inventory data. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-23 Inventory & Monitoring 

Conduct Monitoring and Evaluation

• All 119 National Forest System administrative units will complete monitoring 

reports, containing a total of 1,200 annual monitoring requirements. 

• Comprehensive evaluations will be conducted for future plan revisions and 

amendments. 

• An additional 50 National Forest System (NFS) units will establish an EMS to 

complete this work on all NFS units. 

FY 2007 Program 

 

Conduct Resource Inventories

• Prioritize resource inventories that serve as the foundation for determining desired 

conditions and objectives in LMPs. 

• Collect and acquire 16.4 million acres of inventory data. 

Conduct Monitoring and Evaluation

• All 119 National Forest System administrative units will complete monitoring 

reports, containing a total of 3,000 annual monitoring reports. 

• Comprehensive evaluations will be conducted for future plan revisions and 

amendments. 

• The agency will complete an EMS on 50 national forests. 

Conduct Ecosystem Assessments 

• Complete 53 ecosystem assessments. 

FY 2006 Accomplishments 

Conduct Resource Inventories

• Conducted integrated inventories on 28.8 million acres. 

• The agency was unable to migrate expected levels of data to its new data centers 

because of delays in getting the centers established. 

Conduct Monitoring and Evaluation

• Updated the schedule for the completion of NRIS deployment and the migration of 

priority legacy data to be completed in FY 2008. 

Conduct Ecosystem Assessments 

• Completed 68 landscape scale and 29 broadscale assessments. 
FY 2008 Budget Justification USDA Forest Service

 National Forest System 9-24 Recreation, Heritage & Wilderness 

Budget Line Item Recreation, Heritage, and Wilderness 

Recreation, Wilderness & Heritage Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $258,797 $260,648 $5,882 -$11,069 -$24,061 $231,400 -9% 

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 

Total Enacted Budget Authority $258,797 $260,648 $5,882 -$11,069 -$24,061 $231,400 -9% 

Full Time Equivalents (FTEs) 2,476 2,498 -300 2,198 

Estimated Funding by Activity* 

Operate Developed Sites $91,460 --- --- --- --- --- 

Manage General Forest Areas $44,486 --- --- --- --- --- 

Provide Rec Info, Interpretation, & Education $23,176 --- --- --- --- --- 

Manage Recreation Operations --- $161,794 $3,656 -$6,879 -$14,695 $143,876 -9% 

Administer Rec Special Use Authorizations $41,467 $41,533 $953 -$1,793 -$3,199 $37,494 -8% 

Manage Heritage Resources $25,740 $25,348 $567 -$1,068 -$2,724 $22,123 -11% 

Manage Wilderness $32,468 --- --- --- --- --- 

Manage Wilderness and Wild & Scenic Rivers --- $31,973 $706 -$1,329 -$3,443 $27,907 -11% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

*Activities redefined for FY 2007. Manage Recreation Operations replaces three previous measures: Operate Developed Sites; Manage General 

Forest Areas; and Provide Recreation Information, Interpretation, and Education. Manage Wilderness and Wild and Scenic Rivers Replaces 

Manage Wilderness

The Annual Output Measures table can be found on the following page. 
FY 2008 Budget Justification USDA Forest Service

 National Forest System 9-25 Recreation, Heritage & Wilderness 

Revised March 30, 2007 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs 

Annual Output Measure Plan Actual Plan Plan FY 2007 

Number of recreation site capacity (PAOT 

days) operated to standard 80,999,000 82,482,208 76,300,000 70,655,000 -5,645,000

Percentage of NFS lands covered by travel 

management plans resulting in visitor safety, 

resource protection using best management 

practices and less visitor conflict with offroad vehicle usage 1% 0.3% 21% 48% 27%

Number of recreation interpretation & 

education products provided to standard* 13,460 15,725 9,200 --- n/a

Number of recreation special use 

authorizations administered to standard 11,899 10,091 9,335 7,910 -1,425

Number of heritage assets managed to 

standard** 6,531 5,399 6,250 --- n/a

Number of priority heritage assets managed 

to standard** --- --- --- 2,275 n/a

Number of wilderness areas managed to 

minimum stewardship level 99 61 74 87 13

Number of wild & scenic river areas meeting 

statutory requirements*** --- 47 51 55 4

Customer satisfaction with value for fee paid 83 82 84 85 1%

* Not tracked after FY 2007 

** Definition changed in FY 2008 to include only priority heritage assets 

*** Definition changed from "...areas managed to standard" in FY 2008 

FY2008 Program Changes

The FY 2008 budget request for Recreation, Heritage and Wilderness is $231.4 million, a 

net program change of -$24.1 million, or –9 percent from the FY 2007 Estimate. There 

are 2,198 FTEs in the program in FY 2008, a decrease of 300, or 12 percent from the FY 

2007 Estimate. 

Increased emphasis will be placed on implementing the travel management rule in order 

to better address issues surrounding unmanaged recreation, improving access and settings 

for outdoor recreation, and improving visitor satisfaction with our facilities and services. 

Strengthening relationships with private, volunteer-based, and nonprofit organizations, 

and establishing professionally managed partnerships and intergovernmental cooperative 

efforts will continue to be a priority, particularly in making our programs and services 

relevant to youth in diverse and underserved populations. 

Specific priorities within each activity include: 

Manage Recreation Operations – Implement existing, and continue developing, 

Recreation Site Facility Master Plans, which prioritize funding allocations for 

deferred maintenance. In addition, emphasis will be placed on implementing the 
FY 2008 Budget Justification USDA Forest Service

 National Forest System 9-26 Recreation, Heritage & Wilderness 

travel management rule by issuing motor vehicle use maps covering 48 percent of 

NFS lands.

Administer Special Use Authorizations – Priority will continue to be placed on 

implementing the Cabin User Fee Fairness Act of 2000 (CUFFA) and the renewal of 

recreation residence permits. 

Manage Heritage Resources – Emphasis will be placed on accomplishing the 

Preserve America Summit goals that coincide with the Forest Service Heritage 

Strategy, including the protection, rehabilitation, and simultaneous reduction of 

deferred maintenance to priority heritage assets that will support opportunities for 

public interaction and local economic development through heritage tourism. 

Manage Wilderness and Wild and Scenic Rivers – Continue implementation of the 

agency’s “10 Year Wilderness Stewardship Challenge” and the Wild and Scenic 

Rivers Agenda – “Free Flowing Forever,” emphasizing partnerships with nongovernmental organizations to enhance overall stewardship of wilderness lands and 

wild and scenic rivers. 

The proposed reduction in funds, combined with the needed emphasis on travel 

management planning and implementation, will result in a number of program 

reductions. Fewer developed and dispersed recreation sites will be operated at standard, 

with shortened seasons. Seasonal workforce will be reduced requiring permanent 

personnel to fill in behind, thereby reducing the agency’s opportunities to leverage 

partnerships and volunteers. Hours for visitor information services would be reduced to 

core hours with minimal staffing. Administration of approximately 27 percent of the 

existing recreation special use authorizations would occur with primary focus on ensuring 

minimal standards of health and safety, while resources for processing new applications 

would be reduced. Restoration and adaptive reuse of heritage properties for 

interpretation, recreation, and tourism will occur at very low levels. A limited number of 

wilderness rangers will be available to provide visitor information and education. 

Program Description 

Approximately 192 million national forest visits occurred on National Forest System 

(NFS) lands, waters, and recreation sites in FY 2005. Recreation demand continues as 

increasingly diverse populations of visitors engage in activities such as camping, 

picnicking, winter sports, hunting, fishing, hiking, driving for pleasure, and visiting 

cultural sites and visitor centers. Program delivery is provided through the administration 

and management of recreation facilities, wilderness and heritage resources, partnerships 

and tourism, interpretive services, recreation special uses, congressionally designated 

areas, and national forest scenic-by-ways. 

The Recreation, Heritage and Wilderness program oversees the management and 

administration of over 19,800 developed recreation sites, including campgrounds and 

day-use areas; 39 major visitor centers that provide services to more than 10 million
FY 2008 Budget Justification USDA Forest Service

 National Forest System 9-27 Recreation, Heritage & Wilderness 

visitors annually; over 29,000 recreation special use authorizations for over 37 different 

types of activities, including ski areas, lodges and resorts, and outfitter-guides; 20 

National Historic Landmarks; over 347,000 heritage assets, of which 3,658 are listed in, 

and more than 56,000 are eligible for the National Register of Historic Places listing; 407 

national wildernesses; and 101 wild and scenic rivers. 

The Recreation, Heritage and Wilderness budget line item consists of the following 

activities: 

Manage Recreation Operations – Provides for operation of recreation developed 

sites, such as campgrounds, day-use areas, improved boat ramps, sewage or solid 

waste disposal facilities, and visitor centers; general forest areas, including snow play 

areas, lakes, streams, roads, landings, and non-commercial product areas; and 

interpretive and educational services. Activities provided for include: cleaning 

facilities, such as buildings, toilets, campsites, picnic areas, tables, fire rings, etc; 

removing litter; providing safety and security measures for visitors and employees; 

conducting prescribed inspections; managing contracts, partnerships, volunteers, and 

other agreements; and providing interpretive or educational programs, presentations, 

and products to visitors and other interested customers. 

Administer Recreation Special Use Authorizations – Processes new, and administers 

existing, recreation special use authorizations. Activities include providing 

responses, analyses, and/or decisions directly to proponents and applicants that 

request to use NFS lands and providing inspection, oversight, and monitoring of 

authorizations issued to ensure compliance with the terms and conditions of the 

authorization, while ensuring the health and safety of the public, protection of the 

environment, compliance with Federal, State, and local laws and regulations, and 

protection of the interests of the United States. 

Manage Heritage Resources – Provides for the protection of significant heritage 

assets and contributes interpretive, educational, site stewardship, and scientific and 

technical information to governmental entities, the public, tribes and future 

generations on land and resource management. Activities within this program include 

identifying, evaluating, protecting, monitoring, and preserving heritage resources, 

sites, and areas and promoting heritage values through interpretation, Passport in 

Time (PIT) projects, presentations, and other public information and outreach efforts. 

Manage Wilderness and Wild and Scenic Rivers – Provides for the protection of 

designated wilderness and wild and scenic rivers and evaluates and make 

recommendations for areas and rivers worthy of addition to the National Wilderness 

Preservation System and the National Wild and Scenic River (W&SR) System. 

Activities include education and outreach, wilderness inventory and monitoring, 

information management, and addressing priority resource issues, including providing 

adequate access to wilderness users and expanding the role of fire as a natural 

process. 
FY 2008 Budget Justification USDA Forest Service

 National Forest System 9-28 Recreation, Heritage & Wilderness 

The recreation program consistently provides the highest number of volunteers and work 

accomplished by the agency. In FY 2006, volunteers contributed $36.5 million (about 81 

percent) of the agency’s $45 million total appraised value of volunteer work, representing 

approximately 1,125 person-years of work (approximately 80 percent) of the agency’s 

1,403 person-year total. In addition, $48.8 million in receipts were generated for the U.S. 

Treasury from issuance of recreation special use permits and user fees. 

Independent Reviews 

In 2005 the Recreation, Heritage and Wilderness program was evaluated for the FY 2007 

budget cycle through the Program Assessment Rating Tool (PART) and received a rating 

of “Moderately Effective”. Although the OMB assessment found that the program has a 

clear purpose and adequate long-term performance measures, needed improvements were 

identified as follows: 

Each Recreation Fee Demonstration Project completed a business plan prior to 

implementation, but not all national forests have completed business plans for recreation 

areas. This may lead to situations where resources are not effectively targeted due to 

program design issues or inconsistent data. Independent evaluations have identified 

business system information data gaps needed to improve financial and management 

decisions that enhance visitor satisfaction. However, key recommendations for improving 

data reliability and use remain to be implemented. 

In FY 2006, the agency initiated the following to improve performance: 

• Optimizing available resources by completing recreation site facility master planning 

for each national forest or grassland recreation area. 

• Improving revenue and cost data for the program, using actual utilization and service 

delivery cost data, and implementing key recommendations on data reliability and 

use. 

FY 2008 Plans 

Manage Recreation Operations 

• Designate an additional 27 percent of National Forest System lands with travel 

management plans as described in the Capital Improvement and Maintenance Trails 

program. 

• Complete the analysis phase of Recreation Site Facility Master Planning (RSFMP) on 

most national forests to assess where to focus investments in an efficient and effective 

manner through prioritizing recreation sites that are responsive to the public’s needs. 

• Emphasize recreation information and reservation services through implementation of 

electronic permit delivery, recreation related sales, and information via the World 

Wide Web through the interagency Recreation One Stop portal. 

• Expand “Kids in the Woods” pilot program, improving the use of partnerships and 

interagency cooperation to leverage resources from a variety of public, private and 
FY 2008 Budget Justification USDA Forest Service

 National Forest System 9-29 Recreation, Heritage & Wilderness 

charitable organizations to increase the number of young people participating in 

service learning, environmental stewardship, and volunteer projects. 

Administer Recreation Special Use Authorizations 

• Improve the delivery of public services through private sector providers including 

America Outdoors, National Forest Recreation Association, National Forest 

Homeowners Association and National Ski Areas Association. 

• Complete implementation of the CUFFA regulations for performing new appraisals, 

establishing new base fees, and reissuing 14,500 expiring authorizations for 

recreation residences. 

• Administer approximately 27 percent of special use permits to standard, generating 

approximately $50 million in receipts for the U.S. Treasury and $7 million in fees that 

are retained by the local unit. 

Manage Heritage Resources 

• Expand interagency involvement in Passport in Time (PIT) to include State and local 

programs. 

• Implement White House recommendations from the Preserve America Initiative, 

including a multi-year effort to provide challenge cost share funding to Forest Service 

units to rehabilitate significant heritage assets that can be linked to community 

development. 

• Shift heritage asset accountability to real time electronic format through the Heritage 

I-web corporate database. 

Manage Wilderness and Wild and Scenic Rivers 

• Develop traditional skills training standards and course curriculum through the use of 

partnerships and interagency cooperation for improved agency efficiency. 

• Recruit, train, outfit, and supervise agency employees and volunteers, including 

youth, to complete wilderness stewardship projects nationwide. 

• Recognize the 40th Anniversary of the Wild and Scenic Rivers Act. 

• Implement the Wilderness Character Monitoring Protocol to assess trends in 

wilderness at the national level. 

FY 2007 Program 

Manage Recreation Operations 

• Complete the RSFMP analysis process for 34 national forests, in order to move 

toward a sustainable recreation site program and align their recreation sites and future 

capability with visitor needs.

• Implement the Recreation One Stop website which fulfills a Presidential initiative to 

provide internet-based recreation information, reservations, and recreation product 

purchases with all Federal land management agencies. 

• Hold five forums to discuss recreation issues on national forests and public lands, 

including access and connecting youth to the outdoors with the National Forest 
FY 2008 Budget Justification USDA Forest Service

 National Forest System 9-30 Recreation, Heritage & Wilderness 

Foundation and the American Recreation Coalition. A Strategic Futures Action Plan 

will be developed from input received for improvement in program management. 

• Implement the new “Kids in the Woods” pilot program aimed at reaching urban and 

underserved youth with the goal of engaging children in recreation activities and 

environmental education; thereby building meaningful and lasting connections with 

nature. 

Administer Recreation Special Use Authorizations 

• Administer approximately 32 percent of special use permits to standard, generating 

approximately $50 million in receipts for the U.S. Treasury and $7 million in fees that 

are retained by the local unit. 

• Propose policy for publication to address outfitting and guiding administration, 

categorical exclusions for winter sports resort improvements, and post a standard 

prospectus for concession campgrounds. 

• Begin two-year implementation period of CUFFA regulations for recreation 

residences to allow for adjustment to the new fee structure. 

Manage Heritage Resources 

• Expand interagency involvement in PIT to other Federal agencies and develop a 

national site steward (asset condition monitoring) program through PIT. 

• Emphasize transition of legacy site data and develop full upward reporting elements 

into the Heritage I-web corporate database to comply with Federal Accounting 

Standards Advisory Board (FASAB) requirements. 

• Fulfill the Preserve America Initiative by creating a sustainable program approach to 

utilizing heritage assets to increase local economic development while reducing the 

deferred maintenance backlog. 

Manage Wilderness and Wild and Scenic Rivers 

• Issue the final rule on predator damage management in wilderness, in collaboration 

with the Animal and Plant Health Inspection Service and State wildlife agencies. 

• Develop a wilderness character monitoring protocol for application across the 

National Wilderness Preservation System in collaboration with the Department of the 

Interior. 

• Develop and deliver a suite of 20 on-line, interactive distance learning modules on 

Wilderness Stewardship, and deliver a Wilderness Fire Resource Advisor course as 

part of Incident Command System in collaboration with the Natural Resources 

Consortium for Distance Learning and Virginia Polytechnic University. 

FY 2006 Accomplishments

Maintain Recreation Operations 

• Completed 31 national forests recreation site analyses for sustainable recreation site 

programs and alignment of those recreation sites and future capability with visitor 

needs. 
FY 2008 Budget Justification USDA Forest Service

 National Forest System 9-31 Recreation, Heritage & Wilderness 

• Provided a distance learning web cast on “America’s Rainforest” to 350,000 students, 

providing information on the bird migration from the Caribbean National Forest to 

the Tongass National Forest in Alaska. 

Administer Recreation Special Use Authorizations 

• Published the final rule for special use authorization cost recovery and assisted with 

field implementation. 

• Developed new standard forms for Archaeological Resource Protection Act 

applications and permits. . 

• Published in April 2006 agency appraisal guidelines, regulations, and policy revisions 

pursuant to the CUFFA. 

Manage Heritage Resources 

• Implemented a partnership agreement with a non-profit foundation to provide PIT 

clearinghouse services, reducing the amount of operating program funds used and 

enabling interagency involvement in PIT. 

• Worked with the Office of Management & Budget and the Federal Accounting 

Standards Advisory Board to meet joint requirements on heritage asset guidance and 

developed an interim directive on shifting database efforts to obtain full 

accountability and audit criteria. 

• Implemented mobile computing features of a program database that will enhance 

inventory efficiency by at least 35 percent. 

Manage Wilderness and Wild and Scenic Rivers: 

• Revised the “Policies and Guidelines for Managing Fish and Wildlife in National 

Forest and Bureau of Land Management Wilderness” in collaboration with the 

Association of Fish and Wildlife Agencies and the Bureau of Land Management. 

• Pilot tested the Wilderness Character Monitoring Protocol Technical Guide and 

Database in all regions to initiate monitoring of wilderness character at a national 

level. 

• Conducted nearly 30 wilderness training courses to enhance skill levels for over 600 

wilderness managers to maintain a diverse workforce with the technical 

understanding and leadership skills needed to meet major agency challenges. 

• Developed, populated and released a wild and scenic rivers database to support 

candidate river evaluation and designated river management. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-32 Wildlife & Fisheries Management

Budget Line Item Wildlife and Fisheries Habitat Management

Wildlife & Fish Management Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $131,734 $131,443 $2,749 -$5,613 -$10,946 $117,633 -8% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $131,734 $131,443 $2,749 -$5,613 -$10,946 $117,633 -8% 

Full Time Equivalents (FTEs) 1,151 1,144 -180 964 

Estimated Funding by Activity 

Manage Stream Habitat* $40,038 --- --- --- --- --- 

Manage Lake Habitat* $11,517 --- --- --- --- --- 

Manage Aquatic Habitat* --- $50,367 $1,055 -$2,154 -$4,004 $45,264 -8% 

Manage Terrestrial Habitat $71,142 $73,048 $1,527 -$3,115 -$6,122 $65,338 -8% 

Provide Wildlife Interpretation & Education $9,037 $8,028 $168 -$344 -$821 $7,031 -10% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Activities for managing stream and lake habitat combined into Manage Aquatic Habit in FY 2007. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Miles of stream habitat restored or 

enhanced* 1,457 1,655 1,300 900 -400

Acres of lake habitat restored or 

enhanced** 13,742 15,996 8,600 7,500 -1,100

Acres of terrestrial habitat enhanced 196,716 278,811 146,000 110,000 -36,000

Number of wildlife interpretation & 

education products provided*** 2,053 3,554 1,665 --- n/a

* Definition changed from "Miles of stream enhanced" starting in FY 2007. 

** Definition changed from "Acres of lake enhanced" starting in FY 2007. 

***Activity not tracked after FY 2007. 

 

FY 2008 Program Changes 

The FY 2008 budget request for Wildlife and Fisheries Habitat Management is $117.6 

million, a net program change of -$10.9 million, or –8 percent from the FY 2007 

Estimate. There are 964 FTEs in the program in FY 2008, a decrease of 180 or 15.7 

percent from the FY 2007 Estimate. 

At the national level, the focus is on restoration, recovery, and maintenance of wildlife, 

fish and rare species and their habitats. This focus is enhanced through collaboration and 

partnerships that results in improved accomplishments. In addition, this program seeks to 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-33 Wildlife & Fisheries Management

foster public understanding, acceptance, and community involvement in terrestrial and 

aquatic species and habitat through conservation education and public outreach projects. 

Specific wildlife and fisheries habitat management priorities include: 

Manage Aquatic Habitat – Aggressively address culvert-fish passage issues with a 

focus on projects that provide access. Increase efforts to prevent, detect, and control 

invasive aquatic species and target habitat restoration and improvement efforts on 

inland cutthroat trout, salmon spawning habitat, and brook trout. Reservoir, lake, and 

pond management will be emphasized to provide for increased fishing demand for all 

species of sport fish on National Forest System (NFS) lands. 

Manage Terrestrial Habitat – Focus on actions to restore, recover, and maintain 

habitat and ecosystem conditions necessary for healthy populations of wildlife, 

including endemic and rare species of animals and plants. Key species include elk, 

big horn sheep, wild turkey, quail, and grouse. Habitat for rare, threatened and 

endangered species such as the gopher tortoise, red-cockaded woodpecker, and 

grizzly bear will continue to be restored. Increased integration of program objectives 

with other agency programs, such as fuels reduction and timber management, will 

further increase ecological benefits without a corresponding cost increase. 

Provide Wildlife Interpretation and Education – Long-standing wildlife and fisheries 

environmental information and participatory programs, such as “NatureWatch” and 

“Kids Fishing Days” will complement the new “More Kids in the Woods” initiative. 

This new initiative is designed to showcase opportunities for children in nature, by 

motivating individuals to visit public lands and appreciate natural areas. 

Program Description 

National forests and grasslands contain some of America’s most important fish and 

wildlife habitats, as well as botanically significant resources. These resources include 

220,000 miles of fishable streams, more than 2 million acres of lakes, 15,000 miles of 

coastline, 5 million acres of wetlands, 80 percent of the elk and bighorn sheep habitat in 

the lower 48 States, and 28 million acres of wild turkey habitat. Of the thousands of plant 

and animal species within the national forests and grasslands, over 400 are listed as 

threatened or endangered, and 3,250 are considered at-risk because of concerns for their 

ability to maintain self-sustaining populations. 

Essential work within this program includes managing habitats for these species to 

maintain productivity, diversity, viability, and to provide for their use and enjoyment by 

current and future generations. This includes actions to restore, recover, and maintain 

habitat and ecosystem conditions necessary for healthy populations of fish and wildlife. 

Annually, approximately 40 million people visit national forests and grassland to hunt, 

fish, or view wildlife. Wildlife and fisheries environmental education programs provide 

children and adults the opportunity to safely view and participate in activities and 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-34 Wildlife & Fisheries Management

programs that raise their level of awareness, understanding, and enjoyment of wildlife, 

fish, and plants, and their connection to ecosystems. 

Wildlife and Fisheries Habitat Management consists of the following activities: 

Manage Aquatic Habitat – Actions to reduce sedimentation, stabilize stream banks, 

and improve riparian areas, improve water quality and productivity, improve 

spawning areas, restore native species assemblages, and improve access for anglers, 

control and manage aquatic invasive species. 

Manage Terrestrial Habitat – Maintaining important habitats, such as early 

successional habitats and fire dependent ecosystems, regenerating aspen and oaks, 

planting and seeding areas to improve forage conditions, developing wildlife drinking 

water sources in arid habitats, restoring native plant and animal assemblages, 

providing habitat to support harvestable population levels of game species. 

Provide Wildlife Interpretation and Education – Develop and disseminate 

information for hunting, fishing, and viewing opportunities on national forests and 

grasslands. Develop and maintain NatureWatch viewing sites (a permanent location 

designated for the primary purpose of viewing fish and/or wildlife, and their habitats). 

Sponsor special events on national forests and grasslands such as National Fishing 

Week, and National Hunting and Fishing Days. In addition, provide information and 

related educational activities about preventing, detecting, and controlling invasive 

species of wildlife and fish, and plants that damage their habitats.

Partnerships have long been the cornerstone to the successful implementation of the 

Wildlife and Fisheries Habitat Management program on national forests and grasslands. 

Partnerships serve a fundamental purpose of encouraging grass-roots participatory 

management of wildlife and fish habitats on national forests and grasslands by the public. 

It has also become a wise investment of Federal funds as they are leveraged by partner 

funds and in-kind services. In FY 2006, partnership funds and in-kind services, within the 

Wildlife and Fisheries Habitat Management programs, topped $46 million. 

FY 2008 Plans

Manage Terrestrial Habitat 

• Accelerate efforts for restoration of impaired or declining ecosystems and habitats 

such as aspen and longleaf pine. Coordinate these efforts with other agency programs 

that can aid in this endeavor such as hazardous fuels, forest management, and range 

management. 

• Improve a variety of wildlife habitats throughout the national forests and grasslands, 

by utilizing stewardship contacting. 

• Emphasize the use of funds for partnership development. Thousands of partnership 

projects with communities, conservation groups, and other entities will be used to 

help attain terrestrial habitat improvement goals. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-35 Wildlife & Fisheries Management

Manage Aquatic Habitat 

• Work with State and Federal agencies, tribes, and non-governmental organizations to 

increase the number of fish habitat partnerships under the National Fish Habitat 

Action Plan. 

• Implement cooperatively, with State wildlife and fish agencies, and nongovernmental organizations, the Western Native Trout Initiative covering 17 species 

or sub-species of native trout to protect and restore habitats and populations. 

• Expand partnership efforts with the Eastern Brook Trout Joint Venture Collaborative. 

This partnership, in cooperation with the U.S. Fish & Wildlife Service, five State 

game and fish agencies, trout unlimited and other non-governmental organizations, is 

designed to initiate habitat enhancement for the eastern brook trout. 

• Increase interagency coordination on large and small scale infrastructure projects 

removing blockage of aquatic organism passage at road crossings. 

• Continue with project implementation of the Southeast Aquatic Resources 

Partnership to improve lake, reservoir, and stream habitats; and encourage wise 

fishing and boating uses. 

Provide Wildlife Interpretation and Education

• Accelerate efforts working with State tourism agencies to integrate our viewing site 

inventory data into State tourism websites. 

• Continue efforts to reach urban and underserved communities, providing information 

about opportunities for hunting, fishing and viewing of wildlife on national forests 

and grasslands. 

• Develop, create or maintain approximately 40 NatureWatch sites 

• Coordinate youth fishing events and provide presentations in support of National 

Youth Fishing Week. 

FY 2007 Program 

Manage Terrestrial Habitat 

• Complete 325 studies, which include conservation assessments, strategies, or plans 

for threatened, endangered, or rare species. 

• Continue implementation the Lynx Conservation and Assessment Strategy through 

projects and land management plan amendments or revisions which precluded the 

need for designation of critical habitat. 

• Restore or enhance approximately 20,000 acres in fire dependent forests using 

prescribed fire and timber sales as tools to benefit bobwhite quail, wild turkey, and 

federally listed red-cockaded woodpecker, scrub jay, Kirtland’s warbler, and gopher 

tortoise. Focus on areas damaged by hurricanes. 

• Implement a stewardship contract based memorandum of understanding (MOU) with 

the Rocky Mountain Elk Foundation. On-the-ground work may include regeneration 

of aspen, hazardous fuel reduction, prescribed fire, vegetation management to 

enhance overall habitat conditions, noxious weed control, forage seeding, and road 

management, where they are used to enhance the public's use and enjoyment of elk 

and associated wildlife resource.
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-36 Wildlife & Fisheries Management

Manage Aquatic Habitat

• Use stewardship contracting and Watershed Restoration and Enhancement Agreement 

(Wyden Amendment) authorities to implement the National Fish Habitat Action Plan. 

Work to be accomplished includes restoring passage at migration blockages, habitat 

restoration in lakes and streams, and removing aquatic invasive species. 

• Complete species conservation assessments for the 17 species and sub-species of 

western native trout and the eastern brook trout. 

Provide Wildlife and Fish Interpretation & Education 

• Complete NatureWatch viewing site inventory and expand State of Washington 

Tourism/NatureWatch pilot effort nationally to other State tourism efforts.

• Participate in the National 50-State Fish Art Exposition in conjunction with Wildlife 

Forever and other partners. Use this forum as a vehicle to provide national forests 

and grasslands aquatic and fisheries information. 

• Continue National Fishing Week and aquatic education day programs across the 

country with a variety of partners. 

FY 2006 Accomplishments 

Manage Terrestrial Habitat 

• Approximately 780 wildlife partnership projects with over 1,300 partners were 

implemented, including 37 to improve habitat in sagebrush-steppe habitat, 39 to 

revitalize aspen habitat, over 283 to improve elk habitat, 240 to improve wild turkey 

habitat, and 140 to improve habitat for quail. 

• Over 200 projects for the benefit of more than 90 threatened and endangered species 

were implemented, while over 1020 sensitive species were benefited through the 

implementation of significant conservation actions. 

• The Yellowstone population of the Grizzly has been proposed for de-listing, directly 

due to cooperative actions completed to increase survival and reproduction. The 

Forest Service worked closely with U.S. Fish and Wildlife Service, National Park 

Service, and the State of Montana to restore habitat for the Yellowstone population of 

the grizzly bear. 

Manage Aquatic Habitat 

• Nearly 600 partnership projects were implemented, including over 300 for cold water 

species (trout), 175 for anadromous fish, and 115 for warm water fish.

• Completed a status and threats assessment of native eastern brook trout populations 

throughout the Appalachian range, in coordination with State agencies and nongovernmental organizations. 

• Initiated a status and threats assessment for 17 species and sub-species of native 

western trout. 

Provide Wildlife and Fish Interpretation & Education

• Over 530 projects with 1,897 partners were implemented, including 140 Eyes on 

Wildlife projects, and over 140 National Fishing Week events were coordinated with 

local communities. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-37 Wildlife & Fisheries Management

• Over 17,600 presentations were provided to external groups, such as school groups, 

civic groups, and garden clubs, reaching hundreds of thousands of participants. 

• Initiated a cooperative pilot effort with the State of Washington Tourism Department 

to integrate national forests wildlife viewing sites, complete with full site 

descriptions, into the State Tourism Website. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-38 Grazing Management 

Revised March 30, 2007 

Budget Line Item Grazing Management 

Grazing Management Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $47,826 $47,720 $1,100 -$2,313 $518 $47,025 1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $47,826 $47,720 $1,100 -$2,313 $518 $47,025 1% 

Full Time Equivalents (FTEs) 454 453 -33 420 

Estimated Funding by Activity 

Manage Grazing Allotments $32,576 $23,720 $749 -$1,575 $131 $23,025 1% 

Prepare Grazing Allotment NEPA $15,250 $24,000 $351 -$738 $387 $24,000 2% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Number of allotment acres 

administered to 100% of standard 23,089,000 49,583,208 35,000,000 35,000,000 0

Number of grazing allotments with 

signed decision notices 484 443 450 480 30

 

FY 2008 Program Changes 

The FY 2008 budget for Grazing Management is $47.0 million, a net program change of 

+$518,000, or +1 percent from the FY 2007 Estimate. There are 420 FTEs in the 

program in FY 2008, a decrease of 33, or -7.3 percent from FY 2007 Estimate. 

The proposed budget reflects the commitment to complete the backlog of NEPA-based 

environmental analysis on grazing allotments, in compliance with the Rescissions Act of 

1995 (P.L. 104-19, section 504). The act required the agency to establish a schedule for 

the completion of NEPA analysis on 6,886 allotments with expired or expiring grazing 

permits. Actual accomplishments during the period from 1995 through 2003 were well 

below the scheduled levels. Accomplishments were significant from 2004 to 2006, but 

there remains a significant amount of NEPA workload for the final three years of the 

schedule (2008-2010) 

. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-39 Grazing Management 

Specific priorities within each activity include: 

Prepare Grazing Allotment NEPA - The proposed program recognizes that the 

complexity and cost of environmental analysis for allotments remaining on the 

Rescissions Act schedule after 2007 will increase. FY 2007 is the final year of the 

authority provided by Congress in 2005 to categorically exclude grazing permit 

issuance under the NEPA. The agency will continue to focus resources on 

completing NEPA decisions on allotments meeting the criteria established under this 

authority through FY 2007, leaving more complex analysis efforts for FY 2008 and 

beyond.

Manage Grazing Allotments - The emphasis for grazing permit administration will be 

to implement the minimum level necessary to assure custodial resource stewardship, 

including compliance with applicable environmental legislation; and to initiate and 

continue implementation of new NEPA decisions. Full administration to standard, 

including both compliance and effectiveness monitoring, will be focused on 

allotments scheduled for NEPA analysis within the following 2 years. 

Program Description 

The Grazing Management program manages the vast and diverse rangeland resources on 

approximately 92 million acres of National Forest System (NFS) lands to maintain a 

sustainable supply of forage for livestock and wildlife. The program seeks to maintain 

open space and habitat connectivity by linking NFS grazing authorizations to privately 

owned lands managed for agricultural production; and to support the nation’s rural 

communities by helping sustain the ranching and farming lifestyle with their associated 

family values. The Grazing Management program is also closely integrated with the 

rangeland vegetation and other activities of the Vegetation Management program. 

Monitoring of rangeland vegetation within grazing allotments is necessary to determine 

the health of rangeland ecosystems and support collaborative and sustainable watershed 

restoration efforts, as well as to monitor compliance with grazing authorizations. Data 

gathered through monitoring is utilized to prepare NEPA analyses, and for making 

subsequent decisions for allotment management, including implementation of the 

adaptive management strategies incorporated into many decisions. These decisions are 

then translated to on-the-ground instructions for range managers and permittees through 

collaboratively developed allotment management plans. The Forest Service works with 

nearly 8,700 permit holders on 7,700 active grazing allotments. 

Prepare Grazing Allotment NEPA - This activity includes costs associated with 

rangeland inventories of range condition, public scoping, coordination with Federal, 

State, tribal, and local governments, development of alternatives, analysis of 

environmental effects, and the preparation of the NEPA document. This activity also 

includes the costs associated with resolving appeals and litigation. 

Manage Grazing Allotments – This activity involves the re-issuance of expired 

grazing permits, processing permit transfers, preparation and processing of bills for 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-40 Grazing Management 

collection, and development of annual operating instructions. In addition, 

administration to standard requires compliance, implementation, and effectiveness 

monitoring. The following tasks are involved: collection and evaluation of apparent 

and long-term condition and trend data for vegetation and soils for both uplands 

and/or riparian systems, establishing permanent photo points and/or transects that are 

used for effectiveness monitoring, and capture of the data collected in the appropriate 

corporate database. Implementation monitoring determines whether prescribed 

actions in grazing permits or allotment management plans have taken place. 

Effectiveness monitoring determines whether the evaluated acres meet, do not meet, 

or are moving towards resource objectives identified in the forest plan or other 

appropriate decision document, and determine whether additional monitoring or 

adjustments in management are required. 

Independent Reviews 

In FY 2006 the USDA Office of Inspector General issued a report titled “Follow-up on 

Recommendations Made on the Maintenance of Forest Service’s Infrastructure” (June 14, 

2006). There are two recommendations in the report related to the Grazing Management 

program. Recommendation 4 is to develop and implement a strategy to address deferred 

maintenance backlog and to identify goals and objectives for managing deferred 

maintenance. In response to this recommendation, the Forest Service recognized the 

need to analyze the accuracy of the current [range] to eliminate duplicate records and to 

assure that the assets are properly identified and no longer contribute to inaccurate 

deferred maintenance values. This analysis will be completed by September 30, 2007. 

Recommendation 7 is to document the methodology used to compile and report deferred 

maintenance data in the Performance and Accountability Report (PAR) from INFRA. 

This will be done in the 2007 PAR. 

FY 2008 Plans 

• Focus on completing the 480 remaining grazing allotment NEPA analyses in order to 

complete the Rescissions Act NEPA requirement by 2010. 

• Manage approximately 35 percent of the acres in active grazing allotments to 100 

percent of standard. Emphasize administration of allotments scheduled for NEPA 

analysis in the next two years and on allotments where corrective actions may be 

needed to maintain or restore watershed or ecosystem health. 

• Perform monitoring to determine if actions identified in current grazing permits are 

implemented, complied with, and effective in achieving desired results on the ground. 

This activity will be fully integrated with rangeland condition and trend monitoring 

that occurs under the Vegetation Management program, where the majority of this 

effort is planned and funded. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-41 Grazing Management 

FY 2007 Program 

• Focus on completing 450 NEPA analyses for allotments on the agency’s Rescissions 

Act NEPA schedule. Emphasis will be on utilization of the authority to categorically 

exclude certain allotments from NEPA documentation as authorized by Congress for 

FYs 2005-2007 by Section 339 of the 2005 Consolidated Appropriations Act 

• Manage approximately 35 percent of the acres in active grazing allotments to 100 

percent of standard. 

• Perform implementation, compliance, and effectiveness monitoring on the highest 

priority allotments in all regions. 

FY 2006 Accomplishments 

• Managed approximately 49.6 million acres, facilitated by the Categorical Exclusion 

authorities and leveraging of Vegetation & Management funding, within allotments 

(54 percent of all NFS acres within grazing allotments) to 100 percent of standard. 

Focused permit administration to implement corrective management on allotments 

with unsatisfactory vegetative and physical resource conditions and resolve conflicts 

between livestock grazing and other resource values. 

• Made NEPA decisions on 443 allotments, encompassing over 5.66 million acres of 

NFS land. 

• Provided approximately 3.1 million animal unit months of permitted livestock 

grazing while focusing on the maintenance and improvement of vegetative and 

watershed conditions within grazing allotments. This represents a significant 

reduction from previous years due to continued drought conditions throughout 

portions of the West. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-42 Forest Products

Budget Line Item Forest Products 

Forest Products Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $277,583 $310,114 $6,562 -$14,629 $16,515 $318,562 5% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $277,583 $310,114 $6,562 -$14,629 $16,515 $318,562 5% 

Full Time Equivalents (FTEs) 2,663 2,748 204 2,952 

Estimated Funding by Activity 

Plan Timber Sales* $119,006 --- --- --- --- --- 

Prepare Timber Sales* $88,904 --- --- --- --- --- 

Plan and Prepare Timber Sales* --- $232,371 $4,968 -$11,076 $22,054 $248,317 9% 

Administer Timber Sales $60,103 $67,623 $1,594 -$3,553 $4,581 $70,245 7% 

Special Forest Products $9,570 $10,120 $0 $0 -$10,120 $0 -100% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Separate activities of Plan Timber Sales and Prepare Timber Sales combined in FY 2007. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Approved timber sale NEPA documents 

(through appeal and litigation)* 405 N/A --- --- n/a

Volume of regular timber sold (Hundred 

Cubic Feet)** 3,417,500 2,956,316 4,200,000 4,600,000 400,000

Volume of regular timber harvested 

(CCF)*** 3,071,084 4,427,703 4,600,000 4,000,000 -600,000

Number of special forest product permits 

issued**** 165,806 136,051 146,000 --- n/a

* Activity not tracked during or after FY 

2006. 

**Activity reworded from "timber volume sold" in FY 2008. 

***Activity reworded from "Timber volume harvested" in FY 2008. (Actual harvest volume includes: 

regular plus salvage sales.) 

**** Activity "number of special forest products permits administered" redefined to "permits issued" in FY 

2007 and dropped in FY 2008. 

 

FY 2008 Program Changes 

The FY 2008 budget request for Forest Products is $318.6 million, a net program change 

of +$16.5 million, or +5 percent from the FY 2007 Estimate. There are 2,952 FTEs in 

the program in FY 2008, an increase of 204, or 7 percent from the FY 2007 Estimate. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-43 Forest Products

The FY 2008 President’s Budget includes an increase in the Forest Products program, 

above the FY 2007 Estimate, to fully fund implementation of the timber sales component 

of the Northwest Forest Plan (NWFP). The proposed increase in funding will allow the 

agency to sell 4,600,000 hundred cubic feet (CCF), or 2,300 million board feet (MMBF), 

an increase of 400,000 CCF or 200 MMBF from the FY 2007 program level. Included in 

the total for FY 2008 is 800 MMBF of timber to achieve full implementation of the 

NWFP. 

The agency will continue to emphasize use of the Stewardship contract authority and 

projects the value of these contracts to increase to $71 million in FY 2008 from about $65 

million in FY 2007. The Forest Service will also increase the average acreage size of its 

stewardship contracts by 5 percent. 

In FY 2008 the agency will no longer separate costs for the special forest products 

activity though the program is still continuing. Funding for the program will generally 

come from the administer timber sale activity. 

The budget request emphasizes timber sales that accomplish multiple resource objectives, 

such as watershed restoration, wildlife habitiat improvement, and hazardous fuels 

reduction. The program continues to promote the use of small diameter material that is 

removed during vegetation management activities. When removed, this underutilized 

biomass material is available as a potential energy source for specialized products that 

meet local community needs. 

 

Program Description 

Timber sales are used as a means to achieve resource objectives such as wildlife habitat 

maintenance and improvement, and hazardous fuels reduction when trees with 

commercial value are designated for removal. Commercial timber sales are important 

tools in creating habitat for endangered species such as the Kirtland’s warbler and 

maintaining habitat for the red-cockaded woodpecker. Timber sales are also designed to 

contribute to the nation’s supply of forest products in a sustainable manner. 

When feasible, stewardship end-result contracts are used. These contracts provide 

opportunities to achieve land and natural resource management goals while promoting a 

closer working relationship with local communities. Stewardship contracting is a means 

for federal agencies to contribute to the development of sustainable rural communities, 

restore and maintain healthy forest ecosystems, and provide a continuing source of local 

income and employment. 

Annually, the Forest Service issues approximately 190,000 timber sales and special forest 

products permits. Of these, there are 90 stewardship end-result contracts, which treat 

almost 60,000 acres annually. The Forest Service currently generates about $220 million 

in timber sale receipts annually, while also providing employment opportunities totaling 

over $1.2 Billion. Timber resources from national forests also provide support for many 

local communities by providing a stable supply of materials for wood products and 

furniture industries. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-44 Forest Products

In addition to the Forest Products budget line item, timber sales are funded through other 

special authorities, including the Salvage Sale Fund, the Timber Sale Pipeline Restoration 

Fund, the Knutson - Vandenberg (K-V) Fund, and the Stewardship Contracting Fund. 

The Forest Products program consists of the following activities: 

Plan and Prepare Timber Sales – This activity includes determining the volume and 

value of the trees to be removed, planning, environmental analysis (NEPA), sale 

layout and design, and timber sale contract preparation for sales designed to meet the 

long-term demand for forest products. Priority is placed on sales that integrate with 

other resource programs to maximize the achievement of multiple resource 

management objectives that maintain and restore healthy forests. When the primary 

purpose of a timber sale is to benefit other land management objectives, such as 

improving wildlife habitat, watershed restoration, or hazardous fuels reduction, 

planning and environmental analysis costs are funded by the other programs. 

Administer Timber Sales – Administration of timber sales account for approximately 

25 percent of the program. The largest portion of this funding is the oversight of 

existing timber sales, including the sale portion of stewardship end-results contracts. 

Regular site visits are necessary to ensure the terms and conditions of the contract are 

being fulfilled. These inspections not only determine if the designated trees are being 

harvested and accounted for but also ensure environmental conditions and mitigation 

measures are being applied. In addition to site inspections, there is also considerable 

coordination with the timber sale purchasers on annual operating plans, contract 

modifications, and financial transactions. This activity also includes the bookkeeping 

expenses associated with timber sales such as, issuing bills for collection, processing 

payments and refunds, maintaining bonds, and managing the general ledger. 

Special Forest Products - This activity includes the selling and administration of 

personal use permits for forest products including firewood, Christmas trees, 

ornamentals, floral components, berries and other forest products. These public assets 

are transferred to people through a permit system at minimal cost. 

Commercial timber sales return revenues to the U.S. Treasury and help offset the cost of 

management. Of the receipts generated, deposits are made under special authorities to 

the Brush Disposal Fund, Salvage Sale Fund, Ten Percent Roads and Trails Fund, 

Purchaser Election, and the K-V Fund. A portion of the timber receipts also contribute to 

the Payment to States, Payment to Minnesota, and payments to counties authorized by the 

Secure Rural Schools and Community Self-Determination Act of 2000. Revenues 

received from qualifying sales are also deposited in the Botanical Products and Timber 

Sale Pipeline Restoration Funds. 

Independent Reviews

GAO Audit No. 360702, Forest Service Timber Sales, began in April 2006 and is still 

ongoing. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-45 Forest Products

OIG Audit No. 08601-50-SF, on Forest Service Stewardship Contracts began in January 

2007. 

Congressional Reports 

The Senate Interior Appropriations Subcommittee Report for FY 2006 (H.R. 109-80) 

continues the requirement for the Forest Service to submit quarterly reports on the timber 

sales program. The fourth quarter FY 2006 report was completed in late December 2006. 

FY 2008 Plans 

• Sell a total of 4,600,000 CCF (about 2,300 MMBF) regular timber volume. 

• Harvest about 4,000,000 CCF (about 2,000 MMBF) of regular and salvage timber 

volume. 

• Achieve the full implementation of the Northwest Forest Plan timber offer volume of 

800 MMBF. (See Special Exhibits, Northwest Forest Plan). 

• Prepare and administer about 60,000 non-convertible permits such as Christmas trees, 

mushrooms and other miscellaneous forest products and about 130,000 permits and 

small product sales which are primarily personal use firewood. Total value is about 

$3 million. 

FY 2007 Program 

 

• Sell a total of 4,200,000 CCF (about 2,100 MMBF) regular timber volume. 

• Harvest about 4,600,000 CCF (about 2,300 MMBF) of regular and salvage timber 

volume. 

• Prepare and administer about 60,000 non-convertible permits such as Christmas trees, 

mushrooms and other miscellaneous forest products and about 130,000 permits and 

small product sales which are primarily personal use firewood. Total value is about 

$3 million. 

FY 2006 Accomplishments 

• Sold a total of 2,956,316 CCF (1,529 MMBF) regular timber volume using 

appropriated funds, valued at about $249 million. This volume included 425,114 

CCF (about 223 MMBF) of fuelwood. 

• Administered about 188,000 permits and timber sales; harvesting 4,427,696 CCF 

(2,832 MMBF) of regular, salvage, and K-V timber volume. This includes 470,000 

CCF (about 235 MMBF) of timber volume produced using stewardship end-result 

contracts. 

• Sold about $3.78 million in special forest products, which includes about 265,000 

Christmas trees sold for $1.35 million. 

• Issued free use permits for timber for 41,260 CCF (about 20 MMBF) having a value 

of $377,280 and other free use permits for miscellaneous special forest products with 

a value of $162,776. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-46 Forest Products

The following tables show program components and costs associated with the timber 

sales program, delineated in hundred cubic feet (CCF) and million board feet (MMBF). 

Program Components and Costs of the Timber Sales Program, 

FY 2006 – FY 2008 

 

CUBIC FEET 2006 2007 2008

Final Programmed Estimate

National Forest System Forest Products 

 Funding (Dollars in thousands) $277,583 $310,114 $318,562

 Volume Sold (CCF) 2,956,316 4,200,000 4,600,000

 

Salvage Sale Fund 

 Funding (Dollars in thousands) $75,846 $74,800 $74,000

 Volume Sold (CCF) 1,317,175 1,300,000 2,275,000

 

Emergency Supplemental for Hurricane Katrina Recovery 

 Funding (Dollars in thousands) $13,897 

 Volume Sold (CCF) 545,000 

 

Knutson - Vandenberg Funds (with Forest Products produced) 

 Funding (Dollars in thousands) $40,000 $18,766 $5,800

 Volume Sold (CCF) 621,919 300,000 125,000

 

Timber Sales Pipeline Restoration Fund (Sale Preparation only) 

 Funding (Dollars in thousands) $2,487 $3,525 $3,600

 

Road Construction/Reconstruction for Timber Sales and Land 

Stewardship Contracting (Dollars in thousands) 

 Forest Service Engineering Support @ $30/MBF $85,050 $87,000 $105,000

 

Total, Timber Sales Program 

 Funding (Dollars in thousands) $485,017 $494,205 $506,962

 Volume Sold (CCF) 5,440,410 5,800,000 7,000,000

 Average unit cost ($/CCF) $89.15 $85.21 $72.42

 

Total, Timber Harvested (CCF)1 4,427,696 4,600,000 4,000,000

 

 

1

 Includes both regular and salvage timber volume. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-47 Forest Products

Program Components and Costs of the Timber Sales Program, 

FY 2006 – FY 2008 

 

BOARD FEET 2006 2007 2008

Final Programmed Estimate

National Forest System Forest Products 

 Funding (Dollars in thousands) $277,583 $310,114 $318,562

 Volume Sold (MMBF) 1,529 2,100 2,300

Salvage Sale Fund

 Funding (Dollars in thousands) $75,846 $74,800 $74,000

 Volume Sold (MMBF) 671 650 1,137

Emergency Supplemental for Hurricane Katrina Recovery

 Funding (Dollars in thousands) $13,897 N/A N/A

 Volume Sold (MMBF) 303

Knutson -Vandenberg Funds (with Forest Products produced)

 Funding (Dollars in thousands) $40,000 $18,766 $5,800

 Volume Sold (MMBF) 329 150 63

Timber Sales Pipeline Restoration Fund (Sale Preparation only) 

 Funding (Dollars in thousands) $2,487 $3,525 $3,600

Road Construction/Reconstruction for Timber Sales and Land 

Stewardship Contracting (Dollars in thousands)

 Forest Service Engineering Support @ $30/MBF $85,050 $87,000 $105,000

Total, Timber Sales Program

 Funding (Dollars in thousands) $485,017 $494,205 $506,962

 Volume Sold (MMBF) 2,832 2,900 3,500

 Average unit cost ($/MBF) $171.26 $170.42 $144.85

Total, Timber Harvest (MMBF)1 2,296 2,300 2,000

 

1

 Includes both regular and salvage timber volume. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-48 Vegetation and Watershed Management

Budget Line Item: Vegetation and Watershed Management 

Vegetation & Watershed Management Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $179,852 $179,454 $3,400 -$7,421 -$21,111 $154,322 -12% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $179,852 $179,454 $3,400 -$7,421 -$21,111 $154,322 -12% 

Full Time Equivalents (FTEs) 1,444 1,452 -307 1,145 

Estimated Funding by Activity 

Improve Forest Vegetation* $37,564 $42,082 $834 -$1,821 -$3,220 $37,875 -8% 

Establish Forest Vegetation* $39,521 $39,455 $309 -$674 -$24,996 $14,094 -63% 

Manage Rangeland Vegetation $24,187 $21,035 $484 -$1,056 $1,525 $21,988 7% 

Maintain and Improve Watershed 

Conditions $52,098 $50,274 $1,159 -$2,527 $3,646 $52,552 7% 

Manage Noxious Weeds and Invasive Plants $21,802 $22,251 $511 -$1,115 $1,612 $23,259 7% 

Manage Air Quality $4,680 $4,357 $104 -$227 $320 $4,554 7% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* In FY 2006, "Establish Forest Vegetation" has been re-established as a separate activity from "Improve Forest Vegetation" to 

distinguish reforestation as separate from other forest vegetation improvement activities. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Acres of forest vegetation improved 54,482 62,185 77,400 72,800 -4,600

Establish Forest Vegetation acres 32,526 33,827 34,200 13,130 -21,070

Acres of rangeland vegetation improved 1,751,300 1,755,824 1,726,440 1,794,000 67,560

Acres of watershed improvement 13,027 16,934 12,200 13,000 800

Acres of noxious weeds and invasive 

plants treated 80,800 79,069 115,702 129,000 13,298

Number of air quality services provided* 322 345 330 --- n/a

*Activity not tracked after FY 2007. 

 

FY 2008 Program Changes 

 

The FY 2008 budget request for Vegetation and Watershed is $154.3 million, a net 

program change of -$21.1 million, or –12 percent from the FY 2007 Estimate. There are 

1,145 FTEs in the program in FY 2008, a decrease of 307, or -21.1 percent from the FY 

2007 Estimate. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-49 Vegetation and Watershed Management

The FY 2008 budget continues the Vegetation and Watershed Program’s emphasis on 

restoration and maintenance of forest and rangeland health at the watershed scale. This 

broad program serves as an umbrella for several activities that provide healthy, viable 

ecosystems and multiple benefits to people derived from National Forest System lands 

are core to attainment of the agency’s ecological restoration objectives. Program 

integration and partnerships will serve as foundations for the successful implementation 

of these activities. 

Specific priorities within each activity include: 

Improve Forest Vegetation – The agency will emphasize integrating with hazardous 

fuels reduction projects and community protection. Increased opportunities for 

accomplishing program goals through stewardship contracts, and utilization of 

available biomass for energy production, will be pursued. 

Establish Forest Vegetation – A proposed program reduction in Establish Forest 

Vegetation is based on: 1) the desire to maintain base level funding for effective 

program delivery in the other activity areas; 2) the critical nature of these programs 

for implementing the objectives of the agency’s Strategic Plan; 3) the need to 

continue development and implementation of forest restoration efforts through an 

integrated timber stand improvement program (including hazardous fuels reduction 

where feasible); and 4) the opportunity to accomplish reforestation through other 

venues, including leveraging resources through expanded partnerships. Reforestation 

accomplishments funded through this activity in FY 2008 are projected to decline by 

approximately 60 percent from FY 2006 accomplishment levels. See the 

Reforestation Special Exhibit for additional information. 

Manage Rangeland Vegetation – Program emphasis is on monitoring rangeland 

health in support of completing National Environmental Policy Act (NEPA) analysis 

for grazing allotments. Only very high priority issues will be addressed in the Wild 

Horse and Burro program, including continued removal of excess animals in 

partnership with the Bureau of Land Management. 

Maintain and Improve Watershed Conditions – The agency will focus efforts on longterm rehabilitation of the highest priority areas, especially those impacted by recent 

fires as part of the National Fire Plan, as well as hurricane-impacted areas. 

Managing Air Quality – Continue weather forecasts in support of fire suppression and 

smoke management activities. Continue operation of approximately, 340 remote, 

surface-based weather observation stations nationally for development of national fire 

danger ratings. 

Manage Noxious Weeds and Invasive Plants - The agency’s noxious weed and 

invasive plants program will continue to emphasize prevention, early detection and 

eradication, and control of terrestrial noxious weeds to directly achieve the agency’s 

strategic goals. Through increased emphasis on efficacy of treatments, it is expected 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-50 Vegetation and Watershed Management

that new infestations will be eradicated more expeditiously, and targeted infestations 

will be more efficiently controlled. 

Program Description 

 The Vegetation and Watershed Management budget line item consists of the following 

activities: 

Improve Forest Vegetation – Timber Stand Improvement (TSI) activities include: 

release treatments through removal of competing vegetation; precommercial thinning 

to regulate stand density, composition and structure; pruning treatments that reduce 

ladder fuels and improve future product quality; and fertilization treatments to 

maintain and improve soil quality. TSI projects can be, and often are, integrated with 

accomplishing hazardous fuels reduction objectives. In addition, TSI serves as a 

source for the expanding use of biomass for energy production. 

Establish Forest Vegetation - The reforestation program has four major goals: (1) to 

maintain appropriate forest cover on all forestlands within the NFS, (2) to improve 

the quality and yield of the timber resource, (3) to accelerate the attainment of desired 

species composition, and (4) to develop and demonstrate successful reforestation 

methods and techniques. The program includes artificial regeneration, seeding, and 

natural regeneration with and without site preparation. 

Reforestation needs generated through timber harvest activities are accomplished 

with Knudson-Vandenberg (KV) Act funds. Reforestation needs for areas where it is 

not feasible to generate KV funds, falls to other sources, including the Restoration 

Trust Fund, Burned Area Emergency Restoration funds, and the Vegetation and 

Watershed Management program. Corporate partners and civic groups have also 

been key contributors to the agency’s capacity for reforestation through matching 

fund agreements. 

The collection of seeds provides for annual tree seedling production. The operation of 

nurseries to produce high quality tree seedlings, and genetic resource improvement of 

seed and planting stock to enhance growth, yield and long term forest health are also 

key to program success.

Manage Rangeland Vegetation - Rangelands are managed to provide public uses and 

products for both rural and urban populations; in addition to maintaining valuable 

open space. Rangeland improvements are accomplished through seeding, removal of 

encroaching noxious shrub and tree vegetation, management of wild horse and burro 

populations, and enhancement of riparian and upland environments through 

implementation of improved grazing management practices. Rangelands are 

cooperatively monitored at the local level to determine conditions and trends over the 

long-term. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-51 Vegetation and Watershed Management

Maintain and Improve Watershed Conditions – A major purpose for the creation of 

the national forests and grasslands was to protect watersheds for public benefits such 

as providing for water uses including drinking water, reduce flooding, and return 

ersoive lands to a forested or grasslands vegetation cover. Today, more than 60 

million people residing in 3,400 communities in 43 States obtain at least a portion of 

their drinking water from aquifers and watersheds located on National Forest System 

lands. 

Watershed management programs directly improve forest, rangeland, and grassland 

health by accomplishing projects to maintain, improve or restore critical ecosystem 

components. Some common project goals may include: 1) reducing soil erosion, 

surface runoff and sedimentation; 2) preventing loss of top soil; 3) ameliorating 

compacted soils; 4) stabilizing disturbed bed, bank, and shoreline features; and 5) 

restoring upland, wetland and gully systems that no longer support expected 

hydrologic functions. 

Managing Air Quality - This program monitors the air quality of the 88 Class I 

Wilderness areas within the National Forest System. The agency must protect these 

areas from negative effects from air pollution as required under the Clean Air Act. 

In addition, this program aids the agency in managing air quality and weather 

monitoring to achieve watershed health, protect ecological values, and human health. 

Weather forecasts are provided in support of fire suppression and smoke management 

activities. The program manages about 340 remote, surface-based weather 

observation stations nationally for development of national fire danger ratings. Air 

resource programs are managed to protect sensitive areas from air pollution effects 

and to mitigate effects of management activities. 

Manage Noxious Weeds and Invasive Plants - Management of noxious weeds and 

invasive plants emphasizes activities to prevent, detect, contain, and eradicate 

infestations across aquatic and terrestrial ecosystems. Coupled with other agency 

programs, the control of non-native invasive vertebrates, invertebrates, and 

pathogens, invasive plants and noxious weed management activities supports the 

Forest Service Strategic Plan goal for invasive species. All invasive species 

(including invasive plants and noxious weeds) management activities are guided by 

agency policy and the USDA Forest Service National Strategy and Implementation 

Plan for Invasive Species Management. 

Targeted species and infestations are prioritized for treatment through local project 

plans using risk assessments and other appropriate integrated analyses. Data 

collected from Forest Service regions indicates that approximately 6-8 million acres 

of national forests are infested with invasive plants. In addition, interagency data 

shows that the average infestation spread rate for invasive plants in intermountain 

western rangeland conditions exceeds four thousand acres per day. When considering 

the other more fertile and moist conditions and longer growing seasons found in other 

Forest Service regions (spanning at least 35 States), the average rate of spread of 

invasive plants likely exceeds six thousand acres per day nationwide. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-52 Vegetation and Watershed Management

Independent Reviews 

Programs within the Strategic Plan Goal “Improve Watershed Condition” have 

undergone a Program Assessment Rating Tool (PART) assessment. This assessment was 

submitted to OMB and received a “Results Not Demonstrated” rating. Performance 

output measures have been identified for FY 2007 and are in place; however, the program 

at this time lacks efficiency measures and acceptable outcome-based measures that reflect 

agency progress toward program goals. 

FY 2008 Plans 

Improve Forest Vegetation 

• Improve 72,800 acres to obtain desired stand characteristics and meet long term forest 

health objectives, capitalizing on opportunities to reduce fuel hazards, reducing risk 

to communities and providing biomass for energy production. 

• Stewardship contracting will continue to be an important tool in meeting these 

objectives. 

Establish Forest Vegetation

• Expand on partnerships with corporate and civic groups to supplement capability, 

providing more than four million seedlings for planting on areas impacted by 

wildland fires.

• Develop new approaches to provide rapid assessment of reforestation needs resulting 

from wildfire and other natural events. Utilize a framework developed for assessing 

ecosystem restoration needs, and will develop guidelines and tools to assess past 

event recovery efforts. 

Manage Rangeland Vegetation 

• Rangeland condition and trend monitoring on over five million acres, with an 

emphasis on supporting the grazing allotment NEPA analysis program of work. 

• Improve nearly 1.8 million acres of rangeland, primarily through implementation of 

improved grazing practices as NEPA decisions are implemented. 

• Excess wild horses and burrows will continue to be removed from NFS lands through 

continuation of a partnership with the Bureau of Land Management (BLM). The 

agency plans to transfer $1.75 million to the BLM for this purpose. 

Maintain and Improve Watershed Conditions

• Emphasize activities that address impaired waters, soil productivity, hydrologic 

function and ecosystem productivity. Continue the rehabilitation of highest priority 

areas, from recent fires as part of the National Fire Plan. 

• Maintain and improve surface and ground-water quality, quantity and timing of flows 

and levels to support the purposes of the national forests and grasslands. Protect 

water resources when conducting ground-disturbing activities by implementing and 

monitoring best management practices (BMPs). 

• Reduce soil erosion, restore soil stability and productivity, and improve watershed 

conditions on National Forests nationwide. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-53 Vegetation and Watershed Management

• Manage Forest Service water rights and continue field verification of Forest Service 

water uses. Continue to resolve water rights issues throughout western states. 

• Populate the National Soil Information System (NSIS) with National Forest System 

lands soil survey data to facilitate integration of portions of NSIS data into NRIS, and 

to maintain NSIS to house supplemental information in coordination with the NRCS. 

• Implement the Interagency Accelerated Soil Survey Program including the 

development of ecological site descriptions to complete the once-over soil inventory 

of private and Federal lands by 2012. 

Air Quality Services

• Manage air quality monitoring programs within 88 Class I wilderness areas. 

• Continue weather forecasts in support of fire suppression and smoke management 

activities. 

Manage Noxious Weeds and Invasive Plants

• Continue to implement the USDA Forest Service National Strategy and 

Implementation Plan for Invasive Species Management, with a focus on early 

detection and rapid response for new infestations of invasive plants. 

• Emphasis will be on monitoring treatments for effectiveness – with a goal of meeting 

a minimum 50 percent efficacy rate. 

FY 2007 Program 

Improve Forest Vegetation 

• Approximately 250,000 acres will be treated for timber stand improvement; 77,400 

acres (30 percent) will be funded through this program area. Coordination with the 

hazardous fuels reduction program, along with collected K-V funds and, to a limited 

degree, the Restoration Trust fund will contribute to the remaining accomplishments. 

• Expand opportunities to utilize stewardship contracts to meet forest health and 

hazardous fuels reduction objectives. 

Establish Forest Vegetation 

• Reforestation is planned on over 250,000 acres; 34,200 acres (14 percent) will be 

accomplished through this program area. 

Manage Rangeland Vegetation 

• Approximately 1.7 million acres of rangelands are expected to show improved 

vegetative conditions as project decisions are implemented. 

• Provide approximately $1.75 million to the BLM for removal of excess wild horses 

and burros from several national forests in the western United States. 

Maintain and Improve Watershed Conditions 

• Implement priority restoration projects as identified through watershed assessments to 

meet desired condition objectives, state water quality standards and Total Maximum 

Daily Load (TMDL) schedules. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-54 Vegetation and Watershed Management

• Manage Forest Service water rights and continue field verification of Forest Service 

water uses. Continue agency water rights claim work in 41 river basins within 9 

western states. Work with States, tribes, other Federal agencies and local water users 

to resolve water use and rights conflicts in appropriate legal venues. 

• Maintain and improve surface and ground-water quality, quantity and timing of flows 

and levels to support the purposes of the National Forests and Grasslands. Protect 

water resources when conducting ground-disturbing activities by implementing and 

monitoring Best Management Practices (BMPs). 

• In collaboration with NRCS and BLM, complete the Interagency Ecological Site 

Description manual, which will provide a common methodology of ecological site 

descriptions and classifications that all land management agencies utilize. 

• Complete the integration of the Forest Service's Natural Resource Information 

System - Terra and the Natural Resource Conservation Service's National Soil 

Information System database systems. 

Air Quality Services 

• Operate approximately 340 remote, surface-based weather observation stations 

nationally for development of national fire danger ratings. 

• Continue weather forecasts in support of fire suppression and smoke management 

activities. 

• Review Prevention of Significant Deterioration (PSD) permits to protect Class I 

wilderness areas from effects of air pollution. 

• Manage air quality monitoring programs within 88 Class I wilderness areas. 

Manage Noxious Weeds and Invasive Species 

• Continue to implement the National Strategy and increase capabilities to conduct 

early detection and rapid response for new infestations of invasive plants and other 

categories of invasive species affecting national forest system watersheds. 

• Noxious weed and invasive plant treatments activities are planned on 115,700 acres 

of National Forest System lands. 

FY 2006 Accomplishments 

Improve Forest Vegetation 

• Timber stand improvement was accomplished on over 250,000 acres, 62,184 acres 

(25 percent) using Vegetation and Watershed Management program funds. Over 

13,000 acres were accomplished through stewardship contracts. 

Establish Forest Vegetation 

• Reforestation was accomplished on over 260,000; 33,827 acres (13 percent) of which 

were directly funded through the Vegetation and Watershed Management program. 

Manage Rangeland Vegetation 

• Improved grazing management practices following NEPA decisions on allotments, 

resulting in improvement conditions on over 1.7 million acres. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-55 Vegetation and Watershed Management

• Provided $1.75 million to the BLM for removal of excess wild horses and burros 

from several national forests in the Western United States. 

Maintain and Improve Watershed Conditions 

• Reached settlements on disputed water rights in Tahoe Basin Management Area in 

California, East Fork of the Jemez Wild & Scenic River in New Mexico, and 

Montana Compact negotiations. 

• Concluded the Bighorn adjudication recordation project in Wyoming and migrated 

water rights data for all national forests in California to a national database. 

• Completed a ground water discharge, springs and seeps inventory on the Ely Ranger 

District of the Humbolt-Toiyabe National Forest. 

• Developed criteria and methods to monitor soil quality elements in relation to impacts 

associated with ground-based operations such as fuels reduction projects and timber 

harvesting. 

• Established a riparian inventory and monitoring program to develop methods to 

consistently and accurately identify and assess riparian resources on National Forest 

System lands. 

• Completed a revised, draft protocol for classifying watershed condition. 

Air Quality Services 

• Continued deployment and support of the Predictive Services technology at 

Geographic Area Coordination Centers for weather data, products, and forecasts in 

support of pre-fire suppression, fire suppression, and smoke management activities. 

• Managed air quality monitoring program within 88 Class I wilderness areas. 

• Reviewed Prevention of Significant Deterioration (PSD) permits to protect Class I 

wilderness areas from effects of air pollution. 

Manage Noxious Weeds and Invasive Plants 

• Improved invasive plant information management for field-level personnel by 

developing user-friendly, spatially-oriented, data software applications and hardware 

for inventory and treatment. 

• Treated over 79,000 acres for noxious weeds and invasive plants.

• Treated over 162,000 acres of noxious weed and invasive plant infestations, over 

79,000 acres funded through the Vegetation and Watershed Management program. 

The balance of the acres was funded through a variety of others program areas based 

on the Primary Purpose of the project.
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-56 Minerals and Geology Management

Budget Line Item Minerals and Geology Management 

Minerals & Geology Management Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $84,164 $83,978 $1,312 -$3,050 -$11,405 $70,835 -14% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $84,164 $83,978 $1,312 -$3,050 -$11,405 $70,835 -14% 

Full Time Equivalents (FTEs) 611 619 -168 451 

Estimated Funding by Activity 

Administer Mineral Operations $28,073 $30,232 $556 -$1,292 -$4,424 $25,072 -15% 

Process Mineral Applications $22,296 $23,514 $439 -$1,020 -$3,739 $19,194 -16% 

Manage Geologic Resources & Hazards $8,872 $7,668 $128 -$298 -$1,833 $5,665 -24% 

Manage Environmental Compliance $7,572 $2,957 $79 -$183 $332 $3,185 11% 

Manage Environmental Restoration $17,351 $13,684 $12 -$27 -$756 $12,913 -6% 

Mitigate Abandoned Mine Lands (AML) 

Safety Risk Features* --- $5,923 $99 -$230 -$986 $4,806 -17% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* New activity starting in FY 2007 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Number of mineral operations 

administered 13,267 15,152 13,533 11,955 -1,578

Number of mineral applications 

processed* 6,548 11,632 9,445 6,705 -2,740

Number of AML safety risk features 

mitigated to "no further action** 312 346 539 474 -65

Number of administrative units where 

audits were conducted 17 20 34 33 -1

Number of contaminated or disturbed 

sites which have been mitigated *** 25 115 80 --- n/a

Percentage of contaminated sites 

mitigated **** --- --- --- 20% n/a

Percentage of backlog (existing at the 

end of FY 03) in APDs reduced 86% 90% 100% 100% 0%

* Activity redefined in FY 2007 from "Number of mineral operations processed." 

**In FY 2008, accomplishments represent planned completion of multi-year projects. In FY 2006-2007, planned 

accomplishments included on-going multi-year projects that would not be completed until future years. 

*** Not tracked after FY 2007. 

**** New activity starting in FY 2008. 

 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-57 Minerals and Geology Management

FY 2008 Program Changes 

The FY 2008 budget for Minerals and Geology Management is $70.8 million, a net 

program change of -$11.4 million, or –14 percent from the FY 2007 Estimate. There are 

451 FTEs in the program in FY 2008, a decrease of 168, or -27.1 percent from the FY 

2007 Estimate. 

The energy component of the program will focus on increasing opportunities for 

development and supply of oil and gas, coal, and geothermal resources from Federal 

lands in support of the Energy Policy Act (EPA) of 2005. The agency will enhance 

efficiencies in facilitating processing energy leasing and permit applications, particularly 

with respect to eliminating the backlog of oil and gas lease nominations and applications 

for permits to drill (APDs) with the implementation of the EPA pilot offices. 

Specific priorities within each activity include: 

Minerals and Geology Management

Administer Mineral Operations – Administration efforts increase as processing of 

mineral applications increase. Mineral operations must be administered to 

standard. 

Process Mineral Applications – Priorities for minerals management focus on 

streamlining and improving permit processing in accordance with the Energy 

Policy Act of 2005. 

Manage Geologic Resources and Hazards – Priorities will focus on ground water

resource evaluation and protection, as well as protection and preservation of 

paleontological resources to deter fossil theft. 

Environmental Compliance and Protection and Abandoned Mine Lands 

(ECAP/AML)

Manage Environmental Compliance – The funding level provided will allow the 

agency to continue environmental compliance audits which are required by law 

and Executive Order as well as provide funds for emergency response to illegal 

drug labs and hazardous material spills within, or affecting National Forest 

System Lands. 

Manage Environmental Restoration – This program focuses on cleanup of 

abandoned mines and other contaminated sites based on severity of the 

contamination, surface resources at risk, and the ability to leverage private and 

public partnerships and support. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-58 Minerals and Geology Management

Abandoned Mine Land (AML) - Safety Risk Features Mitigated – Priority is 

placed on mitigating the most severe hazards at publicly accessible abandoned 

mine sites by working with private, State and Federal partners. 

Program Description 

The Minerals and Geology Management program is responsible for the development of 

energy and non-energy mineral commodities, protection of ground water and 

paleontological resources, and restoration of hazardous waste sites including abandoned 

and inactive mine sites within 193 million acres of National Forest System (NFS) lands. 

Currently, there are approximately 5 million acres leased for oil and gas; 90,000 mining 

claims; 8,000 mineral material sale contracts and permits, 10 percent of which are major 

commercial contracts; and more than 15,000 operations to monitor and inspect, with an 

additional 1,500 operations proposed each year,. 

Over 2.5 million acres of NFS lands contain coal-bearing rocks; with two of the most 

productive coal mines in the United States on the Bighorn National Forest located in 

Wyoming’s Powder River Basin. About 10% of the nation’s phosphate and 75% of lead 

production come from NFS lands in Idaho and Missouri. The value of all energy and 

mineral production from NFS lands typically exceeds $2 billion per year. NFS lands are 

the largest single source of municipal water supply for 3,400 communities in 33 States, 

serving over 66 million people with drinking water. Fourteen percent of the total runoff 

in the United States comes from watersheds within NFS lands that may have been 

impacted by hazardous waste and require restoration. Estimates indicate that there are 

over 39,000 abandoned and inactive mine sites on NFS lands with at least 2,000 sites 

requiring some type of cleanup. 

The Minerals and Geology Management program consists of the following activities: 

Process Mineral Applications – Provides for the approval of operational plans for 

mining claims located on NFS lands under the General Mining Law; approval of 

surface use plans of operations for energy minerals, including coal, oil and gas, and 

geothermal resources under the Mineral Leasing Acts; and issuance of mineral 

material contracts for construction materials for commercial operations or free-use to 

county and State highway departments. 

Administer Mineral Operations – Provides for the inspection, oversight, and 

monitoring of mineral operations under use authorizations on NFS lands. 

Administration to standard ensures compliance with stipulations and mitigation 

measures under plans of operation; compliance with State and Federal environmental 

laws and regulations; and protection of public health and safety. 

Manage Geologic Resources and Hazards – Provides support and resource information 

for land management planning, environmental protection, mined-land reclamation, and 

cost effective geologic project design. Geologic resources are identified and managed 

for their appropriate use such as a special interest area, for habitat or watershed 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-59 Minerals and Geology Management

restoration, recreational use, and protection (paleontological and ground water 

resources). Geologic hazards, such as landslides and volcanoes, are identified and 

managed to provide for public health and safety. 

AML Safety Risk Features Mitigated – Provide for cleanup and rehabilitation of 

abandoned mine features consisting of isolated mine openings, shafts, roads and old 

buildings that are significant public safety hazards, and that may cause localized 

environmental problems. Cleanup of these sites includes recontouring of roads, 

closure of mine adits and shafts, removal of mine chemicals and trash, restoration or 

removal of old mine buildings, and protection where possible of AML dependant 

species such as bats. 

Manage Environmental Compliance – This activity funds a national audit program 

which assesses compliance with environmental statues and Federal requirements and 

trains field personnel regarding compliance and pollution prevention. 

Manage Environmental Restoration – Environmental restoration provides for cleanup 

projects initiated under requirements of one of the following Federal regulations: 

Comprehensive Environmental Response, Compensation, and Liability Act 

(CERCLA); Resource Conservation and Recovery Act (RCRA); or the Clean Water 

Act (CWA). The majority of projects include cleanup of abandoned or inactive 

mines, landfills, or administrative sites to correct legacy releases of hazardous 

substances that could adversely affect human health and/or the environment. 

Mineral receipts are derived from annual lease rentals, royalties on production, bonus 

bids for competitive leases, and mineral material sales. Of the total revenues received, 25-

50 percent is returned to the States and counties where production occurs. The remaining 

revenues are distributed to the Reclamation Fund and the General Treasury. Emphasis in 

the ECAP/AML includes cost recovery and efficient and effective utilization of 

partnerships in order to achieve maximum restoration and remediation of abandoned 

mine lands and disturbed ecosystems. The agency supplements appropriated funds 

through cooperative efforts with other government agencies and by pursuing responsible 

parties to conduct or fund cleanup actions. ECAP/AML receives transfer funds from the 

USDA Central Hazardous Materials Management Appropriation for use only on 

CERCLA and RCRA cleanup projects. 

FY 2008 Plans 

Administer Minerals Operations

• Implement the Carbonate Habitat Management Strategy in the San Bernardino 

National Forest plans to facilitate the expansion of several large world-class 

limestone mines in harmony with TES plant species. 

• Support mineral production from energy and nonenergy mineral operations on NFS 

lands that annually produce energy and mineral products exceeding $2 billion in 

value yielding over $125 million in revenues to the U.S. Treasury. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-60 Minerals and Geology Management

Process Mineral Applications

• Complete approvals necessary to bring the Borealis open pit silver and gold mine in 

the Humboldt-Toiyabe National Forest, Nevada into operation that would employ 

about 200 people and produce 500,000 oz. of silver and 50,000 oz. of gold annually. 

• Complete the EIS for the Montanore world-class copper-silver deposit in the 

Kootenai National Forest, Montana which would employ up to 530 people during the 

three-year construction phase and 450 people during the 16-year mine life. 

• Complete the energy leasing analyses in three national forests in Region 4 which 

would make over 3 million acres available for lease nomination and subsequent oil 

and gas development. 

• Complete the geothermal resources programmatic environmental impact statement in 

cooperation with the Bureau of Land Management, and begin processing of 

geothermal backlogged lease applications. 

Manage Geologic Resources & Hazards

• Work with States and other partners to conduct inventory and ground water 

monitoring on NFS lands and provide technical assistance to other program staff and 

partners and customers on issues involving ground water resources. 

• Continue survey and inventory work at Picketwire Canyonlands (PWC) of Colorado 

and excavation in Last Chance Dinosaur Quarry for the skull of an Apatosaurus with 

assistance from several thousand hours from volunteers. 

AML Safety Risk Mitigated

• Mitigate 474 safety hazards at AML sites; including closing 5 vertical shafts and 7 

hazardous mine adits (horizontal openings) on the Grand Mesa/Uncomphagre/ 

Gunnison National Forest in Colorado adjacent to the San Juan Scenic Skyway – 

“Million Dollar Highway.” 

Manage Environmental Compliance

• Complete 9 environmental compliance quality assurance/quality control audits by the 

National Environmental Audit Team (NEAT) per the requirements in Executive 

Orders 13148 and 12088, Department Manual (DM) 5600-001, FSM 1480, and in 

OMB Circular A-11 and initiate corrective action follow-up on audit findings. 

• Conduct external environmental compliance audits on one fifth (1/5) of the national 

forests, and initiate corrective action follow-up on audit findings. 

Manage Environmental Restoration

• Complete 25 cleanups with appropriated and USDA Central Hazardous Materials 

Management funds including the clean-up and remediation of the Standard Mine, an 

abandoned zinc/lead/gold and silver mine which threatens the municipal water intake 

for the Town of Crested Butte, Colorado. 

• Supplement appropriated funds with settlements or judgments from potentially 

responsible parties (PRPs), and cooperative agreements with other government 

agencies to fund or perform cleanup work of contaminated sites. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-61 Minerals and Geology Management

FY 2007 Program 

Administer Minerals Operations

• Complete a Supplemental Information Report related to the lynx in the Routt National 

Forest in order to complete processing long-standing pending energy lease 

nominations. 

• Continue administration of the 900 drill hole exploration and development plan to 

expand the Jerritt Canyon open pit gold mine in the Humboldt-Toiyabe National 

Forest, Nevada to produce 300,000 oz of gold per year thereby supporting 

employment of the local community and increasing tax revenues to the State of 

Nevada and the General Treasury. 

Process Mineral Applications

• Initiate preparation of the programmatic environmental impact statement for 

development of geothermal resources in cooperation with the Bureau of Land 

Management, under the Energy Policy Act of 2005. 

• Complete processing of long-standing lease applications in the San Juan National 

Forest, Colorado resolving 103,000 acres of pending lease requests would make 

available approximately 1.3 million additional acres for leasing. 

• Resolve litigation issues surrounding the Rock Creek Mine project in the Kootenai 

National Forest, Montana which would provide almost 500 jobs in the local 

community. 

Manage Geologic Resources & Hazards

• Complete an investigation of nitrate in ground water and springs from septic 

drainfields at the Sawtooth National Recreation Area Headquarters, Idaho that will 

provide information to properly site a new drainfield that limits impacts to area 

springs and the Big Wood River. 

• Complete field inventory and study of Permian age fossil trackways in flagstone 

resources of the Coconino Sandstone in the Kaibab National Forest, Arizona to 

resolve management issues between the flagstone mineral resources and the 

protection and preservation of the scientific values of the paleontological resources in 

the national forest. 

• Design and implement an early warning system for an active landslide impinging on 

U.S. Highway 50 on the Eldorado National Forest in cooperation with CALTRANS, 

the California Office of Emergency Services, and Eldorado County to provide public 

safety measures should the slide block fail. 

AML Safety Risk Mitigated

• Mitigate 538 safety hazards at AML sites; including closing vertical mine openings – 

up to 200 feet deep – which run continuously for 3/4 mile along the foothills of the 

Zuni Mountains adjacent to the El Malpais National Monument on the Cibola 

National Forest, New Mexico. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-62 Minerals and Geology Management

Manage Environmental Compliance

• Complete 10 environmental compliance quality assurance/quality control audits by 

the NEAT per the requirements in Executive Orders 13148 and 12088, Department 

Manual (DM) 5600-001, FSM 1480, and in OMB Circular A-11. Initiate corrective 

action follow-up on audit findings. 

• Conduct external environmental compliance audits on one fifth (1/5) of the national 

forests, and initiate corrective action follow-up on audit findings. 

Manage Environmental Restoration

• Complete 71 cleanups with appropriated and USDA Central Hazardous Materials 

Management funds; including clean-up of the Juniper Mine in the Stanislaus National 

Forest, which would allow the Forest Service to re-open a popular recreation area that 

was closed in 2003 due to high levels of gamma radiation coming from waste piles. 

• Supplement appropriated funds with settlements or judgments from potentially 

responsible parties (PRPs), and cooperative agreements with other government 

agencies to fund or perform cleanup work of contaminated sites. 

FY 2006 Accomplishments

Administer Minerals Operations

• Administered Coeur Alaska’s Kensington Mine activities in the Tongass National 

Forest, which is expected to create about 225 jobs and generate about $10.1 

million/year in tax receipts. 

• Implemented new guidelines and direction for Surface Use Determinations to provide 

national consistency in report preparation and content, and to insure that the 

authorized officer’s decisions withstand appeals and litigation. 

• Implemented the first national web-based minerals database (Infra Mineral Materials 

Database) for salable minerals that will greatly facilitate processing and 

administration of approximately 8,000 mineral material permits per year. 

Process Mineral Applications

• Processed PolyMet Mining Corporation’s plan of operations to extract copper, nickel, 

cobalt, and precious metals from the Superior National Forest, Minnesota which will 

create between 490 and 600 jobs over the life of the mine. 

• Approved the expansion of the Stillwater and East Boulder Mines in the Stillwater 

Complex in the Custer and Gallatin National Forests, Montana which employs over 

1,600 people and is the State’s second largest private employer. 

• Successfully utilized the new oil and gas categorical exclusion process established in 

the Energy Policy Act of 2005 to process 81 surface use plans in the Jicarilla Ranger 

District of the Carson National Forest, New Mexico with over 80 percent of the 

permits processed within prescribed timeframes. 

• Completed hiring for pilot collocation offices with the Bureau of Land Management 

in accordance with the Energy Policy Act to improve permit processing efficiencies. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-63 Minerals and Geology Management

Manage Geologic Resources & Hazards

• Documented over 150 new caves on the Mark Twain National Forest, Missouri 

through a cost share agreement with Cave Research Foundation (CRF), which include 

new Indiana and Grey Bat colonies, a new species of pseudoscorpion, and Pleistocene 

age cat footprints, probably from the extinct American lion. 

• Completed the inventory of ground water discharge springs and seeps on the Ashland 

Ranger District, Custer National Forest in cooperation with the State of Montana that 

documents the extent of the water resources accessible to domestic, stock and 

ecosystem use in the northern Powder River Basin in advance of encroaching coalbed methane development. 

• Surveyed an additional 500 acres of the Picketwire Canyonlands, Colorado, bringing 

the total number of acres surveyed to about 40 percent, and documented five new 

occurrences of significant fossil resources including Middle Jurassic age theropod 

teeth, partial dinosaur skeletons, and a very large dinosaur footprint (55 cm) in the 

Upper Cretaceous Dakota Sandstone. 

AML Safety Risk Mitigated

• Mitigated 346 safety hazards at 70 abandoned mine sites in 12 States; including 

closing several dangerous adits and shafts, and by removing collapsed structure at the 

Apex Uranium mine in Lander County, Nevada, to eliminate physical safety hazards 

and prevent entry to radioactive underground workings. 

Manage Environmental Compliance

• Completed seven environmental compliance Quality Assurance/Quality Control 

audits by NEAT; completed one internal and one external pilot audits in each region 

per the requirements in Executive Orders 13148 and 12088, Department Manual 

(DM) 5600-001, FSM 1480, and OMB Circular A-11. 

• Conducted external environmental compliance audits on one fifth (1/5) of the national 

forests, and initiate corrective action follow-up on audit findings. 

Manage Environmental Restoration

• Completed 38 cleanups with appropriated and USDA Central Hazardous Materials 

Management funds, including partnering with the Westslope Chapter of Trout 

Unlimited, to restore the Eustache Creek flood plain and riparian habitat on the 

Ninemile Ranger District, Lolo National Forest, Montana which had been heavily 

impacted by historic placer mining. 

• Another cleanup protected the Dorena Reservoir, which is the source of drinking 

water for the City of Cottage Grove, Oregon, by removing waste rock, treating 

petroleum contaminated soils and acid mine drainage, and capping mill tailings at the 

Champion Mine in the Umpqua National Forest, Oregon. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-64 Landownership Management 

Budget Line Item Landownership Management

Landownership Management Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $90,932 $90,731 $1,874 -$3,954 -$7,811 $80,840 -9% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $90,932 $90,731 $1,874 -$3,954 -$7,811 $80,840 -9% 

Full Time Equivalents (FTEs) 788 797 -143 654 

Estimated Funding by Activity 

Adjust Land Ownership $17,431 $15,792 $327 -$689 -$1,664 $13,766 -11% 

Protect Land Ownership Title $10,511 $9,523 $215 -$453 -$826 $8,459 -9% 

Locate Land Boundaries $23,547 $22,342 $472 -$998 -$640 $21,176 -3% 

Administer Land Use Authorizations $22,093 $22,539 $433 -$913 -$2,845 $19,214 -13% 

Process Land Use Proposals $17,350 $20,535 $427 -$901 -$1,836 $18,225 -9% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Acres of land adjustments to conserve 

the integrity of undeveloped lands and 

habitat quality* 20,824 14,719 12,515 10,015 -2,500

Land ownership title cases resolved 

through litigation or processed through 

administrative procedure** 274 282 --- --- n/a

Number of title management cases 

resolved or completed to standard*** --- --- 240 185 -55

Miles of landownership boundary line 

marked/maintained to standard 2,304 2,334 2,080 1,855 -225

Number of land use authorizations 

administered to standard 6,373 12,708 12,170 9,845 -2,325

Number of land use proposals and 

applications processed 1,725 4,611 5,120 4,220 -900

* Activity redefined; FY2006 was "Land ownership acres adjusted", FY 2007 was "Acres acquired or 

conveyed" 

** Activity not tracked after 2006. 

*** Activity not tracked before 2007. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-65 Landownership Management 

FY 2008 Program Changes 

The FY 2008 budget for Landownership Management is $80.8 million, a net program 

change of -$7.8 million, or -9 percent from the FY 2007 Estimate. There are 654 FTEs in 

the program in FY 2008, a decrease of 143, or -18 percent from the FY 2007 Estimate. 

The program will focus on surveying boundaries to support hazardous fuels reduction 

projects in the wildland urban interface (WUI). Designating new energy transmission 

corridors and expediting authorizations for rights-of-way on Federal lands will also be a 

high priority for the agency in FY 2008 in order to facilitate the development and 

transmission of affordable and reliable energy. 

Specific priorities within each activity include: 

Adjust Land Ownership – Priority will be placed on acquisitions that improve public 

access for outdoor recreation and conveyance of administrative sites and adjacent 

land that reduce administrative costs and deferred maintenance. Priority for land 

exchange and rights-of-way acquisitions is on those acres that protect watersheds, 

provide public access, facilitate priority vegetation management activities, and 

conserve the integrity of undeveloped lands and habitat quality. 

Protect Land Ownership Title - Priority will be placed on resolution of title claims 

and encroachments involving litigation, specifically those associated with 

management of Native American land and unauthorized uses, in order to protect the 

interest of the United States and bona fide claimants and the public’s land and 

resources. The agency will also continue to focus on identifying critical withdrawals 

needed to protect natural resource areas and recording land status records into the 

Automated Land Program (ALP) system. 

 

Locate Land Boundaries - Priority is to maintain and protect existing marked 

boundary lines, as well as marking critical new property lines, in areas that improve 

the condition class of NFS lands through hazardous fuels treatments. 

Special Use Authorizations and Administration - Requirements established by the 

Energy Policy Act of 2005 are the highest priority, and will be accomplished through 

ongoing collaborative efforts to identify and designate utility rights-of-way. The 

agency anticipates an estimated $2 to $3 million increase in revenues by processing 

new energy-related land use applications. 

The proposed reduction in funding, combined with the needed emphasis on addressing 

hazardous fuels reduction activities and the Energy Policy Act, will result in fewer 

resources available for other land and resource management needs and fewer skilled and 

experienced employees to assist in program administration activities. The boundary 

maintenance backlog, currently at 101,000 miles, will continue to grow as land and 

resource management boundary needs generated by other programs will receive less 

emphasis, resulting in increased trespasses, encroachments, title claims, and litigation. 

The backlog of expired special use authorizations, currently at 11,000 will also continue 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-66 Landownership Management 

to grow leading to a higher degree of liability to the United States and jeopardizing public 

health and safety and damage to natural resources. Administration of only 20 percent of 

existing special use authorizations would occur with primary focus on ensuring minimal 

standards of health and safety, while resources for processing new applications would be 

reduced. 

Program Description 

The Landownership Management program secures and protects approximately 193 

million acres of public lands and interests within the NFS in order to improve 

management efficiencies, provide protection of critical resources, protect ownership 

rights and provide public access. Currently there are 276,500 miles of NFS boundary 

line, of which 110,000 (40 percent) have been marked to Forest Service standards. The 

program oversees 50,000 land use authorizations, which utilize Federal lands for a wide 

variety of purposes, including rights-of-way for roads, pipelines, communication and 

navigation sites, electric and transmission and distribution facilities, and other land uses. 

 

The Landownership Management program consists of the following activities: 

Adjust Land Ownership – Provides notification, analysis, valuation and realty case 

processing services to public and private landowners and managers to improve land 

ownership patterns for more effective and efficient resource protection, management 

and use of NFS lands and resources, enhanced public opportunities, and improved 

non-Federal land management opportunities. 

Protect Land Ownership Title – Provides title defense and resolution affecting 

landownership activities related to land title claims, trespass, encroachments, other 

unauthorized uses, land sales, and grants and selections, including work associated 

with title claim identification, inventory, and investigation. Also includes the 

maintenance and operation of the land status record system which defines and 

describes the location and landownership interests and rights of the NFS. 

Locate Land Boundaries – Provides professional land surveying services and support, 

including land and property boundary surveys, locating and marking NFS property 

boundary lines, boundary and property corner maintenance and perpetuation, legal 

land description preparation and review, land title research and evaluation, witness 

testimony, and geospatial and geodetic services in order to protect, secure, and defend 

the title, land ownership and use of the public estate. 

Special Use Authorizations and Administration – 

Process Land Use Proposals - Provides responses, analyses, and decisions 

directly to proponents and applicants that request to occupy and use NFS lands. 

Many of these land uses facilitate the delivery of energy resources, including 

hydropower facilities, oil and gas pipelines, and electric and other energy 

transmission facilities which are critical to the nation’s infrastructure for the 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-67 Landownership Management 

generation and transmission of energy. In FY 2006, land uses generated over 

$11.5 million in revenues to the U.S. Treasury. 

Administer Land Uses Authorizations - Provides inspection, oversight, and 

monitoring of authorizations issued to ensure compliance with the terms and 

conditions of the authorization, while ensuring the health and safety of the public, 

protection of the environment, compliance with Federal, State, and local laws and 

regulations, and protection of the interests of the United States. 

FY 2008 Plans 

Adjust Land Ownership 

• Prioritize regional land adjustment programs and individual land conveyances to 

improve efficiency and ensure accountability, consistency, and compliance with 

Forest Service policy and applicable laws and regulations. 

• Provide critical support to the conveyance of administrative sites. 

• Acquire and convey 10,015 acres to facilitate conservation and stewardship 

objectives, including national oversight reviews. 

Protect Land Ownership Title

• Emphasize resolution of critical landownership title cases related to claims, 

encroachments, and trespass that involve litigation and address the increasing backlog 

of cases. 

• Record and maintain agency land status and land ownership records consistent with 

established national standards to respond efficiently and accurately to Federal land 

inventory and asset reporting requirements. 

• Identify withdrawals on NFS lands requiring extensions in order to continue 

protection of natural resource areas, administrative sites, etc. 

Locate Land Boundaries 

• Maintain existing marked boundary lines, as well as marking 1,855 miles of critical 

new property lines, in support of critical land and resource projects and address the 

boundary maintenance backlog. 

• Pursue cooperative and joint land survey opportunities and Challenge Cost Share 

agreements with other land management agencies and adjoining landowners in order 

to maximize cost efficiencies. 

Special Use Authorizations and Administration 

• Complete environmental reviews, with other Federal agencies, for the designation of 

utility rights-of-way corridors for oil, gas and hydrogen pipelines in 39 States, 

incorporating them into forest plans. 

• Establish improved interagency land use authorization procedures (seamless 

procedures) for energy-related facilities on NFS lands, fulfilling the need to meet the 

Nation’s growing energy demand through expedited coordination among Federal, 

State, and tribal agencies. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-68 Landownership Management 

FY 2007 Program 

Adjust Land Ownership

• Acquire and convey 12,515 acres to facilitate conservation and stewardship 

objectives, including national oversight reviews. 

• Acquire approximately 175 rights-of-way in support of critical resource activities. 

• Improve exchange and conveyance activities to facilitate strategic plan objectives and 

implement the Facilities Realignment and Enhancement Act. 

Protect Land Ownership Title

• Seek resolution to critical title claim cases, including two priority Native American 

title claims. 

• Develop rights-of-way processing procedures to resolve road disputes between the 

agency, States, and counties and determine the extent of the rights obtained under 

rights-of-way grants. 

Locate Land Boundaries 

• Maintain existing marked boundary lines, as well as marking 2,080 of critical new 

property lines, in support of critical land and resource projects and address the 

boundary maintenance backlog. 

• Perform cadastral surveys that will define and locate public ownership in order to 

prevent trespasses, encroachments and unauthorized use. 

• Develop cadastral geospatial information for land and resource management 

planning, with automation of agency land records in a geographic information system 

(GIS) environment to the established national standard. 

Special Use Authorizations and Administration 

• Complete the designation of utility rights-of-way corridors for oil, gas and hydrogen 

pipelines in 11 western States, incorporating these into forest plans, and begin work 

necessary to designate corridors in the remaining States. 

• Prepare and publish regulations to revise nationally scheduled fair market value for 

linear rights-of-way as required under Section 367 of the Energy Policy Act. 

• Continue to give priority to the processing of applications associated with statutory 

rights (Ditch Bill easements, ANILCA access cases) and to processing Ditch Bill 

easement application cases pursuant to the 2004 management direction and strategy. 

FY 2006 Accomplishments 

 

Adjust Land Ownership

• Acquired 122 rights-of-way in support of critical resource activities, including fuels 

reduction, fire suppression efforts, and improving public access. 

• Acquired 9,513 acres of non-Federal lands, conveying 5,206 acres of NFS lands. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-69 Landownership Management 

Protect Land Ownership Title

• Completed research and production of 16 national forest proclamations for 

recognition of the Forest Service’s 100th Centennial. 

• Settled the last unresolved Indian Claims Commission title claim for San Ildefonso 

Pueblo. 

• Designated the 7,168 acre Sagehen Experimental Forest in California as a “New 

Century of Service Experimental Forest;” increasing the ability for researchers and 

practitioners to interact in a real time environment and discuss forest management 

issues and solutions, improving forest and watershed management as well as 

improving cooperation among researchers, practitioners, and academia. 

• Completed research work to identify and validate Land Utilization Project lands 

conveyed to the States in the 1940s for greater accuracy in processing payments to 

local governments. 

Locate Land Boundaries 

• Marked 660 miles of critical property line in areas that supported hazardous fuel 

reduction activities in the wildland-urban interface; a total of 2,334 miles of property 

lines were marked or maintained. 

• Assisted in the environmental cleanup of mining claims by recovering and mapping 

the mineral survey corners and providing the control to map the location of claims 

and ground contamination. 

Special Use Authorizations and Administration 

• Signed several interagency MOUs and participated in interagency work to implement 

agency obligations under the Sections 367, 368, 372 and 1211 and 1221 of Energy 

Policy Act of 2005. 

• Drafted agency policy and guidelines on Wind Energy development. 

• Completed the processing of 650 ditch bill easement applications, reducing the 

number of cases remaining to under 800. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-70 Law Enforcement Operations 

Budget Line Item Law Enforcement Operations 

Law Enforcement Operations Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $110,937 $110,692 $1,894 -$4,612 $15,867 $123,841 14% 

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 

Total Enacted Budget Authority $110,937 $110,692 $1,894 -$4,612 $15,867 $123,841 14% 

Full Time Equivalents (FTEs) 737 739 47 786 

Estimated Funding by Activity 

Enforce Laws & Regulations $67,671 $67,315 $1,217 -$2,963 $9,740 $75,309 14% 

Investigate Crime $43,266 $43,377 $677 -$1,649 $6,127 $48,532 14% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Outcome Measure Plan Actual Plan Plan FY 2007 

Percent of reported incidents with action 

was taken 60% 65% 65% 80% 15%

Percent of cases closed 75% 77% 77% 82% 5%

 

FY 2008 Program Changes 

The FY 2008 budget request for Law Enforcement and Investigations (LEI) is $123.8 

million, a net program change of +$15.8 million or +14 percent above the FY 2007 

Estimate. There are 786 FTEs in the FY 2008 program an increase of 47 FTEs from the 

FY 2007 Estimate. 

The funding increase will be used to hire, train and equip 47 new special agents and law 

enforcement officers. This new personnel will increase the visibility of law enforcement 

on the National Forest System lands and improve the safety for the public and employees, 

and protect government facilities. Additionally, personnel will focus on reducing illegal 

occupancy of National Forest System (NFS) lands by foreign drug trafficking 

organizations, reducing foreign drug smugglers in national forests along the southwest 

border, and improving public and employee safety on the southwest and northern borders. 

The funding will also be used to replace personal protective equipment, such as ballistic 

vests, defensive equipment, surveillance equipment, vehicle mounted video systems, 

mobile data terminals, and communication devices in vehicles, which ensure the safety 

and security of the agency’s officers. The Law Enforcement program will also increase 

the number of cooperative law enforcement agreements with State and local departments 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-71 Law Enforcement Operations 

nationwide, which will expand the capacity of the program because of access to these 

additional resources. 

It is estimated that extra Law Enforcement Officers and Special Agents will be able to 

investigate an additional 70 threat and assault complaints, make more than 350 more 

arrests, and document and investigat at least 25,000 more incidents. Approximately 200 

more felony cases will be investigated and 300 more felony cases will be closed. This 

increased activity will result in the public and employees having fewer encounters with 

violent people in the national forests. The enhanced visibility will yield a reduction in 

resource crime and the Federal government will receive additional reparation from the 

completion of additional civil cases. 

Program Description

Protecting the National Forests - The Forest Service Law Enforcement and 

Investigations program is charged with providing a safe environment for the public, 

agency employees and with protecting the nation’s natural resources on approximately 

193 million acres of NFS lands in 44 States. LEI staff cooperate with Federal, State, and 

local law enforcement agencies and other Forest Service programs in support of this 

mission. The LEI field staff provides: 

• Uniformed patrol presence and response to public and employee safety incidents and 

violations of law and regulations such as incidents of theft, assault, alcohol and drug 

use, unauthorized motor vehicle use, occupancy, trespass, sanitation, large group 

gatherings and resource protection patrols. 

• Criminal and civil investigations of both internal and external cases such as felony 

arson, drug possession, smuggling and manufacturing, thefts, assaults, timber, 

Archaeological Resource Protection Act investigations, other resource damage 

investigations, Earth Liberation Front (ELF) and the Animal Liberation Front (ALF) 

investigations. 

• Assistance with traffic accidents, search and rescue, medical emergencies, hazardous 

materials spills and large-scale national emergencies such as hurricanes Katrina and 

Rita and the space shuttle recovery. 

• Strong relationships with sheriffs offices, State police agencies and Federal agencies 

such as DEA, FBI, ATF, the Offices of the United States Attorney, the Federal Court 

System and other federal land management agencies. 

• Enforcement of Native Alaskan subsistence hunting and fishing rights on 22.6 million 

acres of NFS lands under the Alaska National Interests Lands Conservation Act. 

• Investigation and enforcement of illegal occupancy of armed Mexican drug 

trafficking organizations on NFS lands. 

Protecting Visitors and Forest Service Facilities - Increasing population growth in the 

wildland-urban interface, increasing popularity of NFS lands for motorized recreational 

uses, and illegal occupancy of NFS lands is causing significant impacts to NFS lands and 

resources, thereby increasing risks to public and employee health and safety. No longer 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-72 Law Enforcement Operations 

are law enforcement personnel just handling minor infractions, petty offenses, and 

misdemeanors; they also respond to: 

• Environmental protests, threats and assaults on employees and government property, 

domestic terrorist activity, large group events, gang activity, and fire emergencies. 

• Crimes such as rape, homicide, domestic disputes, assault, robbery, drug 

manufacturing and trafficking and other serious felony crimes. 

• Crimes associated with illegal border crossings onto the national forests include 

smuggling, assaults, robbery, sanitation, environmental and resource damage. 

• Breeches of facilities security include theft and damage of government property, 

unruly and disruptive visitors, and on the job domestic violence situations. 

• Fugitive apprehension requests for assistance from Federal, State, and local agencies 

(e.g. Eric Robert Rudolph and Ted Kaczynski). 

Critical Support Functions – Electronic incident reporting, tracking and accomplishment 

reporting with the LEIMARS database. This data allows staff to analyze trends in 

personnel utilization, evaluate functional program area impacts, conduct information 

sharing across forests and regions, assess specific crime trends, and identify data used for 

outputs, outcomes and efficiencies to be used in Program Assessment Rating Tool 

(PART) reporting. 

Program Staffing - The LEI staff is made up of approximately 608 full-time positions, 

with 100 Special Agents assigned primarily to completing investigative work and 448 

Law Enforcement Officers assigned primarily to providing enforcement presence, 

compliance and visitor contact on NFS lands. Each officer or agent covers an average 

area of 400,000 acres and serves 500,000 visitors. Additional personnel in the program 

include administrative positions which provide direct and indirect support to officers and 

agents. 

Independent Reviews 

The LEI program will consult with the USDA and the Office of Management and Budget 

on the development of outcome and efficiency performance measures as a refinement to 

those listed in the table above. These measures will be in place for FY 2008 

implementation, with baseline data collection underway. 

FY 2008 Plans 

• Implement the Interagency Mexican Drug Trafficking Organization (DTO) strategy 

to significantly reduce illegal occupancy of NFS lands by armed foreign nationals. 

• Implement the Southwest Border Initiative Network (SBI Net) in cooperation with 

the Department of Homeland Security (DHS) Customs and Border Protection staff to 

address rising drug trafficking organizations, marijuana production, 

methamphetamine manufacturing, armed drug smuggling activity, resource damage 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-73 Law Enforcement Operations 

and associated risks to the public, employees, and natural resources on the Coronado 

National Forest. 

• Station 15 percent more officers in California and the Intermountain West to prevent 

and reduce crime, and protect the public and employees. 

• Increase the level of contributed law enforcement assistance from other Federal, State 

and local agencies by 25 percent. 

• Prioritize arson investigations and assign all necessary resources to this very high 

profile crime. Seek to improve the conviction rate by providing specific and high 

level training on crimes such as arson, drug smuggling, assaults, and activities of 

environmental terrorist organizations. 

• The agency will allocate at least $2.0 million to replace outdated and damaged 

personal protective equipment, technical investigative equipment, and other critically 

needed items such as defensive equipment, surveillance equipment, vehicle mounted 

video systems, mobile data terminals, and technologically advanced communication 

devices for remote areas. 

FY 2007 Program 

• Develop an interagency DTO strategy to reduce the production and trafficking of 

domestic cannabis and other controlled substances on national forests. 

• Develop and apply new improved technologies and techniques for use in enforcement 

and investigative activities related to illegal occupancy by DTOs. 

• Complete development of the Southwest Border strategy in cooperation with the DHS 

to improve public and employee safety. 

• Coordinate and conduct activities on national forests to provide secure facilities and a 

secure environment for the public and employees and to protect resources and the 

public in impacted international border areas. 

• Implement mobile LEIMARS which will allow officers to directly input information 

and will provide field officers with immediate access to assess data on recent activity 

levels and crime trends. 

• Enforce Alaska Subsistence regulations for traditional hunting and fishing rights. 

• Work to develop a portfolio of long-term outcome and efficiency performance 

measures to guide program management. 

FY 2006 Accomplishments 

• Opened 648 serious misdemeanor and felony level investigations for forest product 

theft, archeological violations, wildland fire, controlled substances, and other 

resource and property related crimes, and closed 2,252 cases. 

• Recorded 152,171 incidents and enforcement actions for offenses such as damaging 

government property and natural resources, off-road vehicles violations, and 

vandalism. 

• Eradicated 1,303,837 marijuana plants from NFS lands and seized 4002 pounds of 

processed marijuana being smuggled into the U.S. through NFS lands, resulting in 

242 prosecutions. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-74 Law Enforcement Operations 

• Entered into 572 cooperative and drug enforcement agreements with State and local 

law enforcement agencies to enforce State and local laws on national forests. 

• Made over 1 million public contacts, ranging from providing general information to 

crime prevention. 

• Managed 200 internal and hotline complaints against agency employees and 

programs. 

• Responded to 525 arson incidents of which 168 were assigned for further 

investigation; 43 cases remain open as investigation continues; 77 cases were closed 

and unsolved; 48 cases have been solved and are pending judicial or administrative 

action and 357 were not assigned as a case due to lack of evidence, leads or resources.

• Aggressively investigated domestic terrorist incidents by the Earth Liberation Front 

(ELF) and the Animal Liberation Front (ALF) which resulted in 178 indictment 

counts of 20 individuals, of which 15 were arrested. To date there have been 14 

convictions of multiple counts and 6 cases are currently ongoing.
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-75 Valles Caldera National Preserve 

Budget Line Item Valles Caldera National Preserve 

Valles Caldera Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $5,074 $5,063 $0 $0 -$4,213 $850 -83% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $5,074 $5,063 $0 $0 -$4,213 $850 -83% 

Full Time Equivalents (FTEs) 0 0 0 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

FY2008 Program Changes 

The FY 2008 budget request for Valles Caldera National Preserve is $850,000, a net 

program change of -$4.2 million, or –83 percent from the FY 2007 Estimate. There are 

no Federal FTEs associated with this program. The funding level for Valles Caldera 

National Preserve will assist the Valles Caldera Trust to continue a level of management 

that protects ecosystem health as it moves toward complete self-sufficiency as envisioned 

in the authorization. FY 2008 plans include implementation of a long-term livestock 

grazing program, increased public recreation opportunities, and completion of a forest 

management plan. 

Program Description 

The Valles Caldera Preservation Act of 2000 (P.L. 106-248) provided for the acquisition 

of the Baca Ranch, located in the Jemez Mountains of New Mexico. The Act designated 

the Baca Ranch as the Valles Caldera National Preserve and provides for the 

management of the 88,900-acre tract as a unit of the National Forest System. The 

Preserve was established to protect various natural resources within its boundaries, and 

for providing multiple-use and sustained-yield of renewable resources within the 

Preserve. In addition, the Act requires the tract to continue to be managed as an 

operating ranch. 

The Act requires management of the Preserve by The Valles Caldera Trust (VCT), a 

government corporation subject to the Government Corporation Control Act. The Act 

provides for interim management of the Preserve by the Forest Service with appropriated 

funds until, under the terms of the Act, the Trust assumes full responsibility for the 

Preserve. The Trust assumed management authority over the Preserve in August 2002. 

The funding for the VCT contributes to the management of the Valles Caldera National 

Preserve’s resources to protect grasslands, watersheds, and forest vegetation through the 

practice of sound range, watershed, and forest management. The Valles Caldera program 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-76 Valles Caldera National Preserve 

also provides recreation opportunities such as hiking and hunting by permit, as well as 

protecting and interpreting cultural and historic resources. 

Congressional Reports 

The Valles Caldera Preservation Act requires the Valles Caldera Trust to report to 

Congress on an annual basis. The FY 2005 report was submitted in January 2006. The 

FY 2006 State of the Preserve Report is in preparation and is due in August 2007. 

FY 2008 Plans 

• Complete forest management plan, including fire management plan. 

• Rehabilitate two historic cabins. 

• Conduct the elk hunt in compliance with the New Mexico resident quotas. 

• Implement long-term livestock grazing program. 

• Increase public recreation opportunities to include overnight camping, turkey hunting 

and drive-thru events. 

FY 2007 Program 

• Conduct the elk hunt in compliance with the New Mexico resident quotas imposed by 

the State. 

• Coordinate with New Mexico Department of Game and Fish to develop a turkey hunt 

program.

• Conduct public workshops on the “State of the Preserve” Report and finalize it for 

submission to Congress by August 2007. 

• Initiate National Environmental Policy Act planning processes for public access, 

recreation and forest management plans, and conduct associated public scoping. 

• Complete upgrades to VC02 (formerly B Road) road and main entrance to the 

Preserve. 

FY 2006 Accomplishments

• Conducted the elk hunt in compliance with the New Mexico resident quotas imposed 

by the State.

• Expanded the public recreation programs to include trails for winter cross-country 

skiing, summer hiking, and equestrian activities. The Preserve had approximately 

10,000 visitors in FY 2006. 

• Completed rangeland and watershed condition assessment and the Preserve facilities 

assessment. Facilities are valued at $5.5 million. 

• Conducted a 1,800 acre forestland prescribed burn in Valle Toledo. 

• Awarded contract to upgrade the Preserve main entrance to mitigate highway safety 

issues. 

• Completed water distribution system for the headquarters area and upgraded 14 miles 

of the VC02 road on the Preserve. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-77 Centennial of Service Challenge

Budget Line Item Centennial of Service Challenge 

Centennial of Service Challenge Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $4,434 $0 $0 $0 $0 $0 n/a 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $4,434 $0 $0 $0 $0 $0 n/a 

Full Time Equivalents (FTEs) 25 0 0 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

FY 2008 Program Changes 

The FY 2008 budget for Centennial of Service Challenge is $0, the same level as the FY 

2007 Estimate. 

Challenge cost share and partnership projects will continue within the regular programs 

of work subject to availability of funding. Partnerships are a priority to the agency 

throughout all programs as displayed under the Partnerships special exhibit, which 

includes examples of partnership projects in support of the Research and Development, 

State and Private Forestry, and National Forest System appropriations. 

Program Description 

The Forest Service used the 100th Anniversary of its creation, during 2005, as an 

opportunity to broaden public understanding and appreciation for our Nation’s forests, 

and to expand and enhance partnerships and natural resource stewardship capabilities 

nationwide. In honor of the centennial, Congress provided a total of $14.3 million over 

fiscal years 2005 and 2006 for use by the National Forest System (NFS) and partners to 

fund cost-shared projects that enhanced conditions of forests, watersheds, terrestrial and 

aquatic habitat, and recreational services for the American public. 

FY 2008 Plans 

• No new funding is proposed. Challenge cost share and other partnership projects will 

continue to be an emphasis within the agency’s regular appropriations and will 

continue to be displayed in future budget justifications. 
FY 2008 Budget Justification USDA Forest Service

National Forest System 9-78 Centennial of Service Challenge

FY 2007 Program 

• No new funding is proposed. Challenge cost share and other partnership projects will 

continue to be an emphasis within the agency’s regular appropriations and will 

continue to be displayed in future budget justifications. 

FY 2006 Accomplishments 

• Leveraged more than $12 million in partner contributions, both in-kind and cash, and 

accomplished 139 projects. Many of the projects engaged youth, tribes, volunteers 

and private businesses. 

• Centennial funds were used for the following projects: 

• 51 fish and wildlife improvement projects 

• 47 trails and wilderness projects 

• 47 interpretation and education projects 

• 42 watershed restoration projects 

• 28 invasive species projects 

• 16 campground and facilities improvement projects 

• 14 heritage resource projects 
Wildland Firefighters 
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FY 2008 Budget Justification USDA Forest Service

Wildland Firefighters 10-1 

February 23, 2007 

Appropriation Wildland Firefighters 

Wildland Firefighters Increase or Decrease Program 

 Appropriation FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations* [$189,666] [$213,265] n/a n/a [$6,445] $219,710 n/a 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority [$189,666] [$213,265] n/a n/a [$6,445] $219,710 n/a 

Full Time Equivalents (FTEs)* [2,995] [3,015] 3,200 [185] 

* This is a new appropriation for FY 2008. Bracketed numbers show equivalent amounts within the Wildland Fire Management 

appropriation in previous years. 

Performance measures are shown as part of the Wildland Fire Management, Preparedness 

budget line item. 

FY2008 Program Changes 

The FY 2008 President’s Budget proposes a new appropriation, Wildland Firefighters. 

These funds were previously part of the Wildland Fire Management appropriation under 

the Preparedness budget line item. The Wildland Firefighters appropriation will employ 

and train firefighters for emergency fire suppression on, or adjacent to, National Forest 

System lands or other lands under fire protection agreements. Firefighter salaries will be 

funded by the Wildland Firefighters appropriation. 

There is no net change in number of firefighters as a result of creating of this account. 

The new appropriation addresses the complexity associated with wildland fire and other 

hazards by providing funding for professional wildland firefighters. By establishing a 

single account for professional wildland firefighters, the budget ensures a stable number 

of firefighters and complements the Forest Service’s transition to a risk-informed 

performance-based system. A separate firefighter account enhances performance, 

improves accountability, and provides the Forest Service greater efficiency in managing 

wildland fires and in supporting all-hazard responses through the National Incident 

Management System. 

Program Description 

This appropriation provides funding to employ 10,010 firefighters to protect National 

Forest System (NFS) land from damage by wildfires commensurate with the threat to life, 

values at risk, public values, and management objectives. It provides funding to the basic 

firefighter organization to prevent forest fires and to take prompt, effective initial attack 

suppression operations on wildfires. Leadership, support, and equipment costs are 

funded by the Preparedness and Suppression budget line items. 
FY 2008 Budget Justification USDA Forest Service

Wildland Firefighters 10-2 

February 23, 2007 

Summary of Wildland Firefighters, FY 2006 - 2008

Resource 

FY 06 

Projected* 

FY 06 

Actual* 

FY 07 

Planned* 

FY 08 

Estimated 

Firefighters [10,010] [9,550] [10,010] 10,010** 

 Type I Interagency Hot Shot Crews (twenty person) [67] [67] [67] 67 

* Funded by Preparedness Appropriation in FY 2006 & 2007 

** Total number of firefighters including seasonal hires and permanent employees. 

FY 2008 Plans (New Appropriation) 

• Employ 10,010 firefighters for emergency fire suppression on or adjacent to National 

Forest System lands or other lands under fire protection agreements. 

• Provide operational training for firefighters to ensure safe and effective fire 

operations. This training includes basic firefighter training at the Wildland 

Firefighting Apprenticeship Academy and more advanced training in fire leadership 

for fireline supervisors. 
(This page inserted to format for duplex printing) 
Wildland Fire 

Management 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-1

Revised February 23, 2007 

Appropriation Wildland Fire Management 

Wildland Fire Management Increase or Decrease Program 

 Appropriation FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $1,746,091 $1,810,566 $29,396 -$17,284 -$173,761 $1,648,917 -10% 

Emergency & Supplemental Appropriations $100,000 $0 $0 

Total Enacted Budget Authority $1,846,091 $1,810,566 $29,396 -$17,284 -$173,761 $1,648,917 -10% 

Full Time Equivalents (FTEs) 13,502 12,575 -3,592 8,983 -29% 

Enacted Budget Authority by EBLI 

Preparedness $660,705 $655,887 $10,988 -$8,595 -$309,198 $349,082 -47% 

[Inclusive of Wildland Firefighters appropriation*] [-$88,632] [$568,793] [-14%] 

Fire Operations - Suppression $690,186 $741,477 $12,917 $0 $156,638 $911,032 21% 

Hazardous Fuels $280,119 $291,792 $4,647 -$7,278 $2,372 $291,533 1% 

Fire Rehabilitation $6,189 $5,000 $0 $0 -$5,000 $0 -100% 

Fire Research & Development $22,789 $22,800 $453 -$406 -$847 $22,000 -4% 

Joint Fire Sciences $7,882 $13,000 $0 $0 -$5,000 $8,000 -38% 

Forest Health Management - Federal Lands $14,779 $14,800 $340 -$397 -$491 $14,252 -3% 

Forest Health Management - Coop Lands $9,853 $10,000 $45 -$151 $120 $10,014 1% 

State Fire Assistance $45,816 $43,000 $6 -$457 -$7,545 $35,004 -18% 

Volunteer Fire Assistance $7,773 $12,810 $0 $0 -$4,810 $8,000 -38% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment 

Compensation payments, and Departmental Working Capital Fund charges. 

* The Wildland Firefighters appropriation is new for FY 2008. In previous years, funding was included in the Preparedness BLI. 

Bracketed numbers display the relationship between fiscal years with Wildland Firefighter funds included in Preparedness. 

Program Description 

This appropriation funds the USDA Forest Service Wildland Fire Management program. 

This program is managed under the: 

• President’s Healthy Forests Initiative 

• Federal Wildland Fire Management Policy adopted by the Secretaries of the Interior 

and Agriculture in January 2001, and the June 2003 Implementation Strategy 

• 10-Year Comprehensive Strategy: A Collaborative Approach for Reducing Wildland 

Fire Risks to Communities and the Environment, and the December 2006 

Implementation Plan

• National Fire Plan 

The program’s objective is to protect life, property, and natural resources on the 193 

million acres of National Forest System (NFS) land and an additional 20 million acres of 

adjacent State and private lands protected through fee or reciprocal protection agreements 

in an efficient, cost-effective manner. The program’s design recognizes the importance 

of (1) integrating fire as a critical natural process into land and resource management 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-2

Revised February 23, 2007 

plans and activities on a landscape scale, (2) managing wildfires across landownership 

boundaries wildfires, and (3) applying the best available science. 

The FY 2008 budget request for Wildland Fire Management reflects significant changes 

as the agency transitions to a risk informed, performance based fire protection system 

which will increase overall efficiency. Changes include: 

• A new appropriation, Wildland Firefighters, to fund firefighters. 

• Enhanced efficiencies in the use of preparedness resources, readiness capability, and 

program leadership and support positions gained through transition to a riskinformed, performance-based suppression strategy. 

• Incidents will be managed under risk-informed performance-based strategies, 

requiring fewer suppression resources and resulting in lower overall suppression 

costs. 

• The agency will use predictive services and other resources to analyze the potential 

fire season. When the analysis indicates potential fire season needs beyond the 

established Preparedness and Wildland Firefighter capability, additional 

preparedness, or readiness, resources will be funded by the Suppression 

appropriation. 

The following sections describe each of the Wildland Fire Management program’s past 

and projected accomplishments. Program performance is measured annually and then 

compared with past and future targets. Programs, such as suppression and preparedness, 

are aligned with the agency’s strategic plan’s goals and objectives. These goals and 

objectives support the overall agency mission, including forest and rangeland 

management, which allows for optimizing the reduction of risk associated with wildland 

fires. 

Independent Reviews 

 

In calendar year 2006, the Forest Service Wildland Fire Management Program underwent 

a PART reassessment for the FY 2008 budget cycle. Three significant areas of 

improvement since the 2002 assessment include (1) development of meaningful longterm and annual performance measures, (2) quality independent evaluations of the 

program and (3) meaningful steps taken to address program management deficiencies. 

However, the PART assessment noted that weaknesses still exist in the overall program 

management including (1) measuring and achieving efficiencies in program execution, 

(2) holding partners accountable for cost, schedule and performance results and (3) 

strategic planning. 

There were a number of other independent reviews conducted this year. Three reviews of 

particular significance include the Secretary of Agriculture’s Independent Cost Control 

Review Panel report “FY2005 Large Cost Wildfires”, and two Office of Inspector 

General reports – “Forest Service Large Fire Suppression Costs” and “Implementation of 

the Healthy Forest Initiative”. The Forest Service has begun work to implement the 

recommendations in these reports which are aimed at improving program costs and 

efficiencies. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-3 Preparedness 

Revised February 23, 2007 

Budget Line Item Preparedness 

Preparedness Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $660,705 $655,887 $10,988 -$8,595 -$309,198 $349,082 -47% 

[Inclusive of Wildland Firefighters 

 appropriation*] [-$88,632] [$568,793] -14% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $660,705 $655,887 $10,988 -$8,595 -$309,198 $349,082 -47% 

Full Time Equivalents (FTEs) 4,860 4,863 -3,556 1,307 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Prior to FY 2008, the Wildland Firefighter account was held in the Preparedness budget line item of the Wildland Fire Management appropriation. 

 FY 2006 FY 2007 FY 2008 FY 2008 vs 

Annual Output Measure Plan Actual Plan Plan FY 2007 

Percent change from the 10 year average 

for the number of wildfires controlled 

during initial attack.* +/-0.5% -0.4% +/-0.5% +/-0.5% 0

Percent change from the 10 year average 

for the number of human caused 

wildfires.* -2.0% +4.5% -2.0% -2.0% 0.0%

Chains per hour ** 15,130 13,920 -- -- --

Percent of wildland fires suppressed 

during initial attack (less than 300 acres) 

* * 99% 98% -- -- --- 

* New activity beginning in FY 2006 

** Activity not tracked after FY 2007 

FY2008 Program Changes 

The FY 2008 budget request for the wildland fire preparedness program is $349,082,000, 

a net program change of -$88,632,000, a difference of -14%, from the FY 2007 Estimate 

when considering the creation of a new appropriation for Wildland Firefighters, which 

was formerly included in the Preparedness budget line item. 

Efficiencies associated with the agency’s use of predictive services and other resources to 

analyze the potential fire season. This analysis will ensure that appropriate readiness 

resources are available to efficiently suppress wildland fires on or threatening National 

Forest System lands and other Federal and non-Federal lands under fire protection 

agreements. In the event of a severe fire season, the Agency will use the flexibility to use 

funds within the Wildland Fire Management account to replenish preparedness resource 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-4 Preparedness 

Revised February 23, 2007 

needs. This level of readiness will be maintained consistent with firefighter and public 

safety as the primary consideration. 

Proposed program changes reflect increased efficiencies through reductions in and more 

strategic use and deployment of: firefighting resources (engines, dozers, tenders, 

smokejumpers, etc.); infrastructure (smokejumper bases, national fire caches, apprentice 

training academy, etc.); investments in information technology (ROSS, ICARS, etc.); 

aviation assets (lead planes, airtankers, helicopters, etc); and permanent leadership and 

support positions at the District, Forest, Regional, and Washington Office levels through 

Reduction-in-Force (RIF) actions. 

These actions, when combined with previous efforts undertaken to achieve efficiency 

such as reduction of operational and support costs through the deployment of the 

Resource Ordering and Status System (ROSS) which reduced the number of dispatch 

personnel, and moving to aviation contracts under “exclusive use” which are less 

expensive than contracting through “call when needed” will reduce the number and cost 

of resources needed for an effective Preparedness organization. 

Program Description 

This program protects National Forest System (NFS) land from damage by wildfires 

commensurate with the threat to life, values at risk, public values, and management 

objectives. It provides the support to the basic fire organization and capability to prevent 

forest fires and ensure prompt and effective initial attack suppression operations can be 

taken on wildfires. 

Key components of the program include: 1) mission delivery, including readiness 

capability (expressed in, resources, and Fire Fighter Production Capability), and program 

leadership. Mission delivery also includes planning, prevention, detection, information 

and education, training, and equipment; 2) indirect components such as rent and support 

staffs; and, 3) advancement of technology and development centers, program analysis 

and reviews, and other preparedness activities. 

Through this program the Forest Service also assists other Federal agencies and States 

with training, planning, joint equipment use contracts, and interagency fire coordination 

centers. 

The table on the following page displays the agency’s preparedness resources summary 

for fiscal years 2006 to 2008. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-5 Preparedness 

Revised February 23, 2007 

Preparedness Resource Summary, FY 2006 - 2008

Resource 

FY 06 

Projected 

FY 06 

Actual 

FY 07 

Planned 

FY 08 

Estimated 

Firefighters (includes IHC crews)* 10,010 9,550 10,010 [ 10,010*] 

 Type I Interagency Hot Shot Crews (twenty person) 67 67 67 [ 67*] 

Other Firefighters 

 Smoke Jumpers 277 277 277 190 

 Prevention Technicians 399 419 399 277 

Engines 950 940 950 726 

Water Tenders 63 57 63 48 

Dozers & Tractor Plow Units 152 144 152 119 

Type I, II, and III helicopters for local mobilization 86 80 84 65 

Type II helicopters for national mobilization 7 7 7 5 

 Airtankers 

 Type 1 helitankers/helicopters 

16 

15 

 

18 

15 

16 

15 

14 

8 

* Funded by another account or appropriation in FY 2008 (see Wildland Firefighter). 

Independent Reviews 

In FY 2006, the Forest Service participated in the Wildland Fire Program Assessment 

Rating Tool (PART) reassessment. The program received a rating of Adequate based 

primarily on improved performance measures, e.g., the measure that evaluates our initial 

attack program. 

Congressional Reports 

Quarterly reports indicating the Fire Program Analysis (FPA) system’s development 

status and cost will continue as directed by House Report 107-564, page 109. The 

system, designed to inform the allocation of preparedness resources, encountered 

challenges during initial deployment. The strategy has been modified and is proceeding 

in collaboration with the Department of Interior. System delivery is currently scheduled 

for late FY 2008. 

FY 2008 Plans 

• Reduce the percent change from the 10-year average for the number of human caused 

wildfires by 2%.

• Utilize the risk informed performance based fire protection system for unplanned 

ignitions – an approach in which wildland fire is managed in relationship to the risk 

and resource benefit that the incident poses. 

• Aviation assets, staffing, program leadership and support will be funded by the 

Preparedness budget line item. Specific actions that will take place in FY 2008 

include: implementation of the modified Aviation Strategic Plan and companion 

Action Plan, continued collaboration with National Interagency Aviation Committee 

and implementation of its strategic plan, implementation of the revised FY 2007 

workload analysis, and continued implementation of centralized aviation services. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-6 Preparedness 

Revised February 23, 2007 

• Continue development and deployment of planning tools to inform strategic fire 

management decisions, including: 

o Deployment of the Fire Program Analysis model which uses science based 

analyses to evaluate preparedness, suppression, and fuel treatment programs 

across agency boundaries; 

o Delivery of a complete Wildland Fire Decision Support System prototype to 

support managers’ decision analyses affecting suppression cost, firefighter and 

public safety, and impacts to property and resources. Tools in this suite will be 

integrated and linked to LANDFIRE. 

• Provide operational and leadership training for firefighters to ensure safe and 

effective fire operations. This training will include: basic firefighter training at the 

Wildland Firefighting Apprenticeship Academy and Fire Leadership for fireline 

supervisors. Continue implementation of the Interagency Fire Program Management 

to standardize training and experience for approximately 3,500 positions.

• Continue development and integration of science and technology to enhance safety 

and program effectiveness and efficiencies through projects such as enhancing the 

fire data warehouse and incorporating Department of Interior fire occurrence data. 

. 

FY 2007 Program 

• Utilize the risk informed performance based fire protection system for unplanned 

ignitions. – an approach in which wildland fire is managed in relationship to the risk 

and resource benefit that the incident poses. 

• Aviation assets, staffing, program leadership and support are provided in the 

Preparedness account. Specific actions include: completion of an A-76, complete and 

approve the Aviation Strategic Plan and the companion Action Plan, continue 

collaboration with National Interagency Aviation Committee and implementation of 

its strategic plan, complete an analysis of the aviation workforce and initiate 

implementation of findings based on the transition to risk informed performance 

based system to be implemented in FY 2008, and transition toward centralized 

aviation services. 

• Continue development and deployment of planning tools to inform strategic fire 

management decisions, including: 

o Delivery of a prototype of the Fire Program Analysis model which uses science 

based analyses to evaluate preparedness, suppression, and fuel treatment 

programs across agency boundaries; 

o Continue delivery of individual components for the Wildland Fire Decision 

Support System, including FSPRO – a fire behavior modeling system and 

RAVAR a system integrated with FRPRO that analyzes values at risk. These 

tools support managers in evaluating decisions affecting suppression cost, 

firefighter and public safety and impact to property and resources. Tools in this 

suite will be integrated and linked to LANDFIRE. 

• Provide operational and leadership training for firefighters to ensure safe and 

effective fire operations. This training will include: basic firefighter training at the 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-7 Preparedness 

Revised February 23, 2007 

Wildland Firefighting Apprenticeship Academy; Fire Leadership for fireline 

supervisors. It also includes commitment to the Interagency Fire Program 

Management which will standardize training and experience for approximately 3,500 

positions over a five year period. Continued development of internet course modules 

to assist rural fire departments in meeting National Fire Protection Administration 

1051 and NWCG qualifications.

• Develop and integrate science and technology to enhance safety and program 

effectiveness and efficiencies. Specific projects include: the National Enterprise 

Shared Services, which is the consolidation and integration of Fire and Aviation 

software, hardware, and network services at the National Information Technology 

Center; implementation of the fire data warehouse along with a new spatial 

component to improve use and simplify access to historic fire occurrence and weather 

data; and, implementation of the reengineered Interagency Cache Business System 

which will improve the management and oversight of “cache” business activities. 

FY 2006 Accomplishments 

• Moved forward with initiatives to validate the Forest Service’s Strategic Aviation 

Plan, including: development of an interagency strategy that will guide the acquisition 

and use of aviation resources for the next 15 to 20 years; completed an Exhibit 300 to 

support development of a business plan and budget for future aircraft acquisitions; 

developed a program that compares helicopter cost and performance to enhance 

efficiency; completed development of airworthiness standards; and initiated a 

workload analysis to determine the proper level of aviation staffing. 

• Continued development of fire planning tools to inform strategic fire management 

decisions, including: 

o Development of the Fire Program Analysis model which uses science based 

analyses to evaluate preparedness, suppression, and fuel treatment programs 

across agency boundaries. This program was evaluated in FY 2006 and project 

changes were implemented in response to recommendations. 

o Development on the Wildland Fire Decision Support System which will replace 

the Wildland Fire Situation Analysis tool and support managers in analyzing risk 

relative to decisions which affect suppression cost, firefighter and public safety, 

and impacts to property and resources. Phase 1 was completed and components 

of this new system were prototyped on more than 60 large fires. Tools in this 

suite will be integrated and linked to LANDFIRE. 

• Provided operational and leadership training for firefighters to ensure safe and 

effective fire operations. This training included: basic firefighter training for over 

600 students at the Wildland Firefighting Apprenticeship Academy; Fire Leadership 

for fireline supervisors. Included in the wildland fire training program is a project to 

develop internet course modules that will assist rural fire departments in meeting 

National Fire Protection Administration 1051 and NWCG qualifications. 

• Developed and integrated science and technology to enhance safety and program 

effectiveness and efficiencies. Specific projects included: national implementation of 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-8 Preparedness 

Revised February 23, 2007 

the Automated Flight Following application – a GPS type technology that tracks the 

location of all aircraft and will allow for better utilization and management of these 

resources; development of the fire data warehouse to enhance the applicability and 

interrelationships of fire data; and, initiation of Phase II development of the Resource 

Ordering and Status System (ROSS). 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-9 Suppression 

Revised February 23, 2007 

Budget Line Item Suppression

Fire Operations - Suppression Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $690,186 $741,477 $12,917 $0 $156,638 $911,032 21% 

Emergency & Supplemental Appropriations * $100,000 $0 $0 

Total Enacted Budget Authority $790,186 $741,477 $12,917 $0 $156,638 $911,032 21% 

Full Time Equivalents (FTEs) 6,695 5,672 -27 5,645 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Funding from P.L. 109-289, the FY 2007 Department of Defense Appropriations Act. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Gross fire suppression costs per acre* 676 745 676 --- n/a

Percent of fires not contained in initial 

attack that exceed a Stratified Cost Index 

(SCI) 24% 26.5% 21% 20% -1.0%

Three-year percent of fires not contained 

in initial attack that exceed a Stratified 

Cost Index (SCI)** --- --- 25.3% 23.1% 0.0%

*Activity not tracked after FY 2007. 

FY2008 Program Changes 

The FY 2008 budget request for the Suppression is $911,032,000, a net program change 

of $156,638,000 or 21 percent increase from the FY 2007 Estimate. This amount 

represents the most recent 10-year average suppression cost adjusted for inflation and 

includes indirect costs as required by Congress. 

The 10-year average annual suppression cost reflects a significant upward trend. 

Through a variety of initiatives, the Agency is taking aggressive steps to identify and 

implement management efficiencies and cost containment actions to reverse this trend. 

Some examples include: employing a risk informed performance based approach to 

prioritizing suppression events and establishing appropriate management strategies; use 

of wildland fire decision support information and analytical tools to examine values-atrisk and potential risk associated with individual incidents, and more efficient 

management of aviation resources, specifically helicopters which will be centrally 

managed at the national level and contracted through the use “exclusive use” contracts 

versus the more expensive “call when needed” contracts. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-10 Suppression 

Revised February 23, 2007 

Program Description 

Suppression provides funding for resources to efficiently suppress wildland fires on or 

threatening National Forest System (NFS) lands and other Federal and non-Federal lands 

under fire protection agreements. Suppression is provided based on risk informed 

suppression strategies. The Forest Service also provides suppression resources to the 

Department of the Interior on a reciprocal non-reimbursement basis. Suppression funds 

support other activities, including: 

Wildland Fire Use - management of unplanned wildland fires on NFS lands to 

accomplish resource management goals. 

Burned Area Emergency Response - actions on NFS lands to prevent or minimize 

unacceptable erosion and loss of soil productivity, deterioration of water quality and 

downstream damage, changes to ecosystem structure and function, establishment of 

non-native invasive species, and degradation of cultural and natural resources due to 

wildfires. 

Severity - increases the level of fire preparedness when predicted or actual burning 

conditions exceed those planned and when wildland fire ignitions are deemed to be 

imminent; also used for early or extended fire seasons. 

Non-fire Emergency Management - supports the Department of Homeland Security, 

Federal Emergency Management Agency (FEMA) through Forest Service 

participation in the National Response Plan and other activities authorized by the 

Stafford Act 42U.S.C. 5121 (as amended). 

Except for firefighters funded under the Wildland Firefighter appropriation, Suppression 

expenditures fund Forest Service firefighter salaries and equipment operation and 

maintenance during suppression activities and periods of severe fire danger. Funds are 

also used to pay for contracted incident suppression resources and equipment; contracted 

aviation resources, contracted incident support such as catering and showers; activation 

of the military when necessary for large fire support; and administrative assessments 

including agency cost pools and incident business management services. 

Independent Reviews 

In FY 2006, the Forest Service participated in the Wildland Fire Program Assessment 

Rating Tool (PART) reassessment. The program received a rating of “Adequate” based 

primarily on improved performance measures, including, the Stratified Cost Index which 

allows for better assessment of whether suppression cost are within an acceptable range. 

In FY 2006 the Government Accountability Office completed a report on suppression 

cost sharing between Federal and non-Federal entities. It recommended the Forest 

Service and the Department of Interior work with state agencies to provide more specific 

guidance as to when particular cost sharing methods should be used and clarify the 

financial responsibilities for fires that burn, or threaten to burn, across multiple 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-11 Suppression 

Revised February 23, 2007 

jurisdictions. The agency concurred with this recommendation and an updated master 

agreement template has been approved. 

In FY 2006 the Government Accountability Office initiated a large fire suppression cost 

audit that is expected to be completed in FY 2007. 

In FY 2006 the Secretary’s large fire Independent Review Panel findings focused on cost 

sharing and use of suppression funds for pretreatment activities. The Forest Service 

acknowledged and addressed those findings. In FY 2007 the Forest Service will continue 

use of the Panel; however, we will re-evaluate the use of the Panel for FY 2008. 

In FY 2007 the Office of Inspector General completed a large fire suppression audit. The 

audit identified six findings and eighteen recommendations related to wildfire protection 

costs, wildland fire use, and cost effective controls. The Forest Service concurred with 

the findings and has begun implementing the recommendations. 

Congressional Reports 

Conduct fiscal year independent large fire cost reviews for Forest Service incidents 

costing over $10 million; report due late spring of following fiscal year. (P.L. 108-447 – 

2005 Omnibus Appropriations Act, title IV Supplemental, pages 187 and 306) 

Report by January, the percent of incidents each fiscal year utilizing the computer 

decision support system Wildland Fire Situation Analysis that adopt the Most Cost 

Effective alternative. (P.L. 108-447, Conference Report, Division E; page 1073)

FY 2008 Plans 

• As identified by the PART performance measures, reduce the percent of fires (not 

contained in initial attack) that exceed a Stratified Cost Index by 1% and maintain the 

3-year percent of fires that exceed a Stratified Cost Index to 23%.

• Continue implementation and expanded use of risk informed performance based fire 

protection system and Wildland Fire Use to reduce suppression cost. These efforts 

will include a more extended use of wildland fire decision support information and 

analytical tools to examine values-at-risk, potential risk, and resource benefits 

associated with individual incidents.

• Continue implementation of cost containment measures. Specifically, those 

identified by Independent Review activities mentioned above and in the updated 10-

year Strategy, the use of a Comptroller, or comparable function, to provide oversight 

of suppression expenditures, and evaluate incident selection of the most cost effective

suppression alternative.

• Continue utilization of technology to support management and cost efficiencies 

through efforts such as implementing Web I-Suite so the application is more widely 

available for use. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-12 Suppression 

Revised February 23, 2007 

• Continue management efficiency actions described below in FY 2007 Plans, such as 

the use of a Chief’s Principle Representative and the management of national 

resources.

• Improve incentives by including acres burned at less than severe levels as resource 

benefits that count toward attainment of healthy forests treatment goals.

FY 2007 Plans 

• Continue implementation of the PART performance measures including: 

o Reduce the percent of fires not contained in initial attack that exceed a Stratified 

Cost Index by 3%, and 

o Maintain the 3-year percent of fires not contained in initial attack that exceed a 

Stratified Cost Index to 25%. 

• Expand the use of a risk informed performance based fire protection system – an 

approach in which wildland fire is managed in relationship to the risk and the 

resource benefit that the incident poses, and expand “Wildland Fire Use,” which is an 

approach that provides appropriate actions considering objectives, efficiencies and 

effectiveness to fires that are managed for resource benefits such as the reduction of 

fuels. 

• Manage aviation resources more effectively; specifically manage helicopters centrally 

at the national level under “exclusive use” contracts, which are less costly than 

contracting under “call when needed”.

• Deploy a Chief’s Principle Representative to provide oversight on fires of national 

significance. These representatives will be well-versed in the use of decision-support 

tools to assist local units. 

• Manage resources such as smokejumpers, hot shot crews and helicopters as national 

assets and move them to areas and incidents based on Predictive Services and on 

Planning Levels.

• Implement actions to address suppression costs, including: 

o Those identified through Independent Review activities listed above including an 

updated master agreement template to help better identify when particular cost 

sharing methods should be used with state and local entities. 

o Complete and evaluate a suppression allocation mock-up to see if this approach 

would provide incentives and better accountability for suppression fund spending. 

o Continue the use of an Agency Comptroller position, or a comparable function, 

and support group to evaluate and oversee wildland fire expenditure activity. 

o Evaluate incident selection of the most cost effective suppression alternative.

• Deploy technological advances to support management and cost efficiencies, 

including: continue executing Phase II of the Resource Ordering and Status System 

(ROSS) which among other things will contribute to more efficient management and 

deployment of resources hired under agreements and contracts; implementing I-
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-13 Suppression 

Revised February 23, 2007 

Suite's Illness and Injury Modules to monitor and track statistics; and, refining ISuite's electronic payment and accrual data submission. 

FY 2006 Accomplishments 

• Suppressed approximately 11,300 wildfires which burned approximately 1.84 million 

acres of National Forest and Forest Service protected lands.

• Managed unplanned ignitions on more than 171,000 acres through Wildland Fire Use 

(WFU) incidents. These fires accomplish resource objectives including fuels 

management. 

• Strengthened program performance measures through the completion of a Program 

Assessment Rating Tool (PART) reassessment and revision of the National Fire Plan 

10 Year Comprehensive Implementation Strategy. These new measures now include 

monitoring and analyzing large fire suppression expenditures against a Stratified Cost 

Index - which will also help to help identify those fires that need further evaluation. 

• Implemented actions to address suppression costs, including: 

o Utilized an agency comptroller position and support group to evaluate and 

oversee wildland fire expenditure activity. 

o Completed evaluation and began implementation of appropriate actions identified 

by the Wildland Fire Leadership Council cost action items. Specifically, 

evaluated alternatives to the 10-year average suppression cost; revised the 

Agency’s 3-tier large fire cost review process; assessed and cataloged prior large 

fire cost recommendations; initiated a USDA Office of Inspector General study 

on suppression cost containment; and required an Incident Business Advisor be 

assigned to fires with projected costs of more than $5 million to oversee 

expenditure activity. 

• Deployed technological advances to support management and cost efficiencies, 

including: a simplified accrual, payment, and accounting process for aviation, 

completed implementation of the Resource Ordering and Status System (ROSS) 

Phase I; and, used I-Suite to track and analyze incident costs and electronically send 

data to process payments and accruals. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11- 14 Fire Operations-Other 

Revised February 23, 2007 

Budget Line Item Fire Operations-Other 

Fire Operations - Other Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $395,200 $413,202 $5,491 -$8,689 -$21,201 $388,803 -5% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $395,200 $413,202 $5,491 -$8,689 -$21,201 $388,803 -5% 

Full Time Equivalents (FTEs) 0 0 0 

Enacted Budget Authority by EBLI 

Hazardous Fuels $280,119 $291,792 $4,647 -$7,278 $2,372 $291,533 1% 

Fire Rehabilitation $6,189 $5,000 $0 $0 -$5,000 $0 -100% 

Fire Research & Development $22,789 $22,800 $453 -$406 -$847 $22,000 -4% 

Joint Fire Sciences $7,882 $13,000 $0 $0 -$5,000 $8,000 -38% 

Forest Health Management - Federal Lands $14,779 $14,800 $340 -$397 -$491 $14,252 -3% 

Forest Health Management - Coop Lands $9,853 $10,000 $45 -$151 $120 $10,014 1% 

State Fire Assistance $45,816 $43,000 $6 -$457 -$7,545 $35,004 -18% 

Volunteer Fire Assistance $7,773 $12,810 $0 $0 -$4,810 $8,000 -38% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

National Fire Plan Activities 

The FY 2008 President’s Budget for Wildland Fire Management maintains funding for 

priority National Fire Plan activities including funding for programs of Wildland Fire 

Management, State and Private Forestry and Forest and Rangeland Research. Funded 

National Fire Plan Activities include: 

• Research and Development 

• Joint Fire Sciences 

• Forest Health Management-Federal Lands 

• Forest Health Management-Cooperative Lands 

• Cooperative Fire Protection-State Fire Assistance 

• Cooperative Fire Protection-Volunteer Fire Assistance 

Upon enactment of the FY 2008 Appropriations Act, the agency will transfer funds 

provided by Congress for all activities of Fire Operations - Other to the parent 

appropriation for distribution to the field. 

The individual National Fire Plan components, within the Fire Operations - Other 

category, are described separately in this section. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-15 Hazardous Fuels 

Revised February 23, 2007 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Hazardous Fuels 

Hazardous Fuels Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $280,119 $291,792 $4,647 -$7,278 $2,372 $291,533 1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $280,119 $291,792 $4,647 -$7,278 $2,372 $291,533 1% 

Full Time Equivalents (FTEs) 1,947 2,040 -9 2,031 

Estimated Funding by Activity 

Non Wildland-Urban Hazardous Fuel Projects $92,317 $72,948 $1,000 -$1,566 -$9,658 $62,724 -13% 

Wildland-Urban Hazardous Fuels Projects $187,802 $218,844 $3,647 -$5,712 $12,030 $228,809 5% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Acres of non-wildland/urban interface 

hazardous fuels mitigated 510,000 409,467 350,000 300,000 -50,000

High-priority acres treated in the 

wildland/urban interface 1,383,000 1,045,202 1,400,000 1,500,000 100,000

Acres of hazardous fuels reduction 

obtained through other land 

management activities 870,000 1,092,917 1,150,000 1,150,000 0

Total acres treated in Wildland Urban 

Interface (WUI) and non-WUI and also 

acres treated for other vegetation 

management activities that achieved fire 

objectives as a secondary benefit. 

2,763,000 2,547,586 2,900,000 2,950,000 50,000

Percentage of total National Forest 

System land base for which fire risk is 

reduced though movement to a better 

condition class. 

1% 1.10% 2% 3% 1%

Acres moved to a better condition class 

per million dollars gross investment. 

2,408 1,934 2,550 2,700 150

Number and percent of acres treated to 

restore fire-adapted ecosystems which 

are: (1) Moved toward desired 

conditions, and (2) Maintained in 

desired conditions. 

--- 

(1) 

991,075; 

39%

(2) 

830,081; 

33% 

(1) 

1,160,000; 

40%

(2) 

1,015,000; 

35% 

(1) 

1,180,000; 

40% 

(2) 

1,121,000; 

38% 

(1) 20,000; 

0%

(2) 

106,000; 

3%

Percent of treated acres identified in 

Community Wildfire Protection Plans or 

equivalent plans. 

--- 

17% 22.50% 28% 5.50%
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-16 Hazardous Fuels 

Revised February 23, 2007 

FY 2008 Program Changes 

The FY 2008 President’s Budget proposes $291,583,000 for Hazardous Fuels Reduction, 

a net program decrease of $209,000 from the FY 2007 Estimate. In FY 2008, emphasis 

will shift to more expensive wildland-urban interface (WUI) treatment acres, resulting in 

reduced treatments outside the WUI. 

Program Description 

The objective of the hazardous fuels reduction program, as called for in the President’s 

Healthy Forests Initiative (HFI), is to reduce the undesired effects of large, destructive 

wildfires by reducing the volume of hazardous fuels on forests, woodlands, shrublands, 

and grasslands. The fuels treatment program focuses on reducing the risk of wildland fire 

and long-term damage to resources and property in high priority areas. The desired 

outcome of the hazardous fuels program, as stated in the HFI, is to reduce the risk of 

unplanned and unwanted wildland fire to communities and to the environment. Often 

two or three treatments are required before obtaining the desired condition (Condition 

Class 1) in areas that have missed one or more fire return interval(s) (areas in Condition 

Class 2 or 3). Program performance is measured by the percentage of total National 

Forest System land base for which fire risk is reduced through movement to a better a 

better condition class, an expression of the departure of the current condition from the historical 

fire regime resulting in alterations to the ecosystem. Changes in stand density and forest fuels 

lead to changes in condition class. New measures identified through the Program 

Assessment Rating Tool (PART) will emphasize wildfire risk reduction. 

Program objectives include: 

• Reducing the undesired effects of high intensity wildland fires that threaten public 

and firefighter safety, particularly near communities. 

• Reducing fire suppression costs through a decrease in high intensity fires. 

• Reducing wildfire damage to forest and rangeland health, protecting assets and 

improvements, and minimizing degradation of air quality from large wildfires. 

Independent Reviews 

The USDA OIG audit “Implementation of the Healthy Forests Initiative” was published 

in September, 2006. There is an ongoing GAO audit of Forest Service and Department of 

the Interior hazardous fuel reduction efforts. This review is scheduled for completion in 

late 2007. 

In FY 2006, the Forest Service completed a Wildland Fire Program Assessment Rating 

Tool (PART) reassessment. The program received a rating of Adequate based primarily 

on improved performance measures. 

Congressional Reports 

• Report of treatment acres by fire regime and condition class by National Forest and 

treatment method. Methods for collecting information on the quantity of 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-17 Hazardous Fuels 

Revised February 23, 2007 

commercially valuable biomass products from the treatment areas prior to prescribed 

burning are in development. Complete report will by available by December 1, 2007.

• Report on biomass utilization will be made available to Congress by December 1, 

2007. Requested information on percentage of fuel reduction or restoration contracts 

that provide small diameter material to micro businesses, large commercial sawmills, 

or biomass facilities is not currently tracked at the national level. Methodology for 

collecting this information is in development.

FY 2008 Plans 

• In order to manage wildland fire risk, emphasis will shift to reflect the priorities 

identified through integrated decision support efforts. Treatments will focus on those 

locations that experience the greatest degree of fuel loading and high wildland fire 

potential, high potential consequences from wildland fires, and where fuel treatment 

efforts can be most effective. Many of the areas identified through the decision 

support processes historically have higher treatment costs than other locations where 

the agency previously invested. Monitoring protocols are in development and should 

be in place by FY 2008 to assess fuel treatment effectiveness relative to large 

wildland fires. While treatment costs will likely increase as a result of this shift, the 

agency will continue to provide a balanced program that includes maintenance and 

restoration.

• Reduce risk through improving the condition class on 1,180,000 acres of National 

Forest System land.

• Treat hazardous fuels on 1,800,000 acres of NFS lands, including 1,500,000 acres in 

WUI areas and 300,000 acres in non-WUI areas, and move over 2,700 acres to better 

Condition Class per million dollars of gross investment. Reduce hazardous fuels on 

an additional 1,150,000 as a secondary benefit of other vegetation treatment activities, 

including Wildland Fire Use, Hazard Mitigation Grants awarded under the State Fire 

Assistance program, and activities of the Southern Nevada Public Lands Management 

Act.

• Apply LANDFIRE data to the Hazardous Fuels Reduction Program Prioritization 

system and modify the system to systematically assess risk and allocate program 

resources to address those risks.

• Complete the basic LANDFIRE data layers for the continental United States. This 

will provide wall-to-wall vegetation, fire behavior, and fire regime map layers for all 

lands, regardless of ownership. The LANDFIRE system will enhance the decision 

support tools at the National and Regional level for Hazardous Fuels and at the local 

level through the Wildfire Decision Support System.

• Improve performance through further implementation of the 10-Year Strategy 

Implementation Plan measures of performance, of the National Fire Plan in 

coordination with Department of the Interior, Western Governor’s Association, 

National Association of State Foresters, and other collaborators. 

• Award approximately $4 million in biomass utilization grants to small businesses, 

community groups, and other enterprises to increase the use of small diameter woody 

material that is the byproduct of hazardous fuels reduction activities on NFS lands. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-18 Hazardous Fuels 

Revised February 23, 2007 

FY 2007 Program 

• Complete and implement revisions to the 10-Year Strategy Implementation Plan of 

the National Fire Plan in coordination with Department of the Interior, Western 

Governor’s Association, National Association of State Foresters, and other 

collaborators.

• Reduce risk through improving the condition class on 468,000 acres of National 

Forest System land. Conducts treatments on 1.75 million acres of hazardous fuels 

through the Hazardous Fuels Reduction program, including 1,400,000 acres in WUI 

areas and 350,000 acres in non-WUI areas. Reduce hazardous fuel on an additional 

1,150,000 acres as a secondary benefit of other vegetation management activities. 

• Complete the basic LANDFIRE data layers (fire behavior, fire regime, and 

vegetation) for the 13 southern states. By FY 2007 year-end, LANDFIRE data will be 

available for over 50 percent of the continental United States. 

• Allocate funds to regions based on priorities identified through use of the Hazardous 

Fuels Reduction Program Prioritization System. 

• Award approximately $4 million in biomass utilization grants to small businesses, 

community groups, and other enterprises to increase the use of small diameter woody 

material that is the byproduct of hazardous fuels reduction activities on NFS lands. 

FY 2006 Accomplishments 

• Reduce risk through improving the condition class on 753,000 acres of National 

Forest System land. Conducts treatments on over 1.4 million acres of hazardous fuels 

through the Hazardous Fuels Reduction program to reduce flammability of forests, 

woodlands, shrublands, and grasslands, including over 1 million acres in WUI areas 

and 409,000 acres in non-WUI areas. The agency reduced hazardous fuel on an 

additional 1 million acres as a secondary benefit of other vegetation treatment 

programs and Wildland Fire Use. 

• Developed a new integrated Hazardous Fuels Reduction Program Prioritization 

System using nationally-consistent and geospatially-referenced data to evaluate fuel 

treatment needs and opportunities. The system is based on the Analytical Hierarchy 

Process used widely in the private sector to support management decisions.

• Awarded nearly $4 million in biomass utilization grants to 18 small businesses, 

community groups, and other enterprises to increase the use of small diameter woody 

material that is the byproduct of hazardous fuels reduction activities on NFS lands. 

Projects served to reduce management costs by increasing the value of woody 

biomass and other forest products; creating incentives and decreasing business risk 

for increased use of woody biomass from national forests; and instituting projects that 

target and help remove economic and market barriers in using small-diameter trees 

and woody biomass.

• Implemented the Coordinated Resource Offering Protocol (CROP) in conjunction 

with Strategic Placement of Treatments (SPOTS) for ecosystem restoration and 

hazardous fuel reduction. Ten areas across the nation are engaged in an Interagency 

effort to stabilize the level the annual biomass offering between agencies, reducing 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-19 Hazardous Fuels 

Revised February 23, 2007 

investment risk to private parties interested in participating in creating biomass 

utilization opportunities from hazardous fuel reduction and forest restoration 

activities.

• Completed the fire behavior, fire regime, and vegetation LANDFIRE data layers in 

11 western states. The new LANDFIRE data allows for seamless integration of 

wildfire behavior models with fire suppression decisions support tools which will 

contribute to improved fire management and reduce large fire suppression costs.

• Conducted a national review of the understanding and use of authorities established 

by the President’s Healthy Forests Initiative and Healthy Forests Restoration Act. The 

review included site visits to 10 National Forests in 5 Forest Service Regions, 

informal phone interviews with over 75 Forest Service personnel and external 

stakeholders, and synthesis of previous Forest Service evaluations by USDA Office 

of the Inspector General and Government Accountability Office. The final report will 

be published in early 2007.
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11- 20 Rehabilitation 

Revised February 23, 2007 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Rehabilitation 

Fire Rehabilitation Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $6,189 $5,000 $0 $0 -$5,000 $0 -100% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $6,189 $5,000 $0 $0 -$5,000 $0 -100% 

Full Time Equivalents (FTEs) 27 36 0 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Rehabilitation projects completed 20 N/A 20 0 -20

FY 2008 Program Changes 

The FY 2008 budget proposes no funding for Rehabilitation, resulting in a net program 

change of -$5.0 million, or -100 percent from the FY 2007 Estimate. There are 0 FTEs 

in the program in FY 2008, a decrease of 36 FTEs from the FY 2007 Estimate. 

In order to support national and agency priority programs, FY 2008 rehabilitation needs 

will be prioritized along with other restoration needs to ensure the highest priority work is 

accomplished using available National Forest System (NFS) and Capital Improvement 

and Maintenance (CI&M) funding. 

Program Description 

 

The Rehabilitation program funds restoration of forests and rangelands and helps protect 

communities from post-fire damages after emergency response actions have been taken. 

This includes both short and long-term efforts to improve lands unlikely to recover 

naturally from wildland fire damage, or to repair or replace minor facility damage. The 

focus is on restoring watershed function, including protection of soil, water resources, 

biological communities, and prevention of invasive species. Rehabilitation of heritage 

sites; developed recreation sites, such as campgrounds and trailheads; grazing allotments; 

and abandoned mine lands is included. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11- 21 Rehabilitation 

Revised February 23, 2007 

Beginning in FY 2008 these activities will be funded through a combination of NFS 

wildlife and fisheries, and vegetation and watershed management program funds; as well 

as through CI&M facilities, roads and trails funds as specified through the primary 

purpose of the rehabilitation project. 

Independent Reviews 

GAO Report 06-670 Title: Wildland Fire Rehabilitation and Restoration: Forest Service 

and BLM Could Benefit from Improved Information on Status of Needed Work.

GAO recommended that the Forest Service track post-fire rehabilitation needs and 

accomplishments. A post-event recovery team is developing policy, guidance, and tools 

to provide rapid assessment following fires and other events. Once the rapid assessment 

process is established the agency will develop methods to roll the assessment results into 

a nationwide needs and accomplishment report. This will enable the agency to prioritize 

the rehabilitation work, along with the regular program of work, to assure the highest 

priority work is funded and accomplished. 

FY 2008 Plans 

• No funding is proposed for this program in FY 2008. 

FY 2007 Program 

• Complete the agreement with American Forests for Wildfire ReLeaf. 

• Provide native plant materials program for burned areas. 

• Identify and fund the 20 highest priority restoration projects with available 

rehabilitation program funds through a competitive selection process. 

FY 2006 Accomplishments 

• Implemented 208 post-fire rehabilitation projects that initiated recovery on 132,405 

acres. In addition, work was completed on 269 miles of streams and roads to restore 

water quality, fish habitat and other resources. 

• Implemented the Interagency Program to Supply and Manage Native Plant Materials. 

• Implemented the agreement with American Forests for Wildfire ReLeaf to 

supplement reforestation efforts of burned areas. This is a matching fund agreement 

that resulted in a private funding contribution of over $200,000 for reforestation 

efforts. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-22 Fire Research and Development 

Revised February 23, 2007 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Fire Research and Development 

Fire Research & Development Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $22,789 $22,800 $453 -$406 -$847 $22,000 -4% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $22,789 $22,800 $453 -$406 -$847 $22,000 -4% 

Full Time Equivalents (FTEs) 152 174 174 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Percent of R&D products and services 

that meet customer expectations 72% 72% 72% 72% 0%

FY 2008 Program Changes 

The FY 2008 budget request for Wildland Fire Management, Fire Operations Other, 

Research and Development is $22.0 million, a decrease of $847,000 or -4 percent from 

the FY 2007 Estimate. 

In support of the National Fire Plan (NFP), this program will continue research on 

previously identified needs including: large fire decision support, long-term integrated 

planning, successful collaboration with communities, and further development of 

improved tools for integrated risk analysis. The reduction will focus Forest Service 

continued support on higher priority activities such as fire suppression. 

Program Description 

The Fire Research and Development (Fire R&D) program provides research to enhance 

fundamental understanding of fire processes, fire/ecosystem interactions, and the social 

and economic aspects of fire management, as well as knowledge and products that 

support the four key areas of the NFP and meeting the goals of the Healthy Forests 

Initiative (HFI). The FY 2008 program will be planned and managed according to 12 key 

topic areas identified under the five main portfolio areas of the Wildland Fire and Fuels 

R&D Strategic Plan: Core Fire Science, Ecological and Environmental Fire Science, 

Social Fire Science, Integrated Fire and Fuels Management Research, and Science 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-23 Fire Research and Development 

Revised February 23, 2007 

Application. These portfolios are designed to focus activities on the most important fire 

management needs for science-based tools and information over the next 10 years. 

Major areas of research emphasis will include fire behavior, fire danger, and smoke 

modeling; improved characterization of fuels; effects of fire and fuels treatments on 

ecosystem components and processes as well as on water and air quality; interactions 

between fire and climatic patterns; understanding of the social factors that affect 

community interactions and decision-making; economics of fire and fuel management; 

risk analysis; effects and effectiveness of hazardous fuels treatments; opportunities for 

biomass utilization; product development from traditionally under-used wood sources; 

integration of information from all areas into improved understanding and modeling of 

landscape scale management and impacts; and improved application of science to meet 

management needs. 

New knowledge and technology will improve on-the-ground operations by: 1) providing 

better risk assessments in support of fire season planning and incident response; 2) 

providing new tools and knowledge for evaluating effectiveness of post fire emergency 

treatments; 3) making up-to-date research information more readily accessible to planners 

and policy makers through synthesis and tool development; and 4) providing new 

information and tools for better integration of social and economic considerations into 

fire management planning. 

Independent Reviews 

In FY 2007, Forest Service R&D will conduct an external peer review of the 

effectiveness of the wildland fire research and development program. A review panel, 

composed of researchers and managers from universities, other agencies, and other FS 

deputy areas will evaluate the program on its relevance, quality and performance in 

context of the Wildland Fire R&D Strategic Plan, which was completed in FY 2006. In 

FY 2008, the panel recommendations will be used along with feedback from other 

sources, to reassess Fire R&D priorities, evaluate scientific capability and capacity to 

meet these goals and make recommendations for implementation to leadership. Forest 

Service R&D will conduct these external program reviews at four to five year intervals. 

FY 2008 Plans 

• Continue collaborative research to evaluate integration of three dimensional fluid 

dynamics models with new findings on fundamental fire processes in vegetation fuels 

and in structures. This science will ultimately be integrated into next-generation 

landscape fire behavior models that will support long-term integrated planning for 

wildland fires and fuels projects, decisions on actual wildland fires, and provide 

information to improve public and firefighter safety. 

• Evaluate fire-resistance of residential building materials and structure design; and 

develop better understanding of the impacts of landscaping. This knowledge will 

improve the ability of wood-frame structures to withstand the passage of a fire, 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-24 Fire Research and Development 

Revised February 23, 2007 

reducing vulnerability and losses, and potentially reducing the costs of firefighting in 

the wildland-urban interface. 

• The FireMapper® thermal imaging system maps wildland fires at high resolution and 

provides geographically registered map products to incident managers within an hour 

of data collection. Cooperative research with private sector and other partners will 

further increase resolution and speed the delivery of the imagery from the aircraft to 

users on the ground via the internet. Potential applications of this large fire decision 

support tool include accurate detection and location of fire fronts and spotting, fire 

assessments, and of various factors influencing fire behavior. 

• The effects of insect-induced vegetation stress and mortality on fire behavior are 

poorly documented. New investigations of interactions between insect defoliators and 

fire at the forest stand to landscape scale will enable managers to quantify and predict 

defoliator impacts and responses to changing forest conditions, and potential effects 

on fire dynamics in the North Central and Western U.S. This research will also 

support creation of community wildfire protection plans (CWPP) and provide 

information on the effects of proposed fuel treatments on wildlife habitat. 

FY 2007 Program

• Post-fire management effects on the intensity of subsequent fires and the cumulative 

effects of past fire suppression on fire behavior will increase our understanding of 

how management actions and decisions can affect future fire regimes. Research will 

provide comprehensive information on the economics of harvesting timber in fireprone forest areas to reduce fuel loads. This information can improve decisions on 

post-fire treatments, on wildland fire use, and help managers communicate the socioeconomic trade-offs of different management strategies. 

• Disseminate results on use of harvested forest fuels, wildland-urban interface fuels 

treatments, and effects of fuel treatments on fire behavior to the public, land 

managers, and other researchers. This knowledge can increase public awareness of 

how mechanical treatments can reduce fire risk at the wildland-urban interface; with 

models of fire behavior in masticated fuels assisting managers to more accurately 

estimate fire behavior and effects in this new fuel type; and provide for new uses of 

small diameter and low-value biomass in engineered fiberboard, as well as solid 

wood products. 

• The five regional Fire Consortia for Advanced Modeling of Meteorology and Smoke 

(FCAMMS) will continue to improve predictive tools for use of agency 

meteorologists and fire management community in anticipating fire-weather and its 

potential impacts on fire behavior and smoke. FCAMMS products will be improved 

to enhance resolution and accuracy in forecasts of fire-weather that can lead to 

extreme fire behavior; and improved forecasts of smoke dispersion and air pollution 

from wildfires and prescribed fires. 

• Continue development of a long-range fire severity forecasting system for regional 

fire planning, incorporating dynamic weather forecast models now used for seasonal 

forecasting. The system will provide fire planning information for interagency 

regional fire coordination centers and the National Interagency Fire Center. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-25 Fire Research and Development 

Revised February 23, 2007 

• Continue analysis of a 2006 study in Florida that demonstrated the positive impacts of 

prescribed fires on lowering the cost of suppression. Researchers will further refine 

and generalize these analyses to evaluate the net economic benefits and unintended 

consequences of increases in prescribed fire in Florida and on Federal lands in the 

West.

FY 2006 Accomplishments 

• Released the computer program, Consume 3.0, which uses fuel consumption estimates 

to develop treatment prescriptions and quantify smoke and pollutant emissions. One 

feature is direct importing of fuel information from the Fuel Characteristic 

Classification System. 

• Developed the BlueSky smoke modeling framework, which is implemented through 

the FCAMMS, provides real-time predictions of smoke generation and dispersal from 

wildfires and prescribed fires. The application allows managers to make strategic 

decisions related to the use of prescribed fire for fuels management as well as 

providing information to incident command teams, air quality regulators, smoke 

forecasters, and affected publics on smoke from wildland fires. 

• Completed a study in Florida, which concluded that increasing the area of prescribed 

fires could greatly reduce total costs of suppression and losses from wildland fire. 

Findings also suggest, that increasing the amount of prescribed fire across a large 

landscape can also lead to significantly higher average costs per acre for contracting 

services required to carry out the burns. 

• In order to more effectively restore forests and rangelands to a healthy condition, and 

to protect communities from catastrophic wildland fire, Fire R&D scientists and 

collaborators developed tools or strategies that: (a) improved the ability of agencies, 

organizations, communities, and citizens to work together collaboratively to reduce 

the risks of wildland fire, and (b) enhanced the long-term social capacity of 

communities to address wildfire risk. Researchers shared "lessons learned" 

concerning Community Wildfire Protection Plans (CWPP) processes and outcomes 

and developed a system for continuously sharing new lessons to facilitate planning 

and implementing fuel reduction projects. 

• Completed revision and publication of the Wildland Fire and Fuels R&D Strategic 

Plan. This plan, which was developed with broad inputs from managers and 

researchers, outlines five major program areas for wildland fire R&D: 

o Core Fire Science addresses fundamental fire behavior, including effects of fuel 

structure and condition and transitions between surface and crown fire. 

o Ecological and Environmental Fire Science addresses the ecosystem and 

environmental effects of fire, and fire/climate interactions. 

o Social Fire Science address social and economic factors related to fire and fuel 

management. 

o Integrated Fire and Fuels Management Research focuses on effects of 

management and treatments and the stand to landscape level and integration of 

information from the first three topic areas into comprehensive models and 

decision support. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-26 Fire Research and Development 

Revised February 23, 2007 

o Science Application focuses on synthesis and other knowledge transfer, on 

refining user needs, and on final testing and development of tools for operational 

use. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-27 Joint Fire Sciences 

Revised February 23, 2007 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Joint Fire Science Program 

Joint Fire Sciences Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $7,882 $13,000 $0 $0 -$5,000 $8,000 -38% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $7,882 $13,000 $0 $0 -$5,000 $8,000 -38% 

Full Time Equivalents (FTEs) 0 0 0 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

FY 2008 Program Changes 

The FY 2008 budget request for Wildland Fire Management, Fire Operations Other, and 

Joint Fire Science Program is $8 million, a decrease of -$5 million or -38 percent from 

the FY 2007 Estimate. Joint Fire Science Program research in FY 2008 will continue to 

support the National Fire Plan, the Healthy Forests Initiative and the Healthy Forests 

Restoration Act of 2003. 

Program Description 

The Joint Fire Science Program (JFSP) is an interagency research, development, and 

applications partnership between the Departments of the Interior and Agriculture. 

Funding priorities and policies are set by the JFSP governing board with representatives 

from the Bureau of Land Management, National Park Service, U.S. Fish and Wildlife 

Service, Bureau of Indian Affairs, U. S. Geologic Survey and the U.S. Forest Service. 

The Joint Fire Science Program: 

o Provides research tailored to the needs of fire and fuel managers. 

o Develops new research responsive to identified needs. 

o Solicits proposals from scientists who compete for funding through a rigorous 

peer-review process designed to ensure the best projects are funded. 

o Focuses on knowledge delivery when the research is completed with a suite of 

communication tools to ensure that managers are aware of, understand, and can 

use the information to make sound decisions and implement projects.

The program maintains a website where interested parties can find information pertaining 

to current research proposal announcements and current and completed projects. The 

address for the website is: http://jfsp.nifc.gov/ . 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-28 Joint Fire Sciences 

Revised February 23, 2007 

FY 2008 Plans 

JFSP will fully implement the FY 2007 strategic plan to focus on the synthesis of existing 

knowledge with integration of research to meet high-priority needs of land managers, and 

to demonstrate applications of new scientific findings. Priorities include: 

• Complete the model assessment and design of an integrated suite of tools, strategies 

and research solicitations for three targeted lines of fire research: 

 1) risk 

 2) biomass 

 3) smoke management. 

• Emphasize science applications by focusing on synthesis publications, developing 

and implementing a program on fire and invasive species, improving knowledge and 

model integration, and balancing the demand for knowledge and tools targeting local 

needs with national applications. 

• Evaluate the pilot performance measures and adjust as necessary. 

• Catalog all scientific accomplishments related to JFSP projects and integrate program 

performance measures into the JFSP internet site.

• Develop an integrated suite of computer software for nationwide use; based on 

completion of the research information synthesis to be completed in FY 2007.

FY 2007 Program 

The Request for Proposals for FY 2007 closed on December 13, 2006. 

• Synthesize the wealth and volume of existing science information into a context that 

is useful to decision makers. Conduct an external review of research findings with 

Carnegie Mellon University. 

• Work with JFSP partners to complete a strategic plan for FY 2007-FY 2012 

addressing: 

o Fire in the Wildland Urban Interface (WUI) 

o Reestablishing native vegetation after fires in arid lands 

o Fire behavior and effects in deep organic soils 

o Field measurements and assessments on active fires 

o Fire and Treatment Effects on Great Basin Ecosystems 

o What Works in Developing Community Wildfire Protection Plans 

• Convene three JFSP roundtables to increase the level of user involvement in 

identifying important information needs and potential solutions in 2007 addressing: 

o Risk: What information and tools do fire and fuel managers need to incorporate 

risk assessment in decision processes? 

o Smoke management and air quality: What research is needed to manage the 

impacts of smoke in an increasingly regulated environment? 

o Biomass: When and where is it effective to remove biomass as a technique to 

manage wildland fire risk? 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-29 Joint Fire Sciences 

Revised February 23, 2007 

• One hundred seventy one proposals have been received for competitively fund 

research and science application projects in three priority areas: 

o Building on past fire and fuels research, through new projects that extend 

results of completed research; re-measurement of past study sites or experimental 

plots; and evaluation and testing of models or modeling systems 

o Rapid response research on recent or future wildland fires (wildfires and 

wildland fire use fires). Topics of interest include postfire restoration and 

rehabilitation treatments, effects of previous disturbances or land management 

activities, and social and economic factors. 

o Research to address priority needs specifically identified by regional 

managers, including reestablishment of native vegetation after fires on arid lands 

and fire behavior and effects in deep organic soils. 

The proposals will be evaluated and the top priority proposals will be funded. Results 

from on-going projects will be made available to the science and management 

communities though a variety of means including publications, symposia, workshops, 

field demonstrations, and training sessions. Approximately thirty projects will be 

completed this year. 

FY 2006 Accomplishments 

The program initiated 49 new projects, while JFSP supported scientists produced 74 

refereed publications, presented papers at 169 conferences, symposia and workshops, 

conducted 31 field tours, presented 151 invited papers and 59 posters and held 79 

workshops to deliver the latest science information to fire managers. Seventy multi-year 

projects (information available at: http://jfsp.nifc.gov) that will enable more effective 

wildland fire management were completed in 2006 including: 

• National Studies 

o The effects of prescribed fire versus mechanical treatments in forest types 

characterized by frequent, low-severity fires. The fire and fire surrogate study 

used a common treatment design on 13 experimental sites located in ponderosa 

pine, mixed conifer, southern pine, and hardwood types across the United States. 

This important study looked at many potential effects of including or excluding 

fire from an area, including; vegetation dynamics, fuel and fire behavior, soil and 

hydrology, wildlife utilization, and economics. Study results and additional 

information is available on:

http://frames.nbii.gov/portal/server.pt?open=512&objID=363&mode=2&in_hi_us

erid=2&cached=true

o Economists completed a national study of the economic impacts of biomass 

removals to mitigate wildfire damages on federal, state, and private lands. Called 

“Economics of Biomass Removals” this report is available at: 

http://jfsp.nifc.gov/projects/01-1-2-09/01-1-2-09_final_report.pdf 

o Information on all studies in progress and completed can be found at 

http://jfsp.nifc.gov/index.html 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-30 Joint Fire Sciences 

Revised February 23, 2007 

• Wildland Fire Planning 

o A study integrating social values with vegetation models and analysis tools to 

inform forest planning was completed in the Bitterroot National Forest in 

Montana.

o A comprehensive examination of fire history in Michigan, Minnesota, and 

Wisconsin delivered maps that provide five classes of wildland fire susceptibility. 

This information has been adopted by these states for fire management planning. 

• Invasives 

o Effectiveness of postfire seeding to reduce cheatgrass growth and reproduction in 

recently burned sagebrush steppe. 

o Published results on the use of fire as a tool for managing invasive weeds in the 

western United States. 

o Summarized the invasive plant knowledge base for the Fire Effects Information 

System on how invasive plants influence fire behavior.

• Decision Support 

o Improved the Forest Vegetation Simulator – Fire and Fuels Effects system for 

eastern forests to help forest managers design fuels treatments to minimize fire 

risk. 

• Climate and Fire 

o Documented historic factors influencing surface-climate conditions prior to and 

during fire season in the western United States. 

o Examined the climate role on fire and fuel in the northern Rockies providing 

implications for long-range fire management planning. 

• Science Delivery 

o Developed a regional fire science website for Washington, Oregon, and Idaho. 

o Developed the Fire Research and Management Exchange System (FRAMES) as 

an interagency marketplace for fire information. 

• Wildlife 

o Effects of prescribed fire on northern mixed prairies in North Dakota wildlife 

refuges and the productivity and nesting of migratory birds. 

o Effects of fire and rehabilitation seeding on sage grouse habitat in pinyon-juniper 

ecosystems. 

o Prescribed fire strategies to restore wildlife habitat in ponderosa pine forests. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-31 Forest Health Management 

Revised February 23, 2007 Federal Lands

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Forest Health Management – 

 Federal Lands

Forest Health Management Increase or Decrease Program 

 Federal Lands FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $14,779 $14,800 $340 -$397 -$491 $14,252 -3% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $14,779 $14,800 $340 -$397 -$491 $14,252 -3% 

Full Time Equivalents (FTEs) 95 120 -1 119 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs.

Annual Output Measure Plan Actual Plan Plan FY 2007 

Federal acres treated under NFPInvasives 1,641 1,588 0 0 0

Federal acres treated under NFP-Native 

pests 43,632 39,668 20,455 13,784 -6,671

 

FY 2008 Program Changes 

The FY 2008 budget for Fire Operations – Other, Forest Health Management, Federal 

Lands is $14,252,000, a net program change of -$491,000 or -3 percent from the FY 2007 

Estimate. 

The National Fire Plan support of the Forest Health Management, Federal Lands program 

will continue to meet the high priority prevention and suppression needs of western bark 

beetles located in fire-adapted ecosystems 

Beginning in FY 2007 and continuing in FY 2008, the program will shift funding towards 

priority treatment areas of native pests and no treatments on invasives will be conducted. 

This funding will focus on western bark beetle treatments in priority fire-prone areas. 

Treatments for invasive will be funded through other Forest Health Management budget 

line items. 

In FY 2008, funding will be used to produce products that provide better information. 

While this activity will yield less acres treated, these products are integral to the overall 

Forest Health program. An example of this type of activity is the National Insect and 

Disease Risk Map (NIDRM). Continuing into FY 2008, there will be improvements in 

increasing the spatial resolution of the maps from 1 kilometer to 30 meters. This 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-32 Forest Health Management 

Revised February 23, 2007 Federal Lands

enhancement will make the map more useful at the local level. Another program area 

that will be focused on is increased survey and technical assistance, which will provide 

better information to land managers on where pests are currently expected to cause 

damage and how to mitigate damage. 

The Western and Eastern Threat Assessment Centers will continue to provide 

information on how multiple threats interact with pests, especially the effects of climate 

change. Evaluation monitoring projects in the Forest Health Monitoring Program will 

indicate where fire-adapted ecosystems are at risk. 

Independent Reviews 

In FY 2006, Forest Service Forest Health Management program participated in the 

Invasive Species Program Assessment Rating Tool (PART) reassessment. The program 

received a rating of Adequate. 

In FY 2007, an external review of the entire Forest Health Management program will be 

conducted as recommended in the Invasive Species PART completed during FY 2006. 

Program Description 

Funding within this appropriation is specifically for implementation of the National Fire 

Plan; with a focus on activities in areas at high risk to wildland fires, including 

communities in the Wildland Urban Interface, and in previously burned areas. The top 

priorities for FY 2007 and 2008 are Western Bark Beetles which are epidemic in many 

areas of the west. This resulted in a shift away from invasives in this budget line item. 

Invasives are treated in other complementary Forest Health Management budget line 

items. 

The program enhances the agency’s ability to control and manage insect and disease 

outbreaks. Annual priorities are established for mitigating the risk of future outbreaks 

based, in part, on the 2006 update of the National Insect and Disease Risk Map (NIDRM) 

and goals from the Healthy Forests Restoration Act of 2003. 

The NIDRM is a peer reviewed, science-based effort that identifies acres at risk from 

insects and disease. The NIDRM is used by resource managers to help guide the 

selection of treatment acres by identifying areas at risk to tree mortality over the next 15 

years. For example, the NIDRM was used in conjunction with recent aerial survey 

detection data and other factors to apportion funds for the western bark beetle allocation 

among the western Regions. State and federal resource managers have embraced the 

usefulness of the NIDRM. Efforts are currently underway to step-down the NIDRM to 

State-specific risk maps. The Forest Health Protection program is working with several 

States to develop more State-friendly risk maps. Actual treatment locations are decided 

at the local level, priorities include high-value stands (such as wildland-urban interface 

areas), municipal water supply areas, recreational sites, and administrative sites. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-33 Forest Health Management 

Revised February 23, 2007 Federal Lands

The Western and Eastern Threat Assessment Centers provide a new capability to 

integrate multiple threats across the landscape such as insects and disease, wildland fire, 

climate change, habitat conversion and other stressors. These centers provide important 

information to land managers to help prioritize treatments. 

Treatments result in acres protected from damaging agents and reduced risk of mortality 

and concomitant fire risk, protection of high value sites, improved wildlife habitat, and 

prevention of future outbreaks through increased resiliency of treated stands. Some 

examples of these results include: 

• Treatments for bark beetles in campgrounds in Idaho, Utah, and Montana have 

resulted in healthy green trees surrounding high use public recreation sites. 

• Funding and technical assistance provided through the forest health program has 

assisted national forests with the use of a pheromone to protect areas from 

mountain pine beetles. The "anti-aggregating" pheromones work by telling the 

beetles there are no acceptable trees nearby to attack. 

Treatments are monitored to ensure they achieve results using best management 

practices. This program includes a rigorous 5-year review of each region/area’s 

treatments. 

FY 2008 Plans 

• Use the NIDRM to help prioritize where work is needed to mitigate the risk of new 

outbreaks. Begin to increase the spatial resolution of the NIDRM from 1 kilometer to 

30 meters. 

• Conduct native insect and disease suppression, and prevention projects on 

approximately 13,784 acres. 

• Emphasize restoration and suppression of bark beetle-caused infestations and 

mortality by conducting thinning and trap out strategies using pheromones as well as 

using information from the NIDRM to reduce risk of new outbreaks. Bark beetles 

cause particular problems in areas with fire-weakened trees and in areas at risk to 

wildland fires, including the wildland-urban interface. 

FY 2007 Program 

• Conduct native insect and disease suppression, and prevention projects on 

approximately 20,455 acres. 

• Provide emphasis on restoration and suppression of bark beetle-caused infestations 

and mortality. Bark beetles cause particular problems in areas with fire-weakened 

trees and in areas at risk to wildland fires (e.g., Southern California Front Range), 

including the wildland-urban interface. 

• Support the evaluation monitoring component of the Forest Health Monitoring 

program. Evaluation Monitoring investigates forest health issues identified from 

Forest Health Monitoring plot and survey data. The agency uses the information 

from specific studies across the country determine the Federal lands in greatest need 

of protection and which acres will be part of the annual target and accomplishment. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-34 Forest Health Management 

Revised February 23, 2007 Federal Lands

FY 2006 Accomplishments 

• Conducted native and non-native invasive insect and disease suppression, and 

prevention projects on approximately 41,256 acres. 

• Completed the revision of the NIDRM, which will enable the Forest Service and 

cooperative partners to prioritize projects in future years. 

• Provided emphasis on restoration and suppression of bark beetle-caused infestations 

and mortality. Bark beetles cause particular problems in areas with fire-weakened 

trees and in areas at risk to wildland fires, including the wildland-urban interface. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-35 Forest Health Management 

Revised February 23, 2007 Cooperative Lands

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Forest Health Management – 

 Cooperative Lands

Forest Health Management Increase or Decrease Program 

 Cooperative Lands FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $9,853 $10,000 $45 -$151 $120 $10,014 1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $9,853 $10,000 $45 -$151 $120 $10,014 1% 

Full Time Equivalents (FTEs) 13 16 16 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and Reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, D21 Compensation payments, and 

Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Acres treated on cooperative lands under 

NFP-Invasives 205,355 192,850 150,174 125,270 -24,904

Acres treated on cooperative lands under 

NFP-Native pests 2,364 8,441 6,745 4,534 -2,211

 

FY 2008 Program Changes 

The FY 2008 budget request for Fire Operations – Other, Forest Health Management, 

Cooperative Lands is $10,014,000, a net program change of +$120,000 or +1 percent 

from the FY 2007 Estimate. 

The National Fire Plan, as supported by the Forest Health Management Cooperative 

Lands program will continue cooperative efforts with States and territories to meet their 

highest priority prevention and suppression needs in fire prone areas as identified in part 

by the National Insect and Disease Risk Map (NIDRM) and other sources. The NIDRM, 

revised in 2006, is a peer reviewed, science-based effort that identified 58 million acres at 

risk to 25 percent mortality from forest insects and diseases over the next 15 years. 

Using this information, the program the FY 2008 plans are to increase technical 

assistance to States, which will improve the ability to select the highest priority acres, but 

will reduce the number of acres treated. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-36 Forest Health Management 

Revised February 23, 2007 Cooperative Lands

Independent Reviews 

In FY 2006, Forest Service Forest Health Management program participated in the 

Invasive Species Program Assessment Rating Tool (PART) reassessment. The program 

received a rating of Adequate. 

In FY 2007, an external review of the entire Forest Health Management program will be 

conducted as recommended in the Invasive Species PART completed during FY 2006. 

Program Description 

Funding included within this appropriation is specifically for implementation of the 

National Fire Plan; with a focus on activities in areas at high risk to wildland fires, 

including communities in the wildland urban interface, and in previously burned areas. 

This program provides technical and matching financial assistance to States and 

Territories to detect; monitor, evaluate, prevent, and suppress forest insects, pathogens 

and invasive plants on forestland owned by States, local governments, private 

organizations, and private individuals. The cost of suppression and prevention projects 

are shared with States and other non-federal partners on a 1:1 basis. A complementary 

line item is within State and Private Forestry appropriation for other Forest Health 

Management priorities. 

This program enhances the agency’s ability to control and manage insect, disease and 

invasive plant outbreaks. Annual priorities are established for mitigating the risk of 

future outbreaks based, in large part, on the 2006 update of the NIDRM and goals from 

the Healthy Forests Restoration Act of 2003. The NIDRM is a peer reviewed, sciencebased effort that identifies acres at risk from insects and disease. Currently, invasive 

plants are not part of the NIDRM, however, work is being explored to do so in the future. 

The NIDRM is used by resource managers to help guide the selection of treatment acres 

by identifying areas at risk to tree mortality over the next 15 years. For example, the 

NIDRM was used in conjunction with recent aerial survey detection data and other 

factors to apportion funds for the western bark beetle allocation among the western 

Regions. State and federal resource managers have embraced the usefulness of the 

NIDRM. For example, efforts are currently underway to step-down the NIDRM to Statespecific risk maps. Forest Health Protection is working with several States to develop 

more State-friendly risk maps. State forest health specialists and resource managers will 

use these maps as a landowner education tool and for assistance in selection of insect and 

disease project locations, based on risk. The actual placements for treatments are decided 

at the local level priorities include high-value stands (such as wildland-urban interface 

areas), municipal water supply areas, recreational sites, and administrative sites. 

Treatments result in acres protected from damaging agents and reduced risk of mortality 

and concomitant fire risk, protection of high value sites, improved wildlife habitat, and 

prevention of future outbreaks through increased resiliency of treated stands. Some 

examples of these results include: 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-37 Forest Health Management 

Revised February 23, 2007 Cooperative Lands

• Working closely with cooperators to treat invasive plants such as leafy spurge in 

Montana. 

• Treating yellow starthistle throughout the States of Oregon and Idaho. 

• Protecting high value sites from bark beetles in several western States. 

Treatments are monitored to ensure they achieve results using best management 

practices. This program includes a rigorous 5-year review of each region/area’s 

treatments. 

FY 2008 Plans 

• Prioritize mitigation work based, in part, on the NIDRM and the Healthy Forests 

Restoration Act of 2003. 

• Carryout prevention and suppression projects on 129,804 high-priority acres of 

cooperative lands at high risk to wildland fires, including communities in the 

wildland-urban interface, and in previously burned areas. 

• Increase focus on providing technical assistance to States to help in identifying 

highest priority acres needing treatment. 

• Continue to survey for sudden oak death and treat hot spots. 

FY 2007 Program 

• Prevent and suppress native and non-native insects, diseases and plants on 156,919 

acres of high-priority cooperative lands. Focus on invasive species suppression, 

prevention, and restoration efforts to support the goals of the Healthy Forests 

Restoration Act of 2003. 

• Support invasive plant control programs on State and private lands to control and 

manage invasive plant species, especially leafy spurge in Montana. 

• Continue cooperative efforts with States to survey, detect, and evaluate insect and 

disease outbreaks and invasive plant species spread.

FY 2006 Accomplishments 

In FY 2006 there was a mid-year adjustment, from invasive species to native pests, which 

provided additional funding that was sent to the western Regions so they could treat 

additional priority acres of native bark beetles. 

• Supported suppression and prevention of native and invasive insects and diseases and 

invasive and plants on approximately 201,291 acres of cooperative lands. 

• Completed the revision of the NIDRM, which will help enable the Forest Service and 

cooperative partners to prioritize projects in future years. 

• Supported invasive plant control programs on State and private lands to control and 

manage invasive plant species, focusing on cogon grass in the South, mile-a-minute 

weed in the Northeast, and yellow starthistle in the West. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-38 Forest Health Management 

Revised February 23, 2007 Cooperative Lands

• Continued cooperative efforts with States to survey, detect, and evaluate insect and 

disease outbreaks and invasive plant species spread. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-39 State Fire Assistance 

Revised February 23. 2007 

Budget Line Item Fire Operations - Other 

Expanded budget Line Item State Fire Assistance 

State Fire Assistance Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $45,816 $43,000 $6 -$457 -$7,545 $35,004 -18% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $45,816 $43,000 $6 -$457 -$7,545 $35,004 -18% 

Full Time Equivalents (FTEs) 1 2 2 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Communities at risk from wildfire 

assisted-NFP 10,763 7,150 6,765 5,577 -1,188

 

FY 2008 Program Changes 

The FY 2008 budget for Fire Operations – Other, State Fire Assistance is $35,004,000, a 

decrease of $7,545,000 or -18 percent from the FY 2007 Estimate. 

The National Fire Plan, State Fire Assistance program will continue to emphasize fire 

planning and hazardous fuels mitigation near communities at risk of catastrophic wildfire 

through leveraging funds with the State Foresters. 

Program Description 

This program provides matching financial assistance through partnership agreements to 

State Foresters for all fire management activities including training, planning, hazardous 

fuel treatments, purchase and maintenance of equipment. This activity emphasizes fire 

planning and hazardous fuels mitigation near communities at risk of catastrophic wildfire. 

Program funding ensures Federal, State, and local agencies deliver a uniform and 

coordinated suppression response to wildfire. This activity provides funding to enable 

State and local fire protection organizations to be effective first responders in all types of 

disasters. An additional appropriation is within State and Private Forestry for additional 

priority projects. 

Funds from this program also support Firewise Communities/USA (Firewise). The 

Firewise program is also funded by the Department of the Interior, the National Fire 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-40 State Fire Assistance 

Revised February 23. 2007 

Protection Association, and State partners. It is a highly successful program which 

emphasizes individual responsibility for fire hazard mitigation on community and private 

property. The Firewise program educates and supports community leaders, fire 

professionals, planners, and individuals on wildland-urban interface (WUI) fire issues; 

maintains an educational website; and provides varied assistance to organizations and 

individuals for wildland fire mitigation around structures. Firewise leverages Federal 

dollars by seeding local projects; each Federal dollar spent on Firewise garners $4 in 

local matching funds dedicated to reducing the number of communities at risk from 

wildland fire. 

FY 2008 Plans 

• Emphasize training and community wildfire protection planning to deliver an 

efficient and effective fire suppression response and prioritization of hazardous fuel 

mitigation projects. 

• Provide financial assistance to communities for an estimated 5,577 projects, 

including: plans, assessments, and hazard mitigation projects in critical high-risk 

WUI areas. 

• Treat an estimated 45,000 acres of hazardous fuels in the WUI. 

FY 2007 Program 

• Focus strategic, technical, and financial assistance to the States to strengthen the 

shared capacity in the protection of non-Federal wildlands and rural lands from 

wildfire. 

• Emphasize training and fire planning to deliver an efficient and effective fire 

suppression response and prioritization of hazardous fuel conditions. 

• Provide financial assistance to communities for an estimated 6,765 projects, 

including: plans, assessments, prevention programs, and hazard mitigation projects in 

critical high-risk WUI areas. 

• Treat an estimated 55,000 acres of hazardous fuels in the WUI. 

FY 2006 Accomplishments 

• Assisted 7,150 communities in the form of risk assessments, fire prevention 

programs, fire management planning, and hazardous fuel mitigation projects. 

• Treated 80,818 acres of hazardous fuels in the WUI to protect 1,232 communities at 

risk from catastrophic fire. 

• Certified, by Firewise, 23 new communities for a total of 141 Firewise communities. 

Both State Fire Assistance in the State and Private Forestry appropriation and this 

program contribute to Firewise accomplishments. 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-41 Volunteer Fire Assistance 

Revised February 23, 2007 

Budget Line Item Fire Operations - Other 

Expanded Budget Line Item Volunteer Fire Assistance 

Volunteer Fire Assistance Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $7,773 $12,810 $0 $0 -$4,810 $8,000 -38% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $7,773 $12,810 $0 $0 -$4,810 $8,000 -38% 

Full Time Equivalents (FTEs) 0 0 0 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Volunteer fire departments assisted-NFP 3,800 4,058 5,650 4,075 -1,575

 

FY 2008 Program Changes 

The FY 2008 budget for Fire Operations – Other, Volunteer Fire Assistance is $8.0 

million, a decrease of -$4,810,000 or -38 percent from the FY 2007 Estimate. 

 

Program Description 

The Volunteer Fire Assistance program is delivered by State Foresters and supports local 

fire suppression efforts by providing grants for equipment, training programs, and 

assistance in organizing fire departments. The program targets volunteer fire departments 

that protect communities with populations of less than 10,000 and directly supports 

implementation of the National Fire Plan and is critical to protecting communities and 

resources from catastrophic wildland fire. Volunteer fire departments protect an 

estimated 43 percent of the population in the United States. These fire departments 

provide initial attack on many rural wildland fires throughout the nation, significantly 

decreasing overall suppression costs. 

Grants are matched dollar-for-dollar by the recipients to leverage the value of the Federal 

investment, and promote safe and effective initial attack in the Wildland Urban Interface 

(WUI) by focusing on training, equipping, and organizing volunteer fire departments. 

Program funding ensures Federal, State, and local agencies deliver a uniform and 

coordinated suppression response to wildfire. This activity provides funding to enable 
FY 2008 Budget Justification USDA Forest Service

Wildland Fire Management 11-42 Volunteer Fire Assistance 

Revised February 23, 2007 

State and local fire protection organizations to be effective first responders in all types of 

disasters. 

This program complements the Volunteer Fire Assistance program funded through the 

State and Private Forestry appropriation, significantly expanding the benefits to the same 

target group. 

These funds directly support implementation of the National Fire Plan and are critical to 

protecting communities and resources from catastrophic wildland fire. 

FY 2008 Plans 

• Provide grants to States in support of the critical needs of approximately 4,075 rural 

volunteer fire departments and communities. 

• Emphasize building community fire suppression capacity for priority communities at 

greatest risk from wildland fire, and funding for essential training and equipment. 

• Provide financial support to rural fire departments for the completion of community 

wildfire protection plans. 

FY 2007 Program 

• Continue to work with the States to provide grants in support of the critical needs of 

approximately 5,650 rural volunteer fire departments and communities. 

• Emphasize optimal wildfire risk mitigation for priority communities at greatest risk 

from wildland fire, and funding for essential training and equipment. 

• Give priority to rural fire departments in National Incident Management System 

training in order to allow departments to more effectively coordinate with State and 

national wildfire and emergency organizations. 

• Provide financial support to rural fire departments for the completion of community 

wildfire protection plans. 

FY 2006 Accomplishments 

• Provided assistance to 4,058 communities in the form of firefighting equipment 

purchases, safety equipment, and wildland firefighting training. 

• Assisted in forming approximately 25 new fire departments in communities with 

populations of less than 10,000. 
Capital Improvement 

and Maintenance 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-1

Appropriation Capital Improvement and Maintenance 

Capital Improvement & Maintenance Increase or Decrease Program 

 Appropriation FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $431,334 $411,025 $6,333 -$10,196 $15,403 $422,565 4% 

Emergency & Supplemental Appropriations* $7,000 $0 $0 

Total Enacted Budget Authority $438,334 $411,025 $6,333 -$10,196 $15,403 $422,565 4% 

Full Time Equivalents (FTEs) 2,596 2,326 -28 2,298 

Enacted Budget Authority by EBLI 

Facilities $123,698 $117,874 $1,321 -$2,671 $3,123 $119,647 3% 

Roads $220,688 $210,297 $3,395 -$5,426 $19,165 $227,431 9% 

Trails $74,205 $70,711 $1,546 -$1,926 -$3,944 $66,387 -6% 

Deferred Maintenance $12,743 $12,143 $71 -$173 -$2,941 $9,100 -24% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Includes $7,000 for hurricane damage related CI&M projects in FY 2006 funding from P.L. 109-148 

 

Capital Improvement and Maintenance Programs 

The Capital Improvement and Maintenance program provides funding for maintenance 

and decommissioning of recreation developed sites; maintenance and decommissioning 

of fire, administrative, and other (FA&O) buildings and facilities, including recreation 

visitor centers, research facilities, telecommunication facilities, towers, and dams that are 

$250,000 or greater in cost; capital improvement and acquisition of recreation developed 

sites and FA&O buildings and facilities; and maintenance and capital improvement of the 

National Forest Road System (NFRS) and National Forest System (NFS) trails for 

recreation, fire, administrative, and other uses. 

Other funds available to the Forest Service, not to exceed $45,000,000, will be 

transferred to the Capital Improvement and Maintenance account and are in addition to 

amounts shown for this appropriation. This amount will be used for FA&O facilities 

maintenance work that is less than $250,000 in cost. Assessments will be made using a 

square foot rate charged on the same basis the agency uses to assess programs for 

payment of rent, utilities, and other support services. 

Facilities 

The Facilities budget line item is necessary to carry out the mission of the Forest Service. 

Facilities includes developed recreation sites, such as campgrounds and day-use sites; fire 

facilities such as air tanker bases, lookouts, airports, heliports, and fire management 

centers; administrative facilities, and other facilities such as employee and family 

housing, service and storage buildings, telecommunication facilities, towers, and dams. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-2

Maintenance, including annual maintenance and deferred maintenance, for recreation 

developed sites and FA&O facilities maintenance greater than $250,000 will be provided 

within this budget line item. Maintenance includes normal repairs, preventive 

maintenance, replacement of parts and structural components, and other activities needed 

to provide acceptable service and achieves the facility’s expected life. Large 

maintenance projects (greater than $250,000) typically include major rehabilitation or 

replacement of a facility with the same capacity and purpose. 

Capital improvement projects include survey, design, contract preparation, contract 

administration, and construction costs. Capital improvements include construction of 

new facilities, alteration of existing facilities to change function, and expansion of 

facilities to change capacity to meet needs that are different from the original intent. 

Improvements are often required to expand public service capability or recreational 

opportunities. In many cases, capital improvements also eliminate deferred maintenance. 

 

Roads 

The Roads program provides for the maintenance, capital improvement (including 

acquisition of rights-of-ways), decommissioning, and management of approximately 

380,000 miles of road and 6,500 bridges. The program also provides for the engineering 

support for planning; designs, plans, and estimates; and construction administration for 

roads needed for timber sale and land services contracts. The National Forest Road 

System (NFRS) is an integral part of the rural transportation network and is operated and 

maintained to provide safe access for resource program activities. All resource and 

utilization programs are dependent upon the NFRS for access. 

Trails 

The Trails program funds the operation, maintenance, and rehabilitation of trails. The 

NFS contains approximately 140,000 miles of trails, 33,000 miles of which are inside 

wilderness areas. The NFS trails system accommodates over 50 million annual 

recreation visitor days of use with a variety of recreational activities including hiking, 

horseback riding, cross-country skiing, mountain biking, and off-highway vehicle use. 

The Trails program also administers National Scenic and Historic Trails, including the 

Appalachian National Scenic Trail, Continental Divide National Scenic Trail, Florida 

National Scenic Trail, Pacific Crest National Scenic Trail, Nez Perce National Historic 

Trail, and portions of an additional 15 other national scenic and historic trails in 

coordination with other Federal public land agencies. 

Deferred Maintenance and Infrastructure Improvement

This program complements the Facilities, Roads, and Trails budget line items and directs 

the use of funds specifically toward reducing the backlog of deferred maintenance. The 

primary goal of this program is to ensure the safety of the recreating public and agency 

employees. This is accomplished through maintenance and repair work as well as by 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-3

replacing obsolete and worn-out infrastructure with new assets meeting industry 

standards. 

Deferred maintenance is maintenance work that was not performed when it should have 

been or when it was scheduled and which therefore, was put off or delayed for a future 

period. Deferred maintenance can lead to deterioration of performance, increased costs 

of repair, and a decrease in the value of the infrastructure. Deferred maintenance 

includes the repair, rehabilitation, or replacement of infrastructure. It can include work 

needed to meet laws, regulations, codes, best management practices, and other applicable 

standards. It can also include demolition, dismantling, and disposing of unneeded 

infrastructure. 

 

Infrastructure improvement can include the construction of new infrastructure, alteration 

of existing infrastructure to change its function, and the expansion of existing 

infrastructure to increase capacity. Infrastructure improvement projects included in this 

program minimize or eliminate deferred maintenance. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-4 Facilities 

Budget Line item Facilities 

Facilities Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $123,698 $117,874 $1,321 -$2,671 $3,123 $119,647 3% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $123,698 $117,874 $1,321 -$2,671 $3,123 $119,647 3% 

Full Time Equivalents (FTEs) 528 489 -33 456 

Estimated Funding by Activity 

Maintain Facilities $50,310 $58,091 $702 -$1,582 $6,397 $63,608 11% 

Improve Facilities $73,388 $59,783 $619 -$1,089 -$3,274 $56,039 -5% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Facilities condition index * 87% 89% 89% 90% 1%

Percent of facilities with "Good" or 

"Fair" condition rating** 47% 64% 67% 72% 5%

Number and percentage of outdoor 

recreation facilities maintained to 

standard 

9,865

70% 

9,770 

69% 

9,835 

70% 

9,960 

71% 

135 

1%

Major project list facilities accomplished 

on time and within budget*** 51 39 50 50 0

* A ratio of the cost of remedying maintenance deficiencies to the current replacement value commonly 

used by private firms to monitor condition of facilities. 

** Facility condition rating is a subset of the facility condition index. The rating percentage applies to 

those facilities with a completed condition survey (92% completed) and does not represent anticipated 

improvements to overall facility condition. 

*** Activity redefined from "Number of projects completed" starting in FY 2008. 

FY 2008 Program Changes 

The FY 2008 budget request for the Facilities program is $119.6 million, a net program 

change of +$3.1 million, or +3 percent from the FY 2007 Estimate. There are 456 FTEs 

in the program in FY 2008, a decrease of 33, or -7 percent from the FY 2007 Estimate. 

The agency is projecting a 1 percent Facilities Condition Index increase from FY 2007 to 

FY 2008. The agency still has a significant number of facilities not maintained to 

standard with a Facilities Index of less than 0.9. Many of the facilities were constructed 

in the 1960s and have exceeded their design life and are in need of replacement. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-5 Facilities 

The Building Research Board recommends that annual maintenance needs for facilities 

and recreation sites be estimated at 2 to 4 percent of the current replacement value, which 

translates to $160 to $200 million per year for the Forest Service. However, deferred 

maintenance is accruing at a faster rate than appropriations are available to address it. 

Funding from the Land and Facilities Enhancement Fund, Recreation Enhancement Fund, 

and the Quarters Maintenance Permanent Appropriations, are helping the agency to 

further reduce deferred maintenance and increase the facility condition index (FCI). The 

agency is creating efficiencies in annual maintenance and operations by consolidating 

administrative sites at locations that better serve the public and agency needs. 

In FY 2008, program focus is on the preservation of an aging infrastructure that impacts 

the agency’s ability to successfully perform its mission. Critical to this program is the 

elimination of health and safety concerns at agency owned buildings and recreation sites. 

Priority will be on repairing and improving those facilities, including buildings; water 

and wastewater systems, dams, and recreation sites that receive public use and are critical 

to supporting agency operations. 

Specific priorities within each activity include: 

Maintain Facilities- Identifying and preserving adequate fire, administrative and 

other (FA&O) facilities and recreation sites that meet the public needs on each 

national forest. The emphasis is on ensuring that visitors and employees have safe 

and healthful environments in which to recreate or work. Repairs to correct health 

and safety deficiencies are of paramount importance for all facilities and recreation 

sites. Facilities that house employees for long periods of time, store mission-critical 

equipment, and provide unique recreation experiences will continue to be highlighted 

for maintenance activities. 

Improve Facilities- Replacement of obsolete administrative, research, fire, recreation, 

and other facilities that are critical to the agency mission, are considered mission 

dependent, receive the highest utilization by the public or agency staff, and are in the 

worst physical condition. The agency will ensure that new and replacement facilities 

are constructed to be energy efficient and make use of renewable resources whenever 

possible. 

Program Description 

The Facilities program provides for the maintenance, capital improvement, and program 

management for a multi-billion dollar infrastructure related to facilities and sites used for 

recreation, research, fire support, administrative, and other purposes to carry out the 

mission of the Forest Service. In many cases, maintenance and capital improvement 

projects eliminate deferred maintenance. The Forest Service oversees more than 14,000 

recreation sites which have the capacity to serve the recreation needs of more than 321 

million visitors annually with a current replacement value of almost $3 billion. In 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-6 Facilities 

addition, the agency manages approximately 19,000 FA&O administrative buildings with 

a current replacement value of $4 billion. 

The Facilities program consists of two activities. The definition of each activity is 

consistent with the Financial Accounting Standards Advisory Board (FASAB). 

Maintain Facilities – Maintenance is defined as the act of keeping fixed assets in 

acceptable condition. It includes normal repairs, preventive maintenance, 

replacement of parts and structural components, and other activities needed to 

preserve a fixed asset so that it continues to provide acceptable service and achieves 

its expected life. Maintenance excludes operations costs and activities aimed at 

expanding the capacity of an asset or otherwise upgrading it to serve needs different 

from, or significantly greater than, those originally intended. Maintenance funds are 

used for any needed contract preparation, contract administration, and program 

management for maintenance activities. Maintenance projects for recreation 

developed sites, such as campgrounds and day-use sites, and FA&O facilities greater 

than $250,000 will be provided within this activity. 

Improve Facilities – Capital improvement projects for FA&O and recreation sites are 

included in this activity. Capital improvements include construction of new facilities, 

alteration of existing facilities to change function, and expansion of facilities to 

change capacity to meet needs that are different from the original intent. 

Improvements are often required to expand public service capability or recreational 

opportunities. In many cases, capital improvements eliminate deferred maintenance. 

The agency accomplishes valuable facility work by leveraging funds for completing these 

activities. Volunteers, concessionaires, and other partners are used to enhance recreation 

experiences and to help maintain nearly 70 percent of agency owned recreation sites, 

allowing national forest personnel to be available for program administration and 

supervision. The agency is also using collocation with other Federal agencies as a 

leveraging technique to share operations costs. 

Independent Reviews 

PART: In FY 2004 capital assets was one of the many Federal programs selected to 

utilize the Program Assessment Rating Tool (PART). The program received an adequate 

score. The assessment of the capital asset program found the agency faces challenges in 

meeting long term goals. Specific actions to improve program performance include: 

• Utilizing enhanced disposal authority to reduce the number of excess facilities. 

• Continuing facility and developed recreation site master planning efforts to 

identify optimum locations, sizes, and numbers of facilities to reduce future 

maintenance needs. 

• Continuing facility assessments to optimize utilization, reduce costs, and improve 

Facility Condition Index by reducing facility deferred maintenance by at least 25 

percent by 2010. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-7 Facilities 

Implementation of the Capital Improvement Program, OIG Audit Report No. 08001-01-

AT, November 2006. The Office of Inspector General (OIG) initiated this review to 

evaluate the agency’s controls over the sale of its excess property and the use of the 

proceeds to reduce the deferred maintenance backlog. 

OIG Recommendation No. 1: Establish a structure and measurable process to select 

conveyance projects. Assign weighted values to each selection criterion and document 

the nominations received and decisions made for each individual project. 

FS Response to Recommendation No. 1: Forest Service concurs with the intent of this 

recommendation, but not on the specific evaluation process as stated in the report. We 

are currently finalizing criteria by which regions and research stations will evaluate and 

nominate future conveyance projects. The Washington Office (WO) Engineering staff 

will then incorporate the nominated projects in the fiscal year 2008 Budget Justification. 

In future years, the annual program direction will direct the regions to base work 

priorities on the projects that best meet the developed criteria. This recommendation has 

been implemented. 

Follow-up on Recommendations Made on the Maintenance of Forest Service's 

Infrastructure OIG Audit Report No. 08601-02-HY, June 2006. This review examined the 

agency’s implementation of prior OIG recommendations to strengthen the controls for 

maintaining the agency’s infrastructure. This also included evaluating Forest Service 

controls for maintaining its infrastructure and for compiling and reporting maintenance 

backlog information. 

OIG Recommendation No. 3: Develop and implement controls to validate that 

inspections of dams are timely completed, emergency action plans are tested, and 

operations and maintenance plans are complete and up-to-date. 

FS Response to Recommendation No. 3: The Forest Service concurs with this audit 

recommendation. Currently, manual direction is under development requiring 

Emergency Action Plans for all moderate and high hazard dams, including testing and 

review of operations and maintenance plans to assure they are up-to-date. 

Beginning in FY 2007, annual Program Direction will require the development of a 5-

year Operation and Maintenance (O&M) and Safety inspection plan for Forest Serviceowned high hazard and moderate (significant) hazard dams. Any critical health and 

safety deferred maintenance items identified on high hazard dams are to be promptly 

corrected. In addition, the agency will require an annual update to the Emergency Action 

Plan (EAP) for all high hazard dams on National Forest System lands. 

The Forest Service will develop and implement an annual performance measure in FY 

2008, requiring 100 percent compliance with the required Emergency Action Plan 

actions. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-8 Facilities 

To monitor the dam inspections, testing of emergency action plans, and review of 

operation and maintenance plans and to assure that these actions are being performed on 

schedule, a new INFRA report will be created in the Corporate Data Warehouse (CDW). 

 

OIG Recommendation No. 4: Develop and implement a strategy to address the 

deferred maintenance backlog and to identify goals and objectives for managing deferred 

maintenance. 

FS Response to Recommendation No. 4: The Forest Service concurs with this audit 

recommendation. The agency is currently in the process of developing an integrated 

strategy to reap maximum benefits from a combination of appropriations, facility 

conveyance receipts, and decommissioning of unneeded facilities. The strategy will be 

used to realign our administrative facility infrastructure to meet current organizational 

structure and to meet our need to reduce the maintenance liability for unneeded buildings, 

free up land for use by local communities and private enterprise, and provide added funds 

to the agency for infrastructure maintenance and development. The strategy will be 

completed by March 30, 2007. 

 

To address deferred maintenance for roads, the Forest Service has begun an in-depth 

analysis of the trends related to the loss of roads that are not passable by passenger car 

and high clearance vehicles and do not meet the best management practices. When 

completed, a report will be provided to the Forest Service leadership, by March 30, 2007, 

on the trend-analysis projections for development of a strategy to reduce deferred 

maintenance and to determine the road system the agency can afford to sustain, 

considering the resources that will be available in the future. 

The Forest Service recognizes the need to analyze the accuracy of the current fence 

inventory to eliminate duplicate records and to assure that the assets are properly 

identified and no longer contribute to inaccurate deferred maintenance values. The 

algorithm used to calculate fence deferred maintenance will be re-evaluated and 

modified, if necessary. This analysis will be completed by September 30, 2007. 

Permittee-fence maintenance is required to hold a grazing permit and actions will be 

taken against a permit in noncompliance. Forest Service fence maintenance 

responsibilities will be accomplished as funding allows on an on-going basis. 

FY 2008 Plans 

• Improve the FCI by 1% using appropriated funds and collections under the agency’s 

facilities realignment authority. 

• Slow the accretion of deferred maintenance and provide facilities appropriate for 

mission support. 

 Maintain Facilities 

• Continue to focus the recreation site maintenance program on high-priority health and 

safety maintenance needs. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-9 Facilities 

• Complete the analysis phase of Recreation Site Facility Master Planning (RSFMP) on 

the majority of national forests to assess where to focus investments in an efficient 

and effective manner through ranking recreation sites in priority order responsive to 

the public’s needs. The RSFMP analysis provides the information required to make 

operational changes at recreation sites while maintaining quality standards within 

available funding levels. 

Improve Facilities 

• Complete construction on Phase 2 of the Forest Products Laboratory (FPL) 

modernization project at a cost of $15 million. 

• Initiate or complete construction on approximately $72 million of major facility 

projects (maintenance and capital improvements) across 20 States and Puerto Rico. 

• Implement facility master plans to right-size the agency’s asset portfolio and 

eliminate unneeded facilities. These new facilities are being built to current code, 

which will lower maintenance and energy costs. These buildings generally realign 

the agency’s infrastructure to better serve the public (relocating) and lower overall 

program expense (by consolidating districts) 

FY 2007 Program 

Maintain Facilities

• Complete recreation site analysis process of RSFMP on 34 national forests to move 

national forests toward a sustainable recreation site program and aligning their 

recreation sites and future capability with visitor needs. RSFMP results in ranking 

recreation sites in priority order and provides the information required to make 

operational changes at recreation sites while maintaining quality standards within 

available funding levels. 

• Identify conditions and policies for which facilities will be temporarily or 

permanently closed where resources are not available to operate them to standard. 

This will lower the overall demand for maintenance funding over time. Goals include 

maintaining facilities to standard within available funding levels. 

Improve Facilities 

• Initiate and/or complete construction on approximately $69 million of major projects 

(maintenance and capital improvements) across 26 States. Focus on high-priority 

capital improvements and deferred maintenance that improve health and safety 

conditions. These new facilities are being built to current code, which will lower 

maintenance and energy costs. These buildings generally realign the agency’s 

infrastructure to better serve the public (relocating) and lower overall program 

expense (by consolidating districts). Goals include maintaining facilities to standard 

within available funding levels. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-10 Facilities 

FY 2006 Accomplishments 

Maintain Facilities

• Focused maintenance on high-priority needs that reduced the deferred maintenance 

backlog. Priority was given to correcting critical health and safety conditions 

• Completed the recreation site analysis process of RSFMP on 31 national forests 

resulting in ranked recreation sites in priority order. RSFMP provides information 

required to make operational changes at recreation sites while maintaining quality 

standards within available funding levels. 

• Decommissioned approximately 600 facilities (buildings, water/wastewater systems, 

dams), reducing the annual maintenance need by approximately $1 million. Goals 

include maintaining facilities to standard within available funding levels. 

Improve Facilities 

• Focused the capital improvement program on replacing obsolete facilities and 

constructing mission-critical facilities to accommodate consolidation and public 

service needs. Goals include maintaining facilities to standard within available 

funding levels. 

• Disposed of 245 buildings and eliminated $38 million of deferred maintenance. See 

Special Exhibit 5 - Deferred Maintenance and Asset Management for a tabular 

summary of FY 2006 Accomplishments. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-11 Facilities FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 1 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Regionwide Planning & Design * 23 211 234 3,500 Regionwide Minor Construction ** 1,559 1,559 803 840 R101 MT 1 Bitterroot West Fork/Sula RS Wastewater 

Upgrades N 338 338 200

R102 MT 1 Helena Lincoln Sewer Connection N 759 759 200 R103 ID 1

Idaho Panhandle

Avery RS Water/Wastewater Replacement N 884 884 700 300 

R104 ID 1

Idaho Panhandle Sam Owen Utility Rehab N 357 357 255

 TOTAL $ 380 $ 1,559 $ 0 $ 2,192 $ 4,131 $ 803 $ 2,195 $ 3,800 $ 0

REGION 2

 Fire Recreation Recreation FA&O FA&O TOTAL 

Cong Fac? Facilities Facilities Facilities Facilities Facilities

ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads

Regionwide Planning & Design * 171 36 24 222 453 119 3,554 1,275 

Regionwide Minor Construction ** 

R201 CO 4

Arapaho/Roosevelt Redfeather Bunkhouse Rehab

Y 250 250 260

R202 CO 3

Med Bow/Routt

Hahn's Peak Lake Campground Rehab N 171 305 476 149 421

R203 WY At Large

Med Bow/Routt Saratoga Eng Storage/Cache

Y 570 570 54 

R204 CO 3 GMUG Montrose Bunkhouse

Y 808 808 259 25 

R205 WY At Large Bighorn Sheridan Work Center Rehab N 317 57 374 99

R206 WY At Large Shoshone

Falls Campground Rehab, Loop B N 390 171 561 33 138 38 2 

R207 CO 4

Arapaho/Roosevelt Land Acquisition N 250 250 25 

R208 CO 3 GMUG Island Lake Recreation Area N 250 533 783 355 322

 TOTAL $ 982 $ 1,045 $ 591 $ 1,907 $ 4,525 $ 656 $ 1,553 $ 3,642 $ 1,277

Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. 

** Capital improvement projects costing less than $250,000.

Construction

Outyear Funding.

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

FY 2008 Facilities Funding

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

 costs beyond

FY 2008

Outyear Funding.

FY 2008 Facilities Funding
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-12 Facilities FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 3 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads All All Regionwide Planning & Design * 58 39 97 1,371 510 All All Regionwide Minor Construction ** 241 229 470 216 R301 AZ 1 Prescott Verde Valley Administrative Site

Y 1,651 1,651 330 651 3,116 

R302 AZ 1 Apache-Sit. Rim Lakes Complex Phase 1 N 349 349 373 259 686 1,317 

R303 AZ 8 Coronado

Rose Canyon Campground Phase 1 N 806 806 400 850 1,650 400 

R304 NM 2 Lincoln

Sleepygrass Campground/Picnic Ground N 803 803 213 225 TOTAL $ 2,016 $ 280 $ 0 $ 1,880 $ 4,176 $ 1,532 $ 1,985 $ 6,823 $ 2,227

REGION 4

 Fire Recreation Recreation FA&O FA&O TOTAL 

Cong Fac? Facilities Facilities Facilities Facilities Facilities

ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads

Regionwide Planning & Design * 55 105 160 30 5,200 1,600 

Regionwide Minor Construction ** 

R401 ID 2 Sawtooth NF

Redfish Lake Complex DM Reduction (Phase 2) N 140 140 350 210

R402 CA 3

HumboltToiyabe NF Markleeville-Turtlerock Fire Station Relocation (Phase 2) Y 1,460 1,460 235 2,135 

R403 ID 2 Sawtooth NF

Stanley Housing Deferred Maintenance Reduction N 335 335 117

R404 UT 2 Dixie NF

Pine Valley Recreation Area Reconstruction (Phase 1) N 740 740 740 172 1,500 1,500 

 TOTAL $ 140 $ 795 $ 335 $ 1,565 $ 2,835 $ 1,120 $ 734 $ 8,835 $ 3,100

Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. 

** Capital improvement projects costing less than $250,000.

Outyear Funding.Outyear Funding.

FY 2008

FY 2008 Facilities Funding Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008 Facilities Funding Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-13 Facilities FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 5 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Regionwide Planning & Design * 504 4 91 21 620 48 5,300 1,500 Regionwide Minor Construction ** 240 240 2,176 110 R501 CA 26 Angeles Crystal Lake Recreation Area Phase 3 N 805 805 530 557 R502 CA 2 & 4 Lassen Deer Creek/Almanor Toilet Replacement N 598 598 246 R503 CA 4 Tahoe Bullards Bar Drinking Water 

System Reconstruction N 226 264 490 112 

R504 CA 4 Tahoe

Yuga River Campground Drinking Water System Reconstruction N 117 138 255 58 

R505 CA 21 Sierra Dinkey Mill Station

Y 830 830 628 96

R506 CA 4 Modoc Big Valley Barracks

Y 706 706 16 60

R507 CA 4 LTBMU

Meeks Bay Guard Engine Station Y 540 540 23 

 TOTAL $ 2,024 $ 382 $ 1,563 $ 1,115 $ 5,084 $ 3,398 $ 1,262 $ 5,300 $ 1,500

REGION 6

 Fire Recreation Recreation FA&O FA&O TOTAL 

Cong Fac? Facilities Facilities Facilities Facilities Facilities

ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads

Regionwide Planning & Design * 150 125 275 6,900 

Regionwide Minor Construction ** 697 697 697

R601 WA 4 OWE Cle Elum Office Addition N 1,000 1,000 1,000R602 OR 4 Umpqua N. Umpqua Fire Warehouse

Y 600 600 600

R603 OR 2 Ochoco

Rager Water System Rehabilitation Phase 1 N 340 340 340 420  TOTAL $ 0 $ 847 $ 0 $ 2,065 $ 2,912 $ 0 $ 2,637 $ 7,320 $ 0

Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. 

** Capital improvement projects costing less than $250,000.

Outyear Funding.

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

FY 2008 Facilities FundingFY 2008 Facilities Funding

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

Outyear Funding.
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-14 Facilities FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 8 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Regionwide Planning & Design * 260 75 335 260 3,560 Regionwide Minor Construction ** 705 705 165 R801 TX 1 Texas NFs in Texas Supervisors Office - Phase 1 N 2,500 2,500 1,000 R802 VA 9 GW-Jefferson Beartree Recreation Area Water 

System N 350 350 300

R803 GA 9 Chatt-Oconee

Tallulah-Chattooga Ranger District Office N 2,600 2,600

R804 KY 5 Daniel Boone Natural Arch Phase 3 N 350 350 48 R805 NC 11

NF's in N Carolina

Cullasaja/Dry Fall Corridor Recreation Rehab N 360 360 408 228  TOTAL $ 1,320 $ 705 $ 0 $ 5,175 $ 7,200 $ 408 $ 1,001 $ 4,560 $ 0

REGION 9

 Fire Recreation Recreation FA&O FA&O TOTAL 

Cong Fac? Facilities Facilities Facilities Facilities Facilities

ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads

Regionwide Planning & Design * 426 426 100 5,316 900 

Regionwide Minor Construction **

R901 NH 2

White Mountain

White Mountain Administrative Site N 6,300 6,300 400 702

R902 IL Shawnee

Vienna Administrative Site, Phase 2 N 318 318 50 TOTAL $ 0 $ 0 $ 0 $ 7,044 $ 7,044 $ 550 $ 702 $ 5,316 $ 900

Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. 

** Capital improvement projects costing less than $250,000.

FY 2008 Facilities Funding Amount of

Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond costs beyond

FY 2008FY 2008

FY 2008 Facilities Funding

Outyear Funding.Outyear Funding.

Construction
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-15 Facilities FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) REGION 10 Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Forest Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Regionwide Planning & Design * 114 140 175 76 505 1,330 150 Regionwide Minor Construction ** 302 510 812 201 R1001 AK At Large Tongass False Island Remote Facility N 1,177 1,177 493 R1002 AK At Large Tongass Yakutat Water and Wastewater N 387 387 152 R1003 AK At Large Tongass Blind Slough Picnic Area Construction/Reconstruction N 671 59 730 54 34 R1004 AK At Large Tongass Situk River Wildlife Viewing N 130 390 520 140 R1005 AK At Large Chugach Whittier Fire Hall Demolition N 475 475 128 TOTAL $ 915 $ 891 $ 1,037 $ 1,763 $ 4,606 $ 194 $ 1,008 $ 1,330 $ 150 RESEARCH STATIONS Fire Recreation Recreation FA&O FA&O TOTAL Cong Fac? Facilities Facilities Facilities Facilities Facilities ID State District Lab Project Name (Y/N) Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads All All Resrch-wide Planning & Design * 110 563 673 11,175 All All Resrch-wide Minor Construction ** 885 885 150 S001 WI 2 FPL, Madison Forest Products Lab Modernization, Phase II N 15,000 15,000 3,742 15,508 S002 OR 5 PNW, Corvallis Corvallis Lab Entrance and Floor Repair N 253 253 253 S003 MT At Large RMRS, Missoula Missoula Fire HVAC/ Energy/Backup Power Y 619 619 400 S004 MI 1 NRS, Houghton Houghton Mesocosm N 990 990 S005 NH 1 NRS, Durham Durham Lab Renovation N 850 850 44 S006 WA 4 PNW, Wenatchee Wenatchee Lab Accessibility N 354 354 354 S007 PR PR IITF, Puerto Rico IITF Headquarters Renovation N 400 473 873 400 TOTAL $ 0 $ 0 $ 2,586 $ 17,911 $ 20,497 $ 0 $ 5,343 $ 26,683 $ 0 Notes: * Planning and Design for maintenance and capital improvement projects costing more than $250,000. Project names are provided in the associated fact sheet. 

** Capital improvement projects costing less than $250,000.

Outyear Funding.

FY 2008 Facilities Funding Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

FY 2008 Facilities Funding Amount of

Facilities

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

 costs beyond

FY 2008

Outyear Funding.
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-16 Facilities FY 2008 FACILITIES MAJOR PROJECTS LIST (in thousands of dollars) TOTAL REGIONS/STATIONS Recreation Recreation FA&O FA&O TOTAL Facilities Facilities Facilities Facilities Facilities Mtce. Improvement Mtce. Improvement Request Roads Facilities Roads Total Regions 7,777 6,504 3,526 24,706 42,513 8,661 13,077 46,926 9,154 Total Stations 0 0 2,586 17,911 20,497 0 5,343 26,683 0 Subtotal $ 7,777 $ 6,504 $ 6,112 $ 42,617 $ 63,010 $ 8,661 $ 18,420 $ 73,609 $ 9,154 Washington Office Program Management -- Facilities Project List 441 369 347 2,409 3,566 0 0 0 0 Albuquerque Service Center Business Management -- Facilities Project List 657 550 517 3,590 5,314 0 0 0 0 TOTAL - Facilities $ 8,875 $ 7,423 $ 6,976 $ 48,616 $ 71,890 $ 8,661 $ 18,420 $ 73,609 $ 9,154 FY 2008 Facilities Funding Amount of Facilities Def. Mtce. Eliminated by FY 2008 Investment Construction costs beyond FY 2008

Outyear Funding.
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-17 Roads 

Budget Line Item Roads

Roads Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $220,688 $210,297 $3,395 -$5,426 $19,165 $227,431 9% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $220,688 $210,297 $3,395 -$5,426 $19,165 $227,431 9% 

Full Time Equivalents (FTEs) 1,393 1,234 78 1,312 

Estimated Funding by Activity 

Maintain Passenger Car Roads $106,539 $89,796 $1,483 -$2,370 $6,692 $95,601 7% 

Maintain High Clearance & Closed Roads $29,425 $13,381 $230 -$368 $1,047 $14,290 8% 

Decommission Roads $8,943 $5,575 $8 -$12 -$959 $4,612 -17% 

Improve Roads $75,781 $101,545 $1,675 -$2,677 $12,385 $112,928 12% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Miles of high clearance and closed roads 

receiving maintenance* 26,465 28,598 14,000 16,000 2,000

Miles of passenger car road maintenance 

and capital improvement 39,043 43,073 24,530 28,000 3,470

Miles of roads decommissioned 355 682 430 375 -55

Miles of road reconstruction and capital 

improvement** 548 179 146 50 n/a

Percent of road and trail rights-of-way 

acquired that provide public access 

through easement acquisitions or land 

adjustments**** 94% 94% 90% 90% 0%

* Activity includes closed roads in FY 2006, but not in later years. 

** Activity not tracked after FY 2007. 

*** New activity starting in FY 2008. 

**** Activities are accomplished with multiple funds (CIM roads, CIM Deferred Maintenance, Roads& 

Trails 10% Fund, CIM Trails, and NF Land Management Planning 

FY 2008 Program Changes 

The FY 2008 budget request for Roads is $227.4 million, a net program change of +19.2 

million, or +9 percent from the FY 2007 Estimate. There are 1,312 FTEs in the program 

in FY 2008, an increase of 78, or +6 percent from the FY 2007 Estimate. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-18 Roads 

The proposed increase in FY 2008 in the Roads program supports an emphasis on road 

maintenance and an increase in the engineering support necessary to support the Forest 

Products program and the Northwest Forest Plan. In FY 2008, the agency will maintain a 

total of 44,000 miles of passenger car and high clearance roads, almost 5,500 more miles 

than planned in FY 2007. 

Roads funding will focus primarily on public safety, resource protection, and sustaining 

access to the most important National Forest System (NFS) sites and features. In 

response to an Office of Inspector General recommendation (discussed below under 

Independent Reviews), priority will be to reduce the number of open roads and their 

service to safely and environmentally sustainable levels. Roads will be closed or 

decommissioned when necessary to minimize maintenance costs and protect forest 

resources. The agency will also continue to place priority on implementing the travel 

management rule to address unmanaged recreation and provide a sustainable system of 

roads designated for motor vehicle use. 

 

Specific priorities within each activity include: 

Passenger Car Road Maintenance – Priority will be placed on identifying and 

maintaining the minimum sustainable transportation system for passenger cars. 

Access routes for first responders will be maintained, and escape routes identified for 

recreationists and local residents in the event of wildland fire or other emergency 

situations. 

High Clearance Road Maintenance – Priority will be placed on maintaining roads to 

minimize or correct resource damage and health and safety conditions. Reducing 

sediment loading and providing for fish passage will be environmental focus areas. 

Decommission Roads – Priority will be placed on eliminating unneeded roads or 

portions of the existing transportation system that duplicate access and/or create 

extensive environmental degradation. 

Improve Roads – To improve ensure safety, priority projects will include replacement 

of deficient bridges and stream crossings, reconstruction of slumps and slides, and 

new construction for projects such as fuels reductions in areas of urban interface. 

Focus will also be on providing “engineering support” for improvement of roads 

needed for vehicle and equipment access to timber sale and land stewardship 

contracts. 

Program Description 

 

The NFS road system was largely built after World War II for the purpose of accessing 

forest products, such as timber. The road system was developed for log trucks where 

commercial logging traffic was financially responsible for maintenance. Few new roads 

have been added in recent years, due largely to a reduction in entry into new forest areas. 

Road use has increased substantially; however, the primary use today is for recreation 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-19 Roads 

purposes. Over 90 percent of current road system use is by recreationists, who annually 

make over 192 million visits accessed by the road system. The forest road system 

developed for log trucks is now suffering from tremendous increases in use and 

maintenance by passenger vehicles. 

The National Forest Road System includes approximately 380,000 miles of road and 

6,500 bridges. Approximately 70,000 miles of road are managed for use by all types of 

vehicles, including standard four-wheel passenger cars. Another 220,000 miles are 

managed for passage by high clearance vehicles such as trucks and sport utility vehicles. 

User comfort, user convenience, and speed of travel are not considerations in 

management of high clearance roads. The remaining 90,000 miles of the system are 

stored in a condition where they are impassable to all traffic. 

The following are the primary activities funded by the program: 

Maintain Roads – This activity includes the maintenance and operations of National 

Forest Road System including bridges, and terminal facilities, such as parking lots, 

trailhead parking, camping spurs, and truck turnarounds. 

Maintenance - This activity includes maintenance of the traveled way; roadside 

vegetation; drainage facilities; structures, including bridges; and traffic control 

devices, such as signs and gates. Maintenance for use by high clearance vehicles 

includes roads that are open to vehicle traffic and to roads that are physically blocked 

but available for future administrative use. The requirements of the Highway Safety 

Act do not apply. Maintenance of roads open and maintained for travel by passenger 

cars and other State highway legal vehicles are subject to the requirements of the 

Highway Safety Act. Maintenance of the road system supports agency goals by 

perpetuating safe and efficient access over existing roads. These roads provide access 

for emergency responders and are sometimes the only escape routes for recreationists 

and local residents in the event of wildfire, or other emergency situation. 

Operations – This activity includes road management and transportation planning 

activities. Road management activities meet agency goals of ensuring effective 

public service by providing information about roads to users, coordinating conflicting 

activities on roads, ensuring that commercial users perform or pay for maintenance 

made necessary by their use, making annual road maintenance plans, and, most 

importantly, keeping roads safe. Transportation planning supports agency goals by 

providing transportation alternatives to decision makers. These activities are 

particularly important today. Transportation planning helps identify opportunities to 

reduce the number of open roads and the service levels of roads remaining open to 

what can be sustained in a safe and environmentally acceptable manner with available 

funding. This ensures compliance with safety requirements, environmental protection 

laws, and critical access needs. 

Decommission Roads – Decommissioning terminates a facility’s function as a road. 

Road decommissioning activities meet agency goals by eliminating the environmental 

effects of unneeded roads and by restoring land occupied by roads to a more natural 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-20 Roads 

state. Roads to be decommissioned include both NFS roads that are no longer needed 

for national forest management and unauthorized roads that exist on NFS lands. 

Decommissioning of roads is not an allowable use of appropriations under the 

authorizing statute. However, since FY 1991, language in annual appropriations bills 

has authorized use of a portion of appropriated Roads funds for decommissioning (up 

to $15 million in FY 2006).

Improve Roads – This activity provides for capital improvements of NFS roads 

including bridges, and terminal facilities, such as parking lots and campground spurs. 

Capital improvements include adding new miles to the transportation system through 

new construction, reclassifying unclassified roads, and rights-of-way acquisition; 

changing the function of existing roads to accommodate different user types, such as 

a logging road to a recreation road; and increasing capacity of an existing road, such 

as changing a single lane road or bridge to a two lane road or bridge. Road 

improvement also provides for inspection and oversight of construction as necessary 

to complete construction according to appropriate design standards. This activity also 

includes “engineering support” for improvement of roads needed for vehicle and 

equipment access to timber sale, fuel treatment, and land stewardship contracts. The 

Forest Service provides the engineering design, plans, cost estimates, and 

construction administration to assure construction and reconstruction meets 

applicable safety and environmental standards. Timber purchasers and land 

stewardship contractors perform actual construction as a requirement of their 

contracts. 

The road program involves long standing public private partnerships. Under the National 

Forest Roads and Trail System Act (16 U.S.C. 535 and 537), costs of construction and 

maintenance of NFS roads are shared with commercial operators and local governments 

on a commensurate share basis. Commercial users of NFS roads are required to perform 

maintenance made necessary by their traffic. In areas of intermingled land ownerships, 

the Forest Service has entered into Cooperative Road Construction and Maintenance 

Agreements with large land owners. Under these agreements, a single road system under 

Forest Service jurisdiction is constructed and maintained serving all lands. These 

agreements provide for exchange of real property interests in roads through exchange of 

easements across each party’s lands. In addition, the Forest Service has entered into 

Cooperative Forest Road Agreements with counties and local public road authorities that 

provide for sharing of maintenance and improvements on roads serving both national 

forest access and local residential purposes. 

 

Independent Reviews 

The Forest Service infrastructure maintenance program was audited by the USDA Office 

of Inspector General (OIG. Official Audit Report No. 08601-02-HY titled “Follow-up on 

Recommendations Made on the Maintenance of Forest Service’s Infrastructure” was 

issued on June 14, 2006. The following items are applicable to the Roads program: 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-21 Roads 

OIG Recommendation No. 2: Develop and implement controls to validate that 

condition assessment surveys are recorded. These controls should include standard 

procedures for entering data into the agency infrastructure database (INFRA) and for 

reviewing and analyzing this data at all Forest Service levels (i.e., Washington Office, 

regional offices and national forests). 

Actions Required: Onsite reviews will be performed at regular intervals at the 

region and forest levels to evaluate the accuracy and completeness of the information 

recorded in INFRA. The agency has developed reports to show accomplishments in 

INFRA input into the system by all field units across all asset types. The reports are 

available in the Corporate Data Warehouse (CDW) and the data is refreshed daily. 

The reports are available to the regions, forests and the Washington Office and will 

be monitored by the Washington Office staff. Concurrently, the regions will be 

directed through the annual Program Direction to regularly evaluate and monitor 

forest activity in the area of maintenance data. Estimated Completion Date: 

September 30, 2007 

 

OIG Recommendation No. 4: Develop and implement a strategy to address the 

deferred maintenance backlog and to identify goals and objectives for managing 

deferred maintenance. 

Actions Required: To address deferred maintenance for roads, the Forest Service 

has begun an in-depth analysis of the trends related to the loss of roads that are not 

passable by passenger car and high clearance vehicles and do not meet the Best 

Management Practices. When completed, a report will be provided to the Forest 

Service leadership, by March 30, 2007, on the trend analysis projections for 

development of a strategy to reduce deferred maintenance and to determine the road 

system the agency can afford to sustain, considering the resources that will be 

available in the future. Estimated Completion Date: September 30, 2007 

FY 2008 Plans 

The percentages cited below, will likely increase as the agency implements the Travel 

Management Rule requirements, and pursue OIG recommendation that the road system is 

adjusted to a sustainable level. The impact these two activities have on the FY 2008 Plan 

is currently unknown. Goals will include continuing to work toward a sustainable road 

system where all roads are maintained to standard within available funding. 

Passenger Car Road Maintenance

• Maintain approximately 28,000 miles (40 percent) of roads intended for use by 

passenger car. 

• A total of 25,000 miles (36 percent) will meet applicable standards at year-end. 

Goals include reducing existing miles of road to manage remaining transportation 

system to standard. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-22 Roads 

High Clearance Road Maintenance

• Maintain approximately 16,000 miles (7 percent) of high clearance vehicle roads with 

approximately 77,000 miles will meet applicable (35 percent) standards at year end 

either as a result of maintenance work or as a result of having been properly stored for 

future project use. 

• Continue to provide access for commodity extraction including timber, various 

mining operations, and biomass by providing necessary engineering support. 

Road Decommissioning

• Continue to reduce road miles by focusing on eliminating parallel routes that 

duplicate access. 

• Decommission 375 miles of roads to move toward a sustainable road system. 

Road Improvements 

• Provide engineering “support” to the Forest Products and Hazardous Fuels program 

road access needs, including for implementation of the Northwest Forest Plan. 

Engineering support will facilitate improvement of approximately 500 miles of forest 

system roads. This will be accomplished by purchasers for forest treatment and 

commodity extraction. 

• Construct approximately 50 miles of road needed for vegetative treatments, recreation 

access, and administrative use. Construct or replace approximately 20 bridges. 

Work will remove deferred maintenance at these sites. 

 

FY 2007 Program 

The percentages cited below, will likely increase as the agency implements the Travel 

Management Rule requirements, and pursue OIG recommendation that the road system is 

adjusted to a sustainable level. The impact these two activities have on the FY 2007 

Program is currently unknown. 

Passenger Car Road Maintenance

• Maintain approximately 24,100 miles (35 percent) of roads intended for use by 

passenger cars with approximately 28,000 (40 percent) meeting standards. This level 

of maintenance will provide for minimal access needs of the recreating public. 

• Maintain access for recreational users of national forest land. Use includes hunting, 

fishing, wildlife observation, OHV use, etc. 

High Clearance Road Maintenance

• Provide maintenance for approximately 14,000 miles (6 percent) of highroad intended 

for use by high clearance vehicles with approximately 77,000 miles (35 percent) 

meeting standards at year end either as a result of maintenance work or as a result of 

having been properly stored for future project use. 

• Continue to provide access for commodity extraction including timber, various 

mining operations, and biomass by providing necessary engineering support. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-23 Roads 

Road Decommissioning

• Continue to reduce road miles by focusing on parallel routes that duplicate access. 

• Decommission 430 miles of roads to move toward a sustainable road system. 

Road Improvements

• Provide engineering “support” to the Forest Products and Hazardous Fuels program 

road access needs. Engineering support will facilitate improvement of approximately 

500 miles of Forest system roads. This will be accomplished by purchasers for forest 

treatment and commodity extraction. 

• Construct and reconstruct approximately 146 miles of road needed for vegetative 

treatments, recreation access, and administrative use. Construct, repair, or replace 

approximately 65 bridges. 

FY 2006 Accomplishments 

The FS exceeded target levels in road maintenance and decommissioning in FY 2006, 

while under accomplishing in road reconstruction and capital improvement. To retain 

critical access, we needed to favor a short term solution of road maintenance, rather than 

more costly and long-term road reconstruction. 

Passenger Car Road Maintenance

• Maintained 43,073 miles of road intended for use by passenger cars. 

• 32,553 miles (47 percent of all passenger car roads) met applicable standards at yearend. 

• 70 bridges were replaced or rehabilitated. 

• Disposed of 76 bridges by one of the following methods: abandoned, transferred to 

other agencies, obliterated, or destroyed by natural events. 

High Clearance Road Maintenance

• Maintained 23,548 miles of road intended for use by high clearance vehicles, and 

5,050 miles of closed roads. 

• Maintained 81,500 miles (37 percent) of roads to applicable standards at year end 

either as a result of maintenance work or as a result of having been properly stored 

(closed) for future project use. 

Road Improvement

• Provided engineering support for construction and reconstruction of 461 miles of 

system roads. This was accomplished by purchasers for forest treatment and 

commodity extraction.. 

• Provided engineering support for reconstruction of 1,476 miles of roads by timber 

sale and land stewardship contractors to make the roads suitable for contract use. 

• 79 new bridges were constructed. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-24 Roads 

Road Decommissioning

• Decommissioned 682 miles of National Forest System roads and 176 miles of 

unauthorized roads with appropriated Roads funding. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-25 Trails 

Budget Line Item Trails 

Trails Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $74,205 $70,711 $1,546 -$1,926 -$3,944 $66,387 -6% 

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 

Total Enacted Budget Authority $74,205 $70,711 $1,546 -$1,926 -$3,944 $66,387 -6% 

Full Time Equivalents (FTEs) 640 576 -68 508 

Estimated Funding by Activity 

Maintain Trails $41,324 $41,612 $922 -$1,149 -$2,318 $39,067 -6% 

Improve Trails $32,881 $29,099 $624 -$777 -$1,626 $27,320 -6% 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Miles of trail maintained to standard 20,577 24,860 22,470 20,650 -1,820

Miles of system trail improved to 

standard 1,076 1,410 1,130 1,035 -95

 

 

FY 2008 Program Changes

The FY 2008 budget for Trails is $66.4 million, a net program change of -$3.9 million, or 

-6 percent from the FY 2007 Estimate. There are 508 FTEs in the program in FY 2008, a 

decrease of 68 FTEs from the FY 2007 Estimate. 

Within the funds available, the agency will continue implementing the Travel 

Management Rule to address unmanaged recreation and provide a sustainable system of 

roads and trails designated for motor vehicle use. 

Specific priorities within each activity include: 

Maintain Trails (both annual and deferred) - Priority is on maintaining trails to reduce 

resource damage and improve safety conditions. Validation and improvement of 

basic trails inventory and Trail Assessment and Condition Surveys will also continue. 

Emphasis will be placed on enhancing opportunities to work with partners in trail 

stewardship. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-26 Trails 

Improve Trails - Priority is on relocation or improvement of existing trails. Emphasis 

will be placed on enhancing opportunities to work with partners in the completion of 

the National Scenic and Historic Trails system on National Forest System (NFS) 

lands. See the Special Exhibit, National Scenic and Historic Trails, for a more 

complete discussion of accomplishments and plans. 

The proposed reduction in funding, along with the resources required to address travel 

management, will provide for limited annual and deferred maintenance activities by 

addressing approximately 20 percent of the total backlog of trail miles. The remaining 

trail miles will receive only custodial maintenance where necessary for user safety. 

Seasonal workforce will also be reduced requiring permanent personnel to fill in behind, 

thereby reducing opportunities for the agency to leverage partnerships and volunteers 

Program Description 

The Trails program funds the operation, maintenance, rehabilitation, and improvement of 

trails by providing high quality backcountry recreation and ensuring safe, useable trail 

systems. NFS lands contain over 140,000 miles of trails, of which 53,000 miles, or 40 

percent, are currently maintained to standard. Approximately 107,000 miles of trails 

occur outside of wilderness areas, with 33,000 miles inside wilderness areas. The NFS 

trails system accommodates over 50 million recreation visitor days of cross-country 

skiing, hiking, horseback riding, mountain biking, and off-highway vehicle use each year. 

Trails also serve a wide constituency at a relatively low cost. Over the next few years, 

the national forests will engage the public and governmental agencies in travel planning 

to designate those roads, trails, and areas that are open to motor vehicle use. 

The trails budget line item consists of two activities: 

Maintain Trails (both annual and deferred) - Protects capital investments by keeping 

trails open for access and protecting soil, vegetation and water quality, thus ensuring 

continued promotion of ecosystem health. Work includes clearing encroaching 

vegetation and fallen trees and repairing or improving trail signs, treadways, water 

drainage, and bridges. 

Improve Trails – Provides for planning, new construction, alteration and expansion 

activities for trails, trail bridges, and trail appurtenances, such as barriers, culverts, 

fencing, viewing and platforms, to ensure they are accessible and adequately 

designed, provide for safety, and are environmentally responsible. 

The trails program leverages thousands of hours of trail work from volunteers and youth 

organizations as well as facilitates the operation, maintenance and construction of 

hundreds of miles of trail each year. Trail crews are one of the primary means of 

employing young adults and involve local communities and interest groups in Forest 

Service partnerships. In FY 2006, 123 Challenge Cost-Share projects were completed, 

with partners contributing approximately $4 million in funding for trail operations. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-27 Trails 

Independent Reviews 

The Capital Improvement and Maintenance (CI&M) program was evaluated with the 

Program Assessment Rating Tool (PART) for the FY 2004 budget cycle and received a 

rating of “Adequate.” 

Follow-up on Recommendations Made on the Maintenance of Forest Service's 

Infrastructure OIG Audit Report No. 08601-02-HY, June 2006. This review examined the 

agency’s implementation of prior OIG recommendations to strengthen the controls for 

maintaining the agency’s infrastructure. This also included evaluating Forest Service 

controls for maintaining its infrastructure and for compiling and reporting maintenance 

backlog information. 

FY 2008 Plans 

Maintain Trails 

• Continue implementation of the Travel Management Rule by issuing motor vehicle 

use maps covering 48 percent of NFS lands. 

• Publish Final Directives on the National Trail Classification System (NTCS) that will 

be used for inventorying and managing trails information. This document will 

incorporate the Trail Fundamentals which are the cornerstone of planning and 

management for trails. 

• Continue development of a field model to pilot test Trails Master Planning enabling 

the agency to prioritize trail maintenance projects. 

• Continue to work with Forests in the development and implementation of the 

eTRACS System, an electronic portable device for compiling field trail condition 

information that will enable the agency to collect field level trails data in a costeffective and efficient manner. 

• Maintain 20,650 miles of trail to standard. 

Improve Trails 

• Continue to strengthen partnerships with other Federal agencies, tribal governments, 

States and local government and non-governmental organizations to provide for trail 

improvement projects. 

• Improve 1,035 miles of trail to standard. 

FY 2007 Program 

Maintain Trails 

• Publish proposed agency directives implementing the travel management regulation 

for public comment and, based on comments, publish final directives. 

• Continue implementing the travel management rule for completion by 2010 by 

issuing motor vehicle use maps covering 22 percent of NFS lands. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-28 Trails 

• Initiate and develop a field model to pilot test Trails Master Planning in the Southern 

Region and Alaska Region that will enable the agency to set priorities for trail 

maintenance projects. 

• Publish Interim Final Directives for additional public comment on the NTCS. 

• Maintain 22,470 miles of trails to standard. 

Improve Trails 

• Develop prototype for geo-tourism project using National Scenic and Historic Trails 

and Scenic Byways, focusing on recreational economic development and tourism 

opportunities along the Iditarod National Historic Trail and Seward Scenic Byway in 

Alaska. 

• Renew the Memorandum of Understanding (MOU) with Back Country Horsemen of 

America for trail planning and improvement for horseback riding trails.

• Improve 1,130 miles of trails to standard.

FY 2006 Accomplishments 

Maintain Trails 

• Published final travel management regulation governing motor vehicle use on NFS 

roads, trails, and areas and issued the first six motor vehicle use maps covering the 

Hoosier National Forest and Midewin National Tallgrass Prairie, and portions of the 

Dakota Prairie National Grasslands and the Mark Twain National Forest.

• Conducted one week interagency national train-the-trainer session for 40 participants, 

which included Bureau of Land Management, U.S. Fish and Wildlife Service, and 

State representatives, on the Trail Assessment and Condition Surveys (TRACS) 

System used to collect accurate, efficient, and consistent field data on trails. 

• Published draft directives on the NTCS and received 122 comments, which will be 

responded to in the Interim Final Directives to be published in FY 2007. 

• Maintained 24,860 miles of trail to standard which exceeded the planned level by 

4,283 miles due to expanded volunteer partnerships nationwide. 

Improve Trails 

• Renewed the interagency MOU for cooperation and management of the National 

Trails System, including National Scenic and Historic Trails and National Recreation 

Trails, providing a framework for working with the National Park Service, U.S. Fish 

and Wildlife Service, Bureau of Land Management, Federal Highway Administration, 

and the Army Corps of Engineers to cooperatively implement the National Trails 

System Act. 

• Improved 1410 miles of trails including over 151 miles of National Scenic and 

Historic Trails, while installing 6 new trailheads and 17 new trail bridges. 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-29 Deferred Maintenance 

Budget Line Item Deferred Maintenance and Infrastructure 

Improvement 

Deferred Maintenance Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $12,743 $12,143 $71 -$173 -$2,941 $9,100 -24% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $12,743 $12,143 $71 -$173 -$2,941 $9,100 -24% 

Full Time Equivalents (FTEs) 35 27 -5 22 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

 

FY 2008 Program Changes 

 

The FY 2008 budget for Deferred Maintenance and Infrastructure Improvement is $9.1 

million, a net program change of -$2.9 million, or -24 percent from the FY 2007 

Estimate. There are 22 FTEs in the program in FY 2008, a decrease of 5, or -19 percent 

from the FY 2007 Estimate. 

The FY 2008 program of work will focus on the most critical health and safety 

infrastructure projects, particularly in areas that are heavily used by the public and Forest 

Service employees. The $9.1 million FY 2008 budget for Deferred Maintenance will 

result in improved overall condition of existing Forest Service buildings, dams, utilities, 

recreation sites, roads, and trails. Additional focus will be towards right-sizing the 

agency’s portfolio of mission critical and mission dependent infrastructure. 

Program Description 

The Infrastructure Improvement program provides resources to assist in the maintenance, 

repair, and improvement of the agency’s vast portfolio of infrastructure. This portfolio 

includes more than 42,000 buildings, 5,000 water systems, 5,000 wastewater systems, 

14,000 recreation sites, and 140,000 miles of trails and nearly 380,000 miles of roads. 

This portfolio of assets currently has a backlog of nearly $5.6 billion in maintenance 

needs. 

This program complements the Facilities, Roads, and Trails programs and directs the use 

of funds specifically toward reducing the backlog of deferred maintenance. The primary 

goal of this program is to ensure the safety of the recreating public, agency employees, 

volunteers, and contractors. This is accomplished through maintenance and repair work 

as well as by replacing obsolete, worn out infrastructure with new assets meeting industry 

standards. Through road maintenance and improvement projects, the program assists in 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-30 Deferred Maintenance 

providing safe, secure, and appropriate access to National Forest System (NFS) lands and 

services while protecting water quality and ecological conditions. 

Deferred Maintenance – Maintenance that is not performed as needed or scheduled is 

referred to as deferred maintenance. Deferred maintenance leads to deterioration of 

performance, increased costs to repair, and a decrease in the value of the 

infrastructure. Deferred maintenance work can include the repair, rehabilitation, or 

replacement of infrastructure. It can include work needed to meet laws, regulations, 

codes, best management practices, and other applicable standards. It can also include 

demolition, dismantling, and disposing of unneeded infrastructure. 

 

Infrastructure Improvement – Capital improvements can include the construction of 

new infrastructure, alteration of existing infrastructure to change its function, and the 

expansion of existing infrastructure to increase capacity. Improvements are often 

required to maintain public service capability or recreational opportunities. Capital 

improvement projects eliminate deferred maintenance and provide mission-critical 

infrastructure. 

The agency continues to successfully partner with interested parties thereby leveraging 

available funds. Partnerships, with non-profit organizations and volunteers, allow the 

agency to gain valuable accomplishments in maintenance of infrastructure for a fraction 

of the actual cost. Additional leveraging is accomplished through concessionaire 

programs, user maintenance fees, and other partner based work. 

Independent Reviews 

Implementation of the Capital Improvement Program, OIG Audit Report No. 08001-01-

AT, November 2006. The Office of Inspector General (OIG) initiated this review to 

evaluate agency controls over the sale of excess property and the use of the proceeds to 

reduce the deferred maintenance backlog. 

Follow-up on Recommendations Made on the Maintenance of Forest Service's 

Infrastructure OIG Audit Report No. 08601-02-HY, June 2006. This review examined the 

agency’s implementation of prior OIG recommendations to strengthen the controls for 

maintaining the agency’s infrastructure. This also included evaluating Forest Service 

controls for maintaining its infrastructure and for compiling and reporting maintenance 

backlog information. 

For a detailed review of the findings and agency responses refer to either the Roads or 

Facilities budget line items. 

FY 2008 Plans 

 

• The program will address approximately 100 of the most critical health and safety 

and infrastructure related improvements to the agency’s mission critical and mission 

dependent assets.
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-31 Deferred Maintenance 

• Projects will focus on those facilities that provide unique experiences to the American 

public, house mission critical equipment, and receive the most use by the recreating 

public and agency employees. 

• Water and wastewater systems projects will address those systems that do not 

currently meet Clean Water Act, Safe Drinking Water Act, State, or industry 

standards for protecting public health. 

• Approximately $4.5 million of deferred maintenance will be reduced. Any related 

facilities work will help move the facility condition index (FCI) toward a more 

acceptable condition level of 0.9 or higher. Work will also reduce non-compliance of 

existing utility systems. This will allow more systems to stay open to serve the 

recreating public and administrative employees. 

FY 2007 Program 

• Facility health and safety projects will include roof repairs, structural repairs, radon 

and lead based paint abatement, asbestos removal, mechanical and electrical system 

repairs, security improvements, and accessibility improvements. Additional efforts 

will be made under this program to dispose of or decommission facilities for which 

the backlog of maintenance has increased to a point where it is no longer 

economically feasible to keep the facility operational. Work will reduce deferred 

maintenance on specific structures. 

• Roads projects will include guardrail replacement, slope stabilization, bridge repairs, 

and road resurfacing in order to protect public users. Efforts may also include 

decommissioning roads that can no longer be economically maintained. Work will 

move agency toward operating a sustainable road system. 

• Trails projects will include reconstruction and repair of multi-use trails and bridges in 

order to protect both users and the watersheds. These projects will include drainage 

and erosion control, elevating sections across flood prone areas, and redefining trails 

where multiple trails now exist. Work will move agency toward operating a 

sustainable transportation system. 

• Dam projects will focus on “high hazard” dams to ensure adequate spillway capacity 

and to meet current seismic standards. Work will bring specific dams up to current 

dam safety standards. 

• Approximately $6.0 million of deferred maintenance will be reduced. Any related 

facilities work will help maintain the FCI at a condition level of 0.89 or higher. Work 

will also reduce non-compliance of existing utility systems. This will allow more 

systems to stay open to serve the recreating public and administrative employees at 

levels to which they have become accustomed. 

FY 2006 Accomplishments 

 

• Corrected deficiencies in buildings, campgrounds, and water and wastewater systems. 

Projects addressed needs such as security, fire alarms, and sprinkler systems; radon 

and lead paint abatement; asbestos removal; electrical and mechanical systems; roofs; 

doors; windows; toilet facilities; water and wastewater treatment and distribution 
FY 2008 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 12-32 Deferred Maintenance 

systems; accessibility; and demolition of unsafe or unneeded infrastructure. Work 

provided for the safety of employees and public. 

• Roads projects included bridge and guardrail replacements, safety turnouts for major 

recreation developments, assessment of culverts for fish passage, signing and marking 

for user safety, major culvert repairs, and road surfacing. 

• Trails projects included major trail reconstruction, including bridges for cross-country 

skiing, snowmobiles, horses, and hikers; rehabilitation of historic and scenic trails; 

and replacing trail structures such as waterbars and drain dips. 

Below is a list of FY 2008 major facility projects greater than $250,000 that reduces 

deferred maintenance. See Capital Improvement and Maintenance Facilities for 

additional facility projects (FA&O and Recreation) that are greater than $250,000. 

FY 2008 Deferred Maintenance and Infrastructure Improvement (CMII)

Major Project List (greater than $250,000)

Fire Total

Cong Fac? CMII

REGION ID State District Forest Project Name (Y/N) Request Roads CMII Roads

5 R501 CA 21 & 22 Sequoia Johnsondale / Greenhorn Office H2O Y 835 145

9 R901 IN 9 Hoosier Hardin Ridge Sewer Line Replacement N 800 750 800

10 R1001 AK At large Tongass Fuel Tank Repair and Replacement Phase I N 540 710

 TOTAL $ 2,175 $ 0 $ 1,605 $ 800 $ 0

Amount of

Def. Mtce.

Eliminated

by FY 2008

Investment

Construction

costs beyond

FY 2008

Outyear Funding
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Land Acquisition 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Land Acquisition 13-1

 

Appropriation Land Acquisition 

Land Acquisition Increase or Decrease Program 

 Appropriations FY 2006 FY 2007 Uncontrollable Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $41,772 $7,500 $191 -$282 $8,294 $15,703 111% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $41,772 $7,500 $191 -$282 $8,294 $15,703 111% 

Full Time Equivalents (FTEs) 115 72 -1 71 

Estimated Funding By Activity 

Land Acquisition Management* $12,220 $7,500 $191 -$282 $294 $7,703 3% 

Purchase Land* $24,552 $0 $0 $0 $8,000 $8,000 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Uncontrollable Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment 

Compensation payments, and Departmental Working Capital Fund charges. 

* Purchase Land includes critical inholdings, including wilderness protection and land equalization cash payments. In budget 

justifications prior to FY 2006, cash equalizations were reported under land acquisition management. 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Number of acres acquired or donated* 37,345 49,363 15,705 8,175 -7,530

Priority acres acquired or donated that 

reduce the conversion of forests, 

grasslands, and aquatic and riparian 

ecosystems to incompatible uses in order 

to improve and maintain ecological 

conditions for federally listed and 

candidate species, species of concern, 

and species of interest 26,635 31,460 11,000 5,750 -5,250

*Activity "National Forest System acres acquired" redefined in FY 

2007 

Appropriation Acquisition of Lands for National Forests 

 Special Acts 

Acquisition of Lands For National Forests Increase or Decrease Program 

 Special Acts - Appropriation FY 2006 FY 2007 Uncontrollable Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $1,053 $1,053 $2 $0 -$2 $1,053 0% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $1,053 $1,053 $2 $0 -$2 $1,053 0% 

Full Time Equivalents (FTEs) 1 1 1 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Uncontrollable Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment 

Compensation payments, and Departmental Working Capital Fund charges. 
FY 2008 Budget Justification USDA Forest Service

Land Acquisition 13-2

 

Acquisition of Lands for National Forests, Special Acts - Provides for the acquisition of 

lands for watershed protection, minimizing soil erosion, and rehabilitation on specified 

national forests in Nevada, Utah, and California. 

Appropriation Acquisition of Lands to Complete Land 

 Exchanges 

Acquisition of Lands to Complete Land Increase or Decrease Program 

 Exchanges - Appropriation FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $231 $231 $0 $0 $0 $231 0% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $231 $231 $0 $0 $0 $231 0% 

Full Time Equivalents (FTEs) 0 0 0 

-- FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

Acquisition of Lands to Complete Land Exchanges - Provides for the use of funds 

collected from the exchange or sale of NFS lands with State, county, or municipal 

governments; public school authorities; or non-Federal parties, when in the public interest 

to do so. 

FY 2008 Program Changes 

The FY 2008 budget request for Land Acquisition is $15.7 million, a net program change 

of +$8.3 million, or +111 percent from the FY 2007 Estimate. 

Emphasis will be placed on acquiring parcels that provide public access for outdoor 

recreation, and improve and maintain ecological conditions for threatened and 

endangered species on National Forest System (NFS) lands. 

Funding is not being requested for cash equalization or inholdings from private 

landowners. If a cash equalization payment by the United States is needed for a 

recreation or wildlife purpose, funds from those programs under the National Forest 

System account would be used. The agency will make every effort to configure exactly 

equal land exchanges, although this may not always possible. 

Program Description 

The Land Acquisition program provides for the acquisition of lands, waters, and related 

interests within the National Forest System for outdoor recreation; conservation of 

wildlife and threatened and endangered species habitat; watershed protection; resource 

management; healthy forests and grasslands; and public access. Lands acquired through 
FY 2008 Budget Justification USDA Forest Service

Land Acquisition 13-3

 

the Land and Water Conservation Fund help to reduce future management costs; respond 

to urban and community needs, and conserve the integrity of undeveloped lands and their 

conversion to incompatible uses. Acquisition of inholdings can substantially reduce 

boundary management costs and reduce impacts associated with conversion of the use of 

adjacent lands, such as trespass and resource degradation or fragmentation. 

The Land Acquisition program consists of the following activities: 

Land Acquisition Management: Covers expenses to complete land acquisitions and 

donations, including costs associated with title search, appraisals, land acquisition 

surveys, legal document preparation, and personnel costs associated with those 

employees who perform these tasks. Acquisition management funds are also used for 

the administrative costs associated with exchanges and donations when the land 

acquired through these methods are within an approved project area. 

 

Purchase Land: Funds are used for payment of the cost of purchased lands and 

includes critical inholdings, including wilderness protection and land equalization 

cash payments for those exchanges that would otherwise qualify for purchase. 

Independent Reviews 

The Land Acquisition program was evaluated using the PART for FY 2005 and was 

reassessed for the FY 2007 budget cycle. The reassessment resulted in a rating of 

“Adequate.” The new improvement plan includes establishing national priorities for the 

allocation of funds, linking the agency strategic plan with land acquisition goals, and 

establishing new efficiency measures. The agency has initiated the following actions in 

response to the plan: 

• Developed annual performance measures that directly tie land acquisition projects to 

strategic plan milestones and explored methods of measuring outcomes at both the 

national and forest levels. 

• Amended the Land Acquisition Prioritization System to tie allocations more directly 

to strategic plans, goals, and objectives. 

• Currently establishing meaningful efficiency measures that take into consideration 

current and future management costs and timeliness of processing, and measure cost 

efficiencies associated with third-party acquisitions of lands prior to Federal 

acquisition. 

Congressional Reports 

House Report 108-195: Requests that future budget submissions contain: 1) an 

evaluation of operation and maintenance costs associated with each proposed purchase, 

2) a display of third party land conservation group involvement when they are monetarily 

involved in a proposed acquisition, and 3) a justification on how each proposed 

acquisition comports with the long-term plan. This information has been incorporated in 
FY 2008 Budget Justification USDA Forest Service

Land Acquisition 13-4

 

the Land Acquisition project sheets that are provided as an addendum to the President’s 

Budget Justification. 

Senate Report 108-89: Directs the Forest Service to report to the Committee by May 1 of 

each year on any unobligated balances remaining at the field unit level in the Land 

Acquisition account. The Forest Service has been providing this information annually as 

requested. 

FY 2008 Plans 

• Initiate acquisition of six projects displayed on Table A. 

Table A 

FY 2008 Proposed Land Acquisition Program 

(Dollars in Thousands) 

Project 

National 

Forest State 

Performance 

Objective(s) 1/ Amount 

Cartwright Ranch Tonto AZ 3.1,5.1,6.3 850 

Garner Ranch San Bernardino CA 3.1,5.1,6.3 650 

Maine Access White Mountain ME 2.1,3.1,5.1,6.3 500 

Pacific Northwest Streams Project Multiple OR/WA 3.1,5.1,6.3 1,000 

Sun Ranch BeaverheadDeerlodge MT 1.1,2.1,3.1,5.1,6.3 4,500 

Thunder Mountain Payette ID 3.1,5.1,6.3 500 

 Total Purchase $8,000 

Acquisition Management 

Critical Inholdings/Wilderness 

Protection 

Land Exchange Equalization 

Payment 

 

Multiple 

Multiple 

 7,703 

0 

0 

 Total $15,703 

1/ Performance objectives referred to are from the USDA Forest Service Strategic Plan for Fiscal Years 

2004-08. 

FY 2007 Program 

• Complete the backlog of land acquisition projects utilizing previously appropriated 

funds. Highlights of some of the major acquisitions include: 

Red Mountain (Town of Ouray), Uncompahgre National Forest, Region 2

Allocation: $231,000Acres: 62.41 

Benefits of Acquisition: The Red Mountain project area consists of land below and above 

timberline in the scenic San Juan Mountains of southwest Colorado. The lands offer 

recreational opportunities of all kinds. Primary uses include four wheeling, hiking, 

biking, and cross-country skiing and other winter sports activities. Several historical 

mining structures are located on lands within the Red Mountain project and the parcel 

includes habitat for the endangered Uncompahgre fritillary butterfly and threatened 

Canada lynx. 
FY 2008 Budget Justification USDA Forest Service

Land Acquisition 13-5

 

Packard Ranch, Coconino National Forest, Region 3 

Allocation: $500,000 

Acres: 139 

Benefits of Acquisition: This parcel, located adjacent to the Sycamore Canyon 

Wilderness area, represents a premium rare desert riparian ecosystem and is rich in 

archaeological ruins, rock art, and American Indian values. Both the Verde River and 

Sycamore Creek flow through the ranch, along with perennial streams that provide 

habitat for several endangered aquatic species of fish, as well as located near existing 

nests for breeding bald eagles. Other key wildlife which utilize the property include the 

yellow-billed cuckoo, blackhawk, peregrine falcon and many bat species. Sycamore 

Creek, as well as this section of the Verde River, have been identified as potentially 

eligible for listing as Wild and Scenic Rivers. 

Tejon Ranch, Pacific Crest National Scenic Trail, Angeles & Los Padres National 

Forests, Region 5

Allocation: $600,000 

Acres: 500 

Benefits of Acquisition: This acquisition will begin the acquisition process necessary to 

provide for a “crest” trail experience and protected corridor that offers unsurpassed 

ecological and recreation potential for the unique area where four major ecosystems meet 

(Mojave Desert, Central Valley, Transversal Mountain Range, and Sierra Nevada Range). 

Cascade Checkerboard, Mt Baker-Snoqualmie and Wenatchee National Forests, 

Region 6 

Allocation: $1,000,000 

Acres: 618 

Benefits of Acquisition: Acquisition will secure nearly a square mile (section) of land at 

the headwaters of the Green River that supplies domestic water for the City of Tacoma 

and habitat for both salmon and steelhead that migrate up the river. In addition to the 

recreation opportunities afforded by the property, acquisition will secure needed public 

access to adjacent NFS lands. These acquisitions will expand recreation opportunities, 

including hiking, mountain climbing, Nordic skiing, snowmobiling, canoeing, fishing, 

hunting, biking, and camping. Threatened or endangered species inhabit the area, 

including grizzly bear, wolf, northern spotted owls, and marbled murrelets. 

Cherokee National Forest, Region 8

Allocation: $656,518 

Acres: 4,934 

Benefits of Acquisition: Acquisition of tract will consolidate NFS lands and the Great 

Smokey Mountains National Park (GSMNP), and provide added protection for the Joyce 

Kilmer/ Slickrock and Citico Creek Wildernesses. The north/northeastern boundary 

contours the shoreline of the narrow Chilhowee Lake and the Little Tennessee River 

below Calderwood Dam, immediately southwest of the GSMNP. Acquisition of this tract 

will allow for better management of forest resources, and help reduce impacts from 

invasive species, allow for enhanced fire management, and provide for additional outdoor 

recreational opportunities. 
FY 2008 Budget Justification USDA Forest Service

Land Acquisition 13-6

 

Cambria-Phase II, Wayne National Forest, Region 9 

Allocation: $500,000 

Acres: 625 

Benefits of Acquisition: This is the second phase of a large, multi-phased acquisition of 

4,116 acres. Large, contiguous blocks of land are uncommon in Ohio, making this a 

rare opportunity for the forest. Riparian corridors include two significant Ohio River 

tributaries, Pine Creek and Symmes Creek, along with numerous streams, ponds, and 

lakes which provide freshwater habitat for a variety of native fish and wildlife. The 

acquisition protects the endangered Indiana bat and regionally sensitive species such as 

the Cerulean Warbler and the Henslow’s Sparrow and provides recreation opportunities 

such as hunting, camping, hiking, horseback riding, and wildlife viewing. Heritage 

sites such as the Underground Railroad route and the historic Pioneer Iron Furnace ruin 

are also protected. 

FY 2006 Accomplishments 

• Highlights of some of the major acquisitions include: 

Blackfoot Challenge, Lolo and Helena National Forests, Region 1 

Allocation: $16,089,000 

Acres: 15,142 

Benefits of Acquisition: The Blackfoot River watershed serves as a buffer and linkage 

zone for wildlife moving in and out of the Bob Marshall/Scapegoat Wilderness Area 

complex and the Mission Mountain Wilderness, to the lower Clark Fork drainage and the 

Garnet and Sapphire Ranges. Fragmentation of large private ownerships from subdivision 

and development has been a primary threat to habitats and social structure changes in the 

watershed. This ecosystem supports the largest population of grizzly bears in the lower 

48 States and the Blackfoot River and its tributaries provide habitat for native westslope 

cutthroat trout and the threatened bull trout. Associated with the Blackfoot are numerous 

wetland, riparian, and forestland vegetation associations that provide seasonal and yearlong foraging and nesting for bald eagles, golden eagles, osprey, red-tailed hawks, and 

great horned owls. In addition to hunting and fishing, the area is popular for swimming, 

rafting, picnicking, camping, hiking, and snowmobiling. 

High Elk Phase II, Gunnison National Forest, Region 2

Allocation: $985,000 

Acres: 370 

Benefits of Acquisition: The High Elk Conservation Corridor is comprised of land lying 

between the Maroon Bells Wilderness and Raggeds Wilderness areas. The Corridor 

connects the historic townsites of Marble and Gothic. As a recreational and scenic 

resource, it is used by residents and visitors to Crested Butte and the Crystal River Valley 

for its abundant camping, hiking, picnicking, mountain biking, wildlife viewing, hunting 

and four-wheeling opportunities. As a headwaters region for two significant western 

slope river systems, the Gunnison and White Rivers, it is the source of a valuable water 

supply. The White River National Forest Land and Resource Management Plan includes 

the South Fork of the Crystal River, which bisects the Corridor, as eligible for scenic 

status within the National Wild and Scenic River System. 
FY 2008 Budget Justification USDA Forest Service

Land Acquisition 13-7

 

Goose Creek, Phases I & II, Six Rivers National Forest, Region 5 

Allocation: $3,120,850 

Acres: 5,098 

Benefits of Acquisition: Consolidated NFS lands in the Goose Creek drainage within the 

Smith River National Recreation Area (NRA), providing for key wildlife habitat, 

wetlands, floodplains and riparian areas, and eliminating approximately 30 miles of 

property boundary and 80 property corners. The area also has the potential for future 

timber harvests, and the future re-opening of hundreds of miles of former timber haul 

roads.

I-90 Checkerboard Lands, Mt Baker-Snoqualmie National Forest, Region 6 

Allocation: $960,300 

Acres: 1,063 

Benefits of Acquisition: Secured two sections of land, both private inholdings, in 

Washington’s Central Cascade Range. The project area is located in the Seattle-TacomaBellevue metro area, the 13th largest metropolitan area in the United States with a 

population exceeding 3.7 million. These acquisitions will expand recreation 

opportunities, including hiking, mountain climbing, Nordic skiing, snowmobiling, 

canoeing, fishing, hunting, biking, and camping. Threatened or endangered species 

inhabit the area, including grizzly bear, wolf, northern spotted owls, and marbled 

murrelets. 

University of Wisconsin, Chequamegon-Nicolet National Forests, Region 9 

Allocation: $2,200,000 

Acres: 1,029 

Benefits of Acquisition: This tract was an inholding and includes the 118-acre 

Beaverdam Lake and about 3⁄4 mile of frontage on the Brunsweiler River. Brunsweiler 

River is a Class 2 trout stream and the lake has about 9 miles of completely undeveloped 

shoreline. The tract includes several State listed threatened and special concern plants, 

and a variety of wildlife, including sandhill cranes, timber wolves, and eagles. There is a 

high potential for archaeological sites and there are approximately 60 acres of wetland 

within the property. 
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Other 

Appropriations 
 

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FY 2008 Budget Justification USDA Forest Service

Other Appropriations 14-1 Range Betterment Fund 

Budget Line Item Range Betterment Fund 

Range Betterment Fund Increase or Decrease Program 

 Appropriations FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $3,130 $3,500 $22 $0 $228 $3,750 7% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $3,130 $3,500 $22 $0 $228 $3,750 7% 

Full Time Equivalents (FTEs) 15 14 4 18 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2008 Program Changes 

In FY 2008 the range betterment fund will be $3.75 million, an increase $228,000 over 

the FY 2007 Estimate. This increase is due to changes in grazing receipts. The range 

betterment program will continue to shift from structural improvements to enhance 

livestock management, to non-structural improvements to sustain livestock use and 

promote rangeland restoration. Treatment of invasive plant species related to permitted 

livestock use will continue to be a priority for the non-structural rangeland improvement 

work. Leveraging available program funds with permittee investments to enhance 

livestock management, enhance or stabilize vegetative conditions, improve water quality, 

maintain riparian areas and stream banks, and conserve threatened and endangered plant 

and animal species will also continue as a priority. 

Authorities 

 

P.L. 94-579, Federal Land Policy and Management Act of 1976; (43 U.S.C. 1751), as 

amended by P.L. 95-514, Public Rangelands Improvement Act of 1978 (43 U.S.C. 

1751(b)(1). Authorizes appropriation of one-half of grazing receipts from national forest 

in the 16 Western States for range rehabilitation, protection, and improvements on the 

national forests from which collected. One-half of grazing receipts per annum; no 

expiration date.

Program Description 

 

The Range Betterment Fund is a self-generating fund derived from 50 percent of moneys 

received during the prior fiscal year from grazing fees within the 16 Western States 

pursuant to P.L. 94-579, Section 401, The Natural Resource Lands Management Act, as 

amended. The range betterment program emphasis is on essential structural and nonstructural improvements prescribed in grazing allotment NEPA decision documents. The 

program provides for range improvements to improve forage conditions; construct water 

developments to aid in livestock distribution; build fences to control livestock use 
FY 2008 Budget Justification USDA Forest Service

Other Appropriations 14-2 Range Betterment Fund 

patterns or protect sensitive resources; and make other improvements to or on the land. 

Funds may also be used to treat noxious weeds that are present as a result of permitted 

livestock grazing. The work is carried out on the ranger districts of national forest lands; 

six percent or less of the funding may be used for administrative expenses. 

FY 2008 Plans 

• Recognizing an expanding need to treat invasive plant species associated with 

livestock grazing, the range betterment program has seen a shift from structural 

improvements to enhance livestock management, to non-structural improvements to 

sustain livestock use and promote rangeland restoration. The FY 2006 shift in 

accomplishments toward non-structural work is anticipated to continue. 

• Total accomplishments for FY 2008 are anticipated at 500 structures and 14,500 acres 

of non-structural improvements. 

• Develop a portfolio of outcome and output performance measures. 

FY 2007 Program 

• Total accomplishments are planned at 14,400 acres of non-structural improvements 

and 500 structures. 

• Emphasis will be place on increasing the accuracy of capturing accomplishment data 

in the appropriate corporate database. 

FY 2006 Accomplishments

• Actual accomplishments shifted in FY 2006, from structural to non-structural 

rangeland improvements. This is attributed in part to a shift towards treatment of 

invasive species associated with permitted livestock grazing (approximately 8,500 

acres). Total accomplishments include 14,300 acres of non-structural and 500 

structures 

. 
FY 2008 Budget Justification USDA Forest Service

Other Appropriations 14-3 Research Gifts and Bequests 

Gifts, Donations, and Bequests for Forest and Rangeland 

Research 

Gifts, Donations, and Bequests for Forest Increase or Decrease Program 

 and Rangeland Research - Appropriation FY 2006 FY 2007 Uncontrollable Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $63 $63 $0 $0 -$7 $56 -11.11% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $63 $63 $0 $0 -$7 $56 -11.11% 

Full Time Equivalents (FTEs) 0 0 0 

Program Description 

Acceptance of gifts, donations, and bequests for deposit into a special account to be used 

to establish or operate any forest and rangeland research facility. 

In FY 2006, donations were received from individuals as well as businesses for the use of 

research work units and other organizational sub-units to further their research and 

development programs. The funds were used to purchase supplies and equipment, and to 

offset travel to training and seminars. 

In FY 2008, funds will be used for the same purposes as FY 2006 and FY 2007. 
FY 2008 Budget Justification USDA Forest Service

Other Appropriations 14-4 Subsistence Management 

Management of National Forest Lands for Subsistence Uses 

Management of National Forest Lands for Increase or Decrease Program 

Subsistence Uses - Appropriation FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations $4,975 $4,875 $74 -$109 $213 $5,053 4% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $4,975 $4,875 $74 -$109 $213 $5,053 4% 

Full Time Equivalents (FTEs) 23 25 25 

-- Cost Reductions are calculated from staff attrition, technology efficiencies, and reductions in utility costs and travel. 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2008 Program Changes 

The FY 2008 budget request for Management of National Forest Lands for Subsistence 

Uses is $5.1 million, a net program change of +$213,000, or +4 percent from the FY 

2007 Estimate. 

The focus of this program is to provide for and sustain subsistence hunting and fishing 

sources and populations of native game and fish on National Forest System (NFS) lands 

for use by rural Alaskan villagers, many of whom do not have an alternative food source. 

This focus is enhanced by annual reviews of Federal subsistence hunting and fishing to 

ensure a sustained supply of wild food resources. Oversight is also required to review 

and evaluate requests for proposed changes to existing regulations. Finally, these Federal 

regulations require enforcement for protection of subsistence priority and conservation of 

healthy fish and wildlife populations. 

Federal subsistence is a joint effort of the United States Department of the Interior (DOI) 

and the United States Department of Agriculture, with management on NFS lands the 

responsibility of the Forest Service. The Federal Subsistence Board, with four DOI 

regional agency heads and the Alaska Regional Forester, promulgate annual regulations 

governing the harvesting of fish and wildlife.

In FY 2008, priority will be placed on collecting and analyzing on-ground subsistence 

use data, in order to determine the sustainability of the supply of wild food resources 

impacted by subsistence hunting and fishing. The request also provides for full funding 

of law enforcement necessary to ensure compliance. However, due to decreases received 

over the last 3 years, and increasing base costs, it is unlikely funds will be available to 

continue the recently developed wildlife information services program. Reduced funding 

of the interagency fisheries information services program will also result. 

 
FY 2008 Budget Justification USDA Forest Service

Other Appropriations 14-5 Subsistence Management 

Program Description 

The 1980 Alaska National Interest Lands Conservation Act (ANILCA) Title VIII 

provides rural Alaskan residents a subsistence priority to harvest fish and wildlife on 

Federal lands over sport and commercial uses. The statute is in direct conflict with the 

Alaska State Constitution, which prohibits granting subsistence priority to rural residents. 

As a result, the Federal government assumed responsibility for subsistence management 

on Federal public lands in 1990 and expanded its responsibility to Federally-reserved 

navigable waters in Alaska on October 1, 1999. 

There are no alternative food sources for many rural Alaskan villages other than native 

game and fish. More than 143,000 rural residents in Alaska harvest and consume 

approximately 40 million pounds of wildlife and fish annually. This includes an average 

of 20,000 deer, 9,000 caribou, 7,000 moose, and a large variety of other wildlife and fish 

species. 

Federal subsistence hunting and fishing regulations must be reviewed annually to ensure 

a sustained supply of wild food resources. Annually, the Forest Service typically 

receives up to 120 proposed changes to the existing regulations that require the collection 

and analysis of critical information in order to substantiate which changes should be 

affected, and justification for those which cannot be supported by available data. 

Enforcement of Federal subsistence hunting and fishing regulations requires protecting 

the subsistence priority and conserving healthy fish and wildlife populations. The Alaska 

Region must now focus on enforcing these regulations on 22.6 million acres of NFS 

lands, approximately 75 waterways, navigable lakes, and areas of Prince William Sound. 

FY 2008 Plans 

• Complete management analysis for 40 of the more than 150 proposed changes in 

Federal subsistence hunting and fishing regulations that are anticipated in FY 2008 in 

the manner mandated in ANILCA, Title VIII. 

• Perform wildlife and fisheries resource assessments and monitoring projects, evaluate 

and update wildlife and fisheries management plans, and conduct law enforcement 

activities in support of these annual regulatory activities. 

FY 2007 Program 

• Complete management analyses for 35 of the more than 130 proposed changes to 

Federal regulations statewide on the Tongass and Chugach National Forests in the 

manner mandated in ANILCA, Title VIII. Support the Federal Subsistence Board on 

their final actions associated with these changes.

• Complete 10-year re-determination of communities eligible for subsistence priority 

under ANILCA, Title VIII.
FY 2008 Budget Justification USDA Forest Service

Other Appropriations 14-6 Subsistence Management 

• Continue to complete and evaluate wildlife and fisheries resource assessments and 

monitoring projects, update wildlife and fisheries management plans, and perform 

law enforcement activities in support of these annual regulatory activities. 

• Work with local communities and organizations to mitigate potential or actual law 

enforcement conflicts between subsistence users and others.

FY 2006 Accomplishments 

• Completed 30 management analyses for proposed subsistence hunting and fishing 

regulations, with accompanying biological and social impact analysis. The proposed 

hunting and fishing subsistence regulations that were analyzed by Forest Service staff 

included establishing or revising seasons, revising methods and means of harvesting, 

revising harvest limits, revising harvest areas, and establishing or revising customary 

and traditional use determinations. 

• Completed two comprehensive planning processes, for wildlife and for fish 

monitoring strategies to guide future expenditure of funds. 

• Completed various monitoring projects including: 5 river system salmon escapement 

counts, 6 fish distribution surveys, 16 salmon stock assessments, and 8 population 

surveys for moose, deer, caribou, and mountain goats. Through competitive contract, 

began investigating methods to determine deer populations within forested areas 

using DNA technology. 

• Sixteen Forest Service law enforcement officers and agents spent approximately 

7,500 hours providing law enforcement presence where user conflicts were a concern, 

and in areas where the taking of fishing and hunting resources were restricted to 

subsistence use. 

• Provided management analyses and recommendations to the Federal Subsistence 

Board. Continued coordination with the State of Alaska on protocols for sharing 

information, fisheries in-season management, coordination of regulations, developing 

and adopting management plans, and salmon escapement goals. 
Permanent 

Appropriations 
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FY 2008 Budget Justification USDA Forest Service 

Permanent Appropriations 15-1 Payment Funds 

Revised February 23, 2007 

Permanent Appropriations 

Including Working Funds and Payments to States 

Permanent Appropriations & Payments Increase or Decrease Program 

 FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations (Receipts) $644,345 $667,871 $3,162 $0 -$338,330 $332,703 -51% 

Emergency & Supplemental Appropriations $0 $1 $0 

Total Enacted Budget Authority $644,345 $667,872 $3,162 $0 -$338,330 $332,703 -51% 

Full Time Equivalents (FTEs) 1,497 1,489 -113 1,376 

Permanent Appropriations - Working Funds 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Brush Disposal 

 New Budget Authority ($000) $11,591 $11,000 $11,000 $0

 Program Level ($000) $13,586 $17,900 $15,000 -$2,900

 Full Time Equivalents (FTEs) 109 105 94 -11 

Licensee Program 

 New Budget Authority ($000) $84 $51 $65 $14

 Program Level ($000) $1 $50 $50 $0

 Full Time Equivalents (FTEs) 0 0 0 0 

Restoration of Forestlands and Improvements 

 New Budget Authority ($000) $2,871 $8,000 $2,500 -$5,500

 Program Level ($000) $876 $10,500 $2,000 -$8,500

 Full Time Equivalents (FTEs) 4 4 3 -1 

Federal Lands Recreation Enhancement Fund 

 New Budget Authority ($000) $53,444 $54,900 $54,900 $0

 Program Level ($000) $50,054 $56,800 $54,900 -$1,900

 Full Time Equivalents (FTEs) 470 524 524 0 

Federal Land and Facilities Enhancement Fund 

 New Budget Authority ($000) $39,130 $48,000 $50,000 $2,000

 Program Level ($000) $22,530 $38,000 $49,200 $11,200

 Full Time Equivalents (FTEs) 6 10 14 4 

Timber Roads--Purchaser Election Program 

 New Budget Authority ($000) $6,800 $4,000 $4,000 $0

 Program Level ($000) $2,078 $4,000 $4,000 $0

 Full Time Equivalents (FTEs) 1 10 10 0 

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget Authority is higher due to unobligated 

prior-year receipts.

Program Level: Actual obligations in FY 2006 and planned Obligations for FY 2007 and FY 2008.
FY 2008 Budget Justification USDA Forest Service 

Permanent Appropriations 15-2 Payment Funds 

Revised February 23, 2007 

 (dollars in thousands)

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Timber Salvage Sales 

 New Budget Authority ($000) $66,963 $66,000 $67,000 $1,000

 Program Level ($000) $75,846 $74,800 $74,000 -$800

 Full Time Equivalents (FTEs) 605 523 530 7 

Stewardship Contracting 

 New Budget Authority ($000) $3,631 $6,000 $6,000 $0

 Program Level ($000) $1,015 $3,500 $4,700 $1,200

 Full Time Equivalents (FTEs) 2 0 0 0 

Timber Pipeline Restoration Fund 

 New Budget Authority ($000) $3,316 $4,700 $4,800 $100

 Program Level ($000) $6,519 $4,000 $4,200 $200

 Full Time Equivalents (FTEs) 57 50 50 0 

Forest Botanical Products 

 New Budget Authority ($000) $867 $1,900 $1,900 $0

 Program Level ($000) $810 $1,800 $1,900 $100

 Full Time Equivalents (FTEs) 9 10 10 0 

Roads and Trails (10 Percent Fund) 

 New Budget Authority ($000) $15,268 $15,300 $15,300 $0

 Program Level ($000) $15,035 $15,300 $15,300 $0

 Full Time Equivalents (FTEs) 56 70 70 0 

Midewin Tallgrass Prairie--Rental Fees 

 New Budget Authority ($000) $357 $400 $400 $0

 Program Level ($000) $325 $375 $375 $0

 Full Time Equivalents (FTEs) 1 1 1 0 

Midewin Tallgrass Prairie--Restoration Fund 

 New Budget Authority ($000) $0 $10 $0 -$10

 Program Level ($000) $0 $0 $0 $0

 Full Time Equivalents (FTEs) 0 0 0 0 

Operations and Maintenance of Quarters 

 New Budget Authority ($000) $7,819 $8,000 $8,000 $0

 Program Level ($000) $6,504 $9,400 $8,000 -$1,400

 Full Time Equivalents (FTEs) 32 28 27 -1 

Land Between the Lakes Management Fund 

 New Budget Authority ($000) $3,552 $3,500 $3,700 $200

 Program Level ($000) $3,453 $3,500 $3,700 $200

 Full Time Equivalents (FTEs) 18 18 18 0 

Valles Caldera Fund 

 New Budget Authority ($000) $0 $750 $750 $0

 Program Level ($000) $110 $500 $500 $0

 Full Time Equivalents (FTEs) 0 0 0 0 

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget Authority is higher due to unobligated 

prior-year receipts.

Program Level: Actual obligations in FY 2006 and planned Obligations for FY 2007 and FY 2008.
FY 2008 Budget Justification USDA Forest Service 

Permanent Appropriations 15-3 Payment Funds 

Revised February 23, 2007 

 (dollars in thousands)

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Administration of Rights-of-Way and Other Land Uses 

 New Budget Authority ($000) $884 $4,300 $4,600 $300

 Program Level ($000) $384 $4,400 $4,500 $100

 Full Time Equivalents (FTEs) 5 25 25 0 

PERMANENT APPROPRIATIONS 

 New Budget Authority ($000) $216,577 $236,811 $234,915 -$1,896

 Program Level ($000) $199,126 $244,825 $242,325 -$2,500

 Full Time Equivalents (FTEs) 1,375 1,378 1,376 -2 

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget Authority is higher due to unobligated 

prior-year receipts.

Program Level: Actual obligations in FY 2006 and planned Obligations for FY 2007 and FY 2008.

Permanent Appropriations - Payments to States 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Actual Estimate Budget FY 2007 

Payments and Transfers from National Forest 

Fund 

 Payment to Minnesota $2,101 $2,101 $2,100 -$1

 Payments to States, Act 1908 $6,657 $6,385 $81,688 $75,303

 SRS Act of 2000* 

 Payments to States, Title I and III $75,367 $139,841 $0 -$139,841

 Transfers to Forest Service, Title II $33,642 $32,259 $0 -$32,259

Full Time Equivalents (FTEs) 122 111 0 -111 

 

Payments from Treasury 

 SRS Act of 2000* 

 Payments to States Titles I & III $295,916 $236,874 $0 -$236,874

Payments from National Grasslands and Land 

 Utilization Projects 

 Payments to Counties $14,085 $13,600 $14,000 $400

Payments and Transfers $427,768 $431,060 $97,788 -$333,272

Full Time Equivalents (FTEs) 122 111 0 -111

* Secure Rural Schools and Community Self-Determination Act of 2000 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-4 Brush Disposal 

Budget Line Item Brush Disposal 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Brush Disposal 

 New Budget Authority ($000) $11,591 $11,000 $11,000 $0

 Program Level ($000) $13,586 $17,900 $15,000 -$2,900

Full Time Equivalents (FTEs) 109 105 94 -11 

Authorities 

Section 6 of the Act of August 11, 1916 (Ch. 313, 39 Stat. 446, as amended; 16 U.S.C. 

490). 

Program Description 

This program provides for the disposal of brush and other debris resulting from cutting 

operations on timber sale areas to protect and maintain national forest resources. Timber 

harvest activities can increase the fire hazard because of the logging slash that is created. 

Slash can also impair reforestation, contribute to the buildup of insect populations, 

damage stream channels, look unsightly, and limit recreational uses if left untreated. This 

slash treatment is accomplished by crushing, chipping, or piling and burning. Brush 

disposal is required as a provision of the timber sale contract. The timber sale operator 

has the option of performing the work or requesting the Forest Service complete this 

work by making deposits of funds to cover these costs. 

FY 2008 Plans 

Approximately 32,000 acres are projected to be treated. 

FY 2007 Program 

Approximately 38,000 acres are programmed for treatment. 

FY 2006 Accomplishments

Brush disposal was completed on 29,130 acres.
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-5 Licensee Programs 

Budget Line Item Licensee Programs 

 (Smokey Bear and Woodsy Owl) 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Licensee Program 

 New Budget Authority ($000) $84 $51 $65 $14

 Program Level ($000) $1 $50 $50 $0

Full Time Equivalents (FTEs) 0 0 0 0

Program Description 

Fees for the use of the Smokey Bear and Woodsy Owl characters by private enterprises 

are collected under regulations formulated by the Secretary of Agriculture. They are 

available to support: 

• Smokey Bear: to further the nationwide forest fire prevention campaign (16 U.S.C. 

580 p-2) (31 U.S.C. 488a, 488b-3, 488b-6). 

• Woodsy Owl: to promote wise use of the environment and programs that foster 

maintenance and improvement of environmental quality (16 U.S.C. 580 p-1) (18 

U.S.C. 711, 711a). 

Major Program Activities of the Smokey Bear Program 

This program supports national initiatives, programs, and products that help increase 

public awareness in regard to wildfire prevention. 

The Smokey Bear licensing program receives approximately $125,000 yearly from 

royalties, of which 35 percent are paid to the licensee contractor for its fees. The fees are 

used specifically for fire prevention. Smokey Bear royalties also support the National 

Smokey Bear Award program and the national fire prevention public service campaign. 

The Chief of the USDA Forest Service has discretionary authority to use money from 

royalties in special projects that support the Smokey Bear fire prevention message. 

FY 2008 Plans 

• Increase fire prevention outdoor advertising. 

• Update the SmokeyBear.com internet site. 

• Continue successful partnership on fire prevention with Disney. 

• Continue poster revision program. 

• Increase quality license products. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-6 Licensee Programs 

FY 2007 Program 

• Implement work with a new licensing contractor, The Metis Group. 

• Continue revision of the Smokey Bear Poster program. 

• Continue successful partnership on fire prevention with Disney. 

• Increase quality license products. 

• Continue efforts for Smokey’s presence at the National Icons Museum in Kansas 

City, Kansas. 

•

FY 2006 Accomplishments 

• Reintroduced the Smokey Bear Campaign poster series by producing the first poster 

through the National Symbols Cache. 

• Supported efforts for the national launch of the Junior Forest Ranger program. 

• Increased licensee partners to over 60 individuals. 

Major Program Activities of the Woodsy Owl Licensing Program 

This program supports national initiatives, programs and products that help increase 

public awareness of activities and issues related to improvement and maintenance of 

environmental quality. 

The Woodsy Owl licensing program is managed by the national symbols program 

manager in the Conservation Education staff. The Conservation Education program 

identifies funding for the Woodsy Owl conservation program initiative to develop 

products, to manage the licensing program, and to enhance partnerships. The licensing 

contractor receives 35 percent of the royalties reported. The focus of the Woodsy Owl 

licensing program is to collect royalties to develop a public service campaign to promote 

conservation of the environment. 

FY 2008 Plans 

• Continue efforts to enhance existing Woodsy Owl program partners. 

• Print and distribute the Woodsy Owl Invasive Insect product. 

• Continue management activities to monitor the effectiveness of the Woodsy Owl 

revamping efforts. 

• Target 10 additional licensees. 

• Pursue opportunities to launch a new Woodsy Owl public service campaign. 

 

FY 2007 Program 

• Target 10 additional potential licensees. 

• Enhance partnership with ski areas for the distribution of the Woodsy’s Junior Snow 

Ranger program. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-7 Licensee Programs 

• Identify opportunities to use Woodsy Owl in existing partner conservation education 

programs and printed materials. 

• Monitor and evaluate the program’s revamping efforts. 

• Continue efforts for Woodsy’s presence at the National Icons Museum in Kansas 

City, Kansas. 

FY 2006 Accomplishments 

• Hired a contractor to manage the licensing of Woodsy Owl. 

• Expanded our national licensing outreach by attending the national licensing show in 

New York City. 

• Strengthened partnership with the Head Start Bureau by developing guidelines to 

foster communication. 

• Completed pending Woodsy Owl educational products such as the invasive bugs and 

educational activities for teachers, and made them available through the 

http://www.woodsyowl.gov site. 

• Supported the presence of Woodsy Owl in the upcoming National Icons Museum in 

Kansas City, Kansas. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-8 Restoration of National Forest Lands and Improvements 

Budget Line Item Restoration of National Forest Lands 

 and Improvements 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Budget Budget FY 2007 

Restoration of Forestlands and Improvements 

 New Budget Authority ($000) $2,871 $8,000 $2,500 -$5,500

 Program Level ($000) $876 $10,500 $2,000 -$8,500

Full Time Equivalents (FTEs) 4 4 3 -1 

Authorities 

The Restoration of National Forest Lands and Improvements Act, 16 U.S.C. 579c and 

P.L. 85-464, Sec. 7, June 20, 1958, 72 Stat. 217.

Program Description 

This authority protects the interests of the Forest Service when performance of some 

improvement, protection, or rehabilitation work under a permit or timber sale contract 

goes undone by a permitee or timber purchaser. In these cases of non-performance, the 

permitee or contractor would forfeit their bond or deposit, the money would transfer to 

the Restoration of Improvements fund and the Forest Service would perform the work. 

This authority also protects the interests of the Forest Service when there is present or 

potential damage to lands or improvements due to the actions of another party. The 

authority provides the Forest Service the ability to use funds from a judgment, 

compromise, or claim settlement in order to restore, improve, or protect lands or 

improvements from the damage that precipitated the collection action. 

Restoration of Improvements funds are available until expended. Any monies received in 

excess of the amount expended in performing the appropriate work is transferred to 

miscellaneous receipts. 

Based on a Comptroller General's Decision (67 Comp. Gen. 276), collections may be 

used to cover the restoration costs paid from Forest Service appropriations if Forest 

Service appropriations were used to complete the required work before the collections 

were received. 

The proposed program funding level is based on field projections of anticipated work. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-9 Recreation Enhancement Fund 

Budget Line Item Recreation Enhancement Fund 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Budget Budget FY 2007 

Federal Lands Recreation Enhancement Fund 

 New Budget Authority ($000) $53,444 $54,900 $54,900 $0

 Program Level ($000) $50,054 $56,800 $54,900 -$1,900

 Staff Years 470 524 524 0 

 

Authorities 

Title VIII, Federal Lands Recreation Enhancement Act, P.L. 108-447, (16 USC 6801 

note, 118 Stat. 3377-3393).

Program Description 

The Federal Lands Recreation Enhancement Act (REA) provides authority through 

December 2014, to implement a fee program that demonstrates the feasibility of usergenerated cost recovery for the operation and maintenance of recreation areas or sites on 

Federal lands. The Act directs the creation of Recreation Resource Advisory Committees 

(RACs) to allow for public involvement and comment on recreation fee programs. Funds 

are collected from the use of recreation facilities and areas, equipment, and services. The 

funds 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. The agency will continue to use recreation fee receipts 

to improve recreation facilities and services, customer services, and educational 

opportunities, as well as strengthen and establish partnerships and intergovernmental 

cooperative efforts. 

In FY 2007, the Forest Service will charter Recreation RACs in cooperation with the 

Bureau of Land Management (BLM). These committees are a demonstration of the 

agency’s continued commitment to improving its effectiveness and efficiency through 

increased public involvement and cooperation. 

Independent Reviews 

GAO 06-1016: Recreation Fees - Agencies Can Better Implement the Federal Lands 

Recreation Enhancement Act and Account for Fee Revenue, General Accounting Office 

(GAO) conducted an assessment on the agency’s implementation of the REA, reviewing 

agency guidance, analyzing fee data, interviewing officials, visiting 26 fee-collecting units, 

and administering a nationwide survey to 900 fee-collecting units. GAO’s 

recommendations included expediting completion of the steps needed for the Recreation 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-10 Recreation Enhancement Fund 

RACs to allow for public input on new fees or modification to existing fees and improving 

the accountability and controls for recreation fee collections. The Forest Service published 

a notice of intent to establish Recreation RACS in the Federal Register on September 22, 

2006 and five new Recreation RACs should begin reviewing recreation fee proposals in 

early 2007. The Forest Service is also updating the collection policies and procedures in 

the agency’s manuals and handbooks in response to GAO’s recommendations.

Program Assessment Rating Tool (PART) - In CY 2005, the Recreation, Heritage and 

Wilderness program was evaluated for the FY 2007 budget cycle and received a rating of 

“Moderately Effective.” The OMB assessment found that the recreation program had a 

clear purpose and adequate long-term performance measures, but needed improvements 

were identified for the Recreation Fee program as follows: 

• Although each Recreation Fee Demonstration Project completed a business plan prior 

to implementation, not all national forests have completed business plans for 

recreation areas. This may lead to situations where resources are not effectively 

targeted due to program design issues or inconsistent data. 

• Independent evaluations have identified business system information data gaps 

needed to improve financial and management decisions that enhance visitor 

satisfaction. However, key recommendations for improving data reliability and use 

remain to be implemented. 

Starting in FY 2006, the agency initiated the following to improve performance: 

• Optimizing available resources by completing business plans for each recreation area 

on national forests and grasslands. 

• Improving revenue and cost data for the program, using actual utilization and service 

delivery cost data, and implementing key recommendations on data reliability and 

use. 

 

Congressional Reports 

P.L. 108-447, Title VIII, Federal Lands Recreation Enhancement Act, Section 809 - 

Requires an interagency Report to Congress every 3 years detailing the status of the 

recreation fee program, including an evaluation of the program, examples of projects that 

were funded using such fees, future projects and programs for funding with fees, and any 

recommendations for changes in the overall fee system for the Forest Service, National 

Park Service (NPS), Fish & Wildlife Service (F&WS), Bureau of Land Management 

(BLM), and Bureau of Reclamation (BOR). The next report is due May 1, 2009. 

FY 2008 Plans 

• Continue to assist the agency in reducing recreation site deferred maintenance, 

maintain recreation sites to standard, and enhance recreation sites and services. 

• Assist and support the recreation program's goal of reducing deferred maintenance at 

recreation sites by 20% over the next 5 years. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-11 Recreation Enhancement Fund 

• Supplement other funding sources to meet the Forest Service's recreation capacity 

goal of approximately 71 million persons at one time (PAOT). 

FY 2007 Program 

• Establish five new Recreation RACs in four regions (Pacific Southwest Region, 

Pacific Northwest Region, Southern Region, and Eastern Region) and the State of 

Colorado to provide advice and recommendations to regions and national forests 

regarding recreation fees. 

• Establish the national interagency America the Beautiful – National Parks and 

Recreation Lands Pass to provide consistency between Federal agencies. This pass is 

issued and sold as a convenient payment and use method for the public and is valid 

for certain Forest Service, Bureau of Land Management, and Bureau of Reclamation 

recreation fee sites, as well as entrance fees for National Park Service and Fish and 

Wildlife Service units. 

 

FY 2006 Accomplishments

• Established a Memorandum of Understanding between the Department of Agriculture 

and the Department of the Interior that authorizes joint Recreation RACs. 

• Published a Federal Register notice announcing the formation of new Recreation 

RACs and soliciting nomination for members. 

• Completed interagency recreation fee guidelines for implementing the REA that will 

provide policy consistency between land management agencies and lessen public 

confusion over recreation fees. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-12 Land and Facility Enhancement Fund 

Budget Line Item Land and Facility Enhancement Fund 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Budget Budget FY 2007 

Federal Land and Facilities Enhancement Fund 

 New Budget Authority ($000) $39,130 $48,000 $50,000 $2,000

 Program Level ($000) $22,530 $38,000 $49,200 $11,200

Full Time Equivalents (FTEs) 6 10 15 5 

Authorities 

Numerous Federal statutes authorize the Secretary of Agriculture to retain proceeds from 

the conveyance of land and excess structures, and expend the revenues to acquire or 

develop land and improvements for administrative purposes. 

P.L. 107-63, Section 329, of the Interior and Related Agencies Appropriations Act, as 

amended by P.L. 108-7, P.L. 108-108, and P.L. 108-447.

P.L. 109-54, Forest Service Facility Realignment and Enhancement Act (FSFREA), Title 

V of the Department of the Interior, Environment, and Related Agencies Appropriations 

Act, 2006.

Program Description 

Land and Facility Conveyances Under Special Legislation – This program, which 

operates under many special authorizations, enables specific national forests to convey 

land or facilities and use the proceeds to acquire, construct, or improve land and facilities 

within the same national forest or State. Revenues received from the sale of land or 

structures are deposited into the Sisk Act Fund and are available without further 

appropriation. 

Administrative Site Conveyances Program – This program authorizes the Forest Service 

to convey unneeded administrative sites and retain the proceeds for building 

maintenance, rehabilitation, and construction provided certain criteria contained in Title 

V are met. The Forest Service currently owns approximately 19,000 administrative and 

research buildings. A large number of these facilities do not meet the agency’s needs. 

More than 60 percent of Forest Service facilities are more than 30 years old and more 

than half have exceeded their design life. Without major and often costly renovations, 

these structures frequently fail to meet administrative needs due to inadequate space; 

improper location; high maintenance costs; and failure to meet current health, safety, and 

accessibility codes. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-13 Land and Facility Enhancement Fund 

Independent Reviews 

OIG Audit Report No. 08001-1-AT – Implementation of the Capital Improvement 

Program - Beginning in FY 2005, and completed in FY 2006, the Office of Inspector 

General (OIG) conducted an audit of the Capital Improvement Program with a focus on 

the methodologies used by the Forest Service to select and sell administrative facilities. 

The OIG recommended a number of improvements related to Facility Master Planning, 

conveyance selection, marketing of property, and other procedural aspects to strengthen 

the sales programs. Recommendations are being implemented primarily through Forest 

Service Manual and Handbook direction, as well as training of appropriate staff. 

Congressional Reports 

P.L. 109-54, 2006 Interior and Related Agencies Appropriations Act, Section 503 (e) – 

Requires the agency to provide notification to Congress of the anticipated properties to be 

conveyed under the FSFREA authority, including revenue to be obtained and their 

purposes, and a report on the accomplishments of previous years conveyances. The 

agency provides a listing of properties to be conveyed, anticipated revenues, and prior 

year accomplishments in each fiscal year’s Budget Justification. 

FY 2008 Plans 

 

• Reduce the agency's backlog of deferred maintenance by an estimated $13 million, 

eliminating the need to accomplish these repairs, thus freeing up resources to focus on 

sustaining a viable mission dependent infrastructure. 

• Improve the condition of the agency's existing infrastructure portfolio, replace 

obsolete Fire, Administrative, and Other (FA&O) facilities, and further implement 

each Forest's facility master plan through the use of proceeds. 

• Eliminate operation and maintenance costs at more than 500 buildings, and refocus 

resources towards maintaining facilities that are fully utilized and aligned with the 

agency's mission. 

• Initiate 104 administrative site conveyances displayed in Table B, reducing the 

agency-owned portfolio by 1 million square feet, with projected collections of over 

$100 million by FY 2010. 

FY 2007 Program 

• Implement facility master plan recommendations to reduce the number and size of 

facilities maintained in the agency’s inventory. 

• Implement sales strategy plans for marketing, staffing, and funding project work, 

maximizing use of proceeds and contracting opportunities for program efficiency. 

• Complete the remaining 88 FY 2006 conveyance projects valued at approximately 

$55 million, and reduce deferred maintenance by $10 million. 

• Initiate 53 administrative site conveyances and continue to provide training to line 

officers and realty and property management staff. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-14 Land and Facility Enhancement Fund 

• Implement recommendations from OIG Audit Report No. 08001-1-AT. 

• Publish Forest Service Handbook (FSH) 5509.11, Chapter 26, Special Act Sales. 

FY 2006 Accomplishments 

 

• Provided conveyance training to an estimated 500 employees in the realty, property 

management, engineering, and heritage programs and expanded the conveyance 

module in the National Lands for Line Officers training session. 

• Reduced the agency’s portfolio of deferred maintenance needs by $2 million through 

the conveyance of 23 projects. 

• Completed 23 land and/or facility conveyance projects under special sales authorities 

or under pilot or FSFREA authorities resulting in collections of $34 million, as 

displayed in Table A. 

The following tables display the FY 2006 accomplishments (Table A), FY 2008 planned 

conveyance project (Table B), and the changes to the FY 2006 and FY 2007 planned 

conveyance projects (Table C). 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-15 Land and Facility Enhancement Fund 

Table A 

FY 2006 Land and Facility Conveyance Accomplishments 

Region Project Name State Forest/Station 

Congressional 

District 

Authority 

Used Acres 

Proceeds 

Collected 

1 Hungry Horse MT Flathead 1 PE 92.22 $2,480,500 

 

2 City of Golden CO 

ArapahoRoosevelt 4 S14 9.80 $148,000 

Deadwood Garage 

Administrative Site CO Black Hills 1 RF,S3 0.10 $145,000 

 

3 Sedona AZ Coconino 1 S1 21.41 $8,400,000 

4 Fillmore Residential Site 1/ UT Fishlake 3 PE,RF 0.47 $70,000 

Loa Residential Site 1/ UT Fishlake 2 PE,RF 1.55 $133,000 

 

5 

Angeles Residences – 

Sierra Madre CA Angeles 26 PE 1.00 $1,923,000 

Truckee CA Tahoe 2 PE 82.60 $5,650,000 

 

6 McAndrews OR Rogue River 4 S13 5.00 $3,658,912 

Sweet Home Residences OR Willamette 2 PE $78,200 

Blue River Compound OR Willamette 2 PE,RF 3.50 $910,000 

Klamath Ranger District OR 

FremontWinema 2 PE,RF 3.50 $680,000 

 

8 Yahoola 1/ GA 

ChatahoocheeOconee 9 PE,RF 15.00 $270,000 

Tallulah 1/ GA 

ChatahoocheeOconee 9 PE,RF 3.28 $410,000 

Cherokee NF (Etowah) TN Cherokee 2 PE,RF 2.26 $46,000 

Walton & Okaloosa 1/ FL NFs of Florida 1 S5 42.50 $4,000,000 

Bristol FL NFs of Florida 2 S5 1.24 $37,400 

Idabel OK Ouachita 2 S8 2.45 $18,000 

Sunshine T 3667 AR Ouachita 3 S8 120.00 $376,316 

Sunshine T 602a AR Ouachita 3 S8 40.00 $165,550 

 

9 

Old Isabella 

Administrative Site MN Superior 8 PE,RF 15.48 $544,001 

Hibler MN Superior 8 PE 0.68 $226,000 

 

RMRS Boise Lab Office ID 

Rocky 

Mountain 1 S4 3.27 $3,775,000 

 

 467.31 $34,144,879 1/ Project was completed in late FY 2006; therefore collections will be deposited in FY 2007. Actual collections deposited 

in FY 2006 totaled $29.4 million. 

State Specific Authorities 

S1 - Arizona National Forest Improvement Act of 2000 (P.L. 106-458) 

S3 - Black Hills and Rocky Mountain Research Station Improvement Act (South Dakota) (P.L. 106-329) 

S4 - Boise Laboratory Replacement Act of 2000 (Interior and Related Agencies Appropriations Act, 2001, 

Title III, Sec.351, P.L. 106-291) 

S5 - Florida National Forest Land Management Act of 2003 (P.L. 108-152) 

S8 - Ozark-St. Francis and Ouachita National Forests (P.L. 108-350) 

S13 - Rogue River Administrative Conveyance (P.L. 105-282) 

S14 - Arapaho and Roosevelt NF Land Exchange Act of 2004 (P.L. 108-346) 

FY 2002 Interior and Related Agencies Appropriations Act, P.L.107-63, Section 329, as amended by 

P.L. 108-7, P.L. 108-108, and P.L. 108-447 

PE - Existing Pilot 

Forest Service Facility Realignment and Enhancement Act of 2005 (FY 2006 Interior, Environment 

and Related Agencies Appropriations Act, Title V, P.L. 109-54) 

RF - Facility Conveyance Project
FY 2008 Budget Justification 

Permanent Appropriations 15-16 Land and F

Table B - FY 2008 Land and Facility Planned Conveyance Projects 

Region Project Name State Forest/Station 

Cong. 

District 

Authority 

Used 

Acres of 

Land with 

Conveyance 

Estimated 

Sale 

Value 

($ thous.) 

Defer

Mainten

Reduc

($ thou

1 Stevensville Ranger Station MT Bitterroot 1 RF 4.8 $75 1 Darby Ranger Station MT Bitterroot 1 RF 10 $341 Kamiah Conveyance ID Clearwater 1 RF 4.6 $50 1 Project Kooskia Conveyance ID Clearwater 1 RF 4.8 $33 1 Stanfo Ranger District Houses MT Lewis and Clark 1 RF 1.6 $92 1 Harlowton Houses MT Lewis and Clark 1 RF 1.4 $78 1 Sylvanite Building No. 1045 MT Kootenai 1 RF 5 $25 1 Sylvanite Building No. 1063 MT Kootenai 1 RF 5 $20 1 Townsend Administrative. Site MT Helena 1 RB 30 NA 1 Helena Ranger District MT Helena 1 RF 5 $32 

Region 1 Total $8,052 $75

2 

Antelope Butte Ski Area Improvements CO Bighorn 1 RF 0.0 $12

2 Custer District Ranger Office SD Black Hills 1 S3 1 $232 Teepee Work Center SD Black Hills 1 RF 0 $252 Montrose Administrative Site CO 

Grand 

Mesa/Gunnison 3 RF 3 $36 

2 Bow River Administrative Site WY Medicine Bow 1 RF 10 $52 2 Rollinsville Administrative Site CO Arapaho/Roosevelt 2 RF 20 $71 2 Buena Vista Office & Trailer CO PSICC 5 RF 0.1 $6 2 Dolores Office Compound CO San Juan 3 RF 0.9 $62 2 Cody Interagency Fire Center WY Shoshone 1 RF 0 $21 2 1-Meeker Barracks, Residence, Shop CO White River 3 RF 0.8 $44 2 2-Sopris Pasture (Rose Lane) CO White River 3 RB 11 $0 2 3-Martin Parcel/Cross Creek Parcel CO White River 2 RB 21.7 $0 2 

4-Sopris Administrative Site - Carbondale Compound CO 3 RF 1.2 $55 
FY 2008 Budget Justification 

Permanent Appropriations 15-17 Land and F

Table B - FY 2008 Land and Facility Planned Conveyance Projects 

Region Project Name State Forest/Station 

Cong. 

District 

Authority 

Used 

Acres of 

Land with 

Conveyance 

Estimated 

Sale 

Value 

($ thous.) 

De

Main

Re

($ t

(R2 cont.) 

2 5-Aspen CO White River 3 RF 5 2 6-Eagle Office and Dwelling CO White River 2 RF 0.3 2 

7-Eagle Administrative Support Buildings CO White River 2 RF 4 

2 8-Eagle Dwelling 2 - Washington CO White River 2 RF 0.2 2 

9-Holy Cross Office/Meadow Mountain Buildings CO White River 2 RF 10 $

2 

10-Minturn Dwellings & Administrative Buildings CO White River 2 RF 7 

2 

11-Dillon Dwellings & Administrative Buildings CO White River 2 RF 10.9 

2 12-SO Administrative Buildings CO White River 3 RF 0.7 2 13-Airport Shop/Parcel CO White River 3 RF 4 2 Fairplay Dwelling and Site CO Pike 5 RF 0.2 

Region 2 Total $36,486 $1

3 Heber Job Corp Site AZ Apache-Sitgreaves 1 RF 40 $3 Peaks Ranger Station AZ Coconino 1 RF 40 3 Mormon Lake Ranger Station AZ Coconino 1 RF 40 

Region 3 Total $12,475 $

4 Ashley Dwelling Sites UT Ashley 2 RF 1.5 4 Bridger-Teton SO WY Bridger-Teton 1 RF 8 $4 Thayne House Site WY Bridger-Teton 1 RF 0.7 4 Ashton, Paris, Soda Springs Administrative Sites ID Caribou-Targhee 2 RF 2.4 $4 Richfield Center St. Warehouse Site UT Fishlake 3 RF 0.5 $4 Mountain City Ranger District Sites NV Hum-Toiy 2 RF 37.7 $4 Magnolia Residence Site NV Hum-Toiy 2 RF 0.1 
FY 2008 Budget Justification 

Permanent Appropriations 15-18 Land and F

Table B - FY 2008 Land and Facility Planned Conveyance Projects 

Region Project Name State Forest/Station 

Cong. 

District 

Authority 

Used 

Acres of 

Land with 

Conveyance 

Estimated 

Sale 

Value 

($ thous.) 

Defer

Mainten

Redu

($ tho

(R4 cont.) 

4 Manti-La Sal Dwellings UT Manti-La Sal 3 RF 1.8 $124 Mt. Pleasant Administrative Site UT Manti-La Sal 3 RB 20 $0 4 

New Meadows Housing & Storage Buildings ID Payette 1 RF 1 $26

4 McCall Smokejumper Base Parcel ID Payette 1 RB 4.6 NA 4 Krassel Yard ID Payette 1 RF 16 $234 Leadore & Salmon Dwelling Sites ID Salmon-Challis 2 RF 4.4 $24 Olympus Cove Administrative Site UT Wasatch-Cache 2 RB 5.7 $0 

Region 4 Total $24,315 $3,0

5 Brush Creek Work Center CA Plumas 4 RF 1 $255 Greenville Work Center CA Plumas 4 RF 1 $26

Region 5 Total $325 $51

6 Packwood Administrative Site WA Gifford Pinchot 3 RF 20.5 $646 Skykomish Houses WA 

Mt. BakerSnoqualmie 8 RF 4.2 $32

6 Glacier Downtown House WA 

Mt. BakerSnoqualmie 2 RF 0.3 $8 

6 Zigzag North Compo und OR Mt Hood 3 RF 35 $46 Conconully Ranger Station WA 

OkanoganWenatchee 5 RF 0.7 $32

6 Steliko Ranger Station WA 

OkanoganWenatchee 4 RF 20 $21

6 Norwood Residential Site WA Olympic 6 RF 10 $56 Lower Quilcene Administrative Site WA Olympic 6 RF 3 $5
FY 2008 Budget Justification 

Permanent Appropriations 15-19 Land and F

Table B - FY 2008 Land and Facility Planned Conveyance Projects 

Region Project Name State Forest/Station 

Cong. 

District 

Authority 

Used 

Acres of 

Land with 

Conveyance 

Estimated 

Sale 

Value 

($ thous.) 

Defer

Mainten

Redu

($ tho

(R6 cont.) 

6 Butte Falls District Ranger's House OR Rogue River- Siskiyou 2 RF 0.5 $36 Old Agness Guard Station OR Rogue River- Siskiyou 4 RF 2.5 $126 Star Gulch Work Center OR Rogue River- Siskiyou 2 RF 12 $46 Star Gulch Upper Compound OR Rogue River- Siskiyou 2 RF 5 $36 Gardiner Administrative Site OR Siuslaw 4 RF 3.3 $66 Mapleton Administrative Site OR Siuslaw 4 RF 16 $46 Brown Street Houses (Glide) OR Umpqua 4 RF 2.4 $36 

Unity Ranger District Housing-- Lower Compound OR 

Wallowa Whitman 

2 RF 6.5 $2

6 

Unity Ranger District Housing-- Middle Compound OR 

Wallowa Whitman 

2 RF 1.3 $1

6 

Wallowa Ranger District Administrative Site OR 

Wallowa Whitman 

2 RF 4 $39

6 Silver Street House OR Wallowa-Whitman 2 RF 0.3 $16 Blue River Upper Compound OR Siuslaw 4 RF 39 $36 Cascadia OR Willamette 4 RF 15 TB6 Flat Creek OR Willamette 4 RF 20 $77

Region 6 Total $9,845 $3,3

8 Francis Marion SC 

Francis MarionSumter 1 and 6 RF 9.8 $70

8 

Highlands Office 

NC 

NF in North 

Carolina 11 RF 2 $1

8 

Tusquitee Buildings 

NC 

NF in North 

Carolina 11 RF 1 $7

8 

Brasstown Ranger District Work Center GA 

ChattahoocheeOconee 9 RF 11 $12

8 Holly Creek WC GA 

ChattahoocheeOconee 10 RF 5 $12
FY 2008 Budget Justification 

Permanent Appropriations 15-20 Land and F

Table B - FY 2008 Land and Facility Planned Conveyance Projects 

Region Project Name State Forest/Station 

Cong. 

District 

Authority 

Used 

Acres of 

Land with 

Conveyance 

Estimated 

Sale 

Value 

($ thous.) 

Deferre

Maintena

Reduc

($ thou

(R8 cont.) 

8 Watauga Work Center TN Cherokee 1 RF 2.6 $30 8 Watauga Work Center TN Cherokee 1 RF 2.6 $30 8 Fourche Ranger Dwelling AR Ouachita 2 RF 0.41 $0 8 Tiak Ranger Dwelling OK Ouachita 2 RF 0.5 $1 8 Kiamichi Ranger Dwelling OK Ouachita 2 RF 0.45 $2 8 

Kiamichi Assistant Ranger Dwelling OK Ouachita 2 RF 0.21 $2 

Region 8 Total $5,785 $1,67

9 Sheffield Ranger H.Q. Pa. Allegheny 5 RF 5.5 $77 9 Keyes Warehouse WI 

ChequamegonNicolet 8 RF 2.9 $7 

9 White Cloud MI Huron-Manistee 2 RF 10 $12 9 Ava Replacement MO Mark Twain 8 RF 2 $1 9 Fredricktown MO Mark Twain 8 RF 6.2 $73 9 Doniphan MO Mark Twain 8 RF 2.3 $0 9 Poplar Bluff Replacement MO Mark Twain 8 RF 3.5 $411 9 Williamsville Agreement MO Mark Twain 8 RF 0.8 $50 9 Eddyville IL Shawnee 19 RF 1.1 $47 9 Ely Service Center MN Superior 8 RF 2.8 $133 9 Ammonoosuc Ranger Station NH White Mountain 2 RF 11 $914 9 Bog Brook Compound NH White Mountain 2 RF 15 $99 9 Gorham Depot NH White Mountain 2 RF 0.7 $41 9 Two Grand Marais Dwellings MN Superior 8 RF 0.46 $60 9 Twin Mountain Depot NH White Mountain 2 RF 2 $57 9 West Branch MN Chippewa 5 PE,RF 9.5 $6.2 

Region 9 Total $3,589 $1,865
FY 2008 Budget Justification 

Permanent Appropriations 15-21 Land and F

Table B - FY 2008 Land and Facility Planned Conveyance Projects 

Region Project Name State Forest/Station 

Cong. 

District 

Authority 

Used 

Acres of 

Land with 

Conveyance 

Estimated 

Sale 

Value 

($ thous.) 

Deferre

Maintena

Reduc

($ thou

10 Wrangell Residences AK Tongass 1 RF 0.6 $92 10 Sitka Residences AK Tongass 1 RF 1 $223 10 Seward Ranger District Office AK Chugach 1 RF 0.2 $630 

Region 10 Total $925 $945 

Totals $101,797 $13,17

State Specific Authorities S3 - Black Hills and Rocky Mountain Research Station Improvement Act (South Dakota) (P.L. 106-329)FY 2002 Interior and Related Agencies Appropriations Act, P.L.107-63, Section 329, as amended by P.L. 108-7, P.L. 108-108, and P.L. 108-447 PE - Existing Pilot Forest Service Facility Realignment and Enhancement Act of 2005 (FY 2006 Interior, Environment and Related Agencies Appropriations Act, Title V, P.L. 109-54) RF - Facility Conveyance Project RB - Bare Land Conveyance Project 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-22 Land and Facility Enhancement Fund 

Revised March 30, 2007 

Table C 

Change in Land and Facility Planned Conveyance Projects

The following projects have been added to the Land and Facility Conveyance listing in FY 

2007: 

Fiscal 

Year Region State Project Name Forest/Station 

Cong. 

District Acres 

2007 3 NM Cloudcroft Work Center Lincoln 2 16 

2007 5 CA 

Town of Truckee-Glenshire 

Drive Land Conveyance Tahoe 2 2.2 

2007 5 CA March Air Force Land Parcel San Bernardino 44 12.3 

The following projects have been dropped from the Land and Facility Conveyance listings 

in FY 2006 and FY 2007: 

Fiscal 

Year Region State Project Name Forest/Station 

Cong. 

District 

Acres 

2006 2 SD Fall River storage Nebraska 1 0 

2006 2 CO 

Lower Mancos Warehouse/ 

VIS San Juan 3 0.16 

2006 4 UT Myton Bench Repeater Site Ashley 2 1 

2006 5 CA Los Pinos Correction Camp Cleveland 43 80 

2007 1 MT Old Sheridan Admin Site 

BeaverheadDeerlodge 1 3.24 

2007 1 MT Old Madison Admin Site 

BeaverheadDeerlodge 1 0.27 

2007 1 MT 

Reinhart Gulch Parcel 

(Swamp Creek) Kootenai 1 2.5 

2007 2 SD Allen Gulch Dwellings Black Hills 1 21 

2007 4 ID 

Fairfield Housing & Elba 

Parcel Sawtooth 2 2.2 

2007 5 CA Tulelake Modoc 4 3.1 

2007 5 CA 

Los Pinos Correction Camp 

Phase II Cleveland 43 13 

2007 5 CA Lopez Canyon Angeles 26 40 

2007 6 WA Snoqualmie Pass (Fire Hall) 

Mt. BakerSnoqualmie 8 9 

2007 6 OR 

Summit RD Compound (Gov 

Camp) Mt. Hood 3 3 

2007 6 OR Camp Cody/ Rock Creek Mt. Hood 2 10 

2007 6 OR Dufur Ranger House Mt. Hood 2 0.5 

2007 6 OR Roseburg Service Center Umpqua 4 2.9 

2007 6 WA Liberty Ranger Station 

OkanoganWenatchee 4 3 

2007 8 AL Elliott Work Center NFs in Alabama 6 2 

2007 8 VA 

Konnarock Girls School (3 

buildings) 

George WJefferson 9 10 

2007 9 MN Swede Hill Chippewa 8 110 

 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-23 Purchaser Election Roads 

Budget Line Item Timber Purchaser Election Road 

Construction

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Budget Budget FY 2007 

Timber Roads--Purchaser Election Program 

 New Budget Authority ($000) $6,800 $4,000 $4,000 $0

 Program Level ($000) $2,078 $4,000 $4,000 $0

Full Time Equivalents (FTEs) 1 10 10 0 

Authorities 

P.L. 94-588, 90 Stat. 2949, as amended; the National Forest Management Act of 1976;

16 U.S.C. 472a(i)).

Program Description 

The Purchaser Election program supports construction of roads included as “specified 

roads” in timber sale contracts. When a timber sale is sold to a qualifying small business, 

the law allows the purchaser to pay the Forest Service to construct or reconstruct 

permanent roads or bridges required by the timber sale contract. The agency contracts 

for the construction work and administers the contract. To qualify for this program, a 

timber purchaser must be a small business and the estimated cost of road construction and 

reconstruction must exceed $50,000. Based on past use, an estimated 2 to 20 miles of 

road may be constructed, and an estimated 10 to 100 miles of road may be reconstructed. 

FY 2008 Plans 

• An estimated 15 miles of road construction. 

• An estimated 40 miles of road reconstruction. 

FY 2007 Program 

 

• An estimated 15 miles of road construction. 

• An estimated 40 miles of road reconstruction. 

FY 2006 Accomplishments 

• Constructed 13.7 miles of roads. 

• Reconstructed 47.5 miles of roads. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-24 Timber Salvage Sales 

Budget Line Item Timber Salvage Sales 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Budget Budget FY 2007 

Timber Salvage Sales 

 New Budget Authority ($000) $66,963 $66,000 $67,000 $1,000

 Program Level ($000) $75,846 $74,800 $74,000 -$800

Full Time Equivalents (FTEs) 605 523 530 7 

 Change 

 FY 2006 FY 2007 FY 2008 FY 2008 vs

Annual Output Measure Plan Actual Plan Plan FY 2007 

Number of Planned Salvage Timber 

Sales* 211 570 --- --- n/a

Prepare Salvage Timber Sales 

(Hundred Cubic Feet - CCF)** 1,336,245 1,862,175 --- --- n/a

Hundred cubic feet (CCF) of salvage 

timber volume sold*** --- --- 1,300,000 2,275,000 975,000

Hundred cubic feet (CCF) of salvage 

timber volume harvested  854,903 See note** ** 812,000 1,530,000 718,000

* Activity not tracked after 2006. 

** Plan increase above previously displayed amount due to Hurricane Katrina program. Output not tracked 

after FY 2006. 

*** New output measure starting in 

FY 2007 

**** Output "Administer Salvage Timber Sales (Hundred Cubic Feet)" redefined after FY 2006. Actual 

accomplishments are included within Forest Products 

FY 2008 Program Changes 

The FY 2008 budget authority for the Timber Salvage Sales program will be $67 million 

with program expenditures expected to be $74 million. Program expenditures would 

have an $800,000 decrease from the FY 2007 program level. 

Program Description 

The National Forest Management Act of 1976 (16 U.S.C. 472a(h)) authorizes the 

Secretary of Agriculture to require purchasers of salvage timber to make monetary 

deposits, as a part of the timber sale contract, to cover costs for environmental analysis, 

timber sale preparation, and administration of the timber purchaser’s harvesting activities 

on future salvage timber sales. Salvage funds can also be used for engineering support 

(i.e., transportation planning, design, and contract administration) for necessary road 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-25 Timber Salvage Sales 

maintenance, reconstruction, or construction. Deposits of money are available until 

expended. 

The Forest Service uses timber salvage sales as a tool to restore, maintain, and improve 

the health of forestland ecosystems. Removing damaged, diseased, or insect-infested 

forest vegetation is effective in recovering some timber value while reducing the potential 

for catastrophic wildland fire and other hazards associated with dead or dying timber. 

Independent Reviews 

GAO Audit No. 360702, Forest Service Timber Sales, begun April 2006, is still ongoing. 

Congressional Reports 

The Senate Interior Appropriations Subcommittee Report for FY 2006 continues the 

directive requiring the Forest Service to prepare and submit quarterly reports on the 

timber sales program, specifically identifying the volumes that are offered, sold, and 

harvested. The fourth quarter FY 2006 report was completed in December 2006. 

FY 2008 Plans 

The agency anticipates the opportunity to sell approximately 2,275,000 CCF (about 1,137 

MMBF) of salvage volume. The Forest Service estimates a dramatic increase in salvage 

sales in FY 2008 due to in the number and severity of catastrophic events including 

wildland fires and noxious pests and diseases. In addition, the agency anticipates that 

additional salvage volume would be obtained through increased focus on stewardship 

end-result contracting to accomplish hazardous fuels reduction treatments. 

FY 2007 Program 

The agency plans to sell approximately 1,300,000 CCF (about 650 MMBF) of salvage 

volume. 

 

FY 2006 Accomplishments

The agency sold 1,862,175 CCF (974 MMBF) of salvage volume. Approximately 

545,000 CCF (about 303 MMBF) was timber salvaged in Mississippi as a result of 

Hurricane Katrina, plus almost 120,000 CCF (about 60 MMBF) additional volume 

resulting from Hurricane Rita damage in Texas. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-26 Stewardship Contracting 

Budget Line Item Stewardship Contracting 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Budget Budget FY 2007 

Stewardship Contracting 

 New Budget Authority ($000) $3,631 $6,000 $6,000 $0

 Program Level ($000) $1,015 $3,500 $4,700 $1,200

Full Time Equivalents (FTEs) 2 0 0 0 

Authorities 

Section 347 of the Department of the Interior and Related Agencies Appropriations Act, 

1999 (as contained in section 101(e) of division A of Public Law 105-277; 16 U.S.C. 

2104 Note), as amended by Section 323 of the Department of the Interior and Related 

Agencies Appropriations Act, 2003 (as contained in division F of Public Law 108-7; 16 

U.S.C 2104 Note). This authority is provided through September 30, 2013. 

Program Description 

Stewardship contracting facilitates the accomplishment of various resource management 

objectives, including reduced fuels in the wildland urban interface, improved forest 

health, and enhanced wildlife habitat. These objectives are accomplished through the use 

of one or more innovative new authorities, including the application of receipts from 

timber sales towards resource work, using best value contracting and contracts that 

extend to ten years, improving efficiency through the use of “bundled” contracts. 

Collaboration with local and rural communities is an integral part of each stewardship 

contract or agreement. 

Funds described here are those generated through the sale of forest products that exceed 

the value of services provided. The national allocation of these funds is used to achieve 

land management goals that benefit local and rural community needs and that meet one of 

the seven goals contained in the law, as follows: 

1. Road and trail maintenance or obliteration to restore or maintain water quality; 

2. Soil productivity, habitat for wildlife and fisheries, or other resource values; 

3. Setting of prescribed fires to improve the composition, structure, condition and 

health of stands or improve wildlife habitat; 

4. Removing vegetation or other activities to promote healthy forests, reduce fire 

hazards, or achieve other land management objectives; 

5. Watershed restoration and maintenance; 

6. Restoration and maintenance of wildlife and fisheries habitat; and 

7. Control of noxious and invasive weeds, and re-establishment of native plant 

species. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-27 Stewardship Contracting 

Independent Reviews 

OIG Audit No. 08601-50-SF, Forest Service Stewardship Contracts, scheduled to begin 

in January 2007. 

Congressional Reports 

The agency must report annually to the Appropriations Committees of the U.S. House 

and Senate on: 1) the status of development, execution, and administration of agreements 

or contracts; 2) the specific accomplishments that have resulted; and 3) the role of local 

communities in development of contract plans. The Forest Service submitted the FY 

2005 report to Congress in November 2006. The full text of the report is available at 

http://www.fs.fed.us/forestmanagement/projects/stewardship/reports/index.shtml. 

FY 2008 Plans 

• Continue use of stewardship contracting for implementing the Healthy Forests 

Initiative and forest land management plans. 

• Continue use of stewardship contracts and agreements to reduce hazardous fuels, 

improve wildlife habitat, treat invasive species, and supply additional forest products. 

• Continue use of retained receipts to accomplish key land management goals that 

improve, maintain, and/or restore forest and rangeland health; restore and maintain 

water quality; improve fish and wildlife habitat; reestablish native plant species and 

increase their resilience to insects, disease, and other natural disturbances, and reduce 

hazardous fuels that pose risks to communities and ecosystem values on 

approximately 75 planned contracts. 

• To demonstrate the effectiveness of stewardship end result contracting, use 

performance measures within the National Fire Plan 10-Year Comprehensive 

Strategy and the Forest Service Strategic Plan. These measures are used to allocate 

funds and to select projects that utilize stewardship contracting authority. 

FY 2007 Program 

• Use stewardship contracting for implementing the Healthy Forest Initiative and forest 

land management plans. 

• Use stewardship contracts and agreements to reduce hazardous fuels, improve 

wildlife habitat, treat invasive species, and supply additional forest products. 

• Use retained receipts to accomplish key land management goals that improve, 

maintain, and/or restore forest and rangeland health; restore and maintain water 

quality; improve fish and wildlife habitat; reestablish native plant species and 

increase their resilience to insects, disease, and other natural disturbances, and reduce 

hazardous fuels that pose risks to communities and ecosystem values on 

approximately 64 planned contracts. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-28 Stewardship Contracting 

FY 2006 Accomplishments 

• Awarded stewardship contracts and agreements covering 57,500 acres, which 

included 470,000 CCF (about 235 MMBF) of timber.

• Treated 35,000 acres of wildland urban interface high priority fuels. 

• Moved 14,000 acres of hazardous fuels in fire regimes 1, 2, or 3 to a better condition 

class. 

• Improved 4,000 acres of terrestrial wildlife habitat. 

• Reconstructed 500 miles of road. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-29 Pipeline Restoration Fund 

Budget Line Item Timber Sale Pipeline Restoration Fund

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Timber Pipeline Restoration Fund 

 New Budget Authority ($000) $3,316 $4,700 $4,800 $100

 Program Level ($000) $6,519 $4,000 $4,200 $200

Full Time Equivalents (FTEs) 57 50 50 0 

Authorities 

P.L. 104-134, Omnibus Consolidated Rescissions and Appropriations Act of 1996, 

Section 327 (110 Stat. 1321-206 – 207). 

 

Program Description 

This program provides for the preparation of future non-salvage timber sales by restoring 

the timber sale preparation pipeline and reducing the backlog of unfunded recreation 

projects. 

Seventy-five percent of net receipts from qualifying first generation timber sales are 

deposited and made available for new timber sales. The remaining 25 percent of net 

receipts is allocated to the regions on a pro rata basis in line with the distribution of net 

receipts from second generation timber sales. Net receipts from qualifying second 

generation timber sales are returned to the regions from which they were generated, with 

75 percent going to new timber sale preparation and 25 percent going for recreation 

backlog projects. 

Independent Reviews 

GAO Audit No. 360702, Forest Service Timber Sales, begun April 2006, is still ongoing. 

Congressional Reports 

P.L. 104-134, Omnibus Consolidated Rescissions and Appropriations Act of 1996, 

Section 327(f) requires an annual report to the Committees on Appropriations describing 

expenditures made from the Fund, revenues received into the Fund, and timber sale 

preparation and recreation project work undertaken during the previous fiscal year and 

projected for the next fiscal year for each Forest Service region. Previous annual reports 

have been completed for fiscal years 1997 through 2005. The FY 2006 annual report will 

be submitted in March 2007. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-30 Pipeline Restoration Fund 

FY 2008 Plans 

• About 200,000 hundred cubic feet (CCF) (about 100 million board feet (MMBF)) of 

timber volume is planned for sale.

• Approximately $1.0 million in backlog recreation funding is anticipated.

• About $4.7 million in net revenues is anticipated from FY 2007 timber harvest that 

would be made available to the field. 

FY 2007 Program 

• About 175,000 CCF (about 88 MMBF) of timber volume is planned for sale.

• Approximately $1.2 million in backlog recreation projects is planned.

• Approximately $3.3 million in net revenues was collected in FY 2006 and will be 

allocated to the field. 

FY 2006 Accomplishments

• Approximately 150,000 CCF (about 75 MMBF) of timber volume was sold. 

• Over $1.5 million in recreation backlog work was accomplished. 

• Approximately $4.6 million from first and second generation timber sales was 

allocated to the field, which included $3.2 million for new timber sales and $1.4 

million for backlog recreation projects. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-31 Roads and Trails Fund

Budget Line Item Roads and Trails (10 Percent) Fund

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Roads and Trails (10 Percent Fund) 

 New Budget Authority ($000) $15,268 $15,300 $15,300 $0

 Program Level ($000) $15,035 $15,300 $15,300 $0

 Full Time Equivalents (FTEs) 56 70 70 0 

Authorities 

P.L. 62-430, Ch. 147, 37 Stat. 843, as amended; Act of March 4, 1913 (16 U.S.C. 501).

Program Description 

 

Under the Act, 10 percent of national forest receipts 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 (NFS) lands. 

In FY 1999, the authority was expanded with the Omnibus Appropriations Act (P.L. 105-

277, General Provision 332) to make use of deposited funds for the purpose of improving 

forest health conditions, including repair or reconstruction of roads and bridges on NFS 

lands in the wildland-urban interface. The projects shall emphasize reducing human 

safety and public health risk and property and enhancing ecological functions, long-term 

forest productivity, and biological integrity. 

As in previous years, these funds will be directed towards correcting road and trail 

deficiencies that are adversely affecting ecosystems. Projects include sediment reduction 

and re-establishing fish passage. 

FY 2008 Plans 

• Continue to focus on restoration and maintenance of roads and trails that are public 

safety problems, are causing resource problems through erosion and sedimentation, or 

are obstructing the passage of fish and other aquatic organisms. 

• Priority will be given to projects in heavily used watersheds. 

FY 2007 Program 

• Restore and maintain roads and trails that are public safety problems, causing 

resource problems, or obstructing the passage of fish and aquatic organisms. 

• Priority will be given to projects in heavily used watersheds. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-32 Roads and Trails Fund

FY 2006 Accomplishments 

• Constructed 4.3 miles of roads. 

• Reconstructed 421 miles of roads. 

• Reconstructed 5 bridges. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-33 Midewin Rental Fee Fund

Budget Line Item Midewin National Tallgrass Prairie 

Rental Fee Fund 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Midewin Tallgrass Prairie--Rental Fees 

 New Budget Authority ($000) $357 $400 $400 $0

 Program Level ($000) $325 $375 $375 $0

 Full Time Equivalents (FTEs) 1 1 1 0 

Authorities 

The Illinois Land Conservation Act of 1995 (Title XXIX of P.L. 104-106), Section 

2915(c). 

Program Description 

The Illinois Land Conservation Act of 1995 established the Midewin National Tallgrass 

Prairie (MNTP), to be managed as part of the National Forest System. Under section 

2915(c) of the Act, after appropriate payments to the State of Illinois and Will County, 

receipts from rental fees for use of MNTP land for agricultural purposes can be used to 

cover the cost of restoration, prairie improvement, and administrative activities. 

FY 2008 Plans 

• Continue restoration and management of more than 1,400 acres of prairie and wetland 

habitat. 

• Maintain native plant communities and grassland bird habitat by managing cattle 

grazing and by controlling invasive species and noxious weeds. 

• Continue production of native plant seed for restoration projects. 

• Collect agriculture receipts for deposit into rental fee account. 

FY 2007 Program 

• Complete construction of the greenhouse facility. 

• Convert 160 acres of row crops to grassland bird habitat. 

• Restore and manage 1,400 acres of prairie and wetland habitat. 

• Maintain native plant communities and grassland bird habitat. 

• Produce and collect native plant seed for restoration projects. 

• Collect receipts from agriculture use for deposit into rental fee account. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-34 Midewin Rental Fee Fund

FY 2006 Accomplishments 

• Restored and managed approximately 1,200 acres of prairie and wetland habitat. 

• Controlled invasive species and noxious weeds on 3,000 acres to maintain native 

plant communities and grassland bird habitat. 

• Constructed, repaired, and maintained fencelines to manage cattle for grassland bird 

habitat and protect native plant seed production area. 

• Collected over $300,000 in agriculture use revenues from 3,724 acres of row crops 

and 4,543 acres of pasture for cattle grazing. 

• Completed installation of seed processing equipment; collected and processed native 

seed for restoration projects. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-35 Midewin NTP Restoration Fund

Budget Line Item Midewin National Tallgrass Prairie 

Restoration Fund 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Budget Budget FY 2007 

Midewin Tallgrass Prairie--Restoration Fund 

 New Budget Authority ($000) $0 $10 $0 -$10

 Program Level ($000) $0 $0 $0 $0

Full Time Equivalents (FTEs) 0 0 0 0 

Authorities 

P.L. 104-106, Title XXIX, Section 2915(f) of The Illinois Land Conservation Act of 1995. 

Program Description 

 

Receipts from user fees, sales of surplus equipment, and the salvage value proceeds from 

the sale of any facilities and improvements can be used to cover the cost of restoration; 

construction of a visitor center, recreational facilities, and administrative office; prairie 

improvement; and operation and maintenance activities. 

Salvage opportunities anticipated by the legislation have not materialized; less than 

$4,000 has been generated over the past 10 years. No expenditures have been made from 

this account since its creation. 

FY 2008 Plans 

Midewin will continue to seek opportunities to salvage Army infrastructure to generate 

revenues for this fund. 

 

FY 2007 Program 

Midewin is continuing to seek opportunities to salvage Army infrastructure to generate 

revenues for this fund. 

FY 2006 Accomplishments 

Several power poles were removed to improve scenic integrity of areas open to the 

public, generating less than $500. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-36 Quarters Maintenance 

Budget Line Item Operation and Maintenance of Quarters 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Operations and Maintenance of Quarters 

 New Budget Authority ($000) $7,819 $8,000 $8,000 $0

 Program Level ($000) $6,504 $9,400 $8,000 -$1,400

Full Time Equivalents (FTEs) 32 28 27 -1 

Authorities 

P.L. 98-473, The Department of the Interior and Related Agencies Appropriations Act of 

1985, Sec. 101(c), as amended (5 U.S.C. 5911). 

Program Description 

This Act authorizes the collection of rental income from employees living in government 

owned housing. The funds remain available until expended, for maintenance, operation, 

and management of employee housing facilities, including associated utility systems. 

For the purpose of this appropriation, maintenance is defined as all types of maintenance 

to a structure or building including any government-owned property and appliances 

integral to the facility. The fund does not cover betterments, additions, or replacement 

construction, or new construction. This fund is used for inspection, management, and 

direct maintenance of the quarters and associated utility systems, access ways, and other 

improvements common to the residential community. This fund may also be used to pay 

the rental costs for leased facilities, including utilities. 

The collected funds are used in addition to the facilities multi-program assessment to 

operate and maintain employee housing, furthering the agency’s goal of providing 

effective public service. Funds are focused first on health and safety issues. Water 

systems for employee housing are generally the highest priority with available funds. 

FY 2008 Plans 

Funds will continue to provide operation and maintenance of employee housing. The 

funds will be directed towards health and safety issue, such as asbestos, radon, lead-based 

paint, access for disabled persons, and energy and water system conservation. The 

agency expects to collect approximately $8 million in FY 2008. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-37 Quarters Maintenance 

FY 2007 Program 

Funds will continue to provide operation and maintenance of employee housing. The 

funds will be directed towards health and safety issues, such as, access for disabled 

persons, and energy and water system conservation. The agency expects to collect 

approximately $8 million in FY 2007. 

FY 2006 Accomplishments 

Funds in the amount of $6.5 million were used to provide operation and maintenance of 

employee housing. The funds were directed towards health and safety issues such as 

asbestos, radon, lead-based paint, access for disabled persons, and energy and water 

system conservation. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-38 LBL Management Fund

Budget Line Item Land Between the Lakes Management Fund 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Land Between the Lakes Management Fund 

 New Budget Authority ($000) $3,552 $3,500 $3,700 $200

 Program Level ($000) $3,453 $3,500 $3,700 $200

Full Time Equivalents (FTEs) 18 18 18 0 

FY 2008 Program Changes 

The FY 2008 budget request for Land Between the Lakes Management Fund is $3.7 

million, a net program change of -$0.2 million from the FY 2007 Estimate. 

Authorities 

P. L. 105-277, Land Between the Lakes Protection Act of 1998, (112 Stat. 2681-310. 

Program Description 

In accordance with the Land Between the Lakes (LBL) Protection Act of 1998, in FY 

2000, responsibility for LBL National Recreation Area transferred from the Tennessee 

Valley Authority (TVA) to the Secretary of Agriculture. The Protection Act called for 

LBL to be managed as a unit of the National Forest System (NFS) and for the 

establishment of the LBL Advisory Board to advise the Secretary on means of promoting 

public participation for the land and resource management plan for the Recreation Area 

and environmental education. 

LBL program management emphasizes providing public recreational opportunities, 

conserving fish and wildlife and their habitat, providing for diversity of native and 

desirable non-native plants and animals, offering opportunities for hunting and fishing, 

and environmental education. LBL hosts an average of 2 million visits each year from 

people who come from all over the Nation and more than 30 foreign countries. 

Section 524 of the Act established a special fund known as the “Land Between the Lakes 

Management Fund.” All amounts received from charges, use fees, and natural resource 

use, including timber and agricultural receipts, are deposited into the management fund. 

Amounts in the fund are available for management of LBL, including payment of salaries 

and expenses. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-39 LBL Management Fund

FY 2008 Plans 

• Begin analysis of short-leaf pine ecosystem area in Tennessee portion of LBL. 

• Analyze and design potential replacement of deteriorated buildings at Intern Village. 

• Implement a new refuge management plan and forest management treatments for the 

Long Creek area of the Northern Oak Grassland Area. 

• Implement travel management rule by completing motor vehicle use map. 

• Continue to work closely with the Federal Highway Administration and the Kentucky 

Transportation Cabinet improvements to U.S. 68/80. 

• Collaborate with the public to develop a plan for consolidation of dispersed recreation 

sites in an effort to improve efficiency and amenities for visitors. 

• Develop the Environmental Management System (EMS) for the LBL’s forest plan as 

directed by the national planning schedule. 

FY 2007 Plans 

• Complete the transition of the Turkey Bay off-highway vehicle area to a designated 

trail system through restoration projects and signing. 

• Expand forest management treatments in oak-grassland demonstration area through 

completion of the Prior Creek environmental assessment (EA). 

• Complete the National Environmental Policy Act (NEPA) analysis on Continued 

Maintenance of Open Lands and issue new long term authorizations. 

• Complete two additional large scale prescribed fire treatments on nearly 5,000 acres. 

• Coordinate with the Federal Highway Administration and the Kentucky 

Transportation Cabinet to develop the four lane highway improvements to U.S. 68/80. 

• Complete an Environmental Education Strategic Plan, with the LBL Advisory Board. 

• Conduct a fee review at LBL’s developed recreation and environmental education 

sites, benchmarking LBL’s user fees against regional and national industry standards. 

FY 2006 Accomplishments

• Continued implementation of the Land and Resource Management Plan (LMP). 

• Implemented oak-grasslands vegetation treatments at Fox Ridge. 

• Began evaluation of potential consolidation of dispersed recreation sites in an effort 

to improve efficiency and amenities that customers desire 

• Developed of a Recreation Facility Master Plan. 

• Completed the first aerial ignition prescribed fire treatment at LBL, providing total 

fuels reductions treatments on over 3,600 acres. 

• Conducted a salvage sale for approximately 100 acres of tornado-damaged timber. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-40 Administration of Rights-of-Ways 

 and Other Uses

Budget Line Item Administration of Rights-of-Way and 

Other Land Uses 

 (dollars in thousands) 

 FY 2008

 FY 2006 FY 2007 FY 2008 vs 

 Final Budget Budget FY 2007

Administration of Rights-of-Way and Other Land Uses 

 New Budget Authority ($000) $884 $4,300 $4,600 $300

 Program Level ($000) $384 $4,400 $4,500 $100

Full Time Equivalents (FTEs) 5 25 25 0

Authorities 

Numerous Federal statutes authorize the Secretary of Agriculture to assess and collect 

fees from applicants for, and holders of, special use authorizations. These fees pay for 

the agency’s administrative costs to process applications for, and monitor, such 

authorizations. These authorities include the Independent Offices Appropriations Act of 

1952, Mineral Leasing Act of 1920, as amended (in 1973), Federal Land Policy and 

Management Act of 1976. In addition, specific legislation authorizing the 

implementation of each program within this account is as follows: 

Special Use Application and Permit Monitoring Fees- P.L. 106-113, Interior and Related 

Agencies Appropriations Act, 2000, Section 331 (113 Stat. 1501A-196 - 197), as amended 

by P.L. 108-447, Consolidated Appropriations Act, 2005, Division E, Section 345 (118 

Stat. 3105 ) and P.L. 109-54, Interior, Environment and Related Agencies Appropriations 

Act, 2006, Section 425 (119 Stat. 555) 

Commercial Filming Special Uses Land Rent – P.L. 106-206, An Act to allow the 

Secretary of the Interior and the Secretary of Agriculture to establish a fee system for 

commercial filming activities on Federal land, and for other purposes. May 26, 2000 

(114 Stat. 314–315)

Organizational Camp Fees - P.L. 108-7, Consolidated Appropriations Resolution, 2003, 

Title V National Forest Organizational Camp Fee Improvement Act of 2003 (117 Stat. 

294-297) 

Program Description 

 

Special Use Application Processing and Permit Monitoring Fees 

This pilot program is designed to improve customer service to applicants and holders of 

special land use authorizations and reduce the agency’s backlog of expired 

authorizations, currently at approximately 11,000. Administrative fees collected are 

known as “special uses cost recovery fees.” Interagency consistency is also established 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-41 Administration of Rights-of-Ways 

 and Other Uses

with the Bureau of Land Management, particularly in those situations involving projects 

that occupy Federal lands managed by both agencies. 

The Forest Service published the final rule for the cost recovery pilot program on 

February 21, 2006 (71 F.R. 8892). Based on the final regulations, the agency initiated 

training for employees to ensure that line officers, special use administrators, and cost 

appraisers had the necessary skills to implement the pilot program on their units. The 

authority for this program has been extended through September 30, 2007. 

Commercial Filming Special Uses Land Rent 

This program authorizes the Forest Service to collect administrative fees to process 

applications and monitor still photography and commercial filming under special use 

authorizations in accordance with the formula and purposes established for the 

Recreation Fee Demonstration Pilot Program authorized under P.L. 104-134. All land 

use fees collected and costs recovered remain at the site where collected and are available 

until expended. The distribution and use of the land use fees retained is as follows: 

• Eighty percent of land use fees from still photography and commercial filming 

activities will primarily be used for managing these activities and streamlining 

issuance of commercial use authorizations. 

• Ten percent of land use fees from still photography and commercial filming 

authorizations will be used to cover the unit’s cost of collecting still photography and 

commercial filming land use fees. 

• Ten percent of land use fees from still photography and commercial filming 

authorizations will be used in developing policies and procedures for the management 

of these activities. Half of these fees (5 percent) will be available to the regional 

forester and the other half (5 percent) to the Washington Office. 

 

Organizational Camp Fees 

This program allows the Forest Service to establish a land use fee system that provides 

for an equitable return to the Federal Government for the occupancy and use of National 

Forest System lands by organizational camps that serve young people or individuals with 

a disability. The fees collected for organizational camp activities are available until 

expended for program administration, monitoring special use authorizations, interpretive 

programs, environmental analysis and restoration activities, and similar purposes. 

Organizations such as Boy Scouts, Girl Scouts, and faith-based and community-based 

groups obtain national forest land use permits to conduct camp sessions for young people 

or disabled persons. 

Congressional Reports 

P.L. 106-113, 2000 Interior and Related Agencies Appropriations Act, Section 331 (d) – 

Directs the Forest Service to provide a report, prior to the expiration of the pilot 

authority, which evaluates whether the use of the funds resulted in more expeditious 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-42 Administration of Rights-of-Ways 

 and Other Uses

approval of rights-of-way and special use authorizations. The report must include a 

recommendation for statutory or regulatory changes to reduce the average processing 

time for rights-of-way and special use permit applications. A report will be prepared by 

the agency at the end of FY 2007 evaluating the first full year of program 

implementation.

FY 2008 Plans 

• Continue to implement the special uses cost recovery regulations at all administrative 

units, with the goal of demonstrating measurable improvement in the timely 

processing of proposals and applications. 

• Implement the national fee schedule for commercial filming and still photography. 

• Collections are expected to increase $300,000 from the FY 2007 level. 

FY 2007 Program 

• In coordination with the Department of the Interior, publish the national fee schedule 

for commercial filming and still photography. 

• Develop national guidelines for commercial filming activities in wilderness areas. 

• Collections are expected to increase $3.4 million from the FY 2006 level. 

FY 2006 Accomplishments 

• Published rules and regulations, including completion of the training manual, to 

implement cost recovery for the administration and monitoring of special use 

authorizations on NFS land. 

• Revised the agency’s Special Use Data System (SUDS) to provide the capability to 

implement the billing of cost recovery fees, track established customer service 

standards, and generate cost recovery agreements. 

• Coordinated with the Department of the Interior to draft a proposed national fee 

schedule for commercial filming and still photography on NFS lands. 

• Collected $884,000 in program receipts. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-43 Forest Botanical Products

Budget Line Item Forest Botanical Products

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Budget Budget FY 2007 

Forest Botanical Products 

 New Budget Authority ($000) $867 $1,900 $1,900 $0

 Program Level ($000) $810 $1,800 $1,900 $100

Full Time Equivalents (FTEs) 9 10 10 0 

Authorities 

P.L. 106-133, Section 339 of the Omnibus Consolidated Appropriations Act of FY 2000 

as amended by P.L. 108-108, Section 335 of the Interior and Related Agencies 

Appropriations Act of FY 2004. 

Program Description 

The Omnibus Act authorized a pilot program, through FY 2010 for the sale and harvest 

of forest botanical products. The objectives of the pilot program are to maintain, 

enhance, or restore forest ecosystems to desired conditions; and to provide for the sale 

and harvest of forest botanical products within the capability of ecosystems in a manner 

that complies with environmental standards and contributes to meeting the Nation’s 

demand for these goods and services. 

This authority provides a mechanism for funding environmental analyses and 

administrative tasks (inventory, analysis, sustainability determination for harvest levels, 

permit issuance and administration, and monitoring) to facilitate the botanical products 

pilot program. The Act requires the Forest Service to charge and collect a portion of the 

fair market value of the harvested forest botanical products. In addition, the Act also 

requires the Forest Service to charge and collect a portion of the costs associated with 

granting, modifying, or monitoring the authorization for harvest of the forest botanical 

products. Examples of forest botanical products include bark, needles, cones, 

mushrooms, wildflowers, roots, Christmas trees, etc. 

Funds collected under this authority through FY 2009 will be placed in a designated 

account. The Act specifies that retained funds shall be available, without further 

appropriation, for expenditure on environmental analysis and administrative tasks 

through September 30, 2010. These deposits may only be expended on units of the 

National Forest System in proportion to the charges and fees collected at each unit. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-44 Forest Botanical Products

FY 2008 Plans

• In FY 2008, the Forest Service will have a small increase in this program that reflects 

the collections from the year before. Each forest will develop a management plan for 

botanical products that can be harvested on a sustainable basis. 

FY 2007 Program 

• The pilot program will be fully implemented with collections and expenditures for the 

elements authorized by the Act. 

• Full implementation of regulations is expected after public review. 

FY 2006 Accomplishments

• Regulations were drafted for the sale and harvest of forest botanical products along 

with an update of the Forest Service handbook to accompany the new regulations. 

• Collected revenues of approximately $867,000. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-45 Valles Caldera Fund

Budget Line Item Valles Caldera Fund 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Final Estimate Budget FY 2007 

Valles Caldera Fund 

 New Budget Authority ($000) $0 $750 $750 $0

 Program Level ($000) $110 $500 $500 $0

Full Time Equivalents (FTEs) 0 0 0 0 

Authorities 

P.L. 106-248, Valles Caldera Preservation Act of 2000 (16 U.S.C. 698v). 

Program Description 

The Act provided for the acquisition of the Baca Ranch located in the Jemez Mountains 

of New Mexico, designated the acquired lands as the Valles Caldera National Preserve 

(the “Preserve”), and created the Valles Caldera Trust (the “Trust”) to manage the 88,900 

acre tract as part of the National Forest System. The Preserve was established to protect 

and preserve the scientific, scenic, geologic, watershed, fish, wildlife, historic, heritage, 

and recreational values of the Preserve, and to provide for multiple use and sustained 

yield of renewable resources within the Preserve. In addition, the Act requires the tract to 

continue to be managed as an operating ranch. 

The Preserve is managed by the Trust, a government corporation subject to the 

Government Corporation Control Act. The purposes of the Trust are to: 

• Provide management and administrative services for the Preserve. 

• Establish and implement management policies that will best achieve the purposes and 

requirement of the Valles Caldera Preservation Act. 

• Receive and collect funds from private and public sources and to make disposition in 

support of the management and administration of the Preserve. 

• Cooperate with Federal, State, and local governments, along with Indian tribes and 

Pueblos to further the purposes for which the Preserve was established. 

The Trust prepares annual budgets with the goal of achieving a financially self-sustaining 

operation within 15 full fiscal years after the date of acquisition of the Preserve, which 

took place on July 25, 2000. The Trust, having assumed management of the Preserve in 

August 2002, has developed a comprehensive management plan for the Preserve. To 

facilitate financial independence, the Act also created the Valles Caldera Fund (the 

“Fund”), an interest-bearing account to hold and manage Preserve receipts. The Fund 

will be available without further appropriations for any purpose consistent with 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-46 Valles Caldera Fund

management of the Preserve. All monies received from the management and operation of 

the Preserve, notwithstanding 31 U.S.C. 1341 and 3302, will be retained and 

consequently available without further appropriation for the administration, preservation, 

restoration, operation, maintenance, improvement, repair, and related expenses under the 

Trust’s management jurisdiction. 

The Act allows for a variety of approaches to generate revenue for the Fund in support of 

the management and administration of the Preserve and to carry out the duties of the 

Trust. The Trust will strive to optimize the generation of income based on existing 

market conditions and program development, while not unreasonably diminishing the 

long-term scenic and natural values of the preserve or the multiple use and sustained 

yield capabilities of the land. 

Fund revenue options include: 

• Accepting individual, foundation, and corporate donations; 

• Collecting funds from public and private sources; 

• Collecting appropriate fees for livestock grazing, forest products, filming, etc.; and 

• Charging reasonable admission fees, use and occupancy fees, and recreational activity 

fees implemented after public notice and a period of not less than 60 days for public 

comment. 

Congressional Reports 

The Valles Caldera Preservation Act requires the Trust to report to Congress on an annual 

basis. The FY 2005 report was submitted in January 2006. Work has begun on the State 

of the Preserve Report which is due in August 2007. 

FY 2008 Plans 

• Continue collection of receipts for the Trust. An estimated $750,000 in receipts will 

be collected from management and operation of the Preserve. 

• Increase public access and use of receipts for recreation. 

• Increase commercial sales of retail items for revenue generation. 

• Use the Fund for the deposit and expenditure of funds collected from recreational and 

other uses of the Preserve, such as filming, to accomplish the following: 

o Rehabilitate two historic cabins on the Preserve for public overnight use. 

o To purchase branded products, such as books, maps, and clothing to sell to the 

public 

o To hire one seasonal guest-services manager to oversee public lodging 

facilities on the Preserve. 

FY 2007 Program 

• Continue collection of receipts for the Trust. An estimated $750,000 in receipts will 

be collected from management and operation of the Preserve. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-47 Valles Caldera Fund

• Improve public access and use of receipts for enhanced recreational opportunities. 

• Conduct commercial sales of retail items for revenue generation. 

• Use the Fund for the deposit and expenditure of funds collected from recreational and 

other uses of the Preserve, such as filming, to accomplish the following: 

o Upgrade and repair kitchen and heating systems in the lodge and bunkhouse to 

support public use. 

o Purchase branded products, such as books, maps, and clothing to sell to the 

public. 

o Hire one seasonal guest-services manager to oversee public lodging facilities 

on the Preserve. 

FY 2006 Accomplishments 

• A total of $735,250 in receipts was collected from donations, recreational and other 

uses of the Preserve. 

• The amount of $62,645 was expended to cover a portion of the staff salaries in the 

public recreation program, and to purchase branded products, such as books, maps, 

and clothing sold to the public. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-48 Payment Funds 

Revised February 23, 2007 

Payment Funds 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Actual Estimate Budget FY 2007 

Payments and Transfers from National Forest Fund 

 Payment to Minnesota $2,101 $2,101 $2,100 -$1

 Payments to States, Act 1908 $6,657 $6,385 $81,688 $75,303

 SRS Act of 2000* 

 Payments to States, Title I and III $75,367 $139,841 $0 -$139,841

 Transfers to Forest Service, Title II $33,642 $32,259 $0 -$32,259

Full Time Equivalents (FTEs) 122 111 0 -111 

 

Payments from Treasury 

 SRS Act of 2000* 

 Payments to States Titles I & III $295,916 $236,874 $0 -$236,874

Payments from National Grasslands and Land 

 Utilization Projects 

 Payments to Counties $14,085 $13,600 $14,000 $400

Payments and Transfers $427,768 $431,060 $97,788 -$333,272

Full Time Equivalents (FTEs) 122 111 0 -111

* Secure Rural Schools and Community Self-Determination Act of 2000 

Payment to Minnesota

Authorities 

The Thye-Blatnick Act of June 22, 1948, as amended (16 U.S.C. 577g; P.L. 80-733), Payment for 

Additional Lands Acquired in Northern Minnesota 

Program Description 

The Act directed the Secretary of Agriculture to acquire resorts, cabins, and private lands within 

the Boundary Waters Canoe Area Wilderness and prohibits permanent residents after 1974. The 

Act also provides for in-lieu-of-tax payments 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. The last 

appraisal reports were prepared with a date of value of May 14, 1998 for 808,874 acres. New 

appraisals will be required in 2008. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-49 Payment Funds 

Payments to Counties—National Grasslands Fund 

Authorities 

Title III of the Bankhead-Jones Farm Tenant Act of July 22, 1937, as amended (7 U.S.C. 

1012). 

Program Description 

This Act authorizes an annual payment to counties which contain Forest Service lands 

that were acquired under the Bankhead-Jones Act. 

Twenty-five percent of the revenues received during the year (excluding receipts from the 

sale of land) from each national grassland or land utilization project are paid to the 

counties in which such lands are located. The funds are restricted to uses that benefit 

public schools and roads. 
FY 2008 Budget Justification USDA Forest Service

Permanent Appropriations 15-50 Payment Funds 

Payments to States 

Authorities 

Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393).

This authorization expired on September 30, 2006. 

The Act of May 23, 1908, as amended (16 U.S.C. 500; P.L. 60-136) Payment for Receipts 

for Schools and Roads, also referred to as the Twenty-five Percent Fund Act. 

Program Description

With few exceptions, 25 percent of all moneys received from the national forests during 

the fiscal year are paid to States in which the forests are located. These payments benefit 

public schools and roads in the county or counties within the national forests. (16 U.S.C. 

500). 

Congressional Reports 

Section 320 of the FY 2001 appropriations act for the Department of the Interior and 

Related Agencies (P.L. 106-291) established the Advisory Committee on Forest Counties 

Payments. The Advisory Committee is required to monitor the payments made to States 

under the Secure Rural Schools Act and related laws, and submit to the committees of 

jurisdiction an annual report describing the amounts and sources of such payments and 

containing such comments as the Advisory Committee may have regarding such 

payments. The Advisory Committee’s final report is due to the committees after the close 

of FY 2007. 

FY 2008 Plans

Payments will be made under the 1908 Act, based on the Forest Service revenues 

received in FY 2007. 

FY 2007 Program 

Final payments were made under the Secure Rural Schools Act. For those counties not 

opting into the Secure Rural Schools, payment was made as prescribed by the 1908 Act, 

based on FY 2006 receipts at the beginning of FY 2007. 

FY 2006 Accomplishments 

Full payments were made to counties opting into Secure Schools full payments based on 

revenues received in FY 2005. Counties not opting into the Secure Schools act were paid 

based on the 1908 Act. See Three Year Receipts by Source and Payments to States Table

in the Overview/Highlights chapter. 
Trust Funds 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-1 

Forest Service Trust Funds 

Trust Funds Increase or Decrease Program 

 Appropriation FY 2006 FY 2007 Pay & Other Cost Program FY 2008 Change 

(Dollars in Thousands) Final Estimate Cost Changes Reductions Changes Budget Percent 

Enacted Budget Authority 

Annual Appropriations (Receipts) $150,825 $153,270 $2,472 $0 $4,548 $160,290 3% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $150,825 $153,270 $2,472 $0 $4,548 $160,290 3% 

Full Time Equivalents (FTEs) 1,563 1,320 -207 1,113 

Forest Service Trust Funds 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Enacted Estimate Budget FY 2007 

Cooperative Work: Knutson-Vandenberg (KV) 

 New Budget Authority ($000) $77,584 $75,000 $75,000 $0 

 Program Level ($000) $72,845 $98,800 $77,000 -$21,800 

 Full Time Equivalents (FTEs) 1,170 909 692 -217 

Cooperative Work: KV Regional Work 

 New Budget Authority ($000) --- --- --- 

 Program Level ($000) $87,674 $57,200 $25,000 -$32,200 

 Full Time Equivalents (FTEs) 0 0 0 0 

Cooperative Work: Other 

 New Budget Authority ($000) $42,985 $48,000 $55,000 $7,000 

 Program Level ($000) $38,677 $45,000 $53,000 $8,000 

 Full Time Equivalents (FTEs) 214 236 251 15 

Subtotal: Cooperative Work 

 New Budget Authority ($000) $120,569 $123,000 $130,000 $7,000 

 Program Level ($000) $199,196 $201,000 $155,000 -$46,000 

 Full Time Equivalents (FTEs) 1,384 1,145 943 -202 

Land Between the Lakes 

 New Budget Authority ($000) $256 $270 $290 $20 

 Program Level ($000) $86 $80 $75 -$5 

 Full Time Equivalents (FTEs) 1 0 0 0 

Reforestation Trust Fund 

 New Budget Authority ($000) $30,000 $30,000 $30,000 $0 

 Program Level ($000) $30,572 $30,000 $30,000 $0 

 Full Time Equivalents (FTEs) 178 175 170 -5 

TRUST FUNDS APPROPRIATIONS 

 New Budget Authority ($000) $150,825 $153,270 $160,290 $7,020 

 Program Level ($000) $229,854 $231,080 $185,075 -$46,005 

 Full Time Equivalents (FTEs) 1,563 1,320 1,113 -207 

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget Authority is higher due to unobligated 

prior-year receipts. 

Program Level: Actual balance of obligations in FY 2006 and planned obligations for FY 2007 and FY 2008. 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-2 Knutson Vandenberg Fund 

Budget Line Item Cooperative Work Trust Fund – 

Knutson-Vandenberg (K-V) Fund 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Enacted Estimate Budget FY 2007 

Cooperative Work: Knutson-Vandenberg (KV) 

 New Budget Authority ($000) $77,584 $75,000 $75,000 $0

 Program Level ($000) $72,845 $98,800 $77,000 -$21,800

 Full Time Equivalents (FTEs) $1,170 $909 $692 -$217

Cooperative Work: KV Regional Work 

(12X8028) 

 New Budget Authority ($000) --- --- --- 

 Program Level ($000) $87,674 $57,200 $25,000 -$32,200

 Full Time Equivalents (FTEs) 0 0 0 0

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget Authority 

is higher due to unobligated prior-year receipts. 

Program Level: Actual balance of obligations, including the use of previously unobligated balances, in FY 

2006 and planned obligations for FY 2007 and FY 2008.

Authorities 

Act of June 6, 1930 (P. L. 71-319, Ch. 416, 46 Stat. 527, as amended; 16 U.S.C. 576, 

576a-576b, as amended; and P. L. 109-54, Sec. 412). 

Program Description 

 

The Knutson-Vandenburg (K-V) fund is derived from timber sale receipts and are used 

for a variety of projects, including: reforestation; timber stand improvement (TSI) 

practices to enhance stand productivity, promote the restoration, maintenance, or 

improvement of a variety of forestland ecological conditions, and maintain biological 

diversity; and protection and improvement of all other resource values on timber sale 

areas, including wildlife, soil, watershed, range, and recreation. The first priority for use 

of K-V funds is reforestation of harvested areas. 

Within the Forest Service region, in which a timber sale occurs, K-V can be used to 

perform watershed restoration; improve wildlife habitat; control insects, disease, and 

noxious weeds or invasive plants; provide community protection activities; and maintain 

forest roads. Forest products sales are used in some cases to accomplish these authorized 

activities. In those cases, K-V would fund timber sale planning, preparation, 

administration, and/or support activities including but not limited to engineering support 

and land line location. 

Deposits for K-V funded work are made from timber sale receipts based upon Sale Area 

Improvement (SAI) plans. SAI plans describe the priorities for the use of K-V and are 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-3 Knutson Vandenberg Fund 

developed from approved environmental analyses. SAI plans illustrate the proposed 

activities and costs of the work to be completed in the timber sale area. K-V can only be 

deposited up to the amount identified in the SAI plan, or to some lesser amount on those 

timber sales where the stumpage price paid by the timber purchaser cannot fully fund KV work because of higher priority required deposits (e.g. National Forest Fund, Salvage 

Sale Fund, Timber Sale Pipeline Restoration Fund) or where there is insufficient value in 

the timber being harvested. 

FY 2008 Plans 

• Details provided in accompanying table (page 16-67) 

FY 2007 Program 

• Details provided in accompanying table (page 16-66) 

FY 2006 Accomplishments

• Reforested 63,112 acres within timber sale areas and 39,641 acres outside timber sale 

areas and completed timber stand improvements on 59,426 acres within timber sale 

areas. 

• Treated 13,791 acres of noxious weeds and invasive plants within timber sale areas 

and 59,784 acres outside timber sale areas. 

• Accomplished 110,893 acres of prescribed burning and mechanical treatments. These 

acres were treated to improve condition class and restore fire-dependent ecosystems. 

• Restored or enhanced 26,862 acres to improve a variety of terrestrial and aquatic 

habitats within timber sale areas, including structural construction for imperiled 

species, and 5,544 acres outside timber sale areas. 

• Decommissioned 18 miles or roads within timber sale areas and maintained 1,908 

miles of roads outside timber sale areas. 

The following tables display national summaries of anticipated K-V funded programs of 

work for FY 2007 and FY 2008. 
FY 2008 Budget Justification 

Trust Funds 16-4 Kn

Revised March 30, 2007 

Fiscal Year 2007 K-V Planned Program of Work 

- Timber Sale Area Projects 

National Summary 

Activity Type Acres 

Cost 

($) 

Unit 

Cost 

($) Miles 

Cost 

($) 

Unit 

Cost 

($) 

Structures Cost ($) 

Unit 

Cost 

($) 

Establish Vegetation – Reforestation * 129,081 $18,961,246 $147 Other Activities Supporting Reforestation ** 126,525 $17,678,832 $140 Establish Vegetation – Other *** 50,292 $2,386,157 $47 Improve Forest Vegetation - TSI 110,067 $25,939,932 $236 Improve Forest Vegetation - All Other 9,002 $1,139,660 $127 Improve Rangeland Vegetation 2,811 $456,000 $162 Eliminate Noxious Weeds 29,866 $3,987,573 $134 Manage Stream Habitat 90 $199,440 $2,216 600 $456,349 $761 499 $468,108 $938 Manage Lake Habitat 1,169 $259,723 $222 140 $90,109 $644 Manage Terrestrial Habitat 193,994 $15,383,949 $79 14 $104,373 $7,455 26,103 $2,136,616 $82 Improve Watershed Conditions - Soil & Water 5,445 $3,159,601 $580 69 $369,656 $5,357 94 $398,400 $4,238 CWKV - Other 20,598 $3,099,944 $151 57 $433,753 $7,610 61 $193,629 $3,174 Totals 678,940 $92,652,057 740 $1,364,131 26,897 $3,286,862 

 FY 2007 Total Cost $98,832,892

* Establish Vegetation – Reforestation - Includes site preparation for natural regeneration, certification of natural regeneration without site preparation, seeding, and plan

** Other Activities Supporting Reforestation - Includes such activities as site preparation for seeding or planting, survival and stocking surveys, and animal damage cont

*** Establish Vegetation - Other - Includes activities needed to establish non-commercial tree species or other vegetation such as shrubs and grass.   Other Unspecified Units of Measure - Includes all activities with other units of measure, such as projects, each, plans, numbers of trees, and landings. 
FY 2008 Budget Justification 

Trust Funds 16-5 KRevised March 30, 2007 

Fiscal Year 2008 K-V Planned Program of Work 

- Timber Sale Area Projects 

National Summary** *** 

Activity Type Acres 

Cost 

($) 

Unit 

Cost 

($) Miles 

Cost 

($) 

Unit 

Cost ($) 

Structures Cost ($) 

Unit 

Cost 

($) 

Establish Vegetation – Reforestation * 112,551 $16,753,150 $149 Other Activities Supporting Reforestation ** 110,060 $8,864,747 $81 Establish Vegetation – Other *** 32,415 $2,084,500 $64 Improve Forest Vegetation - TSI 79,279 $18,728,313 $236 Improve Forest Vegetation - All Other 18,267 $2,855,497 $156 Improve Rangeland Vegetation 2,699 $497,409 $184 Eliminate Noxious Weeds 28,547 $3,069,499 $108 Manage Stream Habitat 3 $2,128 $709 53 $109,226 $2,061 166 $537,775 $3,240 Manage Lake Habitat 1,111 $458,478 $413 46 $41,261 $897 Manage Terrestrial Habitat 186,944 $11,992,077 $64 13 $81,165 $6,243 24,620 $2,931,647 $119 Improve Watershed Conditions - Soil & Water 7,195 $2,138,226 $297 114 $371,743 $3,261 176 $97,476 $554 CWKV - Other 21,340 $2,110,987 $99 380 $525,385 $1,383 20 $32,282 $1,614 Totals 600,411 $69,555,011 560 $1,087,519 25,028 $3,640,441 

 FY 2008 Total Cost $76,566,369

* Establish Vegetation – Reforestation - Includes site preparation for natural regeneration, certification of natural regeneration without site preparation, seeding, and plan

** Other Activities Supporting Reforestation - Includes such activities as site preparation for seeding or planting, survival and stocking surveys, and animal damage cont

*** Establish Vegetation – Other - Includes activities needed to establish non-commercial tree species or other vegetation such as shrubs and grass.   Other Unspecified Units of Measure - Includes all activities with other units of measure, such as projects, each, plans, numbers of trees, and landings. 

** *** In FY 2006, $159 million of K-V funds were transferred for emergency wildfire suppression. If these funds are not repaid, some of this planned work may 

performed with appropriated funds. 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-6 Knutson-Vandenberg Fund 

Fiscal Year 2007 (P.L. 109-54, Sec. 412 Authority) K-V Planned 

Program of Work – Regional Projects 

National Summary 

Activity Type Acres

Total 

Cost 

($) 

Unit 

Cost

($) Miles

Total 

Cost 

Unit 

Cost

($) 

Establish Vegetation – Reforestation* 4,700 $5,455,000 $1,160 

Hazardous Fuels Reduction 48,500 $5,714,000 $118 

Eliminate Noxious Weeds 13,200 $2,760,000 $209 

Road Maintenance 2,300 $2,857,000 $1,242 

Improve Aquatic and Terrestrial Habitat 100 $428,000 $4,280 

Provide watershed restoration, improve 

wildlife habitat, and control insects and 

disease with forest products utilized 

(Refer to Forest Products table for 

projected volume) 28,960 $18,766,000 $648 

Totals 95,460 $33,123,000 2,300 $2,857,000 

Program Total $35,980,000** 

* Establish Vegetation - Reforestation - Includes all reforestation activities needed to assure reforestation of harvested 

areas. This includes such activities as planting, site preparation, survival and stocking surveys, and animal damage 

control. 

** Program total reflects compliance with OMB direction to offset mandatory accounts, as set forth in OMB memorandum 

M-05-13, Budget Discipline for Agency Administrative Actions. For every dollar of budget authority in CWKV for regionwide projects, one offsetting dollar will be returned to the General Fund of the Treasury. 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-7 Knutson Vandenberg Fund 

Fiscal Year 2008 (P.L. 109-54, Sec. 412 Authority) K-V Planned 

Program of Work – Regional Projects 

National Summary

Activity Type Acres 

Total 

Cost 

($) 

Unit 

Cost 

($) Miles 

Total 

Cost 

Unit 

Cost 

($) 

Establish Vegetation – Reforestation * 3,220 $3,700,000 $1,149 

Hazardous Fuels Reduction 

Eliminate Noxious Weeds 

Road Maintenance 

Improve Aquatic and Terrestrial Habitat 

Provide watershed restoration, improve 

wildlife habitat, and control insects and 

disease with forest products utilized 

(Refer to Forest Products table for 

projected volume) 8,882 $5,800,000 $653 

Totals 12,102 $9,500,000 

Program Total $9,500,000** 

 

* Establish Vegetation - Reforestation - Includes all reforestation activities needed to assure reforestation of harvested 

areas. This includes such activities as planting, site preparation, survival and stocking surveys, and animal damage 

control. 

** Program total reflects compliance with OMB direction to offset mandatory accounts, as set forth in OMB memorandum 

M-05-13, Budget Discipline for Agency Administrative Actions. For every dollar of budget authority in CWKV for regionwide projects, one offsetting dollar will be returned to the General Fund of the Treasury. 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-8 Cooperative Work Other 

Budget Line Item Cooperative Work Trust Fund - Other 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Enacted Budget Budget FY 2007 

Cooperative Work:Other 

 New Budget Authority ($000) $42,985 $48,000 $55,000 $7,000

 Program Level ($000) $38,677 $45,000 $53,000 $8,000

 Staff Years 214 236 251 15 

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget 

Authority is higher due to unobligated prior-year receipts.

Program Level: Actual balance of obligations in FY 2006 and planned obligations for FY 2007 and 

FY 2008.

Authorities 

The Cooperative Funds 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 Forest and Rangeland Renewable Resources Research Act of June 30, 1978 (16 

U.S.C. 1643). This Act authorizes the acceptance and use of donated funds for research 

activities. 

The USDA Acceptance of Gifts Act of October 10, 1978 (7 U.S.C. 2269). This Act 

authorizes agencies within the U.S. Department of Agriculture to accept donations for 

non-research activities. 

The Cooperative Funds 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 Cooperative Funds Act of July 4, 1968 (16 U.S.C. 471h). This Act authorizes 

cooperation in the operation of the Cradle of Forestry. 

Title 31, United States Code, section 1321 (31 U.S.C. 1321). Section 1321 of Title 31 of 

the United States Code authorizes Trust Funds. 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-9 Cooperative Work Other 

Program Description 

The Cooperative Work Trust Fund - Other is used to collect deposits received from 

partners and cooperators for protecting and improving resources of the National Forest 

System as authorized by cooperative agreements. The deposits are for a wide variety of 

activities that benefit and support programs in Forest and Rangeland Research, on 

National Forest System lands, and for other agency activities. Each cooperative deposit 

represents a separate trust account, subject to the terms and provisions of the agreement 

between the cooperator and the Forest Service. These funds are immediately available 

for expenditure after deposit and are considered no-year appropriations. 

 

Using funds deposited in advance by partners and cooperators, a variety of activities are 

performed. These activities include wildlife habitat enhancement; recreation program 

activities; research; fire prevention and education; construction, reconstruction, and 

maintenance of roads, trails, and other improvements; scaling services; fire protection; 

and other resource purposes as authorized by law. 

Cooperative deposits are received from a vast assortment of local, regional, and national 

organizations and individuals; by State and other public agencies; by 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 the effectiveness and complement the 

objectives of the Forest Service’s appropriated resource management programs and 

cooperative research projects. These programs and projects may involve any aspect of 

forestry and vary widely as to scope and duration. Refer to the Special Exhibit on Forest 

Service Partnerships for a more complete listing of cooperative activities. 

 

Cooperative road maintenance deposits can be made by commercial users of the national 

forest road system in lieu of actually performing their commensurate share of road 

maintenance. These deposits are used in conjunction with the other road maintenance 

appropriations to provide maintenance of system roads by the Forest Service. 

Deposits for administering and protecting non-Federal land within or near the national 

forests can be made by owners of non-Federal lands that are intermingled with, or 

adjacent to, the national forests. These deposits help landowners to manage their lands in 

accordance with good forest management practices and provide for wildfire protection on 

State and private lands intermingled with Federal ownership. 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-10 Land Between the Lakes 

Budget Line Item Land Between the Lakes Trust Fund 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Enacted Estimate Budget FY 2007 

Land Between the Lakes 

 New Budget Authority ($000) $256 $270 $290 $20

 Program Level ($000) $86 $80 $75 -$5

 Full Time Equivalents (FTEs) 1 0 0 0 

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget 

Authority is higher due to unobligated prior-year receipts.

Program Level: Actual balance of obligations, including the use of previously unobligated balances, in FY 

2006 and planned obligations for FY 2007 and FY 2008.

Authorities 

Land Between the Lakes Protection Act of 1998, P.L. 105-277 (112 Stat. 2681-310 – 

326). 

Program Description 

In accordance with the Land Between the Lakes (LBL) Protection Act of 2000, 

responsibility for the LBL National Recreation Area transferred from the Tennessee 

Valley Authority (TVA) to the Secretary of Agriculture. The Protection Act called for 

LBL to be managed as a unit of the National Forest System (NFS). Section 531 of the 

Act established a special interest-bearing fund known as the “Land Between The Lakes 

Trust Fund” to be available for: 1) public education, grants, and internships related to 

recreation, conservation, and multiple-use land management, and 2) regional promotion 

in cooperation with development districts, chambers of commerce, and State and local 

governments. 

In accordance with the terms described in the Act, beginning September 30, 2000, TVA 

began depositing $1 million annually into the fund through September 30, 2005, for a 

total of $6 million. LBL has begun to use the interest earned on the fund for the purposes 

intended by Congress. 

FY 2008 Plans 

• Implement project and promotional techniques that combine environmental education 

messages with tourism efforts, primarily in the oak-grassland and nature watch 

demonstration areas. 

• Support intern and apprentice program needs. 

• Continue the successful School Transportation Grant program, serving more than 

3,500 students. 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-11 Land Between the Lakes 

FY 2007 Plans 

• Continue the successful School Transportation Grant program, serving more than 

3,500 students. 

• Evaluate use of techniques that combine environmental education messages with 

tourism efforts, primarily in the oak-grassland demonstration area. 

FY 2006 Accomplishments

• Continued the School Transportation Grant program, providing funding for more than 

3,500 students to visit LBL and experience “education in the environment,” as well as 

completing a key part of their school curricula. 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-12 Reforestation 

Budget Line Item Reforestation Trust Fund 

 (dollars in thousands) 

 FY 2008 

 FY 2006 FY 2007 FY 2008 vs 

 Enacted Estimate Budget FY 2007 

Reforestation Trust Fund 

 New Budget Authority ($000) $30,000 $30,000 $30,000 $0

 Program Level ($000) $30,572 $30,000 $30,000 $0

 Full Time Equivalents (FTEs) 178 175 170 -5 

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget Authority 

is higher due to unobligated prior-year receipts. 

Program Level: Actual balance of obligations, including the use of previously unobligated balances, in FY 

2006 and planned obligations for FY 2007 and FY 2008.

Authorities 

P.L. 96-451, Title III, as amended, Recreational Boating Safety and Facilities Act of 1980 

(16 U.S.C 1606 a(d).

Program Description 

The Reforestation Trust Fund was established to accomplish reforestation and timber 

stand improvement (TSI) activities. A maximum of $30 million is transferred to this trust 

fund by the U.S. Treasury each fiscal year to be obligated for these purposes. These 

funds are used in conjunction with other vegetation management funds to provide an 

integrated, effective means of treating forests in need of forest health restoration. In FY 

2008, the funds will be prioritized for the accomplishment of backlog reforestation needs. 

The Reforestation Trust Fund is used to reduce the backlog in reforestation and timber 

stand improvement work. The Fund also serves to promote the restoration, maintenance, 

or improvement of forest stands under a variety of forestland ecological conditions, and 

to maintain biological diversity. TSI activities include: release treatments through 

removal of competing vegetation; precommercial thinning to regulate stand density, 

composition, and structure; pruning treatments that reduce ladder fuels and improve 

future product quality; and fertilization treatments to maintain and improve soil quality. 

Reforestation activities include site preparation and planting of tree seedlings plus 

various treatments to improve initial seedling survival rates such as animal damage 

control. 

 

FY 2008 Plans 

• Continue emphasis on reforestation over timber stand improvement, with a goal of 

treating over 60,000 acres. Actual accomplishments can vary significantly, 

depending on the type of action necessary to meet restoration objectives. For 
FY 2008 Budget Justification USDA Forest Service

Trust Funds 16-13 Reforestation 

example, unit costs for seeding can be significantly lower than for planting seedlings, 

and the cost of both type of treatments vary depending on site preparation needs. 

• Very limited timber stand improvement work will be accomplished. The emphasis 

for meeting these needs will be through the Vegetation and Watershed Management 

program, focusing on opportunities to coordinate with other program areas, 

partnerships, and stewardship contracting. 

FY 2007 Program 

• Emphasis will be on decreasing the backlog of identified reforestation needs. This 

represents a shift from timber stand improvement with a goal of treating an estimated 

60,000 acres. 

FY 2006 Accomplishments

• FY 2006 activities emphasized restoration actions to meet reforestation needs. Actual 

accomplishments – 119,321 acres of reforestation and 24,223 acres of timber stand 

improvement – reflect a significant change in the balance between reforestation and 

timber stand improvement accomplishments. The large increase over the estimated 

five year average capability of 32,000 acres is due to certification of a large acreage 

of natural regeneration in Region 8. Total trust fund capability is expected to return 

to the estimated five year average in 2007. 
 

(This page inserted to format for duplex printing) 
Special Exhibits 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibits i 

Revised March 30, 2007 

Special Exhibits Table of Contents 

 1 Allocations by Regions, Stations, and Area, FY 2006-2008 ................................... 17-1 

 2 Business Operations Transformation..................................................................... 17-12 

3 Chief’s Reserve Fund............................................................................................. 17-15 

4 Conservation Education......................................................................................... 17-18 

 5 Deferred Maintenance and Asset Management ..................................................... 17-22 

 6 Facilities Maintenance Assessment ....................................................................... 17-29 

 7 Federal Excess Personal Property and Firefighter Property .................................. 17-31 

 8 Fire Transfers - FY2006............................................................ ........17-33 

 9 Forest Products Laboratory Modernization ........................................................... 17-34 

 10 Indirect Costs......................................................... ..................... ........17-41 

 11 Invasive Species..................................................................................................... 17-49 

 12 Knutson-Vandenberg (K-V) Financial Status...........................................17-56 

 13 National Energy Policy.......................................................................................... 17-57 

 14 National Forest Land Adjustment for Rural Communities Act................. .......17-62 

 15 National Scenic and Historic Trails ....................................................................... 17-64 

 16 Northwest Forest Plan............................................................................................ 17-71 

 17 Office of General Counsel Reimbursement........................................................... 17-74 

 18 Office of Tribal Relations ...................................................................................... 17-75 

 19 Partnerships............................................................................................................ 17-78 

 20 President’s Management Agenda .......................................................................... 17-82 

 21 Reforestation.......................................................................................................... 17-97 

 22 Research and Development Threat Assessment Centers....................................... 17-99 

 23 Service First ........................................................................................................ 17-104 

 24 Unobligated Balances .......................................................................................... 17-106 

 25 Wood Education and Resource Center ................................................................ 17-108 

 26 Working Capital Fund, Forest Service................................................................. 17-112 

 27 Working Capital Fund and Greenbook Charges, USDA..................................... 17-113 

 28 Working Capital Fund – Forest Service Fleet Management................................ 17-127 

 29 Performance Management System Report to Congress – June 2006.................. 17-129 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-1 Allocation Tables 

Revised February 23, 2007 

Region 01 Region 02

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 0 0 0 44 45 4

State & Private Forestry

Forest Health Management - Federal Lands 2,585 1,940 1,978 2,615 2,518 2,538

Forest Health Management - Cooperative Lands 327 608 488 556 550 442

State Fire Assistance 1,466 1,748 1,795 2,206 2,801 2,872

Volunteer Fire Assistance 376 371 573 655 646 998

Forest Stewardship 899 762 415 1,684 1,264 688

Forest Legacy Program 6,397 109 2,108 1,566 120 120

Urban and Community Forestry 776 646 380 1,850 1,834 1,070

Economic Action Program 2,418 0 0 0 0 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 15,245 6,185 7,738 11,134 9,733 8,727

National Forest System

Land Management Planning 5,182 3,741 3,297 4,113 3,256 2,866

Inventory and Monitoring 7,804 9,808 7,856 8,007 9,425 7,638

Recreation, Heritage, and Wilderness 17,049 16,870 14,231 24,104 22,960 20,234

Wildlife and Fisheries Habitat Management 10,764 9,949 8,726 8,783 8,572 7,517

Grazing Management 5,589 5,429 5,401 6,364 6,274 6,239

Forest Products 29,513 23,827 24,570 26,502 21,549 23,131

Vegetation and Watershed Management 15,471 16,178 13,237 17,268 15,200 12,536

Minerals and Geology Management 11,236 10,728 8,772 10,249 10,041 8,230

Landownership Management 6,452 6,259 5,406 7,899 7,408 6,402

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 493 0 0 493 0 0

Total, National Forest System 109,554 102,789 91,497 113,781 104,684 94,792

Wildland Firefighters [19,535] [21,966] 22,630 [8,156] [9,171] 9,448

Total, Wildland Firefighters [19,535] [21,966] 22,630 [8,156] [9,171] 9,448

Wildland Fire Management

Fire Preparedness 57,544 50,997 17,020 30,919 26,487 8,865

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 14,923 18,153 18,391 28,855 29,789 30,147

Rehabilitation and Restoration 1,501 65 0 776 19 0

Fire Research and Development 0 2 2 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 2,067 1,314 1,262 2,172 2,092 2,029

Forest Health Management -- Cooperative Lands (NFP 2,940 2,673 2,683 1,075 1,376 1,384

State Fire Assistance (NFP) 1,074 577 469 2,134 1,150 936

Volunteer Fire Assistance (NFP) 611 629 393 726 747 467

Total, Wildland Fire Management 80,660 74,410 40,220 66,656 61,660 43,828

Capital Improvement & Maintenance

Facilities 5,530 5,183 5,330 12,019 10,638 10,975

Roads 18,591 15,234 17,321 19,438 15,902 18,289

Trails 10,060 9,511 8,915 6,859 5,988 5,608

Infrastructure Improvement 861 946 694 1,025 1,172 866

Total, Capital Improvement & Maintenance 35,043 30,874 32,261 39,341 33,700 35,738

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 7,248 856 2,168 2,636 404 1,118

Acquisition of Lands for National Forests, Special Act 0 0 0 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 7,248 856 2,168 2,636 404 1,118

Range Betterment Fund 306 0 0 598 0 0

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 3,355 4,580 3,737 782 1,042 869

Timber Salvage Sales 12,094 10,182 8,360 2,283 2,190 1,836

Other 1,236 1,949 409 657 218 153

Total, Permanent Working Funds 16,685 16,711 12,506 3,723 3,450 2,858

Trust Funds Subtotal 8,640 10,393 8,635 4,506 9,039 7,520

TOTAL, ALL FUNDS 273,380 242,218 195,025 242,417 222,715 194,586

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

Total does not include Payments to States
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-2 Allocation Tables 

Revised February 23, 2007 

Region 03 Region 04

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 0 0 0 0 0 0

State & Private Forestry

Forest Health Management - Federal Lands 1,422 1,481 1,508 2,324 1,829 1,859

Forest Health Management - Cooperative Lands 700 618 495 408 333 266

State Fire Assistance 704 811 831 683 827 849

Volunteer Fire Assistance 157 155 240 122 120 186

Forest Stewardship 598 484 262 590 384 208

Forest Legacy Program 1,322 80 79 2,335 144 1,134

Urban and Community Forestry 589 534 317 491 428 251

Economic Action Program 0 0 0 0 0 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 5,493 4,162 3,731 6,953 4,066 4,753

National Forest System

Land Management Planning 2,439 4,075 3,563 4,682 4,095 3,601

Inventory and Monitoring 9,894 9,221 7,463 11,018 12,483 10,112

Recreation, Heritage, and Wilderness 19,731 19,621 17,347 29,097 27,248 24,008

Wildlife and Fisheries Habitat Management 9,021 8,726 7,659 10,839 10,720 9,403

Grazing Management 9,772 9,370 9,329 9,356 8,769 8,736

Forest Products 13,498 10,365 12,794 13,208 13,342 13,189

Vegetation and Watershed Management 15,549 15,735 13,015 19,083 18,045 14,944

Minerals and Geology Management 7,109 6,774 5,562 12,310 11,671 9,555

Landownership Management 5,474 5,003 4,332 8,740 7,831 6,759

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 493 0 0 493 0 0

Total, National Forest System 92,979 88,890 81,065 118,825 114,205 100,306

Wildland Firefighters [22,760] [25,592] 26,365 [18,967] [21,327] 21,971

Total, Wildland Firefighters [22,760] [25,592] 26,365 [18,967] [21,327] 21,971

Wildland Fire Management

Fire Preparedness 60,575 54,806 18,508 59,625 53,712 17,995

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 43,115 42,289 42,917 18,675 17,667 17,871

Rehabilitation and Restoration 1,324 682 0 776 147 0

Fire Research and Development 0 1 1 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 806 538 521 1,546 1,195 1,156

Forest Health Management -- Cooperative Lands (NFP 204 324 326 90 405 406

State Fire Assistance (NFP) 509 276 225 528 284 231

Volunteer Fire Assistance (NFP) 497 512 320 267 275 172

Total, Wildland Fire Management 107,030 99,427 62,818 81,507 73,684 37,831

Capital Improvement & Maintenance

Facilities 8,959 8,132 8,385 9,196 7,401 7,625

Roads 17,443 14,631 16,776 20,993 15,616 17,809

Trails 3,883 3,366 3,146 6,355 6,188 5,796

Infrastructure Improvement 1,009 1,116 816 969 1,061 774

Total, Capital Improvement & Maintenance 31,294 27,245 29,122 37,513 30,266 32,003

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 1,356 273 866 3,101 313 742

Acquisition of Lands for National Forests, Special Act 0 0 0 64 64 64

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 1,356 273 866 3,165 377 806

Range Betterment Fund 628 0 0 908 0 0

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 118 220 178 327 544 441

Timber Salvage Sales 522 313 726 4,240 2,611 1,443

Other 1,892 321 114 1,624 3,095 663

Total, Permanent Working Funds 2,532 855 1,018 6,191 6,250 2,547

Trust Funds Subtotal 1,267 1,799 1,611 6,082 4,477 3,840

TOTAL, ALL FUNDS 242,579 222,651 180,231 261,144 233,326 182,087

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

Total does not include Payments to States

($ in Thousands)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-3 Allocation Tables 

Revised February 23, 2007 

Region 05 Region 06

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 0 0 0 0 8 8

State & Private Forestry

Forest Health Management - Federal Lands 2,899 2,384 2,429 4,503 3,826 3,845

Forest Health Management - Cooperative Lands 535 583 469 1,422 1,541 1,239

State Fire Assistance 8,154 2,013 2,065 1,839 2,240 2,299

Volunteer Fire Assistance 316 311 480 195 191 296

Forest Stewardship 1,262 944 517 1,263 1,146 634

Forest Legacy Program 5,654 380 2,327 3,684 143 143

Urban and Community Forestry 2,230 2,145 1,257 770 682 408

Economic Action Program 0 0 0 1,100 0 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 21,049 8,759 9,545 14,775 9,770 8,864

National Forest System

Land Management Planning 2,847 3,253 2,846 4,780 4,830 4,255

Inventory and Monitoring 11,626 12,959 10,365 17,579 14,412 11,733

Recreation, Heritage, and Wilderness 32,925 31,472 27,730 22,194 21,440 18,971

Wildlife and Fisheries Habitat Management 9,682 9,460 8,284 16,821 16,431 14,449

Grazing Management 3,038 2,985 2,988 3,240 3,003 2,984

Forest Products 22,873 36,032 36,248 34,308 55,267 60,793

Vegetation and Watershed Management 20,128 19,088 15,728 20,666 19,852 16,552

Minerals and Geology Management 7,820 7,380 6,024 7,177 6,748 5,541

Landownership Management 10,257 10,067 8,671 8,427 8,018 6,939

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 493 0 0 493 0 0

Total, National Forest System 121,689 132,695 118,884 135,685 150,003 142,216

Wildland Firefighters [70,746] [79,548] 81,952 [29,398] [33,056] 34,055

Total, Wildland Firefighters [70,746] [79,548] 81,952 [29,398] [33,056] 34,055

Wildland Fire Management

Fire Preparedness 207,410 188,786 62,275 80,072 71,270 24,110

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 49,667 49,539 50,055 28,198 26,021 26,139

Rehabilitation and Restoration 575 50 0 1,135 128 0

Fire Research and Development 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 3,005 2,368 2,308 2,949 2,736 2,669

Forest Health Management -- Cooperative Lands (NFP 3,052 2,198 2,205 1,328 1,462 1,461

State Fire Assistance (NFP) 2,046 1,703 1,386 3,366 2,081 1,693

Volunteer Fire Assistance (NFP) 841 865 540 611 629 393

Total, Wildland Fire Management 266,595 245,509 118,769 117,660 104,327 56,466

Capital Improvement & Maintenance

Facilities 12,733 9,956 10,248 10,135 8,193 8,426

Roads 20,294 20,040 23,237 28,347 34,612 39,890

Trails 7,994 6,211 5,823 7,779 7,512 7,038

Infrastructure Improvement 1,020 1,123 829 2,344 1,119 855

Total, Capital Improvement & Maintenance 42,042 37,330 40,136 48,605 51,436 56,209

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 4,272 583 1,828 4,119 468 850

Acquisition of Lands for National Forests, Special Act 989 989 989 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 5,260 1,572 2,817 4,119 468 850

Range Betterment Fund 188 0 0 273 0 0

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 1,512 1,763 1,448 5,231 7,073 5,794

Timber Salvage Sales 6,207 8,002 4,654 19,351 14,715 17,697

Other 1,966 5,007 966 2,345 205 115

Total, Permanent Working Funds 9,685 14,772 7,067 26,926 21,992 23,607

Trust Funds Subtotal 15,792 23,686 18,857 25,419 27,598 22,675

TOTAL, ALL FUNDS 482,301 464,324 316,074 373,464 365,602 310,894

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

Total does not include Payments to States

($ in Thousands)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-4 Allocation Tables 

Revised February 23, 2007 

Region 08 Region 09

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 119 89 7 0 0 0

State & Private Forestry

Forest Health Management - Federal Lands 14,332 12,120 12,382 0 0 0

Forest Health Management - Cooperative Lands 17,871 14,536 11,653 0 0 0

State Fire Assistance 6,980 8,912 9,142 75 76 78

Volunteer Fire Assistance 1,628 1,605 2,478 0 0 0

Forest Stewardship 10,107 8,619 4,698 0 0 0

Forest Legacy Program 6,693 752 9,176 0 0 0

Urban and Community Forestry 7,667 6,641 3,906 0 0 0

Economic Action Program 2,747 0 0 0 0 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 68,025 53,186 53,435 75 76 78

National Forest System

Land Management Planning 3,060 3,402 2,988 4,703 2,822 2,516

Inventory and Monitoring 11,407 9,550 7,777 11,806 9,958 8,191

Recreation, Heritage, and Wilderness 26,836 26,492 23,337 25,813 24,127 21,300

Wildlife and Fisheries Habitat Management 16,686 16,126 14,146 13,871 13,565 11,909

Grazing Management 724 603 602 472 450 451

Forest Products 26,813 28,554 30,305 26,365 27,917 27,573

Vegetation and Watershed Management 13,719 13,017 10,759 13,449 13,083 10,792

Minerals and Geology Management 5,057 4,700 3,864 7,864 7,430 6,083

Landownership Management 8,064 8,167 7,039 8,199 7,715 6,667

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 493 0 0 493 0 0

Total, National Forest System 112,857 110,611 100,816 113,035 107,068 95,481

Wildland Firefighters [11,949] [13,436] 13,842 [7,776] [8,744] 9,008

Total, Wildland Firefighters [11,949] [13,436] 13,842 [7,776] [8,744] 9,008

Wildland Fire Management

Fire Preparedness 34,207 31,280 10,347 22,120 20,205 6,813

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 31,770 32,004 32,361 11,032 10,953 11,042

Rehabilitation and Restoration 0 5 0 0 8 0

Fire Research and Development 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 0 207 191 0 0 0

Forest Health Management -- Cooperative Lands (NFP 717 492 495 0 0 0

State Fire Assistance (NFP) 16,046 8,600 6,997 0 0 0

Volunteer Fire Assistance (NFP) 1,943 2,000 1,249 0 0 0

Total, Wildland Fire Management 84,684 74,589 51,640 33,152 31,167 17,854

Capital Improvement & Maintenance

Facilities 19,476 14,392 14,846 12,815 9,264 9,544

Roads 24,755 20,312 23,224 20,245 17,632 18,029

Trails 8,588 7,301 6,834 6,828 5,828 5,461

Infrastructure Improvement 1,278 1,436 1,048 1,039 1,237 907

Total, Capital Improvement & Maintenance 54,096 43,442 45,953 40,926 33,961 33,942

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 8,606 1,082 2,762 8,176 1,149 2,991

Acquisition of Lands for National Forests, Special Act 0 0 0 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 8,606 1,082 2,762 8,176 1,149 2,991

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 0 0 0 28 31 25

Timber Salvage Sales 2,293 2,623 2,269 14,080 11,185 14,102

Other 2,438 223 132 1,373 383 298

Total, Permanent Working Funds 4,731 2,846 2,402 15,481 11,599 14,425

Trust Funds Subtotal 17,642 20,525 16,555 9,050 14,912 11,736

TOTAL, ALL FUNDS 350,760 306,368 273,569 219,895 199,932 176,508

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

Total does not include Payments to States

($ in Thousands)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-5 Allocation Tables 

Revised February 23, 2007 

Region 10 Forest Products Lab

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 29 18 17 20,093 16,833 16,461

State & Private Forestry

Forest Health Management - Federal Lands 1,737 1,450 1,476 0 0 0

Forest Health Management - Cooperative Lands 775 328 263 0 0 0

State Fire Assistance 751 896 920 0 0 0

Volunteer Fire Assistance 130 128 198 0 0 0

Forest Stewardship 742 617 337 0 0 0

Forest Legacy Program 647 63 63 0 0 0

Urban and Community Forestry 266 247 147 0 0 0

Economic Action Program 439 0 0 0 0 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 5,487 3,729 3,404 0 0 0

National Forest System

Land Management Planning 1,349 1,585 1,392 0 0 0

Inventory and Monitoring 6,987 6,096 4,957 0 0 0

Recreation, Heritage, and Wilderness 11,002 10,498 9,279 0 0 0

Wildlife and Fisheries Habitat Management 9,304 8,951 7,865 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 20,284 17,300 17,168 0 0 0

Vegetation and Watershed Management 4,653 4,470 3,672 0 0 0

Minerals and Geology Management 3,489 3,404 2,786 0 0 0

Landownership Management 4,493 5,000 4,311 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 493 0 0 0 0 0

Total, National Forest System 62,052 57,304 51,431 0 0 0

Wildland Firefighters [379] [426] 439 0 0 0

Total, Wildland Firefighters [379] [426] 439 0 0 0

Wildland Fire Management

Fire Preparedness 2,987 2,788 930 0 0 0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 963 937 947 665 660 615

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 0 0 0 2,051 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 977 712 698 0 0 0

Forest Health Management -- Cooperative Lands (NFP 425 447 449 0 0 0

State Fire Assistance (NFP) 8,685 6,325 5,146 0 0 0

Volunteer Fire Assistance (NFP) 266 274 171 0 0 0

Total, Wildland Fire Management 14,304 11,484 8,341 2,716 660 615

Capital Improvement & Maintenance

Facilities 8,306 7,963 8,219 2,294 15,144 15,686

Roads 17,866 15,363 12,914 0 0 0

Trails 4,464 4,614 4,318 0 0 0

Infrastructure Improvement 1,013 1,168 854 175 167 121

Total, Capital Improvement & Maintenance 31,649 29,109 26,304 2,469 15,311 15,807

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 275 66 191 0 0 0

Acquisition of Lands for National Forests, Special Act 0 0 0 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 275 66 191 0 0 0

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 0 0 0 0 57 51

Management of NF Lands for Subsistence Uses 4,618 3,850 4,036 0 0 0

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 782 558 1,064 0 0 0

Other 610 40 15 0 0 0

Total, Permanent Working Funds 1,392 598 1,079 0 0 0

Trust Funds Subtotal 1,549 1,508 1,523 0 0 0

TOTAL, ALL FUNDS 121,356 107,666 96,325 25,278 32,862 32,934

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

Total does not include Payments to States

($ in Thousands)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-6 Allocation Tables 

Revised February 23, 2007 

Rocky Mtn Res Station Northern Research Station

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 39,300 36,122 36,116 53,979 50,159 47,561

State & Private Forestry

Forest Health Management - Federal Lands 1,019 0 0 44 35 37

Forest Health Management - Cooperative Lands 0 0 0 141 137 110

State Fire Assistance 0 0 0 0 0 0

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 0 0 0 0 97 52

Forest Legacy Program 0 0 0 0 0 0

Urban and Community Forestry 11 0 0 26 165 95

Economic Action Program 0 0 0 0 0 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 1,030 0 0 212 435 294

National Forest System

Land Management Planning 0 0 0 0 0 0

Inventory and Monitoring 599 0 0 0 0 0

Recreation, Heritage, and Wilderness 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management 0 0 0 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 0 0 0 0 0 0

Minerals and Geology Management 0 0 0 0 0 0

Landownership Management 0 0 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 599 0 0 0 0 0

Wildland Firefighters 000000

Total, Wildland Firefighters 0 0 0 0 0 0

Wildland Fire Management

Fire Preparedness 814 1,013 308 0 0 0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 2,345 943 879 1,422 314 293

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 7,044 0 0 3,162 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 0 0 0 0 0 0

Forest Health Management -- Cooperative Lands (NFP 000000

State Fire Assistance (NFP) 0 0 0 0 0 0

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Total, Wildland Fire Management 10,202 1,956 1,187 4,585 314 293

Capital Improvement & Maintenance

Facilities 2,946 0 619 1,768 1,197 1,840

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 186 186 135 207 208 151

Total, Capital Improvement & Maintenance 3,132 186 754 1,975 1,405 1,991

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 000000

Acquisition of Lands for National Forests, Special Act 0 0 0 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 0 0 0 0 0 0

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 0 0 0 0 0 0

Other 8 0 0 0 0 0

Total, Permanent Working Funds 8 0 0000

Trust Funds Subtotal 0 0 0000

TOTAL, ALL FUNDS 54,271 38,264 38,057 60,751 52,312 50,138

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

($ in Thousands)

Total does not include Payments to States

In FY 2006, the Northeastern and North Central Research Stations were consolidated into the Northern Research 

 Station. Combined allocations for the two stations for FY 2006 are shown in the Northern Research Station. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-7 Allocation Tables 

Revised February 23, 2007 

Pacific NW Res Station Pacific SW Res Station

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 40,606 37,826 35,931 19,505 17,766 17,447

State & Private Forestry

Forest Health Management - Federal Lands 0 0 0 0 0 0

Forest Health Management - Cooperative Lands 452 387 310 158 136 109

State Fire Assistance 0 0 0 0 0 0

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 65 76 41 0 0 0

Forest Legacy Program 0 0 0 0 0 0

Urban and Community Forestry 0 0 0 0 0 0

Economic Action Program 0 0 0 0 0 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 517 463 351 158 136 109

National Forest System

Land Management Planning 0 0 0 0 0 0

Inventory and Monitoring 579 638 499 0 0 0

Recreation, Heritage, and Wilderness 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management 0 0 0 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 196 200 200 403 409 410

Minerals and Geology Management 0 0 0 0 0 0

Landownership Management 0 0 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 775 837 699 403 409 410

Wildland Firefighters 000000

Total, Wildland Firefighters 0 0 0 0 0 0

Wildland Fire Management

Fire Preparedness 0 0 0 0 0 0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 651 167 156 962 69 64

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 2,809 0 0 3,144 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 605 403 396 0 0 0

Forest Health Management -- Cooperative Lands (NFP 000000

State Fire Assistance (NFP) 0 0 0 0 0 0

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Total, Wildland Fire Management 4,066 570 552 4,106 69 64

Capital Improvement & Maintenance

Facilities 1,053 0 354 2,349 2,637 0

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 109 120 87 0 90 65

Total, Capital Improvement & Maintenance 1,162 120 441 2,349 2,727 65

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 000000

Acquisition of Lands for National Forests, Special Act 0 0 0 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 0 0 0 0 0 0

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 0 0 0 0 0 0

Other 0 0 0 3 0 0

Total, Permanent Working Funds 0 0 0 3 0 0

Trust Funds Subtotal 0 0 0 0 0 0

TOTAL, ALL FUNDS 47,126 39,816 37,973 26,523 21,107 18,095

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

($ in Thousands)

Total does not include Payments to States
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-8 Allocation Tables 

Revised February 23, 2007 

Southern Res Station Intl Inst Trop Forestry

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 49,270 46,054 40,773 3,788 3,424 3,416

State & Private Forestry

Forest Health Management - Federal Lands 0 0 0 6 5 5

Forest Health Management - Cooperative Lands 622 532 426 194 170 140

State Fire Assistance 0 0 0 343 376 382

Volunteer Fire Assistance 0 0 0 50 51 78

Forest Stewardship 488 713 382 494 291 143

Forest Legacy Program 0 0 0 714 105 105

Urban and Community Forestry 0 61 35 534 442 268

Economic Action Program 0 0 0 0 0 0

Forest Resources Information and Analysis 4,315 4,158 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 5,425 5,465 844 2,334 1,440 1,122

National Forest System

Land Management Planning 0 0 0 1 15 14

Inventory and Monitoring 579 638 499 0 0 0

Recreation, Heritage, and Wilderness 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management 0 0 0 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 238 242 242 28 46 43

Minerals and Geology Management 0 0 0 0 0 0

Landownership Management 0 0 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 817 879 741 29 61 57

Wildland Firefighters 000000

Total, Wildland Firefighters 0 0 0 0 0 0

Wildland Fire Management

Fire Preparedness 0 0 0 0 0 0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 674 69 64 0 0 0

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 2,108 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 605 403 396 0 0 0

Forest Health Management -- Cooperative Lands (NFP 000000

State Fire Assistance (NFP) 0 0 0 159 143 123

Volunteer Fire Assistance (NFP) 0 0 0 67 69 43

Total, Wildland Fire Management 3,387 473 461 227 212 166

Capital Improvement & Maintenance

Facilities 1,557 0 0 137 62 530

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 205 192 139 15 12 9

Total, Capital Improvement & Maintenance 1,762 192 139 152 74 539

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 000000

Acquisition of Lands for National Forests, Special Act 0 0 0 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 0 0 0 0 0 0

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 0 0 0 0 0 0

Other 0 0 0 0 0 0

Total, Permanent Working Funds 0 0 0 0 0 0

Trust Funds Subtotal 0 0 0 0 0 0

TOTAL, ALL FUNDS 60,660 53,063 42,957 6,530 5,211 5,299

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

($ in Thousands)

Total does not include Payments to States
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-9 Allocation Tables 

Revised February 23, 2007 

Northeastern Area ASC

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 0 0 0 21,922 30,023 27,706

State & Private Forestry

Forest Health Management - Federal Lands 10,378 7,453 7,726 3,449 5,474 5,039

Forest Health Management - Cooperative Lands 17,104 14,645 11,736 650 928 854

State Fire Assistance 6,771 8,669 8,895 635 740 681

Volunteer Fire Assistance 2,282 2,250 3,474 0 0 0

Forest Stewardship 12,537 10,458 5,673 758 1,001 921

Forest Legacy Program 25,679 3,334 11,460 231 244 225

Urban and Community Forestry 10,720 9,424 5,509 634 861 792

Economic Action Program 2,833 0 0 0 0 0

Forest Resources Information and Analysis 0 9 0 176 257 0

International Forestry 0 0 0 305 404 372

Total, State & Private Forestry 88,306 56,242 54,474 6,838 9,908 8,884

National Forest System

Land Management Planning 0 0 0 5,634 7,473 6,949

Inventory and Monitoring 0 0 0 13,940 19,715 18,339

Recreation, Heritage, and Wilderness 0 462 411 23,018 30,534 28,127

Wildlife and Fisheries Habitat Management 0 69 63 11,788 15,407 14,182

Grazing Management 0 3 3 5,027 6,549 6,031

Forest Products 0 149 137 27,921 39,752 36,644

Vegetation and Watershed Management 0 156 143 14,540 20,805 19,151

Minerals and Geology Management 0 0 0 5,202 7,849 7,225

Landownership Management 0 0 0 8,891 11,557 10,639

Law Enforcement Operations 0 0 0 17,288 19,224 17,696

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 0 838 758 133,249 178,866 164,983

Wildland Firefighters 000000

Total, Wildland Firefighters 0 0 0 0 0 0

Wildland Fire Management

Fire Preparedness 16 10 3 25,692 24,884 23,373

Fire Operations -- Suppression 0 0 0 68,445 93,500 79,456

Hazardous Fuels 40 78 72 20,619 29,977 27,594

Rehabilitation and Restoration 0 0 0 0 774 0

Fire Research and Development 0 0 0 1,597 1,950 1,795

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 6 20 18 0 1,782 1,640

Forest Health Management -- Cooperative Lands (NFP 23 3 3 0 189 174

State Fire Assistance (NFP) 10,854 5,823 4,738 0 41 38

Volunteer Fire Assistance (NFP) 1,943 2,000 1,249 0 0 0

Total, Wildland Fire Management 12,882 7,934 6,083 116,352 153,097 134,070

Capital Improvement & Maintenance

Facilities 0 45 42 5,836 9,545 8,787

Roads 0 0 0 16,767 20,801 19,147

Trails 0 0 0 6,110 8,592 7,909

Infrastructure Improvement 0 0 0 689 467 430

Total, Capital Improvement & Maintenance 0 45 42 29,402 39,405 36,272

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 0 0 0 1,179 1,530 1,409

Acquisition of Lands for National Forests, Special Act 0 0 0 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 0 0 0 1,179 1,530 1,409

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 0 0 0 218 399 367

Permanent Working Funds

Brush Disposal 0 0 0 1,221 1,713 1,577

Timber Salvage Sales 0 0 0 8,007 9,408 8,660

Other 2 0 0 480 665 612

Total, Permanent Working Funds 2 0 0 9,708 11,785 10,848

Trust Funds Subtotal 0 0 0 7,725 10,029 9,232

TOTAL, ALL FUNDS 101,189 65,060 61,357 326,594 435,042 393,771

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

($ in Thousands)

Total does not include Payments to States
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-10 Allocation Tables 

Revised February 23, 2007 

WO-HQ National & Unallocated Costs

FY06 FY07 FY08PB FY06 FY07 FY08PB

Forest and Rangeland Research 16,253 19,638 19,341 12,803 22,313 18,213

State & Private Forestry

Forest Health Management - Federal Lands 2,239 3,912 3,842 3,610 7,991 8,295

Forest Health Management - Cooperative Lands 2,159 4,286 4,274 2,828 5,929 4,854

State Fire Assistance 1,447 1,571 1,562 841 752 751

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 1,463 2,397 2,385 1,193 4,415 2,643

Forest Legacy Program 1,487 1,685 1,672 116 2,120 701

Urban and Community Forestry 775 1,401 1,390 1,074 2,504 1,610

Economic Action Program 0 0 0 0 9,404 0

Forest Resources Information and Analysis 44 43 0 53 57 0

International Forestry 6,480 4,983 2,036 101 1,403 92

Total, State & Private Forestry 16,095 20,279 17,161 9,815 34,574 18,946

National Forest System

Land Management Planning 15,539 11,384 11,308 3,348 7,616 7,012

Inventory and Monitoring 47,194 44,084 43,874 7,621 7,282 7,159

Recreation, Heritage, and Wilderness 13,028 15,272 14,885 13,999 13,654 11,542

Wildlife and Fisheries Habitat Management 7,283 7,586 7,399 6,893 5,880 6,031

Grazing Management 1,628 1,984 1,906 2,617 2,302 2,356

Forest Products 20,873 21,414 20,949 15,426 14,645 15,059

Vegetation and Watershed Management 14,319 12,865 12,613 10,141 10,064 10,285

Minerals and Geology Management 3,660 4,189 4,097 2,991 3,064 3,097

Landownership Management 9,135 9,389 9,255 4,901 4,317 4,418

Law Enforcement Operations 11,312 9,274 9,087 82,336 82,194 97,059

Valles Caldera National Preserve 0 0 0 5,074 5,063 850

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 143,971 137,440 135,373 155,347 156,081 164,869

Wildland Firefighters 000000

Total, Wildland Firefighters 0 0 0 0 0 0

Wildland Fire Management

Fire Preparedness 31,736 54,898 54,646 46,990 74,751 103,890

Fire Operations -- Suppression 19,038 19,489 19,453 602,703 628,488 812,123

Hazardous Fuels 8,509 15,286 14,893 17,034 16,877 17,032

Rehabilitation and Restoration 1 169 0 100 2,952 0

Fire Research and Development 344 261 240 530 20,586 19,962

Joint Fire Sciences 0 0 0 7,882 13,000 8,000

Forest Health Management -- Federal Lands (NFP) 0 362 333 41 668 634

Forest Health Management -- Cooperative Lands (NFP 0 34 31 0 397 395

State Fire Assistance (NFP) 11 37 37 403 15,959 12,985

Volunteer Fire Assistance (NFP) 0 0 0 0 4,810 3,004

Total, Wildland Fire Management 59,640 90,535 89,632 675,682 778,488 978,026

Capital Improvement & Maintenance

Facilities 2,630 3,358 3,244 3,960 4,761 4,947

Roads 6,726 8,012 7,766 9,221 12,141 13,029

Trails 1,489 3,050 2,934 3,797 2,551 2,605

Infrastructure Improvement 167 72 66 431 252 256

Total, Capital Improvement & Maintenance 11,013 14,492 14,009 17,408 19,705 20,838

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 307 221 204 498 554 575

Acquisition of Lands for National Forests, Special Act 0 0 0 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 231 231 231

Total, Land Acquisition 307 221 204 729 785 806

Range Betterment Fund 0 0 0 229 3,500 3,750

Gifts, Donations, and Bequests for Research 0 0 0 63 6 5

Management of NF Lands for Subsistence Uses 56 58 53 83 569 596

Permanent Working Funds

Brush Disposal 358 398 376 654 536 556

Timber Salvage Sales 1,997 1,518 1,405 3,989 11,494 11,784

Other 106 112 103 295 13,583 13,720

Total, Permanent Working Funds 2,462 2,027 1,883 4,938 25,613 26,060

Trust Funds Subtotal 1,866 1,602 1,478 91,552 60,433 28,340

TOTAL, ALL FUNDS 251,661 286,294 279,134 968,649 1,102,068 1,260,448

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

($ in Thousands)

Total does not include Payments to States
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 1 17-11 Allocation Tables 

Revised February 23, 2007 

TOTAL

FY06 FY07 FY08PB

Forest and Rangeland Research 277,711 280,318 263,000

State & Private Forestry

Forest Health Management - Federal Lands 53,163 52,419 52,959

Forest Health Management - Cooperative Lands 46,904 46,247 38,130

State Fire Assistance 32,895 32,434 33,122

Volunteer Fire Assistance 5,912 5,829 9,000

Forest Stewardship 34,144 33,666 20,000

Forest Legacy Program 56,524 9,280 29,311

Urban and Community Forestry 28,413 28,015 17,436

Economic Action Program 9,537 9,404 0

Forest Resources Information and Analysis 4,588 4,524 0

International Forestry 6,886 6,790 2,500

Total, State & Private Forestry 278,966 228,608 202,458

National Forest System

Land Management Planning 57,675 57,547 52,607

Inventory and Monitoring 166,638 166,269 146,462

Recreation, Heritage, and Wilderness 258,797 260,649 231,400

Wildlife and Fisheries Habitat Management 131,734 131,442 117,633

Grazing Management 47,826 47,720 47,025

Forest Products 277,583 310,114 318,562 

Vegetation and Watershed Management 179,852 179,454 154,322

Minerals and Geology Management 84,164 83,978 70,835

Landownership Management 90,932 90,731 80,840

Law Enforcement Operations 110,937 110,692 123,841

Valles Caldera National Preserve 5,074 5,063 850

Centennial of Service 4,434 0 0

Total, National Forest System 1,415,646 1,443,659 1,344,377

Wildland Firefighters [189,666] [213,265] 219,710

Total, Wildland Firefighters [189,666] [213,265] 219,710

Wildland Fire Management

Fire Preparedness 660,705 655,887 349,082

Fire Operations -- Suppression 690,186 741,477 911,032

Hazardous Fuels 280,119 291,792 291,533 

Rehabilitation and Restoration 6,189 5,000 0

Fire Research and Development 22,789 22,800 22,000

Joint Fire Sciences 7,882 13,000 8,000 

Forest Health Management -- Federal Lands (NFP) 14,779 14,800 14,252

Forest Health Management -- Cooperative Lands (NFP 9,853 10,000 10,014

State Fire Assistance (NFP) 45,816 43,000 35,004

Volunteer Fire Assistance (NFP) 7,773 12,810 8,000

Total, Wildland Fire Management 1,746,091 1,810,566 1,648,917

Capital Improvement & Maintenance

Facilities 123,698 117,874 119,647

Roads 220,688 210,297 227,431 

Trails 74,205 70,711 66,387

Infrastructure Improvement 12,743 12,143 9,100

Total, Capital Improvement & Maintenance 431,334 411,025 422,565

Land Acquisition

Land Acquisition -- Land and Water Conservation Fun 41,772 7,500 15,703

Acquisition of Lands for National Forests, Special Act 1,053 1,053 1,053

Acquisition of Lands to Complete Land Exchanges 231 231 231

Total, Land Acquisition 43,056 8,784 16,987

Range Betterment Fund 3,130 3,500 3,750

Gifts, Donations, and Bequests for Research 63 63 56

Management of NF Lands for Subsistence Uses 4,975 4,875 5,053

Permanent Working Funds

Brush Disposal 13,586 17,900 15,000

Timber Salvage Sales 75,846 74,800 74,000

Other 15,035 25,800 17,300

Total, Permanent Working Funds 104,467 118,499 106,300

Trust Funds Subtotal 191,091 186,000 132,000

TOTAL, ALL FUNDS 4,496,530 4,495,898 4,365,173

Allocation by Regions, Stations, and Area, FY 2006-2007 and Estimated for FY 2008

($ in Thousands)

Total does not include Payments to States
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 2 17-12 Business Operations Transformation Process

Business Operations Transformation 

Program Description 

The Forest Service’s Business Operations Transformation Program (BOTP) is one of the 

largest organizational changes in its 100-year history. The agency is streamlining and 

centralizing operations in budget and finance (B&F), human capital management (HCM), 

and information resource management (IRM). This effort is reducing redundancies and 

indirect costs while strengthening performance accountability. Numerous service level 

agreements (SLAs) are in place to monitor the performance of each organization. 

 (Dollars in Millions) Information 

Technology

Financial 

Management

Human Capital 

Management Total BOT

Current State Cost $76.3 $139.9 $84.9 $301.1 

Future State Cost $46.8 $101.2 $62.8 $210.7 

On-going Annual Cost 

Reductions (per business 

case)

$29.5 $38.8 $22.1 $90.4 

One-Time Investment Cost $12.0 $45.2 $62.1 $119.3 

Payback Period Less than 1 year Less than 2 years Less than 4 years Less than 2 years 

These changes are having profound impacts on all employees and in every office of the 

Forest Service. To continually improve efficiencies, effectiveness, and customer 

satisfaction, the agency is committed to conducting regular assessments and addressing 

areas in need of correction. Recent actions include a second Business Operations 

Transformation Assessment, development of recommendations from three internal strike 

teams, and implementation of a continuous improvement process through SLAs in 

concert with the new Operations Customer Service Board. 

 

Business Operations Transformation Assessments (BOTA) 

The BOTA phase 1 assessment was conducted in the fall of 2005, and the second 

assessment was conducted in the spring of 2006. The BOTA uses surveys, focus group 

discussions, interviews, quantitative measurement tools, and general observations to 

determine how transformations in B&F, HRM, and IRM have impacted field operations. 

The same four sites were used in both assessments: the Dixie National Forest, the San 

Bernardino National Forest, the Superior National Forest, and the Southern Research 

Station. 

The BOTA phase 1 assessment raised issues of payments and travel, communications, 

service level agreements, and ticket management. BOTA Phase 2 assessment reported 

improvements in IRM service center, reductions in payments backlog, and improved 

transfer of station processing. While BOTA phase 1 issues were addressed, the BOTA 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 2 17-13 Business Operations Transformation Process

phase 2 findings reported that the agency’s transformation still raised significant issues in 

many areas. Of greatest significance were improvements that needed to be made in 

communications; field employees’ understanding of their roles and responsibilities; 

training; and SLAs to help measure and improve processes and customer services. A 

third BOTA is planned for the fall of 2007. 

Strike Teams 

The field is adjusting to the new centralized system of service for B&F, IRM and HRM. 

This is a major change from the previous decentralized, in-house system of services 

rendered for these three functions. Now when issues arise, employees typically contact a 

service center rather than contacting in-house staff. For many, the new centralized 

service experience can be frustrating and time-consuming. 

 

Based on BOTA phase 2 findings, Forest Service leadership chartered three strike teams 

to address overarching challenges in field roles and responsibilities, communications to 

the field, and field training. 

Roles and Responsibilities 

The roles and responsibilities team assessed and clarified the intended responsibilities of 

field employees related to centralized business operations at various user levels. BOTA 

reports found that employees largely didn’t understand how to interact with specific 

business operations functions. Results of this team provide managers, specialists, and 

new employees with information on their individual responsibilities within IRM, HCM, 

and B&F. 

Field Training 

The field training team identified training programs and recommended delivery methods 

that are critical to employees’ understanding of their roles in the new business 

environment. Seven training courses have been identified as top priority, including 

IT/computer training, human resources done differently, supervisors in the new business 

operations environment, and employees’ responsibility in spending Forest Service funds. 

These training programs will be developed and delivered in FY 2007 and FY 2008. The 

team also recommended that leadership support and encourages a culture of continuous 

learning, whereby employees are current on the latest knowledge and skills. 

Communications 

Both BOTA reports found that communications within the Forest Service regarding 

business operations transformation were frequent but often ineffective. Several external 

studies gave added information to support the recommendations. The Communications 

Strike Team made recommendations to help improve employees’ trust in new systems 

and processes, increase leadership’s involvement and accountability, and establish a 

comprehensive agency-wide strategy for internal communications. Based on these 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 2 17-14 Business Operations Transformation Process

recommendations, the agency is putting added emphasis on internal communications. 

Immediate actions include but are not limited to: 

• Developing and implementing a comprehensive and coordinated communication 

strategy. 

• Coordinating among communication specialists for IRM, HCM, and B&F. 

• Identifying and distributing coordinated communication products to employees, 

including newsletters, improved websites, and regular conference calls to leadership. 

• Identifying change champions for all regions and stations, and identifying strategies 

to give employees tools to better work in the new business environment. 

Operations Customer Service Board (OCSB) and Service Level Agreements (SLAs) 

The OCSB was chartered by agency leadership in January 2006 to ensure the alignment 

of organizational goals, customer needs, service level agreements, and funding levels for 

centralized business services. The OCSB is made up of line officers, a union 

representative, and subject matter experts. The OCSB regularly communicates with 

IRM, HCM, and B&F leadership, evaluating and monitoring service level agreements 

and budget requests from IRM, HCM, and B&F leadership. They provide advice and 

recommendations to the Chief for continual improvement of these services. 

SLAs are developed between the OCSB and service providers to define the level and type 

of service to end users. Through SLAs, service providers monitor the timeliness and 

effectiveness of their services. With OCSB guidance, service providers: 

• Create and revise annual SLAs in a coordinated format, changing standards as needed 

to measure performance by problem resolution. 

• Publish and post SLAs in one location on the Forest Service intranet, accessible to all 

Forest Service staff. 

• Track and report SLA performance metrics for customer service measures on at least 

a quarterly basis, in a coordinated scorecard format. 

• Engage in continuous improvement of performance. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 3 17-15 Chief’s Reserve Fund

Chief’s Reserve Fund 

(dollars in thousands) 

FY 2006 Funding FY 2007 Funding FY 2008 Budget 

$9,900 $7,000 $7,000 

Description 

The Chief’s Reserve Fund (CRF) is managed in the Chief’s Office to fund emergencies 

or unforeseen events that occur throughout the fiscal year. This reserve fund allows units 

to respond quickly to unplanned urgent work without impacting the planned program of 

work. Beginning in FY 2007, the Chief’s Reserve Fund has received a $3,000,000 

reduction in response to agency efforts to provide additional funding to the field. Agency 

programs assessed for FY 2007 will include: 

FY 2007 Program Approved 

Forest & Rangeland Research 560,000 

Forest Health Management-Cooperative Lands 140,000 

Forest Health Management-Federal Lands 210,000 

State Fire Assistance 157,500 

Forest Stewardship 87,500 

Urban & Community Forestry 70,000 

Land Management Planning 280,000 

Inventory & Monitoring 560,000 

Recreation, Heritage, & Wilderness 630,000 

Wildlife & Fisheries Habitat Management 350,000 

Grazing Management 140,000 

Forest Products 630,000 

Minerals & Geology Management 175,000 

Vegetation & Watershed Management 630,000 

Landownership Management 280,000 

Law Enforcement Operations 245,000 

Hazardous Fuels 280,000 

Preparedness 630,000 

Facilities 420,000 

Roads 280,000 

Trails 175,000 

Infrastructure Improvement 70,000 

TOTAL $ 7,000,000 

Oversight/Administration 

At the Chief’s discretion, funds from this reserve are available for unplanned and/or 

emergency circumstances. Requests are evaluated against criteria including 1) the urgent 

nature of the event, 2) relevance of proposed use to priorities, 3) other funding source 

considerations, and 4) risks from not funding. Requests must be for work or projects 

exceeding $25,000. Initial fund mixes are determined at the beginning of the fiscal year, 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 3 17-16 Chief’s Reserve Fund

but may be remixed during the year to meet unanticipated needs. Funds are only spent in 

accordance with the purposes for which they were appropriated. Unused funds are 

distributed to the Regions, Stations, and Area as carryover in the following year. 

Program Uses

In FY 2006, CRF funds were approved for numerous unplanned projects. Total program 

amounts assessed and obligated in FY 2006 are illustrated in the table below. 

FY 2006 Program Approved Obligated 

Forest & Rangeland Research 792,000 678,779 

Forest Health Management-Cooperative Lands 198,000 43 

Forest Health Management-Federal Lands 297,000 63,480 

State Fire Assistance 222,750 93,372 

Forest Stewardship 123,750 40,000 

Urban & Community Forestry 99,000 1,041 

Land Management Planning 396,000 231,093 

Inventory & Monitoring 792,000 710,910 

Recreation, Heritage, & Wilderness 891,000 874,626 

Wildlife & Fisheries Habitat Management 495,000 328,540 

Grazing Management 198,000 70,242 

Forest Products 891,000 850,000 

Minerals & Geology Management 547,500 35,784 

Vegetation & Watershed Management 891,000 701,613 

Landownership Management 396,000 355,409 

Law Enforcement Operations 346,500 337,032 

Hazardous Fuels 396,000 270,000 

Preparedness 891,000 640,000 

Facilities 594,000 307,762 

Roads 396,000 163,044 

Trails 247,500 147,398 

Infrastructure Improvement 99,000 11,461 

TOTAL $ 9,900,000 $ 6,911,629 

Examples of the types of projects funded by the Chief’s Reserve Fund during FY 2006 

include: 

• Funding for projects focusing on reducing the threat of wildfire and associated risks 

to life and property in northern Colorado. These projects were direct results of efforts 

from the Northern Colorado Bark Beetle Cooperative, the congressional delegation, 

and other partners. ($500,000). 

• The purchase and distribution of 557 tons of woodstraw material across several 

regions to accomplish watershed improvements, TES habitat protection, road 

construction, road decommissioning, recreation facility maintenance, and emergency 

post-fire protection. ($200,000). 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 3 17-17 Chief’s Reserve Fund

• Immediate response to public safety issues arising from the reactivation of the 

Ferguson rockslide in Merced River Canyon, and the development and completion of 

a monitoring program should additional movement occur in the future. ($350,000). 

• Completion of the fieldwork re-inventory of Mississippi to facilitate timelier 

reporting of Hurricane Katrina damage. ($500,000). 

• Emergency Law Enforcement funding for protests, increased patrols, undercover 

operations, and special operations to combat Drug Trafficking Organizations. 

($250,000). 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 4 17-18 Conservation Education

Conservation Education Program 

FY 2006 Funding FY 2007 Funding FY 2008 Budget 

$2,002,000 $2,002,000 $1,802,000 

Program Description 

 

The Forest Service (FS) Conservation Education (CE) program teaches people about the 

land and natural resource management, and provides them with tools to make informed 

decisions to sustain natural and cultural resources, and to better understand their 

connection to the land. The agency emphasizes the development and use of educational 

materials and programs for a variety of issues including invasive species management, 

fire and hazardous fuel treatments, resource protection from unmanaged off-highway 

vehicle use, and open space preservation. The CE program helps develop an 

environmentally literate public by focusing on youth, pre-kindergarten through 12th

grade, and their formal and non-formal educators. Program staff are funded by a direct 

cost pool using all funds available to the Forest Service. Specific projects are funded 

according to the primary purpose of the project. 

The program reaches out to more than 4 million students and educators through partners 

and FS professionals at the local and regional levels. Some major partners that leverage 

our resources to reach out to diverse, underserved communities are: the Department of 

Health and Human Service’s Head Start Program, National Garden Clubs, Inc., Girl and 

Boy Scouts of America, Canon Envirothon, Project Learning Tree, and the Cradle of 

Forestry in the America Interpretive Association. 

Independent Reviews 

To ensure that our programs and materials meet the highest standards of professional 

quality, the North American Association for Environmental Education will conduct a 

resource review of our materials in FY 2007 and in FY 2008. 

FY 2008 Plans 

• Symbols program: 

o Develop Spanish versions of “Woodsy’s ABCs”, and invasive insects booklets. 

o Provide technical support to fire program outreach efforts and to the Smokey Bear 

program. 

• Offer training opportunities to: 

o Enhance the ability of FS resource professionals and partners to achieve 

excellence in conservation education using Nonformal Environmental Education 

Programs - Guidelines for Excellence. 

o Help teachers incorporate conservation stewardship and ethics into 

classroom curriculum. 

o Support diversity outreach training for teachers using Forest Service materials. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 4 17-19 Conservation Education

o Implement program evaluation tools under development: My Environmental 

Education Evaluation Resource Assistance and Ecological Understanding as the 

Guidelines for Evaluation of Nonformal Education.

• Assess programs and improve accountability: 

o Complete revision of the national information database for tracking and 

monitoring conservation education programs and activities.

o Unify the FS Conservation Education web presence, including maintenance and 

revision of “Symbols.com” and the CE website. 

o Implement evaluation programs being developed in partnership with The 

University of Michigan and FS Research and Development. 

• Connect youth to the outdoors: 

o Maximize our partnerships with: Hands on the Land, Linking Girls to the Land, 

Forest for Every Classroom, Project Learning Tree, NatureWatch and others 

through the “More Kids in the Woods” initiative. 

o Partner with FS recreation to produce educational materials on recreation and 

revamp the Snow Ranger program. 

• Ensure quality science-based conservation education materials: 

o Produce and distribute Natural Inquirer focused on biomass energy, disturbance 

ecology, and wildland fire. 

o Translate Investigator into Spanish and distribute to elementary schools. 

o Support teacher-training to use the Natural Inquirer for cultural sensitivity and 

outreach. 

o Complete development or review on at least one set of educational materials for 

FS priority issues. 

FY 2007 Program 

• Complete CE’s Strategic Plan and implement with CE’s refocused approach. 

• Symbols program: 

o Roll-out Junior Forest Ranger program with a new website and partnership 

opportunities. 

o Complete the Smokey Bear flip-book. 

o Pilot the Woodsy Owl program, in partnership with the Department of Health and 

Human Services Head Start program, to expand the delivery of conservation 

education to nearly one million youth and their families in five new States. 

• Training opportunities: 

o Promote opportunities to interest students, particularly minority youth, in natural 

resource careers. 

o Train FS staff and community teachers to implement and use conservation 

education in partnership with the EPA and North American Association for 

Environmental Educators. 

• Ensure that CE programs and materials are science based and relevant to the FS 

mission: 

o Develop educational materials and programs to support national emphasis areas 

for management of invasive species, fire and hazardous fuels treatments, resource 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 4 17-20 Conservation Education

protection from unmanaged off-highway vehicle use, and preservation of open 

space. 

o Develop exhibits and presentations demonstrating how conservation education 

can help accomplish line officer priorities. 

o Translate invasive species and wilderness editions of Natural Inquirer into 

Spanish and complete design. 

o Implement the Technology Learning Partnership, an education, research, and 

application partnership including the FS Natural Inquirer; the Cradle of Forestry 

in America Interpretive Association; and three school districts in Pennsylvania, 

North Carolina, and Georgia, with three science educators. 

Conduct regional level CE program reviews with two FS regions. 

Support the development of two new editions (energy and fire) of the Natural 

Inquirer. 

• Employ an interagency and partnership based approach to: 

o Participate in National Public Lands Day, National Volunteers Week, and 

Environmental Education Week 

o Conduct a CE national conference with FS Research, Interpretive Services, and 

other partners. 

o Initiate replication of Forest for Every Classroom in Texas. 

o Support United Nations FAO World Forests Edition, and produce the second 

printing of the “Tropical Forests” Edition of the Natural Inquirer. 

FY 2006 Accomplishments 

• Symbols Program: 

o Junior Forest Ranger Program revamped, and launched in summer 2006. 

o Completed production of the Junior Forest Ranger adventure guides, and 

distributed 50,000 to children throughout the United States. 

o Continued to develop the Woodsy Owl-DHS Head Start program partnership that 

will provide conservation education to pre-school children. 

o Junior Forest Ranger program materials received national recognition for 

excellence in graphic design from Graphic Design USA magazine. 

• Training opportunities: 

o Promote opportunities to interest students, particularly minority youth, in natural 

resource careers. 

o Developed proposal, and received a grant from the EPA-Office of Environmental 

Education to train FS staff and community educators to implement and use 

conservation education. 

o Supported professional training opportunities for Regional Conservation 

Education Coordinators. 

o Developed and supported professional training in conservation education for FS’s 

Eastern-Southern Regional University. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 4 17-21 Conservation Education

• Ensure that CE programs and materials are science based and relevant to the FS 

mission. 

o CE outreach to 4.4 million students and educators from pre-Kindergarten through 

12th grade. 

o Educational materials and programs developed and presented supported national 

emphasis areas for management of invasive species, fire and hazardous fuels 

treatments, resource protection from unmanaged off-highway vehicle use, and 

preservation of open space. 

o Structured and experiential activities and programs included: Smokey 

Bear/Woodsy Owl Poster Contest, Linking Girls to the Land, Hands on the Land 

network, A Forest for Every Classroom Teacher Training Institute. 

o Emphasized reaching traditionally urban and underserved audiences. In 2006, 

35% of the total number of people reached through conservation education efforts 

lived in urban areas. 

o Printed and distributed 100,000 copies of Invasive Species Natural Inquirer

magazine, and 80,000 copies of Wilderness Benefits Natural Inquirer magazine. 

o Developed proto-type of middle-school science journal, the Investi-Gator. 

• Enhanced existing partnerships within the Forest Service, and with outside partners, 

and built new strategic alliances. 

o Participated in National Public Lands Day, National Volunteers Week, and 

Environmental Education Week. 

o Formed a new partnership with the North American Association for 

Environmental Education to review and certify FS education materials. 

o Formed new partnership with the Prince William Network to develop and 

implement a strategy to better use technology in conservation education efforts. 

o Continued to maximize existing partnerships with the Hands on the Land 

network, Girl Scouts of America, Project Learning Tree, and the Forest Service’s 

Nature Watch and “More Kids in the Woods” programs. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 5 17-22 Deferred Maintenance and Asset Management

Deferred Maintenance and Asset Management 

Over the past decade, the Forest Service implemented a national effort to collect detailed 

data on infrastructure condition and maintenance and improvement needs. This effort was 

initially in response to both financial reporting requirements and direction from Congress, 

but has shown significant value in support of additional agency priorities. To date, the 

surveys of essentially all administrative buildings, dams, bridges, roads open to passenger 

cars, and recreation sites have been accomplished. Most assets are on a 5-year cycle to 

inventory and update the condition information. The most recent data available for annual 

maintenance, deferred maintenance and capital improvement needs for agency 

infrastructure is illustrated in the table below. 

The President’s Management Agenda and Executive Order 13327, Federal Real 

Property Asset Management established the framework for improved use and 

management of real property owned, leased, or managed by the Federal Government. The 

Forest Service recognizes the importance of real property resources through increased 

management attention, the establishment of clear goals and objectives, policies, and 

levels of accountability. The Forest Service expects to implement active management of 

its infrastructure portfolio based upon asset management principles established by the 

Office of Management and Budget (OMB). 

USDA’s Asset Management Initiatives three-year timeline document (derived from the 

Asset Management Plan approved by OMB) calls for the creation of an intra-Department 

working group, consisting of all the land holding agencies, to identify an overall deferred 

maintenance reduction target for the Department for each of the next three fiscal years. 

Individual deferred maintenance reduction targets for each landholding agency will be 

developed through this group, which will begin meeting in the second quarter of FY 

2007. 

The following objectives, which guide future actions, are taken from the Department of 

Agriculture’s Asset Management Plan: 

Objective 1: Department’s holdings support agency missions and strategic goals and 

objectives. 

Objective 2: Maximize facility utilization and collocate agency operations when 

possible. 

Objective 3: Accurately inventory and describe real property assets using the Corporate 

Property Automated Information System. 

Objective 4: Use performance measures as part of the asset management decision 

process. 

Objective 5: Employ life-cycle cost-benefit analysis in the real property decision making 

process. 

Objective 6: Provide appropriate levels of investment. 

Objective 7: Dispose of unneeded assets. 

Objective 8: Use appropriate public and commercial benchmarks and best practices to 

improve asset management. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 5 17-23 Deferred Maintenance and Asset Management

Objective 9: Advance customer satisfaction. 

Objective 10: Provide for safe, secure, and healthy workplaces. 

The Forest Service is committed to achieving these objectives of Asset Management, 

thereby sustaining a viable level of infrastructure, disinvesting in infrastructure that can 

no longer be managed to appropriate standards, rightsizing the portfolio, and eliminating 

the substantial backlog of both deferred maintenance and improvement needs. 

Major maintenance and capital improvement facility projects (those over $250,000) will 

be shown in the major project list table in the Capital Improvement and Maintenance 

Facilities narrative. Some have different components for funding and the table lists all 

major facilities work. 

Specific programmatic tools in support of Asset Management include: 

In FY 2006, the Forest Service Facility Realignment and Enhancement Act (Title V, 

Appropriations Act, P.L. 109-54) was enacted. This legislation authorizes the sale of 

unneeded administrative sites and the use of receipts for acquisition, maintenance, 

reconstruction and construction of administrative infrastructure, creating incentives to 

dispose of these facilities. In FY 2006, activities under this authority generated 

approximately $13.5 million in revenues and reduced facilities deferred maintenance by 

$2 million. 

The Department of the Interior, Environment, and Related Agencies Appropriations Act 

of 2006 authorized the Agency to assess all funds available to the Agency for the purpose 

of performing facilities maintenance on fire, administrative, and other (FA&O) and major 

visitor center facilities (Title III, Administrative Provisions, P.L. 109-54). 

Forest Service field units will be completing or updating facility master plans which 

identify fire, administrative, research, visitor centers, and recreation facilities for 

decommissioning, retention, alternate use, or acquisition. These plans will be used to 

actively manage the facility inventory, reduce deferred maintenance backlog, and 

decommission unneeded facilities. 

The Forest Service is implementing Recreation Site Facility Master Planning (RS-FMP) 

as a means to reposition the recreation site program to better meet current and future 

needs of recreation visitors. One of the primary goals of RS-FMP is to reduce recreation 

sites deferred maintenance by 20% on each national forest over the five years that RSFMP program of work covers. Decommissioning of non-priority recreation sites is one 

method national forests may use to reduce deferred maintenance. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 5 17-24 Deferred Maintenance and Asset Management

USDA Forest Service 

Annual Maintenance, Deferred Maintenance, and Capital Improvement Estimates 

As Reported by Field Units 

September 2006 

(Dollars in Thousands) 

Program 

Estimated 

Annual 

Maintenance 

Deferred 

Maintenance 

Estimated 

Capital 

Improvement 

Buildings $67,413 $482,746 $94,819 

Dams ** $21,045 ** 

Heritage Assets 

** $31,571 $349 

Fences $28 $402,895 $18 

Minor Constructed 

Features* 

$11,076 $88,155 $80,096 

Roads $649,265 $4,053,765 $1,170,135 

Bridges ** $116,581 ** 

Trail Bridges ** $9,654 ** 

Trails ** $242,602 ** 

Wildlife, Fish, TES $2,339 $6,313 $13,242 

Water $14,380 $84,625 $14,553 

Wastewater $6,671 $30,785 $2,765 

Handling Facility $2 $23,735 $5 

Total $751,174 $5,594,472 $1,375,982 

* Minor Constructed Features includes Developed Recreation Sites and other minor constructed 

features. 

** Data not available at this time. The Agency will emphasize data collection during FY 2007. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 5 17-25 Deferred Maintenance and Asset Management

Note that the annual maintenance, deferred maintenance, and capital improvement 

estimates shown are limited to direct project costs, in accordance with Federal 

Accounting Standards Advisory Board (FASAB) requirements. 

Annual maintenance (column 1) represents the agency estimates to preserve the 

serviceability of existing infrastructure assets via preventative maintenance, repairs, and 

replacement of damaged or worn out components. It includes work needed to meet laws, 

regulations, codes, best management practices, and other applicable standards, as long as 

the original intent or purpose of the infrastructure asset remains unchanged. Annual 

maintenance may include unscheduled or catastrophic failures of infrastructure assets 

such as failed water systems, wastewater systems or HVAC systems. Proper annual 

maintenance provides efficient public service and maintains the value of the 

government’s infrastructure investment. The Building Research Board recommends that 

annual maintenance needs for facilities and recreation sites be estimated at 2 to 4 percent 

of the current replacement value; $160 to $200 million per year. 

Deferred maintenance (column 2) is maintenance that is not performed as needed or 

scheduled. Deferred maintenance causes deterioration of infrastructure asset 

performance, increased repair costs, and a decrease in the asset value. Deferred 

maintenance estimates for all assets are based on condition surveys performed on a 5-

year maximum revolving schedule, with the exception of bridges which are on a 2-year 

maximum revolving schedule. Condition surveys were performed on a statistical sample 

of closed and very low traffic volume roads. Repairs, rehabilitation to restore 

functionality, replacement, and decommissioning are actions that are taken to reduce or 

eliminate deferred maintenance. 

Capital improvement estimates (column 3) includes construction of new infrastructure 

assets, alteration of existing infrastructure assets to change function, and expansion of 

infrastructure assets to change capacity to meet needs that are different from the original 

intent. Improvements are often required to expand public service capability or 

recreational opportunities. In many cases, capital improvements eliminate deferred 

maintenance backlog. Capital improvement work includes survey, design, contract 

preparation, contract administration, and construction costs. Examples of capital 

improvement needs include additional barracks space to house fire crews, the 

rehabilitation of a campground to accommodate larger RVs, and the replacement of oldoutdated facilities that have exceeded there design life. 

Facilities Deferred Maintenance Accomplishment Report

Per Office of Inspector General (OIG) Official Audit Report No. 08601-02-HY the Forest 

Service has agreed to pursue closing deferred maintenance of existing facilities 25 

percent by FY 2010. The Agency has developed a facility accomplishment report to 

track and monitor progress in deferred maintenance. The report uses existing data and 

provides managers with monthly updates on progress. The following table shows existing 

deferred maintenance at the end of FY 2005 with reductions in 2006 and estimated 

deferred maintenance eliminated for 2007 and 2008. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 5 17-26 Deferred Maintenance and Asset Management

Facilities Features Fiscal Year 

Deferred 

Maintenance 

End of FY 

Deferred 

Maintenance 

Eliminated 

Balance of 

25% 

Target 

2005 $438,900 na $109,725 

2006 $29,290 $80,435 

2007 $30,000 $50,435 

Buildings 

2008 $30,000 $20,435 

2005 $26,300 na $6,575 

2006 $1,703 $4,872 

2007 $1,800 $3,072 

Dams 

2008 $1,800 $1,072 

2005 $88,785 na $22,196 

2006 $118 $22,078 

2007 $5,000 $17,078 

Minor 

Constructed 

Features 

2008 $5,000 $12,078 

2005 $81,249 na $20,312 

2006 $5,902 $14,410 

2007 $6,000 $8,410 

Water 

2008 $6,000 $2,410 

2005 $31,081 na $7,770 

2006 $1,255 $6,515 

2007 $1,200 $5,315 

Waste Water 

2008 $1,200 $4,115 

2005 $666,315 $166,578 

2006 $38,268 $128,310 

2007 $44,000 $84,310 

Total 

2008 $44,000 $40,110 

FY 2008 Plan 

• Complete and/or eliminate approximately $44 million of deferred maintenance 

backlog with available program funds and authorities. 

• Continue refinement of Federal Real Property Profile (FRPP) as required by E.O. 

13327. 

• Expedite the elimination of unneeded or underused administrative space under the 

Forest Service Facility Realignment and Enhancement Act and other special 

legislation authorities. 

• Using the Road Analysis Process, plan to selectively decommission additional roads 

and allow many less utilized roads to revert to a lower, less maintenance intensive 

standard. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 5 17-27 Deferred Maintenance and Asset Management

• Continue to optimize the use of limited investment and maintenance funds by 

eliminating investments and maintenance at the less utilized facilities and 

decommissioning such facilities over time 

• Complete the analysis phase of Recreation Site Facility Master Planning (RSFMP) on 

the majority of national forests to assess where to focus investments in an efficient 

and effective manner through prioritizing recreation sites that are responsive to the 

public’s needs. 

• Begin implementation of RSFMP analysis to retire deferred maintenance in high 

priority recreation fee sites. 

FY 2007 Program 

• Complete and/or eliminate approximately $44 million of deferred maintenance 

backlog with available program funds and authorities. 

• Initiate implementation of the USDA Asset Management Plan and associated Forest 

Service Building Block Plan. 

• Expedite the elimination of unneeded or underused administrative space under the 

Forest Service Facility Realignment and Enhancement Act and other special 

legislation authorities. 

• Continue update on FRPP, with focus on USDA performance measures that assist in 

identifying assets subject to disposal, retention, rehabilitation, etc. 

• Identify assets that will exit the USDA portfolio in FY08 as a step to right-size the 

agency’s infrastructure portfolio. 

• Continue reduction of unneeded or underutilized buildings through the conveyance 

authority. 

• Utilize new facility and recreation site master plans to optimize facility investment 

and maintenance funding with emphasis toward backlog maintenance reduction. 

• Complete recreation site analysis process on 34 national forests to move national 

forests toward a sustainable recreation site program and aligning their recreation sites 

and future capability with visitor needs. 

• Initiate a process that will retire deferred maintenance in high priority recreation fee 

sites resulting from RS-FMP analysis. 

• Use road maintenance funding selectively through adoption of Road Analysis Process 

(RAP), optimize the use of the limited funding and reduce road standards where 

applicable. 

• Continue decommissioning excess road and facility infrastructure. 

• Continue an assessment for facility maintenance from resource program funds to 

provide incentives for reducing unneeded facilities. 

FY2006 Accomplishments 

• Eliminated over $38 million of facilities deferred maintenance backlog with available 

program funds and authorities. 

• Completed population of FRPP data to CPAIS for approximately 51,000 assets as per 

OMB/USDA direction. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 5 17-28 Deferred Maintenance and Asset Management

• Completed development of Forest Service Building Block Plan that tiers to USDA 

Asset Management Plan. 

• Generated nearly $35 million in revenues through conveyance and real property sale 

authorities. 

• Reduced total deferred maintenance by approximately 5 percent from FY 2005 levels. 

• Completed Recreation Site Facility Master Planning analysis process on 31 national 

forests. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 6 17-29 Facilities Maintenance Assessment

Facilities Maintenance Assessment 

Background 

Beginning in FY 2006, Congress authorized a multi-program assessment for maintenance 

of fire, administrative, and other (FA&O) facilities, including recreation visitor centers 

(Title III, Administrative Provisions, P.L. 109-54). Appropriated funds from Forest and 

Rangeland Research, State and Private Forestry, National Forest System, Wildland Fire 

Management, Capital Improvement and Maintenance, Land Acquisition, Other 

Appropriations, and eligible Permanent and Trust Fund accounts were assessed up to $35 

million. For FY 2008, the agency has proposed to increase the facilities assessment level 

to a maximum of $45 million. FA&O facilities include fire facilities, such as airtanker 

bases, lookouts, airports, heliports, and fire management centers; administrative facilities, 

such as administrative offices (ranger district offices, forest supervisor offices, regional 

offices, research stations and laboratories), service and storage buildings; and other 

facilities, such as telecommunication facilities, towers, and dams, and recreation visitor 

centers. Maintenance less than $250,000 for these facilities will use funds collected by 

this assessment. Maintenance for FA&O and recreation visitor centers greater than 

$250,000 is funded through the Capital Improvement and Maintenance Facilities budget 

line item and is shown on the Major Facility Project List. 

The Forest Service currently maintains approximately 24 million square feet in an 

inventory of approximately 20,000 FA&O buildings. The agency also maintains an 

inventory of over 19,000 dams and numerous other facilities such as water and 

wastewater systems and communication facilities. The current inventory is larger than 

needed and many facilities are in disrepair as evidenced by a large deferred maintenance 

backlog. It has been difficult to properly maintain facilities with available resources. 

Prior to new authorities authorized in FY 2006, the agency lacked direct incentives to 

reduce inventory and resultant maintenance needs. 

Using a program assessment to fund facility maintenance provides an incentive to dispose 

of unneeded buildings and provide a restraint on new construction, because the cost of 

facilities maintenance is borne by an assessment of program funds. This provides 

financial accountability for the cost of doing business. 

Anticipated Future Years 

Assessment- In FY 2008, the Forest Service proposes a program up to $45 million. An 

assessment and allocation strategy is being designed. Consistent with FY 2007, the 

assessed amount will be limited to 4 percent of the facility replacement value and not to 

exceed $7 per square foot. This new strategy will allow the assessment made for each 

type of facility to vary based on maintenance cost differences. For example, a recreation 

visitor center will typically cost more per square foot than a storage building. The current 

system does not address these important cost discrepancies. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 6 17-30 Facilities Maintenance Assessment

Allocation- Currently, the Forest Service proposes to allocate $35 million based on 

assessed square footage. The proposed additional assessment of $10 million will be 

allocated based on performance criteria and need. Criteria for allocation of the remaining 

$10 million are currently being developed. Any health and safety concerns will be one of 

the priorities. 

FY 2007 

Assessment and Allocation - As directed by Congress, the FY 2007 assessment will be 

based on approximately 24 million existing square feet. A square footage assessment of 

all facilities intended under this authority totaling $35 million equates to approximately 

$1.48/sq. ft, which falls within the limits of 4 percent of the facility replacement value 

and $7 per square foot. Assessments are then distributed across the budget line items 

based each program’s prior year direct labor hour charges. The funds were allocated in a 

need based system, based on total gross square feet. 

The following tables display the assessments and allocations by unit. 

FY 2007 Facilities Maintenance Assessment and Allocation by Unit 

Unit Name 

Total Gross 

Square Feet 

(GSF) 

Dollars ($) 

per 

GSF 

Total 

Assessment 

($ thousands) 

Total 

Allocation 

($ thousands) 

Northern Region 2,565,351 1.48 $3,848,707 $3,848,707

Rocky Mountain Region 1,440,586 1.48 $2,177,741 $2,177,741

Southwestern Region 1,564,710 1.48 $2,322,257 $2,322,257

Intermountain Region 2,101,326 1.48 $3,118,673 $3,118,673

Pacific Southwest Region 4,010,156 1.48 $5,951,655 $5,951,655

Pacific Northwest Region 4,140,936 1.48 $6,145,751 $6,145,751

Southern Region 2,036,528 1.48 $3,022,504 $3,022,504

Eastern Region 2,917,715 1.48 $4,330,313 $4,330,313

Alaska Region 530,571 1.48 $787,445 $787,445

Region Subtotal 21,023,015 1.48 $31,705,046 $31,705,046

 

Forest Products Lab 402,850 1.48 $597,888 $597,888

Int. Inst. Of Tropical Forestry 27,045 1.48 $40,139 $40,139

Rocky Mountain Station 414,247 1.48 $614,803 $614,803

North Central Station 163,483 1.48 $242,633 $242,633

Northeast Station 263,929 1.48 $391,709 $391,709

Pacific Northwest Station 280,326 1.48 $416,045 $416,045

Pacific Southwest Station 190,404 1.48 $282,587 $282,587

Southern Research Station 477,818 1.48 $709,151 $709,151

Research Subtotal 2,220,102 1.48 $3,294,954 $3,294,954

 

TOTAL 35,000,000 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 7 17-31 Federal Excess Property

Federal Excess Personal Property (FEPP) and Firefighter 

Property (FFP) program 

Federal Excess Personal Property 

The Forest Service is authorized to loan property, which is no longer used by other 

Federal agencies, to the States for rural and wildland fire protection (40 U.S.C. 483). The 

States use the equipment in their fire protection programs or assign the loaned property to 

cooperating rural fire departments. Equipment loaned through the program can be 

intended for operation, or can be intended to provide parts for maintenance and repair of 

equipment loaned previously. 

Firefighter Property Program 

The Department of Defense (DoD) has authorized the Forest Service to manage the 

receipt of DoD excess personal property that is usable for firefighting or emergency 

services. Participating States will gain ownership of all FFP property on receipt. All 

items acquired must be put into use for firefighting or emergency services. 

Funding is not required to obtain property through either of these programs. 

FY 2008 Plans 

• Add guidance concerning the new FFP program to the Desk Guide. 

• Update the information in Forest Service Handbook (FSH) 3109.12. 

• Publish the FSH 3109.12 and the Desk Guide on the FEPP/FFP web site. 

• Continue to provide fire equipment through FEPP at the level experienced in FY 

2006. 

• Continue expansion of FPP program, with additional State agreements coming on 

line. 

• An additional 5-7 aircraft being used for parts are slated for disposal. 

FY 2007 Program 

• Continue to bring more State cooperators into the FFP program. 

• Update the Federal Excess Property Management Information System (FEPMIS). 

• Compile reports, spreadsheets, charts, and graphs through FEPMIS, using ad-hoc 

reporting. 

• Provide training and direction on the new FFP program, the new FEPMIS, and 

Cognos Reports. 

• Continue to provide fire equipment through FEPP at the level experienced in FY 

2006. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 7 17-32 Federal Excess Property

• Continue expansion of FPP program, with additional State agreements coming on 

line. 

• In FY 2007, no aircraft are expected to be acquired. 

• An estimated 8-12 aircraft being used for parts are slated for disposal in FY 2007. 

FY 2006 Accomplishments

• The FFP became available to State agencies in March 2006. 

• Over $16 million dollars worth of property was acquired in the first 5 months with 

6 States requisitioning property. 

• FS began planning and building a new database and reporting system to generate 

information on the FEPP and FFP programs. 

• FS created a new web page to provide information and links for the State 

cooperators. 

• Ten aircraft were acquired through excess sources. Of these, four were used to 

supply parts for other similar aircraft; 

• Twelve to 15 aircraft were slated for disposal. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 8 17-33 Fire Transfers – FY 2006

Fire Transfers – FY 2006 

In FY 2006, the United States experienced the most expensive wildfire season in history. 

The Forest Service spent $1.501 billion to suppress approximately 11,257 wildfires that 

burned over 2 million acres of land under Forest Service responsibility. Suppression of 

these wildfires was a joint effort among other Federal, State, Tribal and local wildland 

firefighting entities. 

To cover unexpected wildfire suppression costs, the Forest Service transferred $200 

million from discretionary and mandatory accounts, and the Forest Service Working 

Capital Fund. 

Congress appropriated an additional $100 million in the FY 2007 Department of Defense 

Appropriations Act 2007 (P.L. 109-289) for wildfire suppression and to repay the 

transfers. No additional funds are necessary. 

The table below displays the FY 2006 enacted amounts and the amount transferred from 

Forest Service units to cover anticipated suppression expenditures. 

FY 2006 Forest Service 

Funds Withdrawn from Field for Transfer to Suppression

(Dollars in Thousands) 

Forest Service Appropriation FY 2006 Suppression 

 Enacted Transfers 

Discretionary Appropriations 

National Forest System $1,455,646 $16,000

Land Acquisition/L&WCF $41,772 $5,000

Permanent Appropriations 

Timber Purchaser Election* $73,287 $10,000

Trust Funds 

Knutson-Vandenberg (K-V) Funds* $671,310 $159,000

Forest Service Working Capital Fund $10,000

 

GRAND TOTAL $1,585,916 $200,000

* Total available resources (FY06 collections and carryover) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 9 17-34 Forest Products Lab Modernization

Forest Products Laboratory Modernization 

The Forest Products Laboratory (FPL) has identified significant needs for the 

construction and reconstruction of facilities, as well as for capital equipment investment 

projects necessary to modernize the laboratory and maintain the status of the leading 

wood utilization research institution in the nation. These projects include a multi-use 

research laboratory facility to house several research areas: Durability Test Facility, 

Wood Preservation Research Laboratory, and Advanced Materials, Composites and 

Structures Laboratory. The proposed modernization effort includes utility upgrades to 

the Advanced Fiber Processing and Paper Products Laboratory, an addition to the Fire 

Research Laboratory, and installation of central heating, ventilation, and air-conditioning 

at the main building. 

The FPL completed a long-range master planning effort for the campus late in 2004 and a 

Forest Service mandated conceptual phase value analysis (VA) in January 2005. The 

FPL Facilities Master Plan (FMP) identifies priorities within the proposed FPL 

modernization effort, consistent with the strategic plans of FPL management. During the 

process, the VA team performed a functional analysis to understand the proposed 

projects, identified creative alternatives in order to maximize the benefit FPL might 

realize, and developed planning estimates for the proposed alternatives. FPL has based 

final project priorities and developed direction for the proposed modernization effort on 

the VA recommendations. 

In February 2005, FPL began the design process for the project by procuring professional 

architect-engineering (A-E) services. The A-E firm conducted a design charrette (10 

percent design) in May 2005, including review of the FMP and conceptual VA report, 

interviews with FPL scientists and staff, and investigation of existing facilities to 

establish basic project parameters and design standards. The final design documents for 

the multi-use laboratory, were completed in December 2006, with February 2007 as the 

estimated ready-for-advertisement date of the project bid package. 

In December 2005, the FPL conducted a second design phase VA on the 60 percent 

project plans. In addition to the design documents, the VA team reviewed the results of 

the first VA, the FMP, the design charrette report, and the OMB Exhibit 300 in order to 

identify any potential cost saving measures, and to validate the decision to construct 

additional lab space in the proposed location. FPL chose to implement several costsaving recommendations from the second VA, which required some re-design effort. The 

additional design work extended the projected design duration, resulting in a completion 

date of December 2006. 

The following are brief descriptions of the current identified needs: 

Durability Test Facility – Health concerns related to mold in homes and other public 

buildings, such as schools, have significantly increased in recent years. Most experts 

agree that excessive moisture in buildings is the root cause of mold, and in most cases, 

information regarding water intrusion and how to correct water damage, is anecdotal at 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 9 17-35 Forest Products Lab Modernization

best, primarily because of the great variety in building practices, building sites, and 

climate. Currently, minimal quantitative research is conducted on water intrusion and 

drying. The proposed facility at the FPL will enable measurement of wetting and drying 

under controlled, but realistic conditions, allowing scientific evaluation of different 

design and construction techniques. 

A state-of-the-art research facility related to the durability of homes and other public 

structures would allow assessment of effects of rain, wind, sun, temperature, and 

humidity on these buildings. 

Wood Preservation Research Laboratory – Challenged with aging equipment and 

inadequate facilities, the current wood preservation research laboratory has been located 

in the main FPL building since 1931, because the research equipment, including treating 

cylinders and plumbing, was integrated with the building infrastructure. Space in the 

wood preservation research facility is severely limited and much of the equipment is 

outdated. Therefore, rehabilitating the current Wood Preservation Research Laboratory is 

not feasible due to the limited space, conflicts with the existing building infrastructure, 

and proximity to a large number of working employees. 

A modernized wood preservation research laboratory would provide an efficient research 

program and provide for the health and safety of employees. The new laboratory is 

designed to complement similar facilities currently available through universities, 

industry, or other government agencies. 

Advanced Materials, Composites, and Structures Laboratory – Two of the primary 

research facilities at FPL are (1) the Engineering Mechanics Laboratory (EML), where 

material, component and full-scale structural testing is completed; and (2) the Composites 

Laboratory, where composite materials involving wood and other materials are 

developed, tested, and evaluated. The EML is located in Building 1 (constructed in 

1931) and the Composites Laboratory is in a small building approximately 1000 feet 

away (constructed in the early 1940s). Due to the age of the buildings, they are not 

designed for computerized test equipment or modern electrical wiring loads. The EML 

structural research capability is limited because the building foundations are not strong 

enough to support the test equipment and testing loads. In addition, much of the 

equipment in the Composites Laboratory is not adequately ventilated or isolated from 

office space in order to allow the use of fungicides, fire retardants, or new “hyperallergenic” adhesives. Most of the manufacturing, testing, and analysis equipment is 

outdated and neither lab was designed to allow mobile equipment for handling the large 

numbers and sizes of materials that are typically evaluated for ongoing research. It is 

inefficient and expensive to continue a long-term maintenance and upgrade program for 

EML and the Composites Laboratory, which are central to the FPL research program. 

The proposed EML and Composites Laboratory would be located adjacent to each other 

within the proposed combined laboratory. This has been studied extensively in concept to 

assess what facilities and equipment are needed to complement, rather than duplicate, 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 9 17-36 Forest Products Lab Modernization

similar facilities currently available through universities, industry, or other government 

agencies. 

Advanced Fiber Processing and Paper Products Laboratory – Among the long-term 

improvements to the pilot plant area, FPL plans to upgrade the existing paper machine 

and improve capabilities to produce high yield pulps. For high yield pulping, the initial 

plan was to install 36" diameter refining equipment because this scale is intermediate 

between the laboratory scale and current commercial practice. Due to the difficulty in 

routinely handling 5-10 tons of wood and fiber the lab has selected a smaller scale 

alternative operating at 1-2 tons per day and using 16" diameter refiners. Recently, FPL 

obtained an excellent, surplus pilot refining line at North Carolina State University. To 

accommodate this equipment, FPL will clear space in the lower level of the existing 

Advanced Fiber Research building for the new equipment and update the electrical 

system to meet current code requirements. 

Updated pulping facilities will provide state-of-the-art research capability to keep up with 

current technology and capabilities available internationally in competitor nations. 

Fire Research Laboratory – Research on fire growth and improving survivability of 

wood structures in the wildland-urban interface and other large fire threats has been 

hampered by the very limited full-scale capabilities in the current facility. The current 

facility lacks adequate test space and is crowded with outdated test equipment, which 

severely limits the lab’s capabilities to use existing equipment and poses safety issues. 

A large-scale fire test facility will allow the lab to address issues regarding the 

construction and protection of wood structures in the wildland-urban interface and other 

large-scale threats and provide the capability to simulate actual fire scenarios, better 

validate computer models, and evaluate protection options or design changes. Equipment 

will be updated and ventilation and pollution controls will be improved. 

Central Heating, Ventilation, and Air-Conditioning, (HVAC) Building 1 – The FPL main 

building, Building 1, is not centrally controlled for temperature or humidity, two critical 

factors when evaluating the engineering performance of wood products. Office space in 

Building 1 is cooled by 180 individual window air conditioners. Additionally, 165 tons 

of cooling capacity comes from larger three-phase, single-pass water cooled airconditioning units. Building 1 also has controlled-environment rooms with a year-round 

“process load” of 100 tons of cooling capacity. The majority of this equipment is 

outdated and expensive to maintain.

A modern 700-ton capacity centralized HVAC system would provide an estimated 74 

percent reduction in used amperage and over 20 million gallons per year savings in water 

for cooling purposes. Total annual cost avoidance for electricity and water is estimated to 

be $59,000. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 9 17-37 Forest Products Lab Modernization

Funding Investment Requested 

Current plans include a phased construction schedule as follows: 

• Phase I – entire building enclosure for the multi-use laboratory (MUL) and 

interior division/finishes for the Wood Preservation Laboratory area. 

• Phase II – interior division/finishes for the areas of Durability Test Facility, 

Composites Laboratory, and Engineering Mechanics Laboratory to continue the 

MUL. 

• Phase III – site work and other remaining work to complete the MUL, Advanced 

Fiber Processing and Paper Products Laboratory upgrades, Fire Research 

Laboratory addition, and installation of central HVAC at Building 1. 

The USDA Forest Service followed the House report recommendation to work with 

industry partners and research users to develop a comprehensive, agency-wide wood 

products research plan to guide future capital investments and conduct a strategic review 

of facilities. Feedback from cooperators and partners overwhelmingly concluded that the 

FPL facility modernization is a top priority need for wood utilization research. The 

USDA Forest Service, Research and Development integrated wood utilization strategy 

has been delivered to Congress. 

The FY 2005 appropriation included $986,000 (Congressional earmark) to FPL for 

construction of a Durability Test Facility and the FY 2006 appropriation included 

$1,990,000 (Congressional earmark) to FPL toward the modernization project. FPL will 

retain these funds until such time FPL acquires adequate funding for the first proposed 

phase of construction. 

The FY 2007 planned program for capital improvement provides $15,144,000 to initiate 

Phase 1 of the modernization of the Forest Products Laboratory. The FY 2008 President’s 

Budget proposes $15.0 million in Capital Improvement funding to initiate Phase 2 of the 

3-phase modernization. This modernized facility will provide a state-of-the-art research 

environment that will greatly enhance the capabilities and efficiencies of lab’s research 

programs. Additionally, this modern facility will promote up-to-date applied and 

cooperative research with a wide variety of university, industry, government, and 

international collaborators. 

The projected capital investment cost of phased construction can be higher than for 

project construction completed all at one time, due to potential cost escalations. The 

Forest Service is taking steps to mitigate the increases of project cost from phased 

implementation. For example, the Forest Service will write the project solicitation so that 

as many bid options can be awarded under the first phase funding authority, along with 

the building enclosure base bid. If received bids are low, FPL will award more options, 

resulting in more work completed in Phase 1 and lower potential escalation of cost for 

that work. If approval and out-year funding is timely for the project, the second phase 

can be advertised and awarded before the first phase is complete, encouraging a seamless 

transition between the two phases. In addition, the Forest Service has combined what 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 9 17-38 Forest Products Lab Modernization

began as a four-phase project into only three phases, to mitigate further potential cost 

increases. 

Return on Investment 

The Forest Products Laboratory (FPL) is the USDA Forest Service’s only national 

laboratory and is the Nation’s leading Federal forest biomass utilization research 

laboratory. Utilization of forest biomass is critically important to forest management, the 

U.S. economy, and solving some of America’s most important public problems and 

issues. 

Importance of Utilization to Forests and Forest Management – Forest biomass 

utilization helps offset forest and rangeland management costs on public lands by 

providing an economic return for woody biomass: to reduce fuel loading by removing 

dead or dying insect and diseased trees; and by removing noxious or invasive species. 

On private lands it provides outlets for similar type materials and the economic return 

helps privately held forestlands compete against fragmentation and conversion to nonforest uses. With over 70 percent of America’s forests privately owned and roughly twothirds of our forestland located east of the Mississippi River, maintaining forest cover by 

helping privately-held forests compete economically is critically important to clean 

water, carbon sequestration, wildlife habitat, species diversity, open space, and 

recreation. 

Importance of Utilization to the Economy – Use of wood for forest products is of 

major importance to meeting the needs of the American public and for the U.S. economy, 

and is a part of the President’s energy policy. The forest products industry is based on 

our largest renewable resource and provides indispensable products to our modern 

society. About 300 million tons of timber is harvested annually to produce forest-based 

materials. Over 225 million tons of solid sawn wood, glued laminated beams, oriented 

strandboard, medium density fiberboard, plywood, veneer, paperboard and paper, and 

array of similar materials are consumed annually in the U.S. The forest products sector 

contributes over $250 billion per year to our nation’s Gross Domestic Product (GDP) and 

provides employment for over 1.5 million citizens. In 46 out of 50 states, the forest 

products industry is in the top 10 industries from the viewpoint of contributions to GDP. 

Importance of Forest Products to Other National Issues and Our Future – America’s 

forests have enormous untapped potential to address major issues facing our Nation, 

including national energy security, global climate change, halting decline in ecological 

services such as air and water quality, and global competitiveness of our Nation’s 

industries. Forest products can be a critical contributor to a sustainable, renewable 

biomass-based economy. Increased utilization of renewable and recyclable forest 

products provides a viable means of reducing CO2 emissions and the Nation’s foreign 

petroleum requirements, while at the same time providing societal benefits to many rural 

and underdeveloped areas. Similarly, nanotechnology is expected to be a critical driver 

of economic growth and development in the 21st century. Wood-based lignocellulosic 

materials as self assembling nanomaterials are virtually unexplored despite cellulose 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 9 17-39 Forest Products Lab Modernization

being one of nature’s most abundant biological materials. Wood-based self-assembling 

nanomaterials could be sources of new generations of electronic and optoelectronic 

devices, carbon nanotubules, and surface active, cellular nanowalled materials that are of 

high value and importance to fueling the next industrial revolution and keeping America 

strong in the global economy. 

FPL Positioned as a National Laboratory – FPL has worked and continues to work to 

position itself to be the lead for forest biomass Research and Development (R&D) in the 

U.S. It has key partnerships in place with those institutions and groups that are most 

critical to its successfully carrying out its mission. 

Within the Forest Service, the FPL has sought to work with and interact with the National 

Forest System and State and Private Forestry (S&PF) to resolve issues and problems 

critical to their needs where R&D can provide solutions. R&D and technology transfer to 

economically utilize small diameter hazardous fuels; underutilized species, and other 

low-value forest biomass is being carried out. 

FPL also works directly with industry to overcome technical barriers to using 

noncommercial forest biomass, such as small diameter material and underutilized species. 

The FPL targets and works with industry, from small companies to international forest 

products corporations. The FPL has strong relationships with the American Forest & 

Paper Association and their Agenda 2020 research initiative. FPL works with Agenda 

2020 on such programs as advanced housing R&D, forest biorefinery R&D, and 

nanotechnology R&D. The FPL Director also participates in the. The Technical 

Association of the Pulp and Paper Industry Research Management Committee identifies 

emerging industry R&D needs, emerging science and technologies from other business 

sectors, and other emerging governmental policy, social, and business trends of 

importance to the pulp and paper industry within the context of the global economy. 

The FPL is positioned to work collaboratively and interactively with universities. It 

participates in two major coalitions that cover the forest products university research 

communities. The Society of Wood Science and Technology (SWST) research 

community provides an umbrella organization for all U.S. universities with departments 

focused on solid sawn wood products and composites. The Pulp and Paper Education 

and Research Alliance (PPERA) provides an umbrella organization for all U.S. 

universities with departments focused on pulping and papermaking. 

The FPL has two major initiatives with universities. The first is the Coalition for 

Advanced Wood Structures. This group receives some funding through the Forest 

Service. The second is the Woodfiber Initiative in Science and Engineering (WISE) and 

includes all eleven of the PPERA universities. WISE has just started up and is focused 

on the FPL and the universities working together to create the enabling science and 

technology needed to move the forest biorefinery and nanotechnology forward. Lastly, 

the FPL is working with the College of the Menominee Nation (CMN) and four other 

Forest Service units (R-9, NA S&PF, NCRS, NERS) to establish a “Center for First 

American Forestland.” The focus of this center and collaboration is sustainable forestry 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 9 17-40 Forest Products Lab Modernization

and sustainable forest products production focused on Native Americans and Native 

American forestlands. 

The FPL is also positioned to work with other important Federal entities. The FPL works 

with the U.S. Postal Service on the performance and security of stamps, Federal Highway 

Administration on use of wood in transportation, (e.g. timber bridges, guard rails, etc.), 

the National Science Foundation on forest biorefinery and nanotechnology, the 

Department of Energy for forest biorefinery (National Renewable Energy Laboratory) 

and on biotechnology (Joint Genome Institute & Pacific Northwest National Laboratory). 

The FPL is a member of the Nanoscale Science, Engineering, and Technology 

Subcommittee of the National Science and Technology Committee which oversees the 

entire $982 million per year National Nanotechnology Initiative. 

State of the art facilities and equipment are critical to continuing the research at the 

Forest Products Laboratory and the presence of such facilities and equipment can 

significantly help in attracting exceptional research scientists. These factors (recognized 

scientists, and modern facilities and equipment) are also key to continued cooperative 

research with universities and the public and private sector. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 10 17-41 Indirect Costs

Indirect Costs 

Background 

The Forest Service’s continued commitment towards reducing indirect costs is evidenced 

by the recent centralization of the Forest Service administrative functions at the 

Albuquerque Service Center. To date, the centralization includes the Budget, Finance, 

and Information Technology functions. In addition, the Human Capital Management 

function migration to Albuquerque will be completed by FY 2008. 

This centralization of administrative functions was designed to 1) improve the overall 

efficiency of the Forest Service’s administrative operations, 2) increase the Forest 

Service’s ability to meet the needs of its internal and external customers, and 3) redirect 

critical funds from indirect or administrative functions back to direct and/or mission 

critical programs. 

The Forest Service commitment toward long-term indirect cost reductions has also 

resulted in the need to establish indirect cost caps and overall cost pool ceilings for each 

Region, Station, and Area through FY 2008. 

These reforms will, in the long term, enhance Forest Service efforts to improve 

accountability and focus on measurable results in the management of the national forests, 

as well as significantly reduce overhead, business management, and other indirect costs 

to improve efficiency and program delivery. 

General Policy 

Appropriate application of cost pools allows the Forest Service to accurately reflect the 

cost of doing business in compliance with the Federal financial reporting standards 

articulated by the Federal Accounting Standards Advisory Board (FASAB). Accurately 

reflecting the true cost of doing business improves the Government's ability to account 

for public funds; provides information for evaluating agency costs, accomplishments, and 

impacts of accomplishments; and provides a basis to assess agency financial systems and 

controls. 

The Forest Service receives appropriations by program, and does not receive a general 

administration or management appropriation. Cost pools are used for expenses that can 

not reasonably be charged directly to a single program. The cost pools are designed to 

maintain accurate reporting of the true costs by program, by having each program 

contribute into the cost pools an amount based on its share of indirect, support, and 

common services charges. 

To effectively manage, fund, and account for indirect costs, the Forest Service continues: 

• Using the cost allocation methodology for distributing indirect costs to budget line 

items; 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 10 17-42 Indirect Costs

• Using cost pools to capture similar costs by category; 

• Annually updating cost allocation directions; 

• Monitoring cost allocation data, cost pool transaction and accounting adjustments, 

and/or program changes to maintain financial integrity; and 

• Conducting cost allocation compliance reviews at region, station, area, and national 

forest levels. 

Indirect Costs Policy Review 

The purpose of the cost allocation compliance reviews is to determine the consistency in 

which the field organization and the Washington Office (WO) headquarters implement 

indirect cost policy and to identify areas for improvement. The agency uses the 

information gathered from the reviews to improve the cost allocation process and update 

cost allocation directions for the following fiscal year. 

Direct, Support, and Indirect Costs 

Forest Service definitions of direct and indirect costs are consistent with FASAB 

Statement #4. The agency published the definitions in the FY 2000 Budget Justification. 

The Department of Agriculture Chief Financial Officer and the Office of Management 

and Budget cleared, and the Government Accountability Office, United States 

Department of Commerce’s Office of Inspector General and Office of General Counsel, 

and the Department of Justice reviewed the definitions prior to publishing. 

• Direct Costs - Direct costs are specifically identified with the delivery of a program or 

a program’s accomplishments. Direct costs include expenses associated with employees 

working directly on the production of an output. Program management is an integral cost 

of the production of an output and therefore is included as a direct cost. Direct costs 

might also include costs not associated with employees involved in the production of 

output(s), such as office and other facility space, computer equipment, and utilities, as 

well as materials, supplies, and equipment. Direct costs are generally charged directly to 

a single primary purpose budget line item. 

• Support Costs – Support costs, like indirect costs, are not traceable to any specific 

budget line item. However, they are associated with line management administering the 

program of work, as well as a limited set of nationally designated cross-cutting projects 

and activities. The cost allocation methodology distributes support costs to budget line 

items. 

• Indirect Costs - Indirect costs are costs that are necessary for the operation of the 

Forest Service as an organization but are not traceable to any specific outputs. These 

include Legislative and Public Communication, Ongoing Business Services, and 

Common Services. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 10 17-43 Indirect Costs

Cost Pools 

For management and tracking purposes, categories of similar expenses are combined into 

five cost pools. Cost pools 1 and 2 are 100 percent support costs (direct cost pool), cost 

pools 3 and 4 are 100 percent indirect, and cost pool 5 includes both indirect and direct 

components. Other cost pools (6 and 7) track Office of Workers’ Compensation (OWCP) 

and Unemployment Compensation Insurance (UCI). Cost pool 9 collects facilities 

maintenance assessment funds. There is no cost pool 8. 

Generally, the cost pools serve as an accounting tool, providing the Forest Service with 

financial data on categories of similar expenses. This permits the Forest Service to plan 

for and manage support, indirect, and direct pool costs at different levels in the 

organization. A description of these pools and their associated costs are listed below. 

• Cost Pool 1 - General Management: This cost pool includes salaries, associated 

employee benefits, and related costs for general line managers and officers (including 

secretarial staff) at the WO, Regions/Stations/Area (R/S/A), national forest, and ranger 

district levels. Related costs include uniforms, travel, transfer of station, vehicles, cell 

phones, laptops, specialized supplies and equipment, and discretionary expenses 

associated with these positions. Cost pool 1 is entirely support costs and is based on 

direct full-time equivalents (FTEs) of total employees within the cost pool. 

• Cost Pool 2 - Direct Project Approved Activities: This cost pool includes salaries, 

benefits, and related costs for a limited set of nationally designated cross-cutting projects, 

currently limited to Conservation Education, Tribal relations, Freedom of Information 

Act (FOIA), Resource Advisory Council (RAC) administration, and Grey Towers. Cost 

pool 2 is entirely program support and is based on direct FTEs of total employees within 

the cost pool. 

• Cost Pool 3 - Legislative and Public Communications: This cost pool includes 

salaries, associated employee benefits, and related costs for general receptionists, public 

affairs, and legislative liaisons at the WO, R/S/A, national forest, and ranger district 

levels. Related costs include uniforms, travel, transfer of station, vehicles, cell phones, 

laptops, specialized supplies and equipment, and discretionary expenses associated with 

these positions. Cost pool 3 is entirely indirect costs and is based on direct FTEs of total 

employees within the cost pool. 

• Cost Pool 4 - Ongoing Business Services: Cost pool 4 includes salaries, associated 

employee benefits, and related costs for business operations at the WO, R/S/A, national 

forest, and ranger district levels. Business operations include budget, finance, 

acquisition, human capital management, some grants and agreements, and information 

resource management. Calendar year national burden rate (collected from external and 

cooperative agreements) is credited to cost pool 4 through the FFIS Purchase Cost 

Allocation System (PCAS). Cost pool 4 is entirely indirect costs and is based on direct 

FTEs of total employees within the cost pool. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 10 17-44 Indirect Costs 

Revised March 30, 2007 

Cost Pool 5 - Common Services: This cost pool includes rent, utilities, communications, 

equipment, supplies, radios, phones, and computers. Cost pool 5 consists of both indirect and 

direct pool costs. The distribution of costs in pool 5 is based on direct FTEs for permanent 

employees only; the division between direct and indirect costs is based on the ratio of direct to 

indirect employees. For example, if the common services for a unit with 100 employees, 

consisting of 80 direct and 20 indirect, is $500,000, then $400,000 of these costs would be 

direct and $100,000 would be indirect. 

Cost Pool 6 - Office of Worker’s Compensation Program (OWCP): This cost pool 

includes Office of Worker’s Compensation Program costs charged on a case-by-case basis. 

Therefore, the charges will vary in both indirect and direct pool costs. Costs are distributed 

based on the work being performed at the time of the injury. OWCP for indirect employees is 

an indirect cost and allocated based on direct labor hours. 

Cost Pool 7 - Unemployment Compensation Insurance (UCI): This cost pool includes 

Unemployment Compensation Insurance costs charged on a case-by-case basis. Therefore, 

the charges will vary in both indirect and direct pool costs. Costs are distributed based on the 

work performed while employed. UCI for indirect employees is an indirect cost and allocated 

based on direct labor hours (DLHs). 

Cost Pool 9 - Facilities Assessment Fund: New in FY 2006, this cost pool contains the $35 

million facility assessment fund. This is a direct cost pool used to allocate facilities 

maintenance work funded by assessing each R/S/A a charge based on $1.48 per gross square 

foot of facilities. These charges are then allocated by BLI using the same basis as cost pool 5 

in compliance with the FY 2006 Appropriations Act and accompanying conference report 

language. 

Cost Allocations – General Overview 

The Forest Service allocates support, indirect, and direct pool costs among programs through 

the cost allocation process, which assesses each Forest Service budget line item a certain 

percentage of total cost pool costs. Cost pools are generally allocated using direct labor hours 

(DLH). DLH are converted to full-time equivalents (FTEs); 1 FTE = 2,096 DLHs (the DLH 

number varies depending on the year). For cost pools 1-4, DLHs are used for all employees 

charging to direct costs (all employees includes those holding permanent, temporary, 

intermittent, and other types of positions). This is because these costs generally reflect the 

entire organization. For cost pools 5 and 9, only permanent employee DLHs are used, 

because these costs (rent, communication, utilities, etc.) are driven primarily by the need to 

support the permanent workforce. Planning estimates for cost pool 6 are based on actual past 

cases for OWCP; and cost pool 7 is based on actual past cases for UCI. Because of their 

nature, the FTEs associated with supplemental, transfer, and emergency funds are dropped 

from the cost pools and are not used in calculating indirect costs. 

The Forest Service uses cost allocation to charge expenses back to a single budget line item. 

Cost allocation is used for expenses that: 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 10 17-45 Indirect Costs

• Are indirect (e.g., cost pool 4), 

• Simultaneously support multiple programs in a way that can not be efficiently 

charged directly to a budget line item (BLI) (e.g., cost pools 1 and 2), 

• Involve multiple transactions that need to be summarized for payment purposes (e.g., 

cost pools 6 & 7), or 

• Are otherwise directed by congressional or administrative action (e.g., cost pool 9). 

Forest Service Indirect Cost Exhibits 

As directed by Congress in the FY 1999 Appropriations Act (P.L. 105-277), the Forest 

Service is providing the following indirect cost exhibits on the following pages: 

Exhibit 1 – Comparison of FY 2006 Planned versus Actual Indirect Costs by 

Budget Line Item 

Exhibit 2 – Estimate of FY 2008 Indirect Costs by Budget Line Item 

Exhibit 3 - Comparison of Indirect Costs by Region of Actual FY 2006 and 

Estimated Costs for FY 2007 to FY 2008 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 10 17-46 Indirect Costs

 FY 2006 Estimate FY 2006 Actual

 Budget Line Item: Fund/Program 

FY 2006 

Enacted 

Budget

FY 2006 

Estimated 

Indirect Costs

Indirects 

as a 

Percent 

of BLI

Percent of 

Total FS 

Indirect 

Costs

FY 2006 

Actual 

Indirect Costs

Indirects 

as a 

Percent 

of BLI

Percent of 

Total FS 

Indirect 

Costs

Forest and Rangeland Research $277,711 $21,456 7.7% 3.5% $18,509 6.7% 3.5%

Subtotal, Research $277,711 $21,456 7.7% 3.5% $18,509 6.7% 3.5%

Federal Lands $53,163 $7,151 13.5% 1.2% $6,169 11.6% 1.2%

Cooperative Lands $46,904 $763 1.6% 0.1% $658 1.4% 0.1%

State Fire Assistance $32,895 $1,072 3.3% 0.2% $924 2.8% 0.2%

Forest Stewardship $34,144 $1,282 3.8% 0.2% $1,106 3.2% 0.2%

Forest Legacy $56,524 $280 0.5% 0.0% $242 0.4% 0.0%

Urban and Community Forestry $28,413 $1,141 4.0% 0.2% $985 3.5% 0.2%

Economic Action Programs $9,537 $0 0.0% 0.0% $0 0.0% 0.0%

Forest Resources Information and Analysis $4,588 $168 3.7% 0.0% $145 3.2% 0.0%

International Forestry $6,886 $290 4.2% 0.0% $250 3.6% 0.0%

Subtotal, State and Private Forestry $273,054 $12,148 4.4% 2.0% $10,479 3.8% 2.0%

Land Management Planning $57,675 $10,924 18.9% 1.8% $9,424 16.3% 1.8%

Inventory and Monitoring $166,638 $27,109 16.3% 4.4% $23,385 14.0% 4.4%

Recreation, Heritage, and Wilderness $258,797 $47,072 18.2% 7.6% $40,605 15.7% 7.6%

Wildlife and Fisheries Habitat Management $131,734 $25,404 19.3% 4.1% $21,914 16.6% 4.1%

Grazing Management $47,826 $10,558 22.1% 1.7% $9,107 19.0% 1.7%

Forest Products $277,583 $58,382 21.0% 9.5% $50,361 18.1% 9.5%

Vegetation and Watershed Management $179,852 $30,771 17.1% 5.0% $26,543 14.8% 5.0%

Minerals and Geology Management $84,164 $10,747 12.8% 1.7% $9,270 11.0% 1.7%

Landownership Management $90,932 $18,029 19.8% 2.9% $15,552 17.1% 2.9%

Law Enforcement Operations $110,937 $16,164 14.6% 2.6% $13,943 12.6% 2.6%

Subtotal, National Forest System $1,406,138 $255,159 18.1% 41.4% $220,105 15.7% 41.4%

Preparedness $660,705 $46,818 7.1% 7.6% $40,386 6.1% 7.6%

Hazardous Fuels Management $280,119 $43,209 15.4% 7.0% $37,273 13.3% 7.0%

Fire Operations $690,186 $131,453 19.0% 21.3% $113,394 16.4% 21.3%

National Fire Plan - Forest and Rangeland Res. $22,789 $1,509 6.6% 0.2% $0 0.0% 0.0%

National Fire Plan - Rehab and Restoration $6,189 $0 0.0% 0.0% $1,301 21.0% 0.2%

Subtotal, Wildland Fire $1,659,988 $222,989 13.4% 36.2% $192,355 11.6% 36.2%

Facilities $123,698 $12,540 10.1% 2.0% $10,817 8.7% 2.0%

Roads $220,688 $35,759 16.2% 5.8% $30,847 14.0% 5.8%

Trails $74,205 $14,089 19.0% 2.3% $12,153 16.4% 2.3%

Deferred Maintenance $12,743 $1,508 11.8% 0.2% $1,301 10.2% 0.2%

Subtotal, Capital Improvement and Maintenance $431,334 $63,896 14.8% 10.4% $55,118 12.8% 10.4%

Land Acquisition $41,812 $2,493 6.0% 0.4% $2,150 5.1% 0.4%

Subtotal, Land Acquisition $41,812 $2,493 6.0% 0.4% $2,150 5.1% 0.4%

Alaska Subsistence $4,975 $436 8.8% 0.1% $376 7.6% 0.1%

Subtotal, Other Appropriations $4,975 $436 8.8% 0.1% $376 7.6% 0.1%

Brush Disposal $13,586 $2,616 19.3% 0.4% $2,257 16.6% 0.4%

Timber Salvage Sales $75,846 $16,905 22.3% 2.7% $14,582 19.2% 2.7%

Roads and Trails $15,035 $1,116 7.4% 0.2% $963 6.4% 0.2%

Cooperative Work, Knutson-Vandenburg Trust Fun $72,845 $12,277 16.9% 2.0% $10,333 14.2% 1.9%

Reforestration Trust Fund $30,572 $4,510 14.8% 0.7% $4,147 13.6% 0.8%

Subtotal, Permanent and Trust Funds $207,884 $37,423 18.0% 6.1% $32,281 15.5% 6.1%

TOTAL - FOREST SERVICE * $4,302,896 $616,000 14.3% 100.0% $531,374 12.3% 100.0%

*Only includes appropriations that were used in the basis for assessing indirect costs. 

*Does not include Cost Pool 1 - Support Costs or Cost Pool 2 - Direct Project Approved Activities

*Does not include supplemental, emergency, transfer, or payments to states funds which are not assessed indirect costs.

Exhibit 1. Comparison of FY 2006 Planned versus Actual Indirect Costs by Budget Line Item

(dollars in thousands)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 10 17-47 Indirect Costs

 Budget Line Item: Fund/Program 

FY 2008 

President's 

Budget

TOTAL 

Estimated 

Indirect Costs

Indirects as 

Percent of 

Budget Line 

Item (BLI)

Indirects as 

Percent of 

Total

Forest and Rangeland Research $263,000 $18,321 7.0% 4.0%

Subtotal, Research $263,000 $18,321 7.0% 4.0%

Federal Lands $52,959 $6,236 11.8% 1.4%

Cooperative Lands $38,130 $693 1.8% 0.2%

State Fire Assistance $33,122 $732 2.2% 0.2%

Forest Stewardship $20,000 $867 4.3% 0.2%

Forest Legacy $29,311 $303 1.0% 0.1%

Urban and Community Forestry $17,436 $799 4.6% 0.2%

International Forestry $2,500 $253 10.1% 0.1%

Subtotal, State and Private Forestry $193,458 $9,883 5.1% 2.1%

Land Management Planning $52,607 $7,305 13.9% 1.6%

Inventory and Monitoring $146,462 $19,246 13.1% 4.2%

Recreation, Heritage, and Wilderness $231,400 $36,775 15.9% 8.0%

Wildlife and Fisheries Habitat Management $117,633 $18,611 15.8% 4.0%

Grazing Management $47,025 $7,857 16.7% 1.7%

Forest Products $318,562 $46,961 14.7% 10.2%

Vegetation and Watershed Management $154,322 $24,758 16.0% 5.4%

Minerals and Geology Management $70,835 $9,219 13.0% 2.0%

Landownership Management $80,840 $13,373 16.5% 2.9%

Law Enforcement $123,841 $11,791 9.5% 2.6%

 

Subtotal, National Forest System $1,343,527 $195,896 14.6% 42.5%

Preparedness $568,793 $22,305 3.9% 4.8%

Suppression $911,032 $99,486 10.9% 21.6%

Hazardous Fuels Management $291,185 $35,227 12.1% 7.6%

National Fire Plan (NFP) - Forest and Rangeland Research $22,348 $1,182 5.3% 0.3%

National Fire Plan (NFP) - State Fire Assistance $35,004 $60 0.2% 0.0%

National Fire Plan (NFP) - Forest Health Federal Lands $14,252 $2,126 14.9% 0.5%

National Fire Plan (NFP) - Forest Health Cooperative Lands $10,014 $223 2.2% 0.0%

Subtotal, Wildland Fire $1,852,628 $160,609 8.7% 34.8%

Facilities $119,647 $11,415 9.5% 2.5%

Roads $227,431 $24,931 11.0% 5.4%

Trails $66,387 $10,699 16.1% 2.3%

Deferred Maintenance/ Infrastructure Improvement $9,100 $565 6.2% 0.1%

Subtotal, Capital Improvement and Maintenance $422,565 $47,610 11.3% 10.3%

Land Acquisition $15,703 $1,827 11.6% 0.4%

Subtotal, Land Acquisition $15,703 $1,827 11.6% 0.4%

Management of NF Lands for Subsistence Uses $5,053 $441 8.7% 0.1%

Subtotal, Other Appropriations $5,053 $441 8.7% 0.1%

Brush Disposal $15,000 $2,089 13.9% 0.5%

Timber Salvage Sales $74,000 $11,323 15.3% 2.5%

Roads and Trails $15,300 $827 5.4% 0.2%

Cooperative Work, Knutson-Vandenburg Trust Fund $77,000 $8,945 11.6% 1.9%

Reforestration Trust Fund $30,000 $3,229 10.8% 0.7%

Subtotal, Permanent and Trust Funds $211,300 $26,413 12.5% 5.7%

TOTAL* $4,307,234 $461,000 10.7% 100.0%

*Only includes appropriations that were assessed indirect costs. 

*Does not include Cost Pool 1 - Support Costs or Cost Pool 2 - Direct Project Approved Activities

*Does not include supplemental, emergency, transfer, or payments to states funds which are not assessed indirect costs.

Exhibit 2. Estimate of FY 2008 Indirect Costs by Budget Line Item

Agency Total and Totals by Program

(dollars in thousands)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 10 17-48 Indirect Costs

Actual Estimated

R/S/A

FY 2006 

Indirect 

Costs

FY 2007 

Indirect 

Planned

% Change 

from 

Previous 

Year

FY 2008 

Indirect 

Planned

% 

Change 

from 

Previous 

Year

1 $24,177 $26,041 7.7% $21,973 -15.6%

2 $21,892 $21,444 -2.0% $18,182 -15.2%

3 $25,430 $25,590 0.6% $21,783 -14.9%

4 $26,165 $21,189 -19.0% $17,144 -19.1%

5 $38,932 $42,078 8.1% $35,525 -15.6%

6 $43,898 $46,657 6.3% $39,209 -16.0%

8 $27,217 $26,598 -2.3% $22,429 -15.7%

9 $23,282 $24,807 6.6% $21,088 -15.0%

10 $11,670 $12,454 6.7% $10,564 -15.2%

12 $895 $885 -1.1% $745 -15.8%

13 $56,100 $42,559 -24.1% $42,560 0.0%

15 $13,479 $16,442 22.0% $16,442 0.0%

Stations $0 $0 na $0 na

Other Units $218,237 $217,256 -0.4% $193,356 -11.0%

TOTAL $531,374 $524,000 -1.4% $461,000 -12.0%

 

*Does not include supplemental, emergency, transfer, or payments to states

 funds which are not assessed for indirect costs.

*Does not include Cost Pool 1 - Support Costs or Cost Pool 2 - Direct

 Project Approved Activities.

*Research stations have been dropped from cost pools 1-5. Administrative,

 overhead and program support costs for stations will be directly

 charged to the appropriate Research BLIs and tracked separately.

Exhibit 3 - Comparison of Indirect Costs by Region

 Actual FY 2006 and Estimated FY 2007 and FY 2008

 (dollars in thousands)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 11 17-49 Invasive Species

Invasive Species 

 (Dollars in Thousands)

Forest Service Programs FY 2006 

Enacted FY 2007 Estimate 

FY 2008 

Budget 

Forest and Rangeland Research $13,405 $13,778 $7,880 

National Forest System $34,158 $30,514 $30,604 

State & Private Forestry, Forest Health Management $59,179 $48,050 $38,042 

State and Private Forestry, International Forestry $600 $592 $218 

TOTAL $107,342 $92,934 $76,744 

 NOTE: Funding shown is used on-the-ground in support of program implementation. 

 

Description 

The threat of invasive species is a significant environmental and economic issue facing 

the nation, with increasing numbers of infestations and ecosystem impacts occurring 

annually. Concerns over the invasive species problem have reached global proportions. 

As a result, the Chief of the Forest Service has identified invasive species as one of the 

four critical threats affecting terrestrial and aquatic ecosystems across all ownerships. 

The Forest Service has recognized the danger that invasive species pose to ecosystem 

health, structure, and function, the economy, and the agency’s mission. Invasive species 

cost the nation’s economy more than $138 billion per year in damage, loss, and control 

costs. About half the native species currently on the endangered species list are at risk 

because of competition and loss of habitat traceable to invasive species. 

In cooperation with the National Invasive Species Council, State Departments of 

Agriculture and Natural Resources, other Federal agencies and private sector partners, the 

Forest Service developed the National Strategy and Implementation Plan for Invasive 

Species Management that provides strategic long-term program direction for Research 

and Development, the National Forest System, State and Private Forestry, and 

International Programs. The implementation of the strategy has resulted in development 

of numerous invasive species project plans development on the regional and national 

forest level nationwide. In addition, Research and Development has developed support 

tools that include, but are not limited to, publications, computer models and programs, 

and products for use by land managers for the prevention, early detection, rapid response, 

control and management, as well as rehabilitation and restoration of affected ecosystems. 

State and Private Forestry Forest Health Protection programs on Federal and Cooperative 

lands work with the State Foresters and State agricultural agencies as well as with the 

USDA Animal and Plant Health Inspection Service (APHIS) to detect and control 

invasive pests and pathogens. International forestry collaborates with China and Russia 

to help prevent new introductions of exotic pests into this country and to develop 

methodologies for combating invasive species with a foothold in this country.

The agency’s National Strategy and Implementation Plan for Invasive Species 

Management guides agency actions for the prevention, control, and eradication of 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 11 17-50 Invasive Species

invasive terrestrial and aquatic plants, invertebrates, vertebrates, and pathogens impacting 

forest and rangeland ecosystems managed by the National Forest System (NFS), other 

Federal agencies, tribal governments, and State and local cooperators. The National 

Strategy provides guidance and program direction within four program elements: 1) 

Prevention, 2) Early Detection and Rapid Response, 3) Control, and 4) Restoration and 

Rehabilitation. A key aspect of the Forest Service invasive species program is to provide 

technical and financial support to cooperators at the State and local levels. In addition, 

this strategic approach is based on the following guiding principles: 

• Science-based prioritization of invasive species problems, 

• Enhanced collaboration on the solutions to those problems, and 

• An improved system of accountability that ensures the most efficient use of limited 

resources at all levels of the organization. 

The Forest Service is unique in that it has existing authorities to manage invasive species 

on all lands in the United States. Four agency program areas have responsibilities for 

integrated invasive species activities: National Forest System (NFS), State and Private 

Forestry, Research and Development, and International Programs. The activities within 

these program areas support the agency’s efforts under the Healthy Forests Restoration 

Act of 2003 to address invasive species on Federal, State, tribal, and cooperative lands 

throughout the United States. The Forest Service also works cooperatively with other 

Federal agencies on invasive species issues and works closely with the National Invasive 

Species Council created by Executive Order 13112. 

A Program Assessment Rating Tool (PART) reassessment was completed in association 

with the FY 2008 President’s Budget and received a rating of “Adequate.” To improve 

the PART score, the National Insect and Disease Risk Map (NIDRM) was updated to 

enhance the agency’s ability to control and manage insect and disease outbreaks. The 

agency developed outcome-based performance measures as well as efficiency measures, 

both of which attempt to look at the environmental and economic effects of treatments. 

The goal of these efforts is to prevent the U.S. economy and environment from being 

severely impacted by invasive species which threaten agriculture, forests, range, water, 

and natural areas and annually cause tens of billions of dollars in economic damage as 

well as serious environmental damage. Invasive organisms affect the health of not only 

the Nation’s forests, rangelands and waters, but also of wildlife, livestock, fish and 

humans. 

Independent Reviews 

A Program Assessment Rating Tool (PART) reassessment was completed in association 

with the FY 2008 President’s Budget and received a rating of “Adequate.” To improve 

the PART score, the National Insect and Disease Risk Map (NIDRM) was updated to 

enhance the agency’s ability to control and manage insect and disease outbreaks. The 

agency developed new outcome-based performance measures as well as efficiency 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 11 17-51 Invasive Species

measures, both of which attempt to look at the environmental and economic effects of 

treatments. 

Invasive Species Measure 

Type

FY 2006 

Target

FY 2006 

Actual

FY 2007 

Target 

FY 2008 

Target

Percent of acres at risk of 

mortality due to insect pests 

and diseases, or of infestation 

by invasive plants on which 

risk is reduced. 

Outcome 6.9% 7.16% 8.7% 11%

Number of priority acres 

successfully treated for 

invasive species annually. 

Output 610,800 981,242 645,702 655,912 

Cost per acre treated to reduce 

risk. 

Efficiency $91.79 $86.12 $93.88 $95.20 

Number of treated acres 

monitored annually 

 Output 122,160 915,563 129,140 131,182

Score of Research and 

Development (R&D) 

customers reporting 

satisfaction with accessibility, 

relevance, outcome and cost 

effectiveness of tools 

developed, delivered, and 

used. 

Outcome 72 72 No data No data 

The 5-year running average of 

the number of Research and 

Development (R&D) tools 

developed, delivered, and 

used. 

Output 133 171 142 152

Cost per Research and 

Development (R&D) tool 

developed, delivered, and 

used. 

Efficiency $426,000 $242,000 $426,000 $426,000

FY 2008 Plans 

• Continue aggressive approach to reducing the spread of invasive pests such as the 

emerald ash borer, sudden oak death, Sirex woodwasp, Asian long-horned beetle, 

hemlock woolly adelgid, Port-Orford cedar, and white pine blister rust. 

• Continue to expand the collaborative program with APHIS to detect and respond to 

unwanted introductions of invasive pests and pathogens at U.S. entry ports. 

• Continue to develop the tools needed to implement collaborative programs with 

APHIS, and to develop the science needed to justify regulatory actions. 

• Make use of biological agents for hemlock woolly adelgid control: develop new 

technology to treat individual trees (i.e., emerald ash borer), and begin gene 

conservation efforts to help ensure survival of selected tree species threatened by 

invasive species. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 11 17-52 Invasive Species

• Use the National Insect and Disease Risk Map to prioritize where work is needed to 

mitigate the risk of new outbreaks. 

• Expand the use of Early Detection Rapid Response (EDRR) efforts to find insects and 

diseases earlier, thereby reducing future expenditures of resources for these pests. 

This effort will involve using the public more to help in monitoring for new sightings 

of pests. This is an inexpensive source of an able and willing workforce.

• Conduct Forest Health Management invasive plant prevention and management, and 

insect and disease suppression on 88,220 acres of Federal lands and 583,351 acres on 

cooperative lands (including 136,650 acres of invasive plants). 

• Initiate and complete two pesticide risk assessments to evaluate possible concerns to 

environmental and human health risks. Risk assessments support the choice of safe 

forest pest management tools in consideration of public and environmental health and 

safety. They are a major element of agency compliance with NEPA, the Endangered 

Species Act and other Federal and State laws and regulations. 

• Conduct invasive plant (including listed noxious weeds) management activities 

(prevention, control, and mitigation) on over 160,000 acres across the National Forest 

System. Average climatic conditions, instead of either drought or high moisture 

regimes, will contribute to the accomplishment of more work locally. 

• Emphasis will be placed on monitoring treatments for effectiveness – with a goal of 

meeting a minimum 50 percent efficacy rate. 

• Continue to develop innovative methodologies and new technologies to support a 

fully functional integrated Pest Management Program that expands prevention and 

eradication of aquatic and terrestrial invasive species and uses biological, chemical, 

cultural, and physical control techniques against invasive species on National Forest 

System and other lands. 

• Continue to expand biological control programs on western invasive plants (weeds) 

and on eastern invasive insects and weeds by using new scientific research 

information with development of new technology to update management activities by 

the Forest Service and partners on Federal, State, tribal and private lands. 

• Continue evaluation of primary and secondary ecosystem processes affected by 

invasives and potential control agents, so that the means, priorities, and consequences 

of control efforts will be based on thorough scientific assessment. 

• Continue risk-based detection surveys for sudden oak death, and develop emerald ash 

borer and Sirex monitoring protocols. 

FY 2007 Program 

• Continue to develop tools and expand collaborative work with APHIS to detect and 

respond to unwanted introductions of invasive pests and pathogens at U.S. entry 

ports. 

• Expand the use of Early Detection Rapid Response (EDRR) efforts to find insects and 

diseases earlier, thereby reducing future expenditures of resources for these pests. 

This effort will involve using the public more to help in monitoring for new sightings 

of pests. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 11 17-53 Invasive Species

• Mitigate nationwide threats to forest ecosystems from non-native invasive species, 

such as new gypsy moth outbreaks, sudden oak death, and emerald ash borer with 

evaluation, monitoring, and treatments. Protect critical ecosystems from established 

infestations of non-native insects and diseases, such as, Port-Orford cedar root 

disease, white pine blister rust, hemlock woolly adelgid, emerald ash borer, and the 

Sirex woodwasp. 

• Conduct invasive insect and disease suppression, prevention, and management on 

89,863 acres of Federal lands and invasive insect, diseases and plant infestations on 

667,558 acres on cooperative lands (which includes 164,014 acres of invasive plants). 

• Develop innovative methodologies and new technologies to support a fully functional 

Integrated Pest Management Program that expands prevention and eradication of 

aquatic and terrestrial invasive species and uses biological, chemical, cultural, and 

physical control techniques against invasive species on National Forest System and 

other lands. 

• Expand biological control programs on western invasive plants (weeds) and on 

eastern invasive insects and weeds by integrating research to obtain new scientific 

information and to develop new technology with implementation of management 

activities by the Forest Service and partners on federal, state, tribal and private lands. 

• Initiate and complete three pesticide risk assessments to evaluate possible concerns to 

environmental and human health risks. 

• Continue to implement the National Strategy and increase capabilities to conduct 

early detection and rapid response for new infestations of invasive plants (including 

noxious weeds) and other categories of invasive species affecting National Forest 

System watersheds. 

• Conduct invasive plant (including listed noxious weeds) management activities 

(prevention, control, and mitigation) on over 160,000 acres across the National Forest 

System. Average climatic conditions, instead of either drought or high moisture 

regimes, will contribute to the accomplishment of more work locally. 

• Improve invasive plant information management (data management in NRIS, 

FACTS, etc.) capabilities for field-level personnel by developing user-friendly, 

spatially-oriented, data software applications and hardware for inventory and 

treatment. Reporting through these systems will provide information critical for 

improving operational efficiency, accountability, and performance. Training and 

support will be conducted for field personnel on the installation, use, and protocols 

using the data management applications, equipment, and advancing technology.

• Continue expansion of the Forest Environmental Threat Assessment Centers in 

Asheville, North Carolina and Prineville, Oregon to generate and integrate 

information to provide credible prediction, early detection, and quantitative 

assessment of environmental threats in hardwood and conifer forests. 

• Continue risk-based detection surveys for sudden oak death, and develop emerald ash 

borer and Sirex monitoring protocols. 

• Continue evaluation of primary and secondary ecosystem processes affected by 

invasives and potential control agents, so that the means, priorities, and consequences 

of future control efforts will be based on thorough scientific assessment. 

• Develop models to predict spread of the Emerald Ash Borer in Ohio that will enable 

land managers to more efficiently and effectively deploy “trap trees” to monitor the 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 11 17-54 Invasive Species

actual spread of the insect and to prudently assess when trees may become hazardous, 

to effectively time and to efficiently budget their resources for tree removals. 

• Establish biological controls for the hemlock woolly adelgid, a non-native insect 

destroying eastern hemlock forests in 15 eastern states. 

• Validate two invasive plant species models across the intermountain West to predict 

displacement of native species by cheatgrass, sagebrush and by encroaching pygmy 

conifer woodlands. 

• Evaluate the efficacy of flea beetle biological control treatments on leafy spurge, a 

well established invasive plant in the Northern Great Plains. 

• Develop a prototype multilevel early warning system for detection and assessing 

potential forest threats that will be use an automated system for processing satellite 

imagery for detecting disturbances in forested systems, known as FIRST. 

• Develop a Southern Pine Beetle Hypertext Encyclopedia which will then become part 

of the Forest Encyclopedia Network (www.forestencyclopedia.net). 

• Complete genetic analyses of invasive fish populations, such as the snakehead, to 

allow for more efficient use of resources in preventing and managing invasive species 

that cause significant impacts to highly valued natural resources such as native 

populations of wild salmon. 

• Work with the Pennsylvania State University to evaluate the use of microwave 

techniques to kill wood decay and sapstain fungi on wood packing material, in order 

to prevent the introduction of new invasive species into the country. 

FY 2006 Accomplishments 

• Invasive plant (including noxious weeds) management activities to control 

infestations were accomplished on over 160,000 acres across the National Forest 

System through utilization of a variety of program funds. As appropriate, high 

priority species and habitat areas were identified by regional or forest-level planning. 

• Implemented biological control programs on invasive species by integrating research 

to obtain new scientific information and to develop new technology with 

implementation of management activities by the Forest Service and partners on 

federal, state, tribal and private lands. 

• Continued evaluation of primary and secondary ecosystem processes affected by 

invasives and potential control agents, so that the means, priorities, and consequences 

of future control efforts will be based on thorough scientific assessment. 

• Reassessed the Forest Service invasive species program using the OMB Program 

Assessment Rating Tool resulting in a program rating of adequate. 

• Conducted invasive insect and disease suppression, prevention, and management on 

168,197 acres on Federal lands and 782,148 acres on cooperative lands (which 

includes 187,449 acres of invasive plants). 

• Collaborated with APHIS to detect and respond to unwanted introductions of invasive 

pests and pathogens at U.S. entry ports. 

• Completed the EDRR pilot project with plans to implement the operational phase 

starting in FY 2007. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 11 17-55 Invasive Species

• Completed five pesticide risk assessments to evaluate possible concerns to 

environmental and human health risks. 

• Produced and delivered 217 tools that natural resource managers used to prevent, 

detect, and manage priority invasive species. 

• Completed the revision of the National Insect and Disease Risk Map, a peer 

reviewed, science based effort that identified 58 million acres at-risk for 25 percent 

mortality over the next 15 years. 

• Tracked and mapped the spread of tamarisk along stream corridors in Washington, 

Oregon and Idaho. 

• Developed a cohesive plan to bolster research, education, monitoring, and 

management of invasive species in the 20-state region bounded by Minnesota, 

Missouri, West Virginia, and Maine. 

• Produced tools to help manage the emerald ash borer (EAB) infestation and to 

prevent or decrease the spread of this invasive species and provided effective 

guidelines for removal and disposal of EAB-infested trees. 

• Identified EAB-resistant tree species in Asia, the first step to developing North 

American-Asian hybrids that could someday restore ash trees to EAB affected areas. 

• Developed a new risk map that will guide detection surveys for Phytophthora 

ramorum (Sudden Oak Death) and reinforce the value of continued quarantines on 

potentially infected host materials to prevent the spread of the pathogen into the East. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 12 17-56 KV Financial Status

Knutson-Vandenberg (K-V) Financial Status 

The Forest Service has used its authority provided in the annual Interior and Related 

Agencies Appropriations Acts to transfer, from any appropriations or funds available to 

the Forest Service, necessary amounts to support emergency fire suppression 

requirements. The Forest Service has historically transferred funds provided to the 

agency through the Knutson-Vandenberg (K-V) Fund authorized in P.L. 71-319. The 

Fund provides money from timber purchasers to reforest and perform other natural 

resource improvements on timber sale areas. K-V also provides that any deposit found to 

be in excess of the cost of doing the work shall be transferred to miscellaneous receipts, 

Forest Service Fund, as a national forest receipt of the fiscal year in which such transfer 

is made, provided there are no outstanding unreimbursed fire transfers. Should there be 

outstanding unreimbursed fire transfers, the agency has the authority to retain the excess 

receipts to offset the unreimbursed fire transfers. 

The current K-V balance is $285 million, with anticipated collection of $75 million in FY 

2007. The following table displays transfers from the fund, amount of declared excess 

funds retained by the agency to offset unreimbursed fire transfers and repayments to the 

K-V fund. Excess funds declared in FY 2005 through FY 2007 are not shown as 

offsetting fire borrowing because of the amendment to the K-V Act in Section 412 of the 

FY 2006 Appropriations Act (P.L. 109-54) which allows receipts to be used for forest 

restoration in the region in which the receipt was collected. 

(Dollars in Millions) 

FY 

1988-

2001 

FY 

2002 

FY 

2003 

FY 

2004 

FY 

2005 

FY 

2006 

FY 

2007 

Owed to K-V from 

prior year transfers for 

fire suppression $420 $156 $287 $328 $149 $0 -$159 

Transfers from K-V $571 $170 $154 $0 $0 $159 $0 

Declared Excess -$196 -$19 -$29 -24 $0 $0 $0 

K-V Repayment 1 -$638 -$20 -$84 -$155 -$149 $0 $59 

Balance Outstanding $156 $287 $328 $149 $0 -$159 -$100 

 1/ In FY 2007 the Forest Service plans to repay KV $59 million from the $100 million emergency 

supplemental (PL 109-289). The decision to repay in FY 2007 will be based on projected severity of the 

2007 fire season and availability of funds. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 13 17-57 National Energy Policy 

National Energy Policy 

Forest Service Programs 

(Dollars in thousands) FY 2006 Enacted* FY 2007 Estimate FY 2008 Budget 

Forest and Rangeland Research 3,850 4,750 6,150 

State & Private Forestry 

 Economic Action Programs 1,478 0 0 

National Forest System 

 Forest Products 500 500 0 

 Minerals and Geology Management 17,000 17,000 15,000 

 Landownership Management 5,475 4,400 5,000 

Wildland Fire Management 

 Hazardous Fuels Reduction 4,926 5,000 5,000 

Total $33,229 $31,650 $31,150 

 *FY 2006 BA included rescissions of 0.476 percent and 1.0 percent 

 NOTE: Funding shown directly supports the National Energy Policy on-the-ground. 

Program Authorities and Direction 

In 2001, the President’s National Energy Policy gave the Forest Service directions to 

facilitate increasing production of all energy sources in an environmentally sound 

manner, capitalizing on the potential of woody biomass as a renewable energy resource, 

and contributing to the improvement of infrastructure for transmitting energy across the 

country. 

Healthy Forests Restoration Act of 2003: Utilization of Woody Biomass 

Agricultural and forest lands in the United States are capable of producing a sustainable 

supply of biomass sufficient to displace up to 30 percent or more of U.S. petroleum 

consumption and reduce our dependence on foreign oil. (Biomass as Feedstock for A 

Bioenergy and Bioproducts Industry: The Technical Feasibility of a Billion-Ton Annual 

Supply, April 2005). Forestlands, produce an estimated 368 million dry tons (MDT) of 

biomass annually (including 35 MDT from harvested fuelwood, 41 MDT from logging 

residue, and 60 MDT of biomass from fuel treatment operations). 

Energy Policy Act of 2005 

In August 2005, to complete this vision for a comprehensive national energy policy, and 

to ensure national security and jobs for the future with secure, affordable, and reliable 

energy, the Energy Policy Act was passed into law. The Forest Service has a role in 

meeting the nation’s energy needs are as follows: 

Program Description 

Woody biomass is a by-product of forest management, ecosystem restoration, or 

hazardous fuel reduction treatments. Forest Management, in partnership with State and 

Private Forestry and Research & Development, is looking at new tools, methods, markets 

and technology to remove and utilize woody biomass. In accordance with the National 

Energy Policy, the Geology and Minerals emphasis has been on processing the backlog 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 13 17-58 National Energy Policy 

of energy mineral applications. Processing and authorizing these non-recreation special 

use authorizations are important for the facilitating transmission of affordable, reliable 

energy to meet the goals of the National Energy Plan. 

With the passage of the Energy Policy Act of 2005, renewable energy and improving 

energy transmission have been elevated to a national priority. The Forest Service 

actively participates in a government-wide initiative aimed at promoting development 

and use of biobased products and bioenergy focused on energy conservation. Forest 

restoration activities using new technology can help business and communities to find 

local renewable energy alternatives while helping the Forest Service carry out the energy 

mandate. In FY 2006, $1.5 million was Congressional directed for an Economic Action 

Programs demonstration project related to Fuels in Schools in Montana. 

The Urban and Community Forestry Program encourages the establishment of trees for 

energy conservation in and around cities. Utilizing woody biomass can offset part of the 

cost of hazardous fuels reduction and ecosystem restoration activities throughout the 

Nation, as well as contribute to national energy goals. Working with communities to 

develop appropriate technologies and markets for woody biomass could create thousands 

of rural-based jobs and millions of dollars in value-added processing including bioenergy, 

biofuels, and biobased products. 

Independent Reviews 

The Program Assessment Ration Tool (PART) evaluation of the Energy program for the 

FY 2007 President’s Budget received a rating of “Adequate.” Performance Measures 

Include: 

Energy FY 2006 

Target

FY 2006 

Actual

FY 2007 

Target 

FY 2008 

Target

Number and percentage of lease 

applications processed within prescribed 

timeframes. 

1,200

47%

585

8%

1,400 

50% 

1,500

52%

Number and percentage of new 

applications for permit to drill (APDs) 

processed within prescribed timeframes.

325

47%

115

33%

325 

50% 

325

51%

Number and percentage of operations 

administered to standard 

1,000 

20%

3,240 

65%

1,000 

20% 

1,000 

20%

Actions taken to implement the PART recommendations include initiation of a 

comprehensive energy program evaluation to focus on the processing of oil and gas lease 

nominations and applications to drill, as well as the administration of oil and gas 

operations. 

Congressional Reports 

Energy Policy Act of 2005, P.L. 109-58, Section 372(b)(2) – Directs that, not later than 1 

year after enactment of the Act, and every two years thereafter, Federal land management 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 13 17-59 National Energy Policy 

agencies and the Department of Energy are required to submit a report to Congress on the 

status of streamlining activities for interstate natural gas pipelines. 

National Energy Policy: Inventory of Major Federal Energy Programs and Status of 

Policy Recommendations. GAO-05-379, June 2005. This report is an inventory of 

energy-related programs government-wide. 

Wood Utilization: Federal Research and Product Development Activities, Support, and 

Technology Transfer. GAO-06-024, May 2006. This report is a government-wide listing 

of wood utilization research and technology transfer programs, and energy is noted as a 

use. 

Natural Resources: Woody Biomass Users’ Experiences Offer Insights for Government 

Efforts Aimed at Promoting Its Use. GAO-06-336, March 2006. This report describes 

several case studies of user experiences with woody biomass utilization. 

FY 2008 Plans

Forest and Rangeland Research 

• Improve forest management and wood utilization options by integrating the use of 

small-diameter material for biobased products and bioenergy 

• Develop economical, sustainable woody cropping systems at multiple operational 

scales; forest feedstocks for biofuels and bioproducts; and integrated management 

systems 

• Develop new processes for ethanol conversion; small scale wood to energy 

technology; technologies for biofuels from wood; and energy-efficient building 

products. 

Forest Products 

• Implement the Coordinated Resource Offering Protocol (CROP) seeking and 

developing new woody biomass utililization markets. 

• Continue integrating forest health objectives and renewable energy alternatives. 

• Continue seeking new partnerships in woody biomass utilization efforts 

Minerals and Geology Management 

• Complete the energy leasing analyses in three national forests 

• Complete the Geothermal Programmatic Environmental Impact Statement 

Landownership Management 

• Complete environmental reviews for the designation of utility rights-of-way corridors 

in the remaining 39 States 

• Complete Interagency Seamless procedures for rights-of-way applications 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 13 17-60 National Energy Policy 

FY 2007 Program 

Forest and Rangeland Research 

• Initiate work on using thermochemical processes to facilitate removal of inorganicmetal contaminants from reclaimed treated wood 

• Continue work on the biopulping mechanism and integrate into the biorefinery 

concept 

• Develop advanced decision support tools that will enable entities to participate in the 

registration process at a low cost per ton of registered greenhouse gas 

• Research gas yields and performance of a commercial wood gasifier (BioMax25) 

Forest Products 

• Continue implementing National Interagency Biomass Strategic and Implementation 

Plan. 

• Continue developing a reliable sustainable supply of woody biomass through CROP. 

• Continue seeking new tools, methods, technologies and processes to utilize woody 

biomass. 

• Continue moving fuels management projects into woody biomass utilization (WBU) 

projects. 

Minerals and Geology Management 

• Complete a Supplemental Information Report related to the lynx 

• Initiate the environmental impact statement for development of geothermal resources 

• Resolve 103,000 acres of pending lease requests in the San Juan National Forest, 

Colorado 

Landownership Management 

• Complete the designation of utility rights-of-way corridors in 11 western States 

• Publish regulations on fair market value for linear rights-of-way 

• Complete agency policy and guidelines on Wind Energy development. 

• Begin the environmental review process for the designation of utility rights-of-way 

corridors in 39 States 

FY 2006 Accomplishments 

Forest and Rangeland Research 

• Collaboratively mapped the genome of black cottonwood (Populus trichocarpa) 

• Provided Technical Guidelines for calculating emissions reductions and carbon 

sequestration 

• Produced an evaluation of silvicultural treatments and biomass use for reducing fire 

hazard 

Forest Products 

• Developed and chartered Interdepartmental Woody Biomass Utilization Group 

(WBUG) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 13 17-61 National Energy Policy 

• Developed a national WBU Team and regional WBU Coordinators. 

• Began CROP and Strategic Placement Of Treatment (SPOT) Studies. 

Hazardous Fuels Reduction 

• Awarded $4.2 million in grants to 18 small enterprises to treat 37,000 acres 

Minerals and Geology Management 

• Processed 81 surface use plans in the Carson National Forest 

• Processed 38 percent of leases and surface use plans within prescribed timeframes 

• Began scoping for the Geothermal Programmatic Environmental Impact Statement 

Landownership Management 

• Signed interagency MOUs to implement agency obligations under the Energy Policy 

Act 

• Drafted agency policy and guidelines on Wind Energy development. 

• Participated in Report to Congress on Corridors and Rights-of-ways on Federal Lands 

 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 14 17-62 National Forest Land Adjustment

 for Rural Communities Act 

National Forest Land Adjustment for Rural Communities Act 

The Secure Rural Schools and Community Self-Determination act of 2000 (SRS) (PL 

106-393) was enacted to provide transitional assistance to rural counties affected by the 

decline in revenue from timber harvests in Federal lands. Traditionally, these counties 

relied on a share of receipts from timber harvests to supplement local funding for school 

systems and roads. Funding from SRS has been used to support more than 4,400 rural 

schools and to help maintain county road systems. In addition, SRS has authorized the 

establishment of over 55 resource advisory committees (RACs) in 13 States, which has 

increased the level of interaction between the Forest Service, local governments, and 

citizens, resulting in broader support and understanding of our mission. RACs have 

implemented over 4,500 resource projects on national forests, grasslands, and adjacent 

non-federal lands, with a value from SRS funds and leveraged funds totaling over $292 

million dollars. 

On September 30, 2006, the SRS authorization ended. The last payment under this 

authorization was made in December 2006. The Administration continues to support a 1-

year extension of the SRS Act with agreed-upon full offsets as an interim step. The 

Budget underscores the President’s continuing commitment to States and counties 

impacted by the ongoing loss of receipts associated with lower timber harvests on Federal 

lands. The National Forest Land Adjustment for Rural Communities Act is included in 

the FY 2008 President’s Budget to provide four additional years of payments to fund 

transition payments targeted to the areas of greatest need to provide counties some 

additional time before payments are phased out. Under the proposal, half of land sales 

proceeds will be available to offset county payments and half will be available for 

national forest acquisition in the states in which lands are sold. Counties benefit from 

four additional years of payments, and states receive an environmental benefit from 

exchanging land with low environmental value for lands with high environmental value. 

The National Forest Land Adjustment for Rural Communities Act would authorize the 

Secretary of Agriculture to provide a reliable source of funding for a 4-year extension of 

USDA and Department of the Interior forest county safety net payments and also provide 

a source of funding to improve the conservation of our national forests and grasslands. 

The proposal provides a source of funding for forest county safety net payments through 

the sale of identified National Forest System (NFS) lands similar to what was presented 

in our FY 2007 budget proposal. This new legislation differs from the previous proposal 

by including additional provisions which allow for land sale receipts to also be used for 

the acquisition of land for the NFS system, conservation education, improved access to 

public lands, wildlife and fish habitat improvement, and to cover administrative costs of 

land sales and acquisition activities. 

Concerns about our previous proposal were raised by States which had NFS lands 

identified to be disposed, but had little financial return expected from those sales. The 

National Forest Land Adjustment for Rural Communities Act addresses these concerns 

by including a requirement that 50 percent of all land sale receipts will be retained within 

the State from which the receipts were derived, for conservation purposes. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 14 17-63 National Forest Land Adjustment

 for Rural Communities Act 

The bill would authorize the Secretary to sell excess national forest land or interests in 

land that the Secretary determines to be both eligible for disposal and in the public 

interest. These parcels meet criteria identified in existing forest land management plans 

as potentially suitable for conveyance. Many of these lands are isolated from other 

contiguous National Forest System lands, and because of their location, size, or 

configuration, are not efficient to manage as a component of the National Forest System. 

Isolated tracts can be expensive to manage because of boundary management and 

encroachment resolution costs. The sale of these lands will not compromise the health or 

integrity of the National Forest System; instead, it will allow the agency to consolidate 

federal ownership and reduce management costs. Land sales would be limited to a list of 

lands identified by the Secretary. By selling lands that are inefficient to manage or have 

limited ecological values, and purchasing critical, environmentally sensitive lands, the 

Forest Service will maintain the integrity of the National Forest System while funding 

payments under the Act in a fiscally responsible manner. 

The proposed legislation would authorize the Secretary to sell sufficient national forest 

land to fund an $800 million dollar account. Under the bill, 50 percent of these receipts 

would be used to make SRS Act payments over a 4-year period with a gradual phase-out. 

The other 50 percent of receipts would be used for conservation purposes within the State 

where the land was sold. 

Funds from the land sales account would be in addition to payments to the States from 

annual timber and other receipts on National Forests and BLM lands. For administrative 

purposes, the Secretary of Agriculture would also make the supplemental payments from 

this account for Bureau of Land Management O&C lands. Timber receipts are expected 

to rise over the next five years, which should further help in reducing the impact of the 

payment phase-out. 

The bill would authorize the establishment of a National Advisory Board to advise the 

Secretary on the use of the proceeds from those land sales. State governments will be 

encouraged to participate in formulating recommendations to the National Advisory 

Board Secretary for habitat improvement projects and land acquisition needs. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 15 17-64 National Scenic and Historic Trails

National Scenic and Historic Trails 

America’s network of national scenic and historic trails commemorates this Nation’s rich 

natural and cultural heritage. Each trail represents a mosaic of partnerships among 

citizens, landowners, trail users, and public agencies at the Federal, State, tribal, county, 

and local level. Since enactment of the National Trails System Act in 1968, the Forest 

Service has designated trail coordinators for five of these trails: Appalachian, 

Continental Divide, Florida, Pacific Crest, and Nez Perce (Nee Mee Poo). In addition, 

the Forest Service manages portions of 15 additional national scenic and historic trails on 

National Forest System (NFS) lands. 

Appalachian National Scenic Trail (AT) - This 2,174-mile footpath crosses along the 

ridgecrests and across the major valleys of the Appalachian Mountains from Katahdin 

in Maine to Springer Mountain in northern Georgia. The trail traverses Maine, New 

Hampshire, Vermont, Massachusetts, Connecticut, New York, New Jersey, 

Pennsylvania, Maryland, West Virginia, Virginia, Tennessee, North Carolina, and 

Georgia. Since 1978, the Forest Service has acquired more than 675 tracts in six states 

totaling more than 55,000 acres for the protection of the trail, including direct 

acquisition of more than 148 miles of trail tread. The trail is used by day, weekend and 

other short-term hikers, section-hikers, and thru-hikers who hike the entire length of the 

trail in one season. The trail is currently protected along more than 99 percent of its 

course by Federal or State ownership or rights-of-way. 

Continental Divide National Scenic Trail (CDT) - Designated on November 10, 1978, 

the CDT is a nationally significant resource providing long distance trail opportunities 

primarily for hiking and horseback riding recreationists. The trail’s corridor links Federal, 

State, and private lands from Mexico to Canada, passing through 25 national forests, 3 

national parks, 1 national monument, and 8 Bureau of Land Management (BLM) field 

office areas. When completed, the trail will be approximately 3,100 miles in length. 

Florida National Scenic Trail (FNST) - Added to the national trails system in 1983, the 

FNST consists of 1,400 planned miles stretching from Big Cypress National Preserve to 

Gulf Islands National Seashore plus 254 miles of an officially designated side trail. A 

total of 33 tracts have been acquired since the inception of the FNST acquisition 

program, which total 3,402 acres valued at over $16 million. To date 888 miles 

(approximately 60%) of the primary north to south route have been certified as official 

FSNT administered by the Forest Service. The FNST is the only national scenic trail that 

gives the public the opportunity to experience a wide range of subtropical environs, karst 

spring and riverine systems, and a beach walk on a National Seashore. 

Pacific Crest National Scenic Trail (PCT) - The PCT is a 2,650-mile congressionally 

designated trail that follows the crest of the Sierra Nevada and Cascade Mountain ranges 

from the Mexican to Canadian borders through California, Oregon, and Washington. 

Established in 1968, the trail was completed in 1993 and lies upon publicly owned lands 

except for approximately 300 miles where it crosses private lands (easements have been 

acquired for the trail tread). Over the past decade the PCT has become a favorite of thru-
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 15 17-65 National Scenic and Historic Trails

hikers and thru-riders and each year an average of 300 hikers attempt to cover the full 

length of the trail. 

 

Nez Perce (Nee-Me-Poo) National Historic Trail (NPNHT) - In 1986 Congress 

acknowledged the significance of the Nez Perce Conflict of 1877 by establishing the 

1,170 mile NPNHT. The route winds through remote, rugged, and scenic terrain and, 

while 865 miles of the trail is an automobile tour route, many miles are accessible only 

by foot with little changed in more than a century. 

Other National Scenic and Historic Trails (NSHT): There are an additional 15 

national scenic and historic trails totaling over 6,700 miles that the Forest Service 

coordinates management with other Federal public land agencies. These trails are: 

California, Camino Real Tejas, Camino Tierra Adentro, De Anza, Ice Age, Iditarod, 

Lewis and Clark, Mormon Pioneer, North Country, Old Spanish, Oregon, Overmountain 

Victory, Pony Express, Santa Fe, and Trail of Tears. 

Forest Service funding for national scenic and historic trails includes appropriations to 

administer and manage the program within the Capital Improvement and Maintenance - 

Trails budget line item and to acquire trail segments within the Land Acquisition budget 

line item. A detailed breakdown for FY 2006 through FY 2008 is displayed in below: 

National Scenic and Historic Trails 

($ in thousands) 

FY 2006 FY 2007 FY 2008 

 Trails Land 

Acq. 

Partner 

* 

Total Trails Land

Acq.

Partner 

* 

Total Trails Land 

Acq. 

Partner 

* 

Total

Appalachian $193 $0 $1,503 $1,696 $193 $0 na $193 $193 $0 na 193 

Continental 

Divide 

1,737 0 816 2,553 1,500 0 na 1,500 1,500 0 na 1,500 

Florida 1,137 0 1,600 2,737 1,000 0 na 1,000 1,000 0 na 1,000 

Pacific 

Crest 

1,827 493 1,500 3,820 1,297 0 na 1,297 1,297 0 na 1,297 

Nez Perce 634 0 46 680 640 0 na 640 640 0 na 640 

All-others** 723 0 143 866 725 0 na 725 725 0 na 725 

 

TOTAL $6,251 $493 $5,608 $12,352 $5,355 $0 na $5,355 $5,355 $0 na $5,355 

* Estimated cash and in-kind contributions. Estimated contributions for FY 2007 and FY 2008 are not 

known at this time. 

** All other includes the following national scenic and historic trails: California, Camino Real Tejas, 

Camino Tierra Adentro, De Anza, Ice Age, Iditarod, Lewis and Clark, Mormon Pioneer, North Country, 

Old Spanish, Oregon, Overmountain Victory, Pony Express, Santa Fe, and Trail of Tears. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 15 17-66 National Scenic and Historic Trails

FY 2008 Plans 

• Continue to emphasize protection and management of the national scenic and historic 

trails. 

• Strengthen partnerships with other Federal agencies, tribal governments, States and 

local government and non-governmental organizations to provide for trail surveys, 

trail maintenance, and trail improvement projects. 

• In partnership with other Federal agencies and Youth Corps continue to increase the 

involvement of youth programs in the development and maintenance of the trails. 

FY 2007 Program 

Appalachian National Scenic Trail (AT) 

• Conduct routine maintenance on all 1,015 miles of trail within the National Forest 

System and associated overnight sites and trailhead parking areas on NFS managed 

lands. 

• Complete Thundering Falls project, Green Mountain National Forest, including 300 

feet of boardwalk, a 30 foot bridge, and 300 foot of trail surfacing 

• Provide support for the caretaker program, replacement planning for Clement 

Shelter and Little Rock Pond Management Plan, construction of Cooper shelter, and 

rehabilitation of Old Joe shelter and Big Branch Bridge. 

• Complete NEPA and cultural resource clearance for roof replacement at historic 

Cable Gap Shelter, National Forests in North Carolina. 

Continental Divide National Scenic Trail (CDT) 

• Construct 85 miles of new trail, reconstruct 52 miles of existing trail, acquire 6 miles 

of land acquisition/rights-of-way, build 6 trailheads, and plan for 195 miles of trail 

location (scouting and/or environmental analysis).

• Develop rights-of-way acquisition strategies in collaboration with the five states.

• In collaboration with Continental Divide Trail Association (CDTA), utilize the 

Interagency Trail Data Standards and geospatial information system (GIS) to 

document trail status and estimated completion costs. Trail status information is 

being developed for Google Earth applications. 

• Through a Large Scale Grant of $1 million from the State of Colorado, construct a 

major trailhead at Berthoud Pass and work towards completion of the trail. Much of 

the trail construction work associated with this grant is exceeding $100,000 per mile 

due to the extreme nature of the terrain and is expected to be completed in FY 2007.

 

Florida National Scenic Trail (FNST) 

• Maintain 1,142 miles of trail and continue coordination with 54 land management 

partners. 

• Execute two new Certification Agreements with Florida Department of 

Transportation and Seminole County that will cumulatively add 23 miles to the trail. 

• Continue successful partnership with Florida Natural Areas Inventory to share 

resources in inventorying natural resources on Forest Service acquired parcels 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 15 17-67 National Scenic and Historic Trails

connecting Florida Trail segments. Three parcels totaling over 500 acres received 

natural resource inventory work in FY 2006 and a 1,600 acre parcel will be surveyed 

in FY 2007. 

• Continue successful involvement in Northwest Florida Greenway project with 10 

other Federal, State, and nonprofit partners to support the Nature Conservancy and 

Department of Defense in protecting the overlapping Florida Trail and Northwest 

Florida Greenway corridors. 

 

Pacific Crest National Scenic Trail (PCT) 

• Continue to rebuild the 38 miles and 7 bridges in Glacier Peak Wilderness, 

Washington. Until complete, the 30-mile re-route will continue to be maintained. 

• Continue to support the Pacific Crest Trail Association (PCTA) with funding to 

recruit, organize and maintain the entire trail. Expectations are that the total number 

of volunteer hours will increase by 10 percent due to the efforts of the new regional 

representatives in Oregon and southern California. 

• Develop a new agreement with Americorps to provide maintenance crews with 

supervision by the PCTA. 

• Initiate studies on over 100 miles of the trail for re-location off of public roads and 

private lands which will lead to recommendations for land acquisitions, construction 

and/or re-location of over 300 miles that is incomplete. 

Nez Perce (Nee-Me-Poo) National Historic Trail (NPNHT) 

• Continue plans to develop a participating agreement with Chief Joseph Band of 

Colville Confederated Tribes for a job training project. 

• Continue to improve the award-winning website to better serve both those who plan 

to travel the trail and those who cannot physically experience it. A design for a 

virtual tour map linked to 360 panoramic views, video and audio clips, and 

community Chamber of Commerce sites (to assist with travel planning) has been 

created. 

• Complete plans with Nez Perce Trail Foundation to provide interpretive panels at the 

Wallowa Band Interpretive Center and at a newly constructed rest area in Nespelem, 

Washington dedicated to the memory of Chief Joseph. 

 

Other National Scenic and Historic Trails (NSHT) 

• North Country National Scenic Trail: install an additional 100 new trail posts at road 

and trail intersections under a cooperative cost-share cyclic maintenance agreement 

with the National Park Service (NPS). 

• Trail of Tears: complete National Register of Historic Places nominations for eight 

trail sections and associated sites, identify sign interpretive locations along trail, and 

identify and implement priority trail stabilization. The Shawnee NF is developing a 

curriculum for southern Illinois school students. 

• Iditarod National Historic Trail- implement a multi-year project to restore and 

develop over 180 miles along the Southern Trek of the trail. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 15 17-68 National Scenic and Historic Trails

FY 2006 Accomplishments 

Appalachian National Scenic Trail (AT) 

• A total of 2,317 volunteers contributed 83,303 hours on NFS lands, valued at 

$1,502,786, representing nearly 45 percent of all the volunteer contributions to the 

entire trail. Examples of volunteer work includes routine trail maintenance, trail 

reconstruction, shelter and campsite maintenance, backcountry sanitation 

maintenance, corridor monitoring, natural heritage monitoring, information and 

interpretation, and outreach to communities and school systems. 

• Maintained 1,015 miles of trail on NFS lands, including blowdown removal, blazing, 

clearing of waterbars and drainage structures, sign replacement, minor treadwork, and 

upkeep of trail shelters, overnight sites, backcountry sanitation systems, trail bridges 

and trailhead parking areas. Open areas and vistas were maintained in North 

Carolina, Tennessee, Virginia and Vermont. 

• Acquired 2 tracts totaling 100 acres in North Carolina and Tennessee (with prior year 

appropriations), and at least 24 additional tracts totaling more than 3,500 acres 

identified to be acquired. 

• Nearly $20,000 of salary savings was utilized to procure safety equipment (primarily 

chainsaw personal protective equipment) for trail volunteers. 

Continental Divide National Scenic Trail (CDT) 

• A total of 954 volunteers contributed 30,936 hours on 42 projects, valued at 

$816,032, to maintain and improve the CDTA. An additional 1,500 volunteer-days 

were contributed by others, including the Colorado Trail Foundation. 

• Maintained over 700 miles of trail, planned over 90 miles of trail following the NEPA 

process, constructed 78 miles of trail, reconstructed 17 miles of trail, and built 3 

trailheads, including contracting for the completion of the Berthoud Pass premier 

trailhead in Colorado. 

• Renewed a five-year Challenge Cost Share Agreement with the CDTA funded at 

$360,000 (50/50 match) for the management and project work for the trail. 

• State grants in Wyoming, Colorado, and New Mexico provided a substantial amount 

of the funds for these programs. 

Florida National Scenic Trail (FNST) 

• A total of 62,380 volunteer hours was contributed, valued at approximately $1.1 

million. Centennial of Service funds were also leveraged with several partners 

resulting in a 4:1 non-federal to federal contribution of cash and in-kind services 

valued at $300,000. Total cash and in-kind contributions amounted to $1.6 million. 

• Maintained approximately 1,142 miles of the trail; reconstructed 27 miles of 

hurricane damaged trail, removed 1 campsite, improved 1 trailhead, reconstructed 12 

bridges, reconstructed 5 boardwalk, replaced 12 blaze posts, constructed 4.5 miles of 

new trail, relocated 3 miles of trail, constructed 2,700 feet of new boardwalk, 3 new 

trailheads, 8 new bridges, and 25 miles of new or reroute trail were scouted/flagged 

for construction. A total of 63 miles of trail has been scouted and is in various stages 

of construction planning. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 15 17-69 National Scenic and Historic Trails

• Acquired 13 additional parcels and an additional 30 tracts totaling 6,919 acres have 

been appraised and offers are being made valuing $9,815,500 using prior year 

appropriations. Three tracts totaling 430 acres are currently under appraisal, and 

negations are underway to gain permission to appraise an additional 62 tracts totaling 

5,684 acres. 

• In partnership with Florida Trail Association, initiated a “Gateway Communities” 

program to support local economies’ utilization of ecotourism opportunities provided 

by the trail. Received the 2005 National Wilderness Award for Traditional Tools in 

recognition of wilderness hurricane recovery work. 

Pacific Crest National Scenic Trail (PCT) 

• Over 61,000 hours of volunteer trail maintenance and other associated benefits for the 

trail were provided from trail associations, youth crews and alternative sentence work 

crews. Received over $700,000 of “in kind” contributions for matching 

grants/agreements and over $80,000 of cash contributions for matching youth crew 

trail maintenance projects. 

• Maintained 1,380 miles of trail, which included 1,300 miles maintained with partners, 

volunteers and/or sponsored organizations, many of the projects worked with youth or 

underserved young adults. 

• Held a traditional skills workshop in the John Muir Wilderness, Sierra National 

Forest, training over 30 trail leaders in 10 agencies and organizations in primitive 

rock and non-motorized tool skills, constructing rock steps, crib walls, water bars, etc. 

• Acquired 177 acres (Barter tract) for $800,000 (with prior year appropriations). An 

additional parcel (Van Huisen and Associates) for 49.21 acres is currently under 

option for $2,520,000 in Agua Dulce. 

Nez Perce (Nee-Me-Poo) National Historic Trail (NPNHT) 

• Maintained 36 miles of trail, 92 miles of trail signage, constructed 6 miles of new 

trail, 3 new bridges constructed, and installed 3 new interpretive signs. 

• Coordinated with Nez Perce Tribe, Clearwater National Forest, NPS, and many local 

communities and organizations to present educational workshops for more than 4,000 

students and teachers during the Lewis and Clark Bicentennial Signature Event, 

“Summer of Peace.” 

• Installed 9 interpretive panels on Clearwater National Forest along Highway 12 and 

Lolo Motorway. 

• Designed interpretive panels for three certified sites in Quapaw, OK, Baxter Springs, 

KS and Ft. Benton, MT. 

Other National Scenic and Historic Trails (NSHT) 

• North Country National Scenic Trail (NCT) - maintained 301 miles and improved 32 

miles of trail. Under a cooperative cyclic maintenance cost-share agreement with the 

NPS installed 50 new trail posts at road and trail intersections spanning 10 miles of 

trail. A total of 5,629 volunteer hours and $1,650 in challenge-cost share funds was 

contributed to the NCT. 

• Ice Age National Scenic Trail - maintained all 49 miles of trail on NFS lands and 

improved or constructed 3 miles in coordination with Minnesota Conservation Corps 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 15 17-70 National Scenic and Historic Trails

(MCC), which included tree removal (downed trees across trail), litter removal, 

vegetation and brush control, installing new or replacing existing trail posts, signs, 

and markers, and intensive tread work. A total of 2,276 volunteer hours was 

contributed. 

• Trail of Tears National Historic Trail- installed interpretive wayside panel at Rolla 

Visitor Center on the Mark Twain National Forest. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 16 17-71 Northwest Forest Plan

Northwest Forest Plan

FY 2006 – FY 2008 Funding 

Program 

(dollars in thousands)

FY 2006 

Enacted 

FY 2007 

Estimate 

FY 2008

Pres. Bud.

National Forest System 

Wildlife and Fisheries Habitat Management $13,767 $19,872 $20,493

Forest Products $27,311 $68,616 $77,798

Vegetation and Watershed Management $14,730 $17,281 $17,772

Landownership Management $1,928 $4,442 $4,607

Wildland Fire Management 

Hazardous Fuels $15,650 $21,825 $22,547

Capital Improvement and Maintenance 

Roads $23,283 $ 35,308 $36,153

Permanent Appropriation 

Salvage Sale Fund $8,492 $8,348 $5,576

 Trust Appropriation 

Cooperative Work - Knutson-Vandenberg $11,802 $5,985 $2,441

Total $116,963 $181,677* $187,387

Volume Offered for Sale 389 800 800

* Reflects full funding of the President’s Northwest Forest Plan. The actual level implemented in 

FY07 will be a pro-rated share of the full funding level because the agency was following 

Congressional direction under the FY07 short-term continuing resolutions. 

FY 2008 Highlights 

The FY 2008 President’s Budget includes an overall program increase of more than $5.7 

million above the FY 2007 Estimate. This funding level will enable the agency to offer 

1,600,000 hundred cubic feet (CCF), or approximately 800 million board feet (MMBF) 

of timber volume as an outcome of treating an estimated 102,000 acres for improved 

forest health conditions. 

Under full implementation of the Northwest Forest Plan: 

• Commercial thinning will continue to be a priority in late-successional-reserve 

(LSR) forests. 

• Vegetation and Watershed Management program of work will continue to address 

reforestation needs of recent large forest fires in balance with meeting 

precommercial thinning needs of existing stands. 

• Emphasize hazardous fuels treatment in the wildland-urban interface (WUI) and 

improving condition class of areas inside and outside the interface. This work 

will complement priority fuels reduction work on non-Northwest Forest Plan 

forests. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 16 17-72 Northwest Forest Plan

• Continue implementation of a comprehensive strategy for aquatic restoration 

within the Northwest Forest Plan to restore priority watersheds in consultation 

with the U.S. Fish and Wildlife Service on recovery efforts for Northern Spotted 

Owl and the National Marine Fisheries Service for anadromous fish. 

• The January 9, 2006 District Court ruling (Northwest Ecosystem Alliance v. Mark 

E. Rey, District Court for the Western District of Washington, January 9, 2006) 

affects the planned program of work for all “habitat disturbing” activities, most 

specifically the timber and fuels reduction programs. Surveys will be completed 

and protections applied on the ground for species requiring pre-project surveys. 

Project Description 

On April 13, 1994, the Secretaries of Agriculture and the Interior issued a Record of 

Decision (ROD) for the Northwest Forest Plan. The ROD affects the management and 

administration of 22.1 million acres of Federal land within 19 national forests in western 

Oregon, western Washington, and northern California administered by the Forest Service 

and the U.S. Department of the Interior, Bureau of Land Management (BLM). The 

Northwest Forest Plan created 10 million acres of reserves where late successional or 

riparian habitat is the primary management objective. LSRs protect and enhance 

conditions favorable to late-successional and old-growth related species. Silvicultural 

treatments include precommercial and commercial thinning. Approximately 1.8 million 

acres of LSR could benefit from thinning to enhance late-successional conditions. 

A settlement agreement, American Forest Resource Council, et. al. (AFRC) v. Clarke, 

entered into between the Secretary of Agriculture and Secretary of the Interior, requires 

the agency to request funding to fully implement the Plan. This includes offering timber 

sales in an amount equal to the annual probable sale quantity (PSQ), offer additional 

thinning sales, and conduct required environmental analyses. Full implementation PSQ 

offer volume is 637 million board feet (MMBF), including 161 MMBF in Region 5 and 

476 MMBF in Region 6. Volume offered from LSRs is counted in addition to PSQ. 

FY 2008 Plans 

• Plan to offer 1,600,000 CCF or approximately 800 MMBF of timber volume. 

• Emphasize treatment of hazardous fuels in the wildland-urban interface and 

municipal watersheds. 

• Plan to improve 8,600 acres of terrestrial wildlife habitat and 240 miles of 

fisheries habitat. 

• Complete boundary line maintenance necessary to support land management 

activities. 

• Maintain and reconstruct roads vital to Northwest Forest Plan project 

implementation. 

• Continue to address reforestation needs of recent large forest fires. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 16 17-73 Northwest Forest Plan

FY 2007 Program 

• Complete a supplemental final environmental impact statement (FEIS) and ROD 

to the 2001 Northwest Forest Plan ROD to remedy deficiencies identified by a 

recent Court ruling. (Northwest Ecosystem Alliance v. Mark E. Rey, District Court 

for the Western District of Washington, January 9, 2006) and 9th circuit BLM 

case including changed circumstances resulting from the Klamath-Siskiyou 

Wildlands Center et al. v. Boody et. Al; No 06-35214 (CV03-3124, District of 

Oregon). 

• Plan to offer 1,600,000 CCF or approximately 800 MMBF of timber volume. 

• Emphasize treatment of hazardous fuels in the wildland-urban interface and 

municipal watersheds. 

• Plan to improve 8,300 acres of terrestrial wildlife habitat and 230 miles of 

fisheries habitat. 

• Complete boundary line maintenance necessary to support land management 

activities. 

• Maintain and reconstruct roads vital to Northwest Forest Plan project 

implementation. 

FY 2006 Accomplishments 

• The regions offered 389 MMBF (90 MMBF in Region 5 and 299 MMBF in 

Region 6). The Northwest Forest Plan program of work focused on meeting 

planned timber volumes; while commercial thinning remained the priority in LSR 

lands. 

• Initiated a supplemental FEIS and ROD to the 2001 Northwest Forest Plan ROD 

to remedy deficiencies identified by a recent Court ruling. (Northwest Ecosystem 

Alliance v. Mark E. Rey, District Court for the Western District of Washington, 

January 9, 2006) 

• Accomplished fuel treatments and forest vegetation management projects to meet 

management objectives by establishing vegetation on approximately 13,000 acres 

and treating approximately 55,900 acres of hazardous fuels. 

• Vegetation and Watershed Management program addressed restoration needs of 

recent large fires through reforestation of over 7000 acres. 

• Improved 13,777 acres of terrestrial wildlife habitat and 219 miles of stream 

habitat (these acres include partnership accomplishments in Region 6 not reflected 

in the FY 2007 Program or FY 2008 Plan). Improvements are integrated with 

commercial thinning opportunities and fisheries improvements were leveraged 

through partnerships. 

• Marked and maintained 108 miles of boundary to meet land management 

objectives. 

• Reconstructed 24 miles of roads necessary for implementation of the Northwest 

Forest Plan. 

• Maintained over 2,300 miles of roads in support of Northwest Forest Plan project 

implementation.
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 17 17-74 OGC Reimbursements

Office of General Counsel Reimbursement 

A Forest Service Administrative Provision in the FY 2006 Appropriations for the 

Department of Interior, Environment, and Related Agencies Appropriations Act 

(P.L.109-54) and under the current continuing resolution provides: 

“Notwithstanding any other provision of law, any appropriations or funds 

available to the Forest Service not to exceed $500,000 may be used to reimburse 

the Office of the General Counsel (OGC), Department of Agriculture, for travel 

and related expenses incurred as a result of OGC assistance or participation 

requested by the Forest Service at meetings, training sessions, management 

reviews, land purchase negotiations and similar non-litigation related matters. 

Future budget justifications for both the Forest Service and the Department of 

Agriculture should clearly display the sums previously transferred and the 

requested funding transfers.” 

The USDA Office of General Counsel bills the Forest Service quarterly for travel 

and related costs. The FY 2006 actual reimbursement was $113,445. The Office 

of General Counsel estimates reimbursements for travel and related costs to be 

$200,000 for FY 2007 and $200,000 for FY 2008. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 18 17-75 Office of Tribal Relations

Office of Tribal Relations 

Forest Service Program 

FY 2006 

Final 

FY 2007 

Estimate 

FY 2008 

Budget 

Office of Tribal Relations, 

Washington Office $909,000 $918,000 $918,000 

Program Description 

The Forest Service Tribal Relations Program is responsible for helping ensure that the 

agency appropriately meets its mandates regarding trust, treaty, and other relationships 

with Native American and Alaska Native Tribes, in the context of the overall Forest 

Service mission. The Office of Tribal Relations (OTR), located in Washington, DC 

headquarters, provides policy, direction, and strategic support in implementing agency 

programs and activities toward that end. 

Overall program management of tribal relations is funded by a direct cost pool, using all 

of the funds available to the Forest Service. Specific projects are funded by the primary 

purpose of the projects. 

FY 2008 Plans 

The program will maintain leadership in policy and direction, as well as coordinate four 

cross-program and cross-jurisdictional national-level projects: 

• Program Integration

o Conduct inter-deputy area projects relating to the Tribal Forest Protection Act. 

o Leverage contributions of other agencies to tribally-based natural resources 

education, recruitment, employment, and leadership succession programs, 

especially related to fire, restorations, and ecosystem services. 

• Communication and Consultation

o Attend various national tribal organization’s board meetings and conferences to 

increase interaction with Indian country and receive feedback from tribal leaders. 

o Enhance web-based resources for OTR information and services. 

o Continue support of national training focusing on tribal relations. 

• Program Oversight

o Continue support and implementation oversight of the National Tribal Leaders 

Committee. 

o Design and develop a 5-year strategic plan. 

o Develop a Chief’s OTR National Award 

o Conduct field reviews of agency tribal relations program activities. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 18 17-76 Office of Tribal Relations

FY 2007 Program 

• Consultation

o Develop policy and direction to ensure effective consultation, including finalizing 

and distributing the Sacred Sites Policy. 

o Ensure consistent relationships between tribes and national forests and grasslands 

through coordination with regional program managers and leaders. 

o Participate in tribal and inter-tribal meetings to understand tribal issues, and 

concerns, and to inform other participants of agency policy and activities. 

• Partnership and Relationship Building

o Integrate program delivery across agency deputy areas to be consistent with laws, 

Executive Orders, and Washington Office guidance and policy. 

o Provide national oversight of leadership, consistent performance, and 

accountability relating to tribal relations. 

o Provide education, training, and guidance for line officers, regional directors, and 

others to help them work effectively and positively with tribal governments. 

• Workforce Development

o Work across all program areas to encourage and establish stronger ties with tribal 

colleges and universities, as well as Native American programs at other colleges 

and universities. 

o Coordinate with the Office of Civil Rights to help fund initiatives at tribal 

colleges and universities, with focus on recruitment, educational scholarships, and 

the Student Career Experience Program (SCEP). 

• Legislation

o Provide consultative and advisory services to USDA and FS leadership on 

national legislation, departmental, and agency policy related to tribal 

relationships. 

• Seek Broad Advice

o Finish establishment of the Chief’s National Tribal Leaders Committee. 

o Hold the first National Tribal Leadership Conference and conduct follow-up. 

o Participate in national and international meetings to further understanding and 

implementation of agency activities regarding tribal relations. 

FY 2006 Accomplishments 

• Training

o Developed day-long Federal Indian law training for WO directors, with first 

training held in October 2005. 

o Developed and executed curriculum for Indian firefighters through participation 

agreement with the Society of American Foresters, in coordination with the 

National Fire Plan staff. The first of two modules has been completed and was 

executed at two pilot workshops in March 2006. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 18 17-77 Office of Tribal Relations

• Directives

o Led development of interim directives for the Tribal Forest Protection Act of 

2004. 

• Progress in Initiatives

o Made significant headway in creating the Chief’s Tribal leaders Advisory 

Committee. 

o Neared completion of the Sacred Sites Policy. 

• Integration

o Programs successfully integrated into National Forest System, State and Private 

Forestry, and Research and Development deputy areas. 

. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 19 17-78 Partnerships

Partnerships 

Partnerships between the agency and other interests serve a multitude of purposes, each 

contributing towards improvements in the natural resource base, economic climate, 

and/or cultural context of our public lands. Partnerships are used to: broaden 

understanding and commitment to a cause; develop common ground on contentious 

issues and improve levels of trust; increase a sense of purpose and ownership to a given 

effort, activity, or project, and; leverage resources to complete needed work. 

During FY 2006, 7,240 grants or agreements were updated or modified, for projects 

totaling nearly $928 million in value. Specific examples of projects are listed below: 

State and Private Forestry (S&PF) 

• The New York City Watershed Project – A multi-faceted partnership including: 

invasive species treatment; municipality-based forestry education; urban-rural school 

and community group educational projects. Partners: The Watershed Agricultural 

Council, USDA, State and local agencies, conservation organizations, landowners, 

local government, and community groups. 

• Wao Kele o Puna Forest Legacy Project – Forest Legacy Program contributed 

$3.35 million towards the project, which leveraged an additional $11.3 million to 

acquire 25,856 acres of native Hawaiian rainforests. Partners: State Office of 

Hawaiian Affairs, the Hawaiian Department of Land and Natural Resources, Trust for 

Public Land, Malama O Puna, Native American Rights Fund, Native Hawaiian Legal 

Corporation, Pele Defense Fund, and Rainforest Action Network. 

• Linking Girls to the Land – Projects provided over 5,000 Girl Scouts, from 14 

councils, the opportunity to participate in environmental education. Partners:

GSUSA Elliott Wildlife Values Project and U.S. Fish and Wildlife Service 

• Education and Diversity – Seven State Envirothon teams were awarded funds to 

work with diverse and under represented populations. Partners: Canon Envirothon, 

National Association of Conservation Districts, and many local partners. 

Research and Development (R&D)

• Characterizing Forest Change – Maps were developed to display historical 

disturbances for use by managers and planners to update habitat and fuels maps. 

Partners: National Aeronautics and Space Administration, University of Maryland. 

• Value Prior to Pulping (VPP) - The goal in VPP is to collect these sugars and 

convert them to ethanol and other fermentation chemicals without impacting pulp 

properties and with minimal impact on yield. Partners: CleanTech Partners, Inc; 

Stora Enso North America, International Paper, Longview Fibre Wisconsin 

Department of Commerce; State University of New York at Syracuse; North Carolina 

State University, the Georgia Institute of Technology and National Bioenergy Center, 

NREL. 

• Sudden Oak Death – New findings allow inspections, treatment requirements, and 

shipment restrictions to be more precisely targeted, reducing costs and unnecessary 

regulatory burdens. Partners: California Oak Mortality Task Force, California 

Department of Forestry and Fire Protection, Agricultural Research Service (ARS), 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 19 17-79 Partnerships

Animal and Plant Health Inspection Service (APHIS); and Cooperative State 

Research, Education, and Extension Service (CSREES), University of California, 

Oregon State University, The United Kingdom Forestry Commission, and many 

others. 

National Forest System 

• Appalachian Trail – Maintained all 1,105 miles on NFS lands and upkeep of trail 

shelters, overnight sites, trail bridges, and trailhead parking areas. Partners:

Appalachian Trail Conservancy (ATC), Appalachian Mountain Club, National Park 

Service (NPS) and others. 

• Pacific Crest National Scenic Trail – Maintained 1,380 miles of trail, with the 

assistance of trail associations, youth crews and alternative sentence work crews. 

Partners: California Conservation Corps, Northwest Youth Corps, Student 

Conservation Association, Pacific Crest Trail Association, and others. 

• Urban Education – Provided classroom and 10-day field experiences for inter-city 

youth, resulting in restoration work and development of individual public land 

stewardship. Partners: North Cascades Institute, Student Conservation Association, 

North Cascades National Park, Alliance for Wilderness Education and Stewardship, 

Western Washington University, Lake Forest Park Stewardship Foundation, and 

Mount-Baker Snoqualmie National Forest. 

• National Forests in Alabama, Alabama – The wildlife habitat project, resulted in 

3448 acres of prescribed burns and 350 acres of forest improvements. Partners:

Alabama Department of Natural Resources, Alabama Power Company, Quail 

Unlimited, National Wild Turkey Federation, National Fish & Wildlife Foundation, 

Jacksonville State University. 

• Green Mountain and Finger Lakes National Forest, Vermont – Recovery efforts 

for Atlantic salmon included the improvement of stream habitat and collection of 

salmon fry and eggs for hatching. Partners: U.S. Fish and Wildlife, Pittsford 

National Fish Hatchery, U.S. Geological Survey, Connecticut Department of 

Environmental Protection – Fisheries Division, Connecticut River Atlantic Salmon 

Commission. 

• Columbia River Gorge National Scenic Area, Washington – Campground talks on 

freshwater mussels and their fish host, hands-on bird banding and monitoring, and the 

life history of salmonids. Partners: Columbia Gorge Ecology Institute, Catlin Gable 

School, DOI Fish and Wildlife Service - Spring Creek Fish Hatchery , Washington 

Department of Fish and Wildlife , U.S. Army Corps of Engineers 

National Forest Foundation 

• National Forests along the Appalachian Trail - The Appalachian Trail 

Conservancy, trained 120 volunteers as citizen scientists and environmental monitors, 

who assessed over 100 miles of trail and interacted with 2,500 hikers. 

• Ochoco & Deschutes National Forest, Crooked River National Grassland - The 

Oregon Youth Conservation Corps, provided training to crew leaders, treated 400 

acres of noxious weeds, thinned 550 acres of juniper, maintained 75 water guzzlers, 

maintained 50 miles of fence, and maintained over 100 miles of trail. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 19 17-80 Partnerships

• Grand Mesa, Uncompahgre & Gunnison National Forests, Colorado - The Public 

Lands Partnership, conducted two community-driven, action oriented fuels-reduction 

projects designed to resolve conflict through collaborative learning, monitoring and 

adaptive management. 

National Grants and Agreements Summary by Instrument Type* 

USDA, Forest Service, Fiscal Year 2006 

INSTRUMENT 

TYPE 

G&A 

COUNT 

FS 

CONTRIBUTION 

VENDOR 

CONTRIBUTION 

TOTAL 

VALUE 

Challenge Cost Share Agreement 725 23,967,183 18,904,802 42,871,985 

Collection Agreement 1,037 8,785,184 39,847,860 48,633,045 

Cooperative Agreement 452 44,484,827 10,201,790 54,686,617 

Cooperative Research and Development Agreement 8 36,227 338,171 374,398 

Cost Reimbursable Agreement 152 18,869,705 430,975 19,300,680 

Domestic Grant 955 309,547,550 152,691,998 462,239,548 

Fire Agreement 100 3,672,758 1,326,666 4,999,424 

Interagency and Intra-agency Agreement 1,817 102,669,143 108,367,393 211,036,535 

International Cooperative Agreement 16 566,400 166,475 732,875 

International Grant 11 694,245 15,500 709,745 

Joint Venture Agreement 480 26,673,830 8,450,238 35,124,068 

Law Enforcement Agreement 517 5,853,326 121,530 5,974,855 

Letter of Intent 0 0 0 0 

Memorandum of Understanding 45 0 0 0 

Participating Agreement 839 23,274,056 11,562,634 34,836,690 

Region/Station/Area Master Memorandum of 

Understanding 0 0 0 0 

Roads Agreement 86 3,739,925 2,696,632 6,436,557 

Service-wide Master Memorandum of Understanding 0 0 0 0 

Grand Total 7,240 $572,834,358 $355,122,664 $927,957,023 

* Comprises grants and agreements that were new or modified in FY 2006. Numbers may not add due to 

rounding 
FY 2008 Budget Justification 

Special Exhibit 19 17-81 

CHALLENGE COST SHARE AGREEMENTS 

Estimated Funding by Budget Line Item 

($ in thousands) 

 FY 2006 FY 2007 

Budget Line Item/ Appropriation 

Forest Service 

Contributions 

Partner 

Contributions 

Total 

Value 

Forest Service 

Contributions 

Partner 

Contributions 

Total 

Value 

Forest Service 

Contributions 

Forest and Rangeland Research 975 1,878 2,853 927 1,785 2,712 961 State and Private Forestry 1,828 845 2,674 1,779 822 2,601 1,533 Land Management Planning 1,068 335 1,403 1,234 387 1,621 1,608 Inventory and Monitoring 1,765 405 2,170 1,760 404 2,164 2,440 Recreation, Wilderness, Heritage Mgt 3,057 3,965 7,022 2,899 3,760 6,659 2,794 Wildlife and Fish Habitat Mgt 2,682 2,387 5,068 2,608 2,321 4,929 2,515 Grazing Management 181 171 352 172 163 335 187 Forest Products 445 38 483 494 42 536 597 Vegetation and Watershed Mgt 1,594 535 2,129 1,529 513 2,042 1,425 Minerals and Geology Mgt 870 213 1,083 811 199 1,010 708 Landownership Management 136 27 164 131 26 157 135 Centennial of Service Challenge 1,000 720 1,720 772 556 1,328 0 Wildland Fire Management 1,314 383 1,698 1,349 394 1,743 1,339 Facilities 635 137 772 561 121 681 599 Roads 466 1,409 1,875 433 1,308 1,740 518 Trails 2,230 3,954 6,184 1,962 3,479 5,441 1,965 Other * 3,722 1,502 5,225 3,230 1,304 4,534 3,093 

Total $23,967 $18,905 $42,872 $22,650 $17,584 $40,234 22,417 

* Includes Other and Permanent Appropriations and Trust Funds 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-82 President’s Management Agenda

President’s Management Agenda 

The Forest Service continues to aggressively pursue the objective of the President’s 

Management Agenda (PMA), which is to improve Federal management and performance 

and deliver results to the American people. The following narrative provides an 

overview of what the agency is doing and plans to do in FY 2008. 

Strategic Management of Human Capital 

The Forest Service continues efforts to streamline its organization. Since FY 2000, the 

agency has increased its field organization presence so that currently 98 percent of its 

permanent workforce works in field locations. We have also reduced managerial levels 

(GS-14 and above) to only 4 percent of its permanent workforce. 

Additionally, the Forest Service will continue to develop and implement a Leadership 

Succession Strategy that will ensure continuity of leadership for the future. To achieve 

this goal, the FS will use: 

• A succession framework that consists of five key leadership tracks with distinct 

competencies that characterize progressive leadership development. 

• A national senior leader development program that provides a learning environment 

for leaders and managers to gain the skills to effectively manage people, resources, 

and issues. 

• A web-based learning management system, AgLearn, which will assist employees 

with developing competency-based individual development plans, find and register 

for training, and help managers track training completion and effectiveness, costs, 

certifications, and other training related issues. 

• A Training Center of Excellence that will enable the leadership and staff to re-focus 

the agency’s employee development investments toward a more strategic and 

coordinated approach. 

• Regarding the USDA SES selection process, the Forest Service worked with USDA 

to establish standing Executive Resources Boards that meet weekly so that highly 

qualified applicants can be referred to selecting officials shortly after vacancy 

announcements close. This has eliminated the single greatest barrier to meeting the 

30 work-day selection requirement. Biweekly reports to Executives highlight areas 

where Executive action is needed to expedite selection or approvals. 

Further, the agency has designed and implemented in FY 2007, a comprehensive 

performance management system that moves the Forest Service from the current pass/fail 

performance system to a five-level system. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-83 President’s Management Agenda

Organizational Efficiency – WO/RO Restructuring 

The agency has convened a national transformation Management Team with executive 

oversight from Regional Forester Randy Moore. The primary focus of this re-alignment 

effort will be on the Washington office (WO) and regional offices (RO), the top two tiers 

of the agency. 

Ultimately, the goal is to reduce the operating costs of the Washington and regional 

offices by approximately, 25 percent (reduced from the FY 2006 baseline) by the end of 

FY 2009. The agency is committed to increasing efficiencies and making organizational 

changes to provide an increased percentage of funding available to accomplish resource 

management goals and objectives. 

Human Resources BPR

Human Resources business processing reengineering (BPR) is part of a broader strategy 

to examine all Forest Service business processes to significantly improve efficiency and 

effectiveness. The Forest Service Human Resources BPR has made significant progress 

towards centralizing and automating HR functions. Savings will result mostly from 

agency-wide reductions in HR staff achieved by automation, improved service to 

employees, and better management of human capital consistent with the PMA. The 

agency estimates the implementation costs ($60.5 million) of the new HR organization 

will be offset within 4.25 years, thereafter achieving an annual cost savings estimated to 

be $32 million per year. 

Human Resource Management Organizational Costs and Savings 

 (Dollars are Nominal and in 1,000's) 

Year 

Current HR 

Organization 

New HR 

Organization * 

Total Net Estimated 

Savings/ 

(Expenditures) 

FY2005 $86,910 $83,535 $3,375 

FY2006 $88,735 $105,919 ($17,184) 

FY2007 $90,599 $109,777 ($19,178) 

FY2008 $92,501 $56,267 $36,234 

 

 * Costs for the new organization in FY05 through FY08 include onetime implementation costs of $60.5M. 

During FY 2006, the agency completed the first stage of a two-stage 

implementation. Stage I activities included: 

• Redesign of over 53 HR business processes in the areas of Staff/Class and 

Personnel Action Request Processing. 

• Development of business requirements for the PeopleSoft based EmpowHR 

Human Resources Information System (HRIS) managed by the National 

Finance Center. 

• Completion of a new, state of the art facility to house the new ASC-HCM 

(Human Capital Management) organization. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-84 President’s Management Agenda

• Design of the future state HR organization, including workforce transition and 

records migration strategies. 

• Development of a training strategy that will eventually affect over 30,000 users. 

HR processing supported by a Contact Center began providing services to 

customers in September 2006. 

During FY 2007, the agency will complete design and deployment for Stage 2, 

including deployment of additional EmpowHR functionality in the areas of pay and 

leave, benefits, awards, performance management, human capital management, 

employee relations, and labor-management relations. The Forest Service expects 

the goal HR organization to be fully deployed by the end of FY 2007. 

Competitive Sourcing 

The Forest Service competitive sourcing program focuses on: (1) identifying and 

evaluating potential work activities for competition that are likely to result in significant 

savings; (2) planning for and carrying out competitive sourcing competitions in 

accordance with congressional and OMB guidelines; (3) reviewing, if necessary, 

competitive sourcing performance decisions; (4) assisting with implementation efforts; 

and, (5) measuring and reporting on competition and implementation results. 

The Federal Activities Inventory Reform (FAIR) Act requires agencies to submit an 

annual inventory that categorizes all activities performed by government personnel as 

either commercial or inherently governmental. This inventory forms the basis for 

determining the order of activities upon which a Feasibility Study will be conducted. 

The Forest Service currently has three feasibility studies planned for FY 2007. Two are 

already under way. The first is for the National Environmental Policy Act (NEPA) 

activities, under which environmental analyses are conducted and documented resulting 

in successful decisions that contribute to the implementation of the Forest Plan. The 

second is for Aviation and Other Airborne Activities. A third study covering Computer 

Application Development activities will begin in July 2007. As a result of these 

feasibility studies, additional A-76 competitions could result and may be initiated during 

late FY 2007. 

The “Green Plan” for competitive sourcing has five feasibility studies planned for FY 

2008: Fuels Management Program, Technology or Service Centers, Procurement, Forest 

and Rangelands Program, and Research Program. Competitive sourcing activities could 

also include A-76 competitions that result from these as well as FY 2007 feasibility 

studies. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-85 President’s Management Agenda

Savings: 

Region 5 Road Maintenance. This FY 2004 standard competition of 66 FTEs involved 

road maintenance in the Pacific Southwest Region. The Region had previously done road 

maintenance in-house. As a result of the study, the Government’s MEO will continue to 

operate in-house. To date, the Forest Service has realized savings of $1.67 million after 

the one-time cost of $76,000 to conduct the competition. 

Region 5 Fleet Maintenance. This FY 2004 standard competition of 59 FTE involved 

fleet maintenance in the Pacific Southwest Region. The Region had previously 

accomplished fleet maintenance within the agency. By shifting equipment and services to 

a performance contractor, the Forest Service saved $1.61 million over the life of the 

contract. The contract was terminated on May 1, 2006, and a new request for proposals is 

under development. The one time cost of conducting the competition was $228,000. 

Region 6 Olympic National Forest Road Maintenance. In FY 2004, the Forest Service 

completed an express study of 8 FTE engaged in road maintenance work in the state of 

Washington on the Olympic National Forest. By shifting equipment and services to a 

performance contractor, the Forest Service has saved $117,000 to date. 

Information Technology (IT) Infrastructure. In FY 2004, a standard competition of 

1200 FTE engaged in Desktop Support, Server Support, Database Management, 

Telecommunications, IT Security, IT Infrastructure Design, Integration, Testing, and 

Delivery, All-Risk Incident Support; and IT Management across the agency was 

completed. The Government’s MEO won the competition, and to date, has achieved an 

operating cost reduction of $16.8 million. The one-time cost of conducting the 

competition was $1,222,000. 

For FY 2006, the agency reported $20.2 million in savings as a result of 

competitive sourcing activities. 

Expanding Electronic Government 

The Forest Service’s Electronic Government (e-Gov) effort continues to gain momentum 

on improving interactions with citizens, reducing and eliminating redundant investment, 

and transforming service delivery to our customers in support of our mission. At the 

summary level, examples of efforts include: 

Government Paperwork Elimination Act (GPEA): The Forest Service did not fully 

complete its FY 2006 objectives for compliance with the Government Paperwork 

Elimination Act (GPEA). We have improved our processes and in FY 2007 will allow 

for web-enabling of the most challenging 20 percent of its Paperwork Reduction Act 

(PRA) information collections. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-86 President’s Management Agenda

The agency’s FY 2008 GPEA efforts will focus on fully achieving electronic signature, 

electronic filing, and financial transaction receipting for this most difficult class of 

information collections. 

Recreation One Stop: In FY 2005, the Forest Service achieved consensus from the major 

Federal recreation providers including National Park Service, Bureau of Land 

Management, and the Army Corps of Engineers regarding the content and structure of the 

Recreational Information Data Base (RIDB). RIDB uses web services technology to 

enable the FS to share recreation data with all interested individuals and organizations, 

both public and private. In FY 2006 and FY 2007 a standard interface for government 

personnel to enter recreation data into RIDB was developed, tested, and is being 

deployed. In FY 2008 the agency will focus on: 

• Redesigning the recreation.gov interface to be more consistent with current 

federal agency standards; and, 

• Developing a data exchange utilities between the RIDB and the reservations 

database pursuant to the newly awarded NRRS (National Recreation Reservations 

System) contract. 

National Environmental Policy Act (eMNEPA): In FY 2003 the Forest Service 

completed a Line of Business Modernization Plan (LOB) for the electronic management 

of agency work related to the National Environmental Policy Act (eMNEPA). A number 

of FS initiatives originated from this eMNEPA LOB study. In FY 2004 and FY 2005, 

the Planning, Appeals, and Litigation System (PALS) was enhanced to include improved 

data entry processes, advanced reporting features, and the automated generation and 

publishing of Schedule of Proposed Action reports to the public web. In FY 2005, 

piloting began for both Document and Records Management (DRM) and Internal 

Communication Management (ICM) across several WO and field FS communities. In FY 

2006 and FY 2007 the DRM application is being expanded to include broader 

communities and subject areas and the evaluation of the pilot options for Mailing List 

management will be completed. In FY 2008, the DRM and ICM pilots, along with 

Appeals and Litigation functionality of PALS, will be further integrated and migrated 

onto a common platform and work will begin on the selected option for Mailing List 

Management. 

Forest Service Web Information Delivery (WID): In FY 2007 the Forest Service will 

implement both the Intranet and WWW components of Version 1.0 of its Enterprise 

Portal.(E-Portal) The FS E-Portal uses the application hosting services, Portal 

technology, Google search technology, and Web Content Management technology that 

was selected as the standard for USDA. In. FY 2008 the FS will implement an FS Web 

Content Authority governance structure to manage the evolution of the E-Portal 

information architecture and to provide for quality control for the content disseminated 

by the FS via the web. Throughout FY 2008 and for several subsequent years, the FS 

will migrate components of its legacy web sites to the E-Portal and will also integrate 

web-enabled versions of its application to provide information and services via the web. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-87 President’s Management Agenda

e-Research: In FY 2006, the e-Research project completed proofs-of-concept (POC) for 

research data storage and archiving, combined delivery channels, and technology 

transfer. By leveraging the capabilities completed in FY 2005 for data storage and 

archiving and combined delivery channels, e-Research also moved forward with 

capabilities for information traceability and project tracking in FY 2006, and completed 

the combined delivery channels and data storage and archive POCs. In FY 2007, eResearch will expand the scope of information traceability and will pursue automated 

peer review processing and work with the FS Research Executive Team (FSRET) to 

evaluate the success of the POCs. The e-Research project, in FY 2007, will also begin 

migration of all FS Research & Development websites to the FS E-Portal. In FY 2008, eResearch will pursue agency-wide scale up of the POCs judged sufficiently successful by 

the FSRET, will continue migration of the R&D websites to the E-Portal, and begin 

analysis and planning of the effort to web-enable R&D’s portfolio of applications and 

move them to the E-Portal in a way that conforms to Service Oriented Architecture 

(SOA) principles. 

Field Data Automation/Mobile Computing Devices: During FY 2005, the field data 

automation/mobile computing devices project established a standard FS mobile 

computing architecture and mobile solution development process in addition to 

completing a Proof of Concept (POC) mobile application to support natural resources and 

facilities monitoring. In FY 2006, a mobile solution development process and mobile 

computing architecture was adopted to provide the basis for delivering a set of solutions 

(including POCs, technology evaluation studies and scale-up of the natural resources and 

facilities monitoring POC) to support an array of field requirements aimed at achieving 

significant gains in data quality and employee safety and productivity. POCs were 

initiated for mobile office, Situational Awareness Firefighting Equipment (SAFE), and 

mobile law enforcement. Technology evaluation studies were begun on mobile 

computing devices and wireless communication capabilities. FY 2007 activities will also 

include updating enterprise requirements for mobile computing devices and wireless 

communication. 

Scale-up planning and implementation will occur during FY 2008 for the successful 

POCs developed and deployed during FY 2006 – FY 2007. Also in FY 2008, POC 

projects will be initiated for facilities radio frequency identification, mobile crime 

surveillance and natural resource information retrieval and analytics. 

Streamlining Permitting: Based on the analysis presented in the Streamlining Permitting 

(ePermitting) LOB Modernization Study in 2004, six specific permits were found to be 

appropriate for the streamlining permitting POC. Special Forest Products (SFP) was 

highest on the list and includes items such as Christmas trees, fuel wood, and 

mushrooms. Various factors interfered with completing the SFP POC in FY 2006 and 

will continue to be addressed in FY 2007. In FY 2008 pilot monitoring and development 

of a scale-up and rollout strategy, will be addressed for the SFP POC. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-88 President’s Management Agenda

In FY 2007 POCs for the 4 Rivers Lottery and National Symbols storefront were 

conducted. In FY 2008 scale up of the e-Commerce components piloted in these two 

POCs will be scoped, designed, and implemented. 

Information Security: During FY 2006, Information Security developed comprehensive 

Corrective Action Plans (CAPs) and launched an ambitious program to implement those 

CAPs in FY 2007 and 2008. The plans will fulfill multiple requirements by 

comprehensively implementing the management internal controls required not only by 

OMB Circular A-123, but also the requirements of FIPS 200 and National Institute of 

Standards and Technology Special Publication 800-53. By ensuring that our policies and 

procedures fully implement these controls, the agency will also remove the conditions 

that have, in the past, led the financial auditors to aggregate several findings regarding IT 

security into an IT Material Weakness. The work to put controls in place to clear the 

most critical audit findings will be accomplished during FY 2007. Additional phases of 

the plan that will complete the internal controls implementation will extend into FY 2008. 

Other Modernization Efforts: In FY 2005, an additional business case was developed 

describing how grants and agreements issued by the Forest Service can be woven into the 

e-Grants business solution developed at the Federal level. In FY 2007, POCs for the eGrants line-of-business will be planned and executed. Also in FY 2006, the business case 

information developed in the agency’s BPR of its Budget and Finance (B&F) and Human 

Resources (HR) areas were migrated into the agency’s Enterprise Architecture. In FY 

2007, modernization of the agency’s financial collections processes and of its processing 

of vendor invoices will be undertaken. In FY 2008, modernization plans for additional 

business areas will also be conducted; evaluations of which areas to include are on-going. 

Improved Financial Management

The Forest Service completed migration of its core finance and budget execution 

functions to a shared service center located in Albuquerque, NM in January 2006. FY 

2006 was a transitional year for the Forest Service and the Albuquerque Service Center 

Budget & Finance Operation (ASC B&F). Budget and finance transactional processing 

and all data entry into the agency’s financial system are now done at the center allowing 

for improved data entry and enhanced internal controls. 

• CENTRALIZATION CHALLENGES - At the beginning of FY 2006 the ASC B&F 

operation was in the midst of implementing new processes, hiring and training 

employees to fully staff the operation. 

o Timely Payments – As a result of migration and training issues, the center was not 

entirely efficient and received much criticism internally and externally as a result 

of backlogs, untimely payments, and less than satisfactory customer service. 

Strike teams were put in place to identify problems; a few business processes 

were put back on the table for further re-engineering; surveys were conducted to 

identify productivity issues and actions were taken to make improvements. By 

the end of FY 2006 the dynamics had dramatically changed and in less than 18 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-89 President’s Management Agenda

months the ASC B&F operation is on its way to becoming an effective and 

efficient budget and finance service center for the agency. 

o Customer Service Standards - The ASC B&F has put in place Service Level 

Agreements (SLAs) and performance metrics, and statistics are provided on the 

ASC B&F website on a daily basis. A customer service board made up of 

regional foresters and other parties provides oversight for ASC B&F service 

levels and budget. 

o Paper Processing – The amount of paper moved during the payment process has 

been a challenge internally and externally. In order to streamline this process and 

move towards continuous improvement, the ASC B&F is moving forward to 

develop a plan for paperless processing. This electronic invoice collection and 

payment process will be implemented in FY 2007/2008 and will provide 

efficiencies related to administrative activities as well as improve the metrics for 

prompt payment thereby reducing late payment penalties. 

 

The Forest Service has achieved unqualified audit opinions on its annual financial 

statements for 5 consecutive years. The agency has demonstrated commitment to 

sustaining unqualified audit opinions, and being in full compliance with Federal 

Accounting Standards. The centralized accounting functions at the Albuquerque Service 

Center as well as reengineered business processes will help us remain compliant. Priority 

work continues to eliminate material weaknesses from financial processes which will 

result in more efficient financial accountability. 

• INTERNAL CONTROL REQUIREMENTS – 

o Federal Manager’s Financial Integrity Act (FMFIA) - The Forest Service will 

assess and report findings with respect to internal control requirements as 

identified in the Federal Manager’s Financial Integrity Act (FMFIA) and Office 

of Management and Budget (OMB) Circular A-123, Management’s 

Responsibility for Internal Control, including Appendix A. 

o Office of Management and Budget (OMB) Circular A-123, Appendix A - This 

circular prescribes a strengthened process to assess the effectiveness of the 

internal control over financial reporting. Effective internal control will assist in 

routinely meeting accelerated financial reporting goals and having accurate 

financial information readily available to manage programs. During 2006, ASC 

successfully implemented the requirements of OMB Circular A-123 and through 

that process identified opportunities to streamline systems and processes to be 

more effective and efficient. 

• MATERIAL WEAKNESSES – The Forest Service is leveraging work required under 

OMB Circular A-123 to assist us in addressing material weaknesses. 

o Audit findings indicate that the Forest Service must improve its general controls 

environment (IT Material Weakness). 

• The agency working in collaboration with USDA OCFO/OCIO has developed 

corrective action plans that will resolve the IT material weakness. 

o The corrective action plans were developed based on control families to 

satisfy: 

• A-123 requirements including FFMIA and FMFIA 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-90 President’s Management Agenda

• FIPS 200/NIST 800-53 requirements 

• FISMA self assessment 

• The agency’s CFO and CIO are working collaboratively to execute and 

monitor the corrective action plan. A PMO was established to assist 

monitoring of the plans 

• Biweekly status meetings are held with USDA officials 

o Audit findings indicate that the Forest Service must improve its financial 

management and reporting process. The agency is addressing this material 

weakness as follows: – 

• Our A-123 work has assisted us in identifying and implementing 

improvements, for example -- 

o Accounts Payable - A new system for determining the appropriate amount 

to accrue for accounts payable (delivered but unpaid orders) was 

implemented. This new system eliminated the cumbersome process of 

having Forest Service personnel contact third party vendors to determine 

services delivered. 

o Documentation for Audit Samples - The A-123 program also successfully 

mapped 47 processes and identified over 400 internal controls that affect 

the financial statements. This documentation will be extremely valuable 

to external auditors as it will reduce time spent to compile and prepare 

documentation for the financial statement audit. 

o General Ledger - Developing an action plan to clean-up and clear if 

necessary prior year non-routine transactions by the end of fiscal year 

2007. 

o Unliquidated Obligations – The agency is moving forward with an 

aggressive plan to review, clean-up and/or liquidate all improper 

unliquidated obligations. The strategy requires dealing with the oldest and 

largest and moving forward until certifications and samples demonstrate 

complete accuracy in obligated balances. 

The Forest Service will continue to identify opportunities for improving financial 

management activities and will continue to implement recommendations for change in 

FY 2007 and FY 2008. 

Budget and Performance Integration 

The PMA calls for greater use of performance measures and more focus on results by 

agencies when making budget allocation decisions. The Forest Service implemented its 

Performance Accountability System (PAS) agency-wide in FY 2006. PAS contains 

budget, financial, and performance data by program and activity at all levels of the 

organization and serves as the key system to manage budgets and accomplishments tied 

to the Strategic Plan. PAS integrates data from the agency’s WorkPlan system, 

accounting system, and various systems that contain performance data in a series of 

monitoring reports and performance dashboards. When funds are allocated to regions, 

stations, national forests, and research labs, program and project managers enter funded 

projects into the Forest Service WorkPlan system. Each project and associated resources 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-91 President’s Management Agenda

(staff, supplies and equipment, contracts, grants and agreements, etc.) are linked to a 

Strategic goal and objective in WorkPlan. The WorkPlan system also contains planned 

costs by activity along with planned accomplishments for each project. The PAS system 

allows managers to monitor their unit’s progress toward accomplishing its targets, 

expenditures to date, and how their program or unit performance compares to other 

programs or units performance. 

PART is an important tool used by the agency to evaluate programs. Many of the 

performance measures included in the budget justification result from PART 

recommendations. The detailed results of each PART assessment are included in the 

program areas affected, under the section titled “Independent Reviews”. In FY2006 the 

Forest Service increased its PART score for wildland fire management and invasive 

species. The Forest Service also completed the Watersheds PART (RND). The Forest 

Service will continue its efforts to improve its watershed PART measures to better 

display long-term outcome measures which focus on program efforts. 

In FY 2006, the Forest Service implemented a series of performance reviews, visiting 

four regions and eight forests. These reviews focused on identifying issues with the use 

and quality of performance data. The reviews helped the Forest Service to make 

improvements in its internal controls related to performance management. Future 

reviews will reference PAS data in reviewing units with low performance, relative to 

cost, to assist in identifying some possible performance issues, as well as units with high 

performance, relative to cost, to identify models of exceptional performance that can be 

shared with other units. 

Performance data housed in PAS is used to assist with the development of budget 

requests and allocations. In FY 2008, the Forest Service will be operating under a 

revised Strategic Plan. Once the plan is finalized, the Forest Service will modify the 

funds allocation process to enhance opportunities for the achievement of desired 

outcomes in the agency’s Strategic Plan and the Chief’s Four Threats. 

Real Property 

The Forest Service continues to embrace Executive Order 13327 entitled “Federal Real 

Property Asset Management” with the goal of improving management of Federal real 

property assets and to ensure that asset investment and disposal decisions are aligned to 

best support the USDA and Forest Service Strategic Plans. “Rightsizing” the Forest 

Service real property inventory has been the paramount objective of this initiative. The 

following narrative provides an overview of what the agency has accomplished to date 

and what is planned for the remainder of FY 2007 and FY 2008. 

During FY 2006, the agency supported/accomplished the following activities in support 

of the Asset Management initiative including: 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-92 President’s Management Agenda

• All required system modifications to Infra were completed in order to accept the 

required 23 data elements that will be necessary for the Federal Real Property Profile 

(FRPP). 

• Led the effort to develop standardized acquisition performance measures throughout 

the Department and determine baselines for agency performance tracking. 

• Led the effort to develop standardized operations and maintenance performance 

measures throughout the Department and develop baselines for agency performance 

tracking. 

• Led the effort to develop standardized disposal performance measures throughout the 

Department and determine baselines for agency performance tracking. 

• Led the effort to issue standardized forms to support leasing, reimbursable interagency agreements, and customer satisfaction surveys throughout the Department. 

• Reviewing and updating the three-year rolling timeline for capital improvement 

projects, disposals and leases for the Asset Management Plan. 

• Continue with the disposal of real property assets under the authority of the original 

pilot program, the various State authorities, and the Forest Service Facility 

Realignment and Enhancement Act of 2005 (P.L. 109-54). In FY 2006, conveyance 

proceeds provided approximately $34 million to eliminate critical health and safety 

issues and to right-size the agency’s infrastructure to meet mission needs and 

organizational goals and objectives. 

• Performed self-scoring in the Management Information Tracking System (MITS) for 

the President’s Management Agenda (PMA) scorecard. 

• During FY 2007, the agency has or will accomplish the following: 

• Complete the necessary data cleanup and population of data into Infra to eliminate all 

data gaps and to certify its data as been complete and accurate for the FY 2006 

reporting period. 

• Will review and update the 3-year rolling timeline for capital improvement projects, 

 disposals and leases for the Asset Management Plan. 

• Will perform the required system modification in Infra to accept the 24th data element 

for reporting disposition for the FRPP. 

• Will continue with disposition of real property assets under the various disposal 

authorities and provide accomplishment report to Congress. 

• Will perform the necessary data entry/cleanup required to support the FRPP reporting 

requirement. 

• Will continue to provide deliverables in accordance with the Department’s Proud To 

Be. The Proud To Be is the Office of Management and Budget’s (OMB) overall 

summary of the goals and major milestones that must be accomplished by the 

Department for full implementation of the President’s Management Agenda. 

• Will examine the standardization of the multi-year planning, the condition survey 

process, and the O&M planning process. 

• Will complete an update of the agency’s Building Block Plan for the Departmental 

Asset Management Plan. 

• Will perform self-scoring in MITS for the PMA scorecard. 

• Will examine reoccurring needs under the Asset Management Plan for purposes of 

performing Infra system modifications to automate the reporting process. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-93 President’s Management Agenda

During FY 2008 the agency plans to accomplish the following: 

• Perform the annual update of the agency’s Building Block Plan. 

• Perform the periodic reviews and updates of the three-year rolling timeline for 

capital improvement projects, disposals and leases for the Asset Management 

Plan. 

• Continue with disposition of real property assets under the various disposal 

authorities and provide accomplishment report to Congress. 

• Perform the necessary data entry/cleanup required to support the FRPP reporting 

requirement. 

• Continue to provide deliverables in accordance with the Department’s Proud To 

Be. 

• Look into the benefit of establishing a full time Asset Manager within the 

Acquisition Management staff for the real property asset management initiative. 

• Perform those system modifications to Infra that may be necessary to accept any 

new performance measures required by the General Service’s Administration or 

OMB. 

• Perform self-scoring in MITS for the PMA scorecard. 

Improper Payments 

The agency is Green for all criteria (and for the full initiative). To sustain our Green 

status the agency will continue improvements in its internal controls and processes. 

Specifically we are in the midst of developing and implementing a paperless system and 

processes that will improvement accuracy and efficiency thus reducing the risk of making 

improper payments. Prompt pay interest should be dramatically reduced when thus 

system is implemented in FY 2007/2008. 

The Improper Payments Information Act (IPIA) requires each agency to assess all agency 

programs and identify which, if any, program(s) may be subject to high risk with respect 

to improper payments. Agencies are also required to implement any needed corrective 

measures. For fiscal year 2007 disbursements, The USDA determined that 4 funds were 

to be audited, with one fund requiring a statistical sample. The Forest Service identified 

the Wildland Fire Suppression program as its single payments related high risk program 

area. The remaining three funds included the National Forest System, Capital and 

Improvement Maintenance, and Wildfire Management Funds. These funds were deemed 

moderate risks for improper payments. The 25 largest disbursements for each of these 

funds were evaluated. The following summarizes the results: 

Fund Error RATE 

National Forest System 0% 

Capital and Improvement Maintenance 0% 

Wildfire Management Funds 0% 

The Forest Service is in the process of auditing the Wildland Fire Suppression program. 

The audit will be completed by May 25, 2007. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-94 President’s Management Agenda

IPIA requires the FS to recover from vendors those erroneous payments determined by 

FS improper payment reviews that exceed the materiality level established by the FS. 

The Forest Service is currently recovering monies made from improper past payments via 

research services provided by an outside contractor, with oversight performed by a 

designated individual USDA Forest Service point of contact. In accordance with the 

recovery contract, the contractor independently provides support services to satisfy the 

overall operational objectives for recovery of erroneous payments made to vendors. The 

primary objective of audit recovery is met through the identification of inadvertent 

overpayments made by the USDA Forest Service to suppliers of services or goods. 

Related suppliers are then contacted for verification of erroneous payments and 

documentation of erroneous payments is obtained. Billings for collection are then sent to 

the vendors and refund checks are remitted to the Forest Service. Finally, cash deposits 

of all recovered monies are made into appropriate Forest Service budget fund accounts. 

Internal controls are strengthened by providing information related to all recovered 

monies and the underlying transactions to management. Additionally, training that 

indicates the causes of improper payments that were made, is provided to various Forest 

Service employees. 

Summary information regarding audit recovery of erroneous payments for FYE 2006 is 

depicted below:

FYE 2006 Recovery Auditing Results ($) 

Agency 

Component 

Amount Subject 

to Review for FY 

2006 Reporting 

Actual Amount 

Reviewed and 

Reported 

Amounts 

Identified for 

Recovery 

Amount 

Identified / 

Actual Amount 

Reviewed 

FY 2006 

Amounts 

Recovered 

FY 2005 

Amounts 

Recovered 

Forest $121,100.11 $374,045.66 $374,045.66 100% $311,961 $189,281 

The Forest Service also plans on using the process for A-123, Appendix A to test the 

controls in the disbursements process to ensure that these controls are operating 

effectively and to ensure that payments are processed successfully and reduce erroneous 

payments in the future. 

Research and Development– Investment Criteria 

During FY 2006, Forest Service R&D has focused on improving the quality, relevance 

and performance of their activities. These efforts included strategic planning that 

culminated in finalization of the FS R&D Strategic Plan for 2008-2012, and development 

of draft Strategic Plans for each of the Strategic Program Areas (SPA). Also, plans were 

put in place for reviews of each Research Station in their alignment with the SPAs. This 

is in addition to the traditional and periodic peer review and evaluation of all scientist 

positions through the Research Panel Process; peer review of proposed study plans and 

manuscripts for publication, and; periodic updating of Station Quality Assurance/Quality 

Control (QA/QC) plans. During 2006, a number of additional efforts were made to 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-95 President’s Management Agenda

improve responsiveness of the R&D Deputy Area to the Investment Criteria. Key actions 

during 2006 are described below. 

Restructuring of FS R&D - During 2006, the functions and staff composition of the entire 

FS R&D WO was evaluated to maximize efficiencies and eliminate duplicative effort. 

Each position was evaluated based on a predetermined set of criteria and functions that 

scored low in this evaluation became subject to relocation outside the DC area. This 

restructuring is expected to improve quality, relevance, performance, and efficiency in FS 

R&D and will contribute to the goal of a smaller staff in the WO. In addition, this 

process identified the need for new positions: the deputy area created and filled the 

position of Strategic Management Systems Leader, charged with linking performance 

accountability efforts with those in the other FS Deputy Areas and with other Agencies. 

Also, a new directorship for science quality and applications was announced, and the 

search began for a director for that position. 

PART Review - The Invasive species program underwent a PART assessment for the FY 

2006 budget cycle and received an “adequate” rating from OMB. The program operates 

under an established a strategic plan goal, objectives and associated performance 

measures covering Fiscal Years 2004 to 2008. 

External Peer Reviews- (See first and third paragraphs in ‘Independent Reviews’ in the 

Budget Justification, page 6-5) 

Customer Satisfaction Survey – To better understand how well FS R&D is serving 

stakeholders, the deputy area conducted a formal Customer Satisfaction Survey during 

2006. FS R&D met its target of ‘72’ (federal sector average in 2004), which exceeded 

the federal sector average of ‘71’ for 2005. This far-reaching and detailed survey 

identified areas where R&D performance was very strong (product quality, staff) and 

where improvement was needed (making products easier to use, make information more 

accessible, communication). Also, the survey identified the components with the greatest 

potential for impact for improving customer satisfaction. By focusing on these 

deficiencies, FS R&D plans to maximize effort on the most promising and lowest scoring 

components. ‘Product actionability’ (ease of use) was the component with the highest 

potential for contributing to Customer Satisfaction, so improvement of product 

actionability was identified as a priority for FY2007. The Customer Satisfaction Score 

obtained during FY2006 will serve as the baseline for comparing results from the followup survey planned for 2009. 

Performance measures- During 2006, FS R&D developed a list of candidate measures 

that will be used for reporting performance of programs. These measures are tied to 

research outcomes and will be used to help estimate the value, effectiveness, and 

efficiency of that work. The list of measures continues to be refined with the intent of 

having the most effective and illustrative indicators of performance used as key metrics, 

or Key Performance Indicators (KPI). These are a small but highly indicative set of 

measures that will be highly useful in tracking performance from year to year. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 20 17-96 President’s Management Agenda

Improved reporting efficiency- During 2006, the field identified a burdensome process for 

accomplishment reporting, and as a result FS R&D initiated an effort to improve 

efficiency. The traditional process for reporting accomplishments was mapped and found 

to be inefficient and often redundant, so a streamlined and unified method of reporting 

was proposed. The decision was made to employ an electronic database that would limit 

to once the need to report data. Subsequently, this database could be accessed for any 

official need. With this online database an improvement in accessibility, consistency, 

and quality is expected. During 2007, a pilot release will be made to one or two of the 

Stations to help with the refinement process. 

Science applications – FY 2006 was a year during which heightened attention was given 

to Science Product Delivery. Goal 7 of the new agency strategic plan identified the goal 

of providing science-based applications and tools for sustainable natural resource 

management. A national science application team was formed to lead an effort to deliver 

and improve actionability of science products. Results of the customer satisfaction 

survey confirmed that improving the ease of use of science products was a priority. 

Score of Green for R&D Investment Criteria- FS R&D achieved the score of ‘green’ on 

the Investment Criteria scorecard. This was the first time R&D achieved this score from 

the Department of Agriculture for satisfactory scientific quality, relevance, and 

performance. It was noted that outcomes of the strategic planning and program peer 

reviews by R&D were recognized by OMB as significant and resulted in the 

Department’s highest rating. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 21 17-97 Reforestation 

Revised February 24, 2007 

Reforestation 

The Forest and Rangeland Renewable Resources Planning Act of 1974 (RPA) (P.L. 93-

378), as amended by the National Forest Management Act of 1976 (NFMA) Section 3 

(d)1, directs that all forested lands in the National Forest System (NFS) be maintained in 

appropriate forest cover with species of trees, degree of stocking, rate of growth, and 

conditions of stand designated to secure the maximum benefits of multiple use sustained 

yield management in accordance to land management plans. It further requires the 

Secretary of Agriculture to identify and report to the Congress, at the time of submission 

of the President’s Budget together with the annual report provided under section 8 (c) of 

the Act, the amount and location by national forest and State and by productivity class 

where applicable, the need to reforest areas that have been cut-over or otherwise denuded 

or deforested. 

The reforestation program includes artificial regeneration, seeding, and natural 

regeneration with or without site preparation. The forest and stand level management 

objectives may be jeopardized without appropriate reforestation treatments. Untreated 

areas may have elevated risk to losses from future insect or disease epidemics, wildfires, 

and other disturbance events. The reforestation program has four major goals: maintain 

all forest lands within the NFS in appropriate forest cover; improve the quality and yield 

of the timber resource; accelerate the attainment of desired species composition; and 

develop and demonstrate successful reforestation methods and techniques. 

Program Plans 

Reforestation work is time-sensitive and without timely reforestation efforts, undesirable 

species can dominate, making establishment of desired tree species difficult. Once 

undesirable species become established, decades may pass before sufficient numbers of 

the appropriate tree seedlings occupy the site. Delays also increase the cost of 

reforestation work by necessitating expensive site preparation treatments to reduce 

unwanted vegetation to levels that afford satisfactory seedling survival. Ultimately, 

delays reduce timber yields and may adversely affect meeting other resource objectives. 

 

Prompt reforestation is required to prevent soil erosion and protect water quality in 

streams and lakes. Untimely reforestation adversely affects wildlife and fish species and 

reduces scenic quality and recreational experience. In addition, these areas are less 

resilient to the effects of fire and make it more difficult to protect surrounding 

communities. 

The agency’s reforestation capacity is dependent on several program areas, as well as 

numerous partnerships and cooperative agreements Reforestation needs generated 

through timber harvest activities are generally met through the utilization of KnudsonVandenberg (K-V) Act funds. However, reforestation needs for areas where it is not 

feasible to generate K-V funds through the sale of timber products falls to other sources, 

including the Reforestation Trust Fund, and, to a large extent, the Vegetation and 

Watershed Management Program. Corporate partners and civic groups have also been 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 21 17-98 Reforestation 

Revised February 24, 2007 

key contributors to the agency’s capacity for reforestation through matching fund 

agreements. 

Vegetation and watershed management program contributions to the total reforestation 

workload are anticipated to decrease significantly in FY 2008. The agency will attempt 

to increase partnerships and corporate contributions to close this gap. In coordination 

with partners, future program direction includes: 

• Use available appropriated and trust funds to expand on partnerships with corporate 

and civic groups to supplement capability, 

• Double the 4 million seedlings provided for planting on areas impacted by wildfires 

in FY 2006. 

• Develop new approaches for rapid assessment of reforestation needs and priorities 

resulting from wildfire and other natural events.

FY 2006 Accomplishments and Review 

• Reforestation needs increased, from FY 2004 to FY 2006, by approximately 22 

percent (901,000 acres to 1.1 million acres nationally). 

• Reforestation program accomplishments/treatments showed an increase from 

FY 2005 to FY 2006 (153,000 acres to 264,000 acres). 

 

See the table on the following page for trends in reforestation needs and 

accomplishments. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 21 17-98A Reforestation 

Revised February 24, 2007 

Figure 1 shows reforestation needs and accomplishments for fiscal years (FY) 1994 

through FY 2006. From FY 1994 through FY 1999, there was a steady decrease in 

reforestation needs and accomplishments. During this period, reforestation treatments 

addressed approximately 45 percent of the needs. Since FY 2000, reforestation needs 

have accumulated due in part to large wildfires affecting national forests in the West and 

insect epidemics in the East. Despite these increases, a smaller proportion of the needs 

received reforestation treatments. From FY 2000 through FY 2006, reforestation 

addressed about 20 percent of the reforestation needs nationally. 

Figure 1 - Trends in Reforestation Needs, Accomplishments and Percentage of Needs 

Treated in Each Fiscal Year 

899

842

804

764

679

630

722

787

838

898 901

1,081 1,081

441

392

363

328

293 269

217

163 153 153

264

153

264

0

200

400

600

800

1000

1200

1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006

Fiscal Year

Acres (Thousands)

0

10

20

30

40

50

60

Percent of Needs Treated

Current Reforestation Needs: Reforestation Treatments Percent of Needs Treated
FY 2008 Budget Justification USDA Forest Service

 

Special Exhibit 22 17-99 R&D Threat Assessment Centers 

Research and Development Threat Assessment Centers 

The Eastern Forest and Western Wildland Environmental Threat Assessment Centers are 

rapidly becoming national leaders in developing knowledge and tools to address multiple 

threats affecting the Nation’s forests and rangelands. The Centers have joined forces 

with government agencies, universities, and non-governmental partners to leverage 

resources and improve the collective capacity to predict, detect, and assess threats. 

Science delivery, technology development and acquisition are key emphasis areas for the 

Centers. Funding indicated below is divided evenly between the two centers. 

Threat Assessment Centers Funding History ($ in thousands) 

Program FY 2006 

Enacted

FY 2007 

Estimate

FY 2008 

Budget

Research $1,584 $1,584 $1,584 

S&PF $1,584 $1,584 $1,584 

NFS $1,584 $1,584 $1,584 

Total $4,752 $4,752 $4,752

Eastern Forest Environmental Threat Assessment Center 

Southern Research Station, Asheville, North Carolina 

The Eastern Forest Environmental Threat Assessment Center (EFETAC) scientists and 

staff are engaged in multiple projects at the forefront of technology development and 

application in forest threat detection and assessment. For example, EFETAC is working 

with the Western Wildland Environmental Threat Assessment Center (WWETAC), 

NASA Stennis Space Center, the FS Remote Sensing Applications Center, and others to 

develop a multilevel early warning system for detecting and assessing potential forest 

threats. Central to this system is an automated system for processing satellite imagery for 

detecting disturbances in forested systems, known as the Forest Incidence Recognition 

and State Tracking (FIRST) System. A prototype FIRST system will be developed in FY 

2007, with further refinement and operational deployment planned for FY 2008. 

Archived remotely sensed data, combined with other ecologically relevant data, will be 

used to statistically establish an exhaustive set of “known” historical states for eastern 

forests. Incoming data will be compared with these previously known states at each 

location in the eastern U.S. and each location would be classified into the most closely 

matching historical state. If the current state of the forest in a particular location is 

significantly different from any historical state seen before, then further analysis and 

potentially higher resolution sampling would occur in order to determine the nature, 

extent, and source of the changed condition. Research conducted with the National 

Forest Health Monitoring Research Team is looking beyond simple changes at a single 

location to the pattern of change across broad landscapes. Researchers are using 

protocols based on morphological filtering for pattern recognition and map classification 

to develop new indicators of landscape change. Results from this research will provide 

land managers and policy makers with new tools for strategic planning at the regional, 

national and international scales. 
FY 2008 Budget Justification USDA Forest Service

 

Special Exhibit 22 17-100 R&D Threat Assessment Centers 

Western Wildland Environmental Threat Assessment Center 

Pacific Northwest Research Station, Prineville, Oregon 

Since July of 2005, the Western Wildland Environmental Threat Assessment Center 

(WWETAC) has made significant progress in its mission to provide early detection and 

prediction of the potential effects of multiple, interacting threats and stresses across a 

range of spatial and temporal scales. Science delivery and technology development and 

acquisition are key areas of emphasis. For example, the Center has hosted workshops 

and conferences to identify and synthesize current knowledge regarding threat assessment 

and improve predictive modeling. The Center initiated collaborative agreements with 

NASA, university state and local government partners, non-governmental organizations, 

and other FS research and technology development units to advance the application of 

remote sensing and geospatial technologies, and make assessment tools and data more 

accessible to analysts and managers. Fiscal year 2008 funding will allow the Threat 

Center, partners and collaborators to continue to build and strengthen existing programs 

and to begin work on new and emerging issues. Some of the tasks targeted for FY 2008 

include further development of early warning systems using various combinations of 

remotely sensed data and improved field measurements. Other efforts involve 

developing protocols for conducting probabilistic rapid risk assessments of specific 

threats, improving the reliability and interactivity of predictive models, coordinating a 

west-wide climate change research symposium, mapping and monitoring introduction 

and spread of invasive species, and assessing socioeconomic consequences from 

environmental threats. Research on risk communication and management helps ensure 

that assessment is effectively translated into on-the-ground action. 

The Centers will continue to distribute newly developed products to forest managers, 

policy-makers and other user clientele. Advanced marketing and educational 

technologies will be used to ensure rapid and effective delivery to targeted audiences. 

Data collection, processing, and analysis efforts will continue. These include creating 

and maintaining the infrastructure for high-speed sharing and analysis of massive 

remotely sensed databases, and development of advanced visualization tools. 

FY 2008 Plans 

• Continue development of early warning systems based on combination of remotesensing and site-level data; look for evidence of change or stress within larger 

landscapes, utilize advanced technologies and analytical capabilities, and to work 

closely with R&D partners. 

• Accelerate technology development for data capture technologies, high-end 

computing, data analysis, and modeling capabilities, and computational infrastructure 

development. 

• Continue development of user-friendly tools for comparative risk assessment by 

adaptation of existing protocols or frameworks and through collaborative analyses of 

specific problems. 

• Continue providing knowledge delivery through expansive web presence, 

conventional publications and brochures, and workshops and presentations. 
FY 2008 Budget Justification USDA Forest Service

 

Special Exhibit 22 17-101 R&D Threat Assessment Centers 

• Continue refining and deploy the Forest Incidence Recognition and State Tracking 

(FIRST) System, an automated system for processing satellite imagery for detecting 

disturbances in forested systems. 

• Continue developing and applying a probabilistic spatial-temporal model to analyze 

25 years of wildfire and insect data from forest Service lands in Oregon and 

Washington and expand study west-wide. 

• Continue cooperative research reviewing concepts, data, and methods for describing 

and modeling forest and range land development in the western U.S. and 

demonstrating modeling and projection methods for one or more select regions. 

• Develop a Gypsy Moth climate and vegetation at WWETAC that predicts location of 

Asian Gypsy Moth. The guidance for this model will be provided from the Rocky 

Mountain Research Station and Region 4 Gypsy Moth model. 

• Continue efforts on cooperative project that will provide forest and rangeland policy 

makers and managers access to maps of the relative risks to forests and rangelands 

from multiple competing or exacerbating stresses, including fire, invasive species, 

disease, pest outbreaks, and land-use change. This system will be used to generate 

overlapping maps of risk from each of these major threats to western forests. 

FY 2007 Program 

• Continue identifying priority invasive species for detection, prevention, eradication, 

and control in eastern forests. Expand invasive species research and develop tools 

and information that will aid management of these threats. 

• Collaborate with the Southern Group of State Foresters to look at a wide range of 

consequences of urbanization, fragmentation, and parcellation of southern forests. 

This research ultimately will lead to an understanding of the potential benefits of 

maintaining or sustaining southern forests, and help identify policy options for 

managing change. 

• Continue working with NASA Stennis Space Center, the FS Remote Sensing 

Applications Center, and others to develop a multilevel early warning system for 

detecting and assessing potential forest threats. 

• Develop a prototype Forest Incidence Recognition and State Tracking (FIRST) 

System, an automated system for processing satellite imagery for detecting 

disturbances in forested systems. 

• Continue developing new indicators of landscape pattern for large-scale natural 

resource assessments. Results from this research will provide land managers and 

policy makers with new tools for strategic planning at the regional, national and 

international scales. 

• Support a study of catastrophic wildland fire threats to public resources and private 

property throughout the western United States 

• Develop Rapid Risk Assessments (RRAs) that will provide relative quick summations 

of the risk associated with a particular threat, event, or situation. A feature of these 

assessments will be a clear articulation of the likelihood of expected loss and the 

values that will be lost. RRAs planned for FY 2007 include: 
FY 2008 Budget Justification USDA Forest Service

 

Special Exhibit 22 17-102 R&D Threat Assessment Centers 

o Gene Spills from Genetically Modified Organisms (GMOs) on Western public 

lands. 

o Western Bark Beetles. 

o White Bark Pine, fire/bark beetles/rust/climate interactions. 

• Host two 3-day roundtables, at the request of the Joint Fire Sciences Program, to 

gather information regarding the current knowledge and practices as well as 

identifying knowledge gaps for assessing the risk with fire and fire management. 

• Partner with the three western research stations (PNW, RMRS, and PSW) to address 

ecosystem vulnerability and the interaction of climate change with other stressors and 

land management under various climate change scenarios. The threat of climate 

change to western forest resources and the interaction of climate change with other 

stressors have been identified as a major concern by many. 

• Host a workshop to explore interactions between insects (and possibly pathogens) and 

climate change in support of the West wide Global Change Initiative. A topic for 

discussion will be: Making the pest models climate smart and making the climate 

models recognize pests. 

FY 2006 Accomplishments 

• Co-hosted a conference on "Advances in Threat Assessment and their Application to 

Forest and Rangeland Management.” 

• Initiated development of a hypertext-based Forest Environmental Threats 

Encyclopedia, which will become part of the Forest Encyclopedia Network 

(www.forestencyclopedia.net) to include synthesis papers and case studies presented 

at the conference referenced above, in addition to material specifically developed for 

the encyclopedia. 

• Solicited proposals to address specific topics or threat complexes, or to develop tools 

and techniques for detecting and assessing threats. Funded proposals included efforts 

to utilize high-resolution imagery to distinguish tree genera within canopies and also 

detect pre-visual stress in target species; model landscape-level effects of invasive 

pests and pathogens; advanced methods for developing regional risk models, and 

improved methods for risk communication. 

• Initiated a major cooperative venture with NASA's Stennis Space Center to identify 

promising remote sensing and geospatial technologies for early detection of 

environmental hazards and response or susceptibility of forests to multiple stresses. 

This technology will be incorporated within a hierarchical early warning system that 

will use combinations of low and high-resolution imagery with information gathered 

in field samples to alert managers of developing threats. 

• Partnered with the National Environmental Modeling and Analysis Center at the 

University of North Carolina at Asheville and other partners to develop the 

infrastructure (equipment and software) for high-speed access and sharing of models 

and databases useful for predicting, detecting, and assessing forest threats. 

• Supported, in cooperative effort, a threat assessment in western riparian systems. 

This work will: (1) characterize and describe ecological conditions of riparian 

areas in the western United States including impacts from invasive species; (2) 

develop a qualitative valuation of ecological condition furnished by these 
FY 2008 Budget Justification USDA Forest Service

 

Special Exhibit 22 17-103 R&D Threat Assessment Centers 

landscapes; and (3) conduct a qualitative assessment and ranking of threats 

(including that posed by invasive species) to each of these values by 6th code 

watersheds in the western US. 

• Developed models predicting the risk of displacement of native vegetation in 

sagebrush ecosystems from cheatgrass and pinyon-juniper expansion into these 

areas throughout the Great Basin of the western United States. Supported work 

evaluating and refining these models so that they may be used with confidence by 

land managers to assess and manage the threats posed by the displacement of 

native plant communities.

• Continue developing a prototype risk assessment framework to analyze the effects 

of fuel reduction treatments on multiple, interacting forest threats. The framework 

links a number of forest simulation and GIS models to simulate the effects of fuel 

reduction treatments on forest succession, potential bark beetle mortality, wildfire 

probability, and the spread of invasive plants. 

• Supported a cooperative project to produce continuous vegetation maps for 

Washington, Oregon, and California. The products of this agreement will provide 

wall-to-wall vegetation mapping at 30m resolution for use in threat assessment 

activities. 
FY 2008 Budget Justification USDA Forest Service

 

Special Exhibit 23 17-104 Service First 

Service First 

The Forest Service continues to strengthen its partnership with the Bureau of Land 

Management (BLM), the National Park Service, and Fish & Wildlife Service to increase 

benefits under Service First including: 

• Quality Natural Resource Stewardship, 

• Customer Service, and 

• Operational Efficiency 

Leadership meetings between the Forest Service and BLM and an agency leadership 

meeting with the primary land management agencies of the Department of the Interior 

and U.S. Army Corps of Engineers continued to consolidate support for Service First 

efforts and advance interagency efforts in the field. 

FY 2008 Plans 

In FY 2008, an interagency steering committee of high level managers will provide 

advice and guidance to the Service First coordinator to provide program leadership on: 

• Full integration of the National Park Service and Fish & Wildlife Service into Service 

First, with outreach to Bureau of Indian Affairs, Reclamation, Natural Resources 

Conservation Service and the U.S. Army Corps of Engineers. 

• A strong field network, focused tools, and regular outreach and information exchange 

on Service First opportunities, successes and challenges. 

• Significant advances in integrated Information Technology and co-location 

guidelines. 

 

Coordination across resource programs in the following areas will continue to be 

emphasized: 

• Fire Management and hazardous fuel reduction, 

• Minerals and Energy Policy, 

• Heritage Program Management, 

• Visitor Services including joint permitting where appropriate, 

• Recreation management, with a particular emphasis on OHVs and trail management, 

and 

• Information Management (GIS, mapping). 

FY 2007 Program 

In FY 2007, a full-time Service First coordinator (shared between the BLM and Forest 

Service) will be hired to provide program leadership on: 

• Outreach and communication to the National Park Service and Fish & Wildlife 

Service for Service First pilots and opportunities and challenges. 
FY 2008 Budget Justification USDA Forest Service

 

Special Exhibit 23 17-105 Service First 

• Ongoing implementation of 4-agency MOU for facilitating reimbursable processes 

between agencies (Intra-governmental Task Orders). 

• Consolidating a Service First awards program. 

• Advancing joint warranting of contract officers within the different agencies. 

• Overall communication and outreach planning and implementation to share success 

stories, provide guidelines and best practices. 

 

Coordination across resource programs in the following areas will continue to be 

emphasized: 

• Fire Management and hazardous fuel reduction, 

• Minerals and Energy Policy, 

• Visitor Services and related recreation management functions, and 

• Information Management (GIS, mapping). 

FY 2006 Accomplishments 

Benefits of Service First in Oregon and Washington in FY 2006: 

• Heritage protection and tribal relations has been improved by having one Heritage 

staff and one Native American coordinator for BLM and the Forest Service in the two 

states. This has facilitated work with the State Historic Preservation Officers and 

Tribes by having a single point of contact. 

• Fleet management under Service First has produced significant savings particularly 

with heavy Equipment and ATVS. All vehicles are available for use by all 

employees and vehicle utilization is much more efficient. 

• Several FS/BLM office collocations have been implemented across the two states, 

resulting in savings in space costs and improved relationships among employees. 

The renewed emphasis on Service First results in frequent coordination and integration at 

the national headquarters of the four agencies. It also extends to other agencies interested 

in the goals of improved customer service, and facilitating and streamlining interagency 

work in the field. The increased commitment and coordination has led to more 

consistency in policy and guidance to field units and has provided greater incentive for 

field units to integrate their services and functions to better serve the public. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 24 17-106 Unobligated Balances 

Forest Service Appropriated 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 2007. The table does 

not include the unobligated balances from offsetting collections such as reimbursable or 

advanced collections. 

The appropriation totals are actuals, however, the program amounts are estimates. The 

final program distribution will be determined after a financial analysis is completed. 

FY 2006 Forest Service - Unobligated Balances 

(Dollars in Thousands) 

Forest Service Appropriation / FY 2006 

Budget Line Item / Extended Budget Line Item Unobligated Balances 

Forest and Rangeland Research 

 Research and Development $25,368 

 Fire Research & Development $1,057 

Total, Forest and Rangeland Research $26,425 

 

State and Private Forestry 

 Forest Health - Federal Lands $9,083 

 Forest Health - Coop Lands $2,354 

 State Fire Assistance $3,027 

Volunteer Fire Assistance $168 

 NFP Forest Health - Federal Lands $6,055 

 NFP Forest Health - Coop Lands $1,345 

 NFP State Fire Assistance $4,373 

 NFP Volunteer Fire Assistance $2,018 

 Forest Stewardship $336 

 Forest Legacy Program $2,616 

 Urban and Community Forestry $1,681 

 Economic Action Programs $2,691 

 Forest Res Info & Analysis $168 

 International Forestry $336 

Total--State and Private Forestry $36,251 

 

National Forest System 

 Land Management Planning $1,031 

 Inventory and Monitoring $1,031 

 Recreation, Heritage, and Wilderness $589 

 Wildlife and Fisheries Habitat Management $883 

 Grazing Management $294 

 Rehabilitation and Restoration $441 

 Forest Products $3,387 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 24 17-107 Unobligated Balances 

Forest Service Appropriation / FY 2006 

Budget Line Item / Extended Budget Line Item Unobligated Balances 

 Vegetation and Watershed Management $1,620 

 Minerals and Geology Management $1,031 

 Landownership Management $737 

 Law Enforcement Operations $1,177 

 Valles Caldera National Preserve $677 

Centennial of Service Challenge $148 

Disaster Fund Supplemental $2,355 

Total--National Forest System $15,401 

Wildland Fire Management 

 Preparedness $58,813 

 Hazardous Fuels Management $19,604 

 Fire Operations - Suppression $105,479 

 Joint Fire Sciences $7,730 

Total--Wildland Fire Management $191,626 

 

Capital Improvement and Maintenance 

 Construction Disaster Fund Supplemental $3,434 

 Facilities Capital Improvement/Mtnce $45,326 

 Roads Capital Improvement/Mtnce $8,928 

 Trails Capital Improvement/Mtnce $7,554 

 Deferred Maintenance $3,434 

Total--Capital Improvement and Maintenance $68,676 

Land Acquisition--Land and Water Conservation Fund 

 Land Purchase $24,861 

 Land Exchange Acquisitions $2,797 

Total--Land Acquisition/L&WCF $27,658 

 

Other Appropriations 

 Range Betterment Fund $932 

 Gifts, Donations, and Bequests for Research $140 

 Subsistence Mgmt (R10) $1,120 

Total--Other Appropriations $2,192 

 

GRAND TOTAL $368,229 

The total unobligated balance by Treasury Symbol can be found in the SF-133 Report on 

Budget Execution and Budgetary Resources, which are posted on the Office of 

Management and Budget website at http://www.whitehouse.gov/omb/reports/sf133/
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 25 17-108 Wood Education and Resource Center

Wood Education and Resource Center 

FY 2008 Funding and Program Changes 

The Wood Education and Resource Center (WERC) will receive $1 million for FY 2008 

and will provide priority services and support to the eastern hardwood forest region. 

WERC will be funded from four State and Private Forestry (S&PF) programs, roughly 

proportional to the amount appropriated, including the National Fire Plan. The FY 2008 

budget proposes WERC funding as follows: $313,000 from Forest Health, Cooperative 

Lands (SPCH); $444,000 from State Fire Assistance (SPCF); $130,000 from Forest 

Stewardship (SPST); and $113,000 from Urban and Community Forestry (SPUF) for a 

total of $1,000,000. These four funds shall be treated as one, and administered under the 

authorizing legislation establishing the WERC, to facilitate interaction and information 

exchange with the forest products industry to enhance opportunities for sustained forest 

products production in the eastern hardwood forest region. 

 

 WERC Funding History 

 ($ in thousands) 

S&PF 

Program 

FY 2006 

Enacted

FY 2007 

Estimate

FY 2008 

Budget

SPCH $665 $671 $313 

SPCF $931 $961 $444 

SPST $665 $581 $130 

SPUF $399 $460 $113 

Total $2,660 $2,673 $1,000

The FS will continue to operate and maintain the physical facilities. Activities will 

include providing workshops and training for owners and managers of wood products 

businesses; assisting industries, as well as states and universities, with technical expertise 

and information on wood processing as well as woody biomass; working with partners in 

providing expertise on invasive species issues that pertain to wood utilization and 

marketing needs; and assisting the business leasing the rough mill and woodshop, in 

regards to establishing and maintaining a successful business operation that more fully 

utilizes WERC’s facilities and provides employment opportunities to local residents. No 

competitive grants will be offered. 

Program Description 

The Wood Education and Resource Center (WERC) had its beginning in 1999 when 

legislation was enacted directing the Forest Service (FS) to assume ownership of the 

former Robert C. Byrd Hardwood Technology Center (RCBHTC) in Princeton, WV. 

The original RCBHTC mission included training programs for the secondary wood 

processing industry and facilities that manufacturers could use to produce and explore 

new products and technology, with emphasis placed on training machine operators. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 25 17-109 Wood Education and Resource Center

Under FS ownership and management, the WERC mission was broadened to include 

primary and secondary processing, sustainable forestry, and logging using collaborative 

multidisciplinary approaches. 

WERC’s efforts focus on enhancing opportunities for sustained forest products 

production for primary and secondary hardwood industries located in the eastern 

hardwood forest region, encompassing 35 States. WERC’s projects focus on: 

• International and domestic hardwood industry competitiveness issues, 

• WERC income generation, 

• Technology and information transfer, 

• Increasing communication, cooperation, and collaborative problem solving within 

the forest products industry. 

Priority is placed on training programs targeted toward the supervisor, manager, owner 

level with emphasis on competitiveness, survivability, and sustainability issues. This 

focused effort assists the wood industry in facing today’s critical challenges such as: 

global competition, application of advanced technologies, and historical industry 

fragmentation. 

FY 2008 Plans 

• Continue development of the local and regional economic development cluster 

centered on WERC. 

• Implement a woody biomass strategy, developed in FY 2007, integrating technical 

information and resources available through the WERC with State and Private 

Forestry program authorities to improve the Nation’s energy security and forest 

management. 

• Maintain existing leases for WERC facilities – over 50,000 square-feet of wood 

products manufacturing space. 

• Continue to provide workshops, training sessions, and an information library for 

managers, owners, and entrepreneurs associated with wood products businesses. 

• Implement the Biomass Strategic Plan by assisting existing State & Private Forestry 

programs with wood utilization and marketing solutions for existing and future issues 

and opportunities. 

FY 2007 Program 

• Lease WERC’s woodshop and continue to lease the Rough Mill. Accurate 

Millworks began leasing the WERC Rough Mill in January 2006, and expanded its 

operations in October 2006 through leasing the WERC woodshop. Accurate 

Millworks will begin a process of ramping up production over the winter months to 

include the hiring of numerous workers. These leases of WERC space provide 

revenue, local jobs, training and research opportunities, along with adding to the 

development of a wood industry cluster model. This synergistic model encourages 

entrepreneurship and new business development. FY 2007 lease revenue of $144,400 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 25 17-110 Wood Education and Resource Center

will be used for facility maintenance and operations expenses, as well as training and 

education programs. 

• Annual Competitive Grants and Agreement Program. Continue the annual 

competitive grants and agreement program that allows the WERC to provide critical 

information to industry through the development of cooperative projects via a 

competitive grants program. The grants program focus is on the following priority 

item: 

o Maintain the economic competitiveness of the primary and secondary hardwood 

industries. 

o Bring information and technology about processing, marketing, and businessrelated skills to existing and emerging businesses involved in the development 

and manufacturing of wood products. 

o Bring information and technology to existing and emerging businesses that focus 

on urban wood utilization, hazardous fuel reductions, utilization options geared to 

improving stewardship or use of low value woody biomass. 

o Encourage the adoption of new technology to improve competitiveness and 

profitability. 

o Provide support and key information to entrepreneurs and start-up businesses. 

o Address global issues such as: phytosanitation of wood packaging materials, and 

assisting communities and industries facing threats from invasive species, such as 

the Emerald Ash Borer. 

o Increase the use of woody biomass as an economic feedstock for meeting our 

nation’s energy needs. Examples include heating and cooling, cogeneration, and 

liquid fuel production. In addition, proposals focused on sustainable forest 

management related to biomass supply and low-impact utilization options will be 

accepted. 

• Biomass Strategic Plan. The WERC will develop a biomass plan for the 20 

Northeastern States. The strategy developed will purposefully integrate technical 

information and resources available through the WERC with S&PF programs 

administered through the Northeastern Area office in cooperation with State forestry 

agencies. The plan will support the National Energy Policy. 

• WERC Program Management Information System. The management information 

system, designed to track outcomes and final reports from WERC-funded efforts, will 

be expanded to include publications and information pieces, and targeted mailing 

lists. The addition of this information will facilitate distribution of key information 

developed by WERC and its partners in industry, and ensure efficient access to the 

information. 

• Interactive Website Use. Expand the new Interactive Website to incorporate 

publications in order to efficiently dispense educational materials. 

FY 2006 Accomplishments

• Leased Rough Mill. The WERC rough mill was leased to Accurate Millworks in 

January 2006. The company began utilizing on-site machines along with moving in 

the company’s own equipment. Accurate Millworks employs approximately 15 

people to produce wooden shutter and Venetian blind parts. Start-up lease payments 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 25 17-111 Wood Education and Resource Center

were $51,200 for FY 2006, increasing to $144,000 for FY 2007. The lease will 

continue to increase periodically until reaching $216,000 in 2016. Payments go 

directly to a U.S. Treasury WERC account, partially offsetting the costs of 

maintaining the Center. 

• Grants and Agreement Program. WERC funded 34 grants and agreements for a 

total of $1.7 million. These grants address current issues affecting the eastern 

hardwood manufacturing industry such as maintaining their economic 

competitiveness, addressing utilization options for trees killed or damaged from 

invasive species, as well as providing options for utilizing wood for energy 

production. Work funded through these grants is to be completed generally within 2 

years. The WERC transfers new technology and information from such efforts, 

through training, web-based access to the information, and other means. 

• Workshops and Training Sessions. A series of workshops was held and provided 

industry with new tools and techniques to remain economic competitive in the global 

environment. Sessions included lean manufacturing, diversity management, and 

global competitiveness. 

• WERC Program Management Information System. Began development of a 

functioning management database that will eventually assist the WERC staff in 

managing and tracking: grants and agreements funded by WERC, publications and 

informational pieces distributed by WERC, and targeted mailing lists for distributing 

key information that will be developed by WERC and its partners in industry. 

• Developed Interactive Website. This new website allows Forest Service customers 

to obtain information about WERC activities, grants and agreements, and related 

information on-line. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 26 17-112 Working Capital Fund-Forest Service 

Forest Service Working Capital Fund 

Program Description 

The Working Capital Fund (WCF) provides orderly and efficient supply and equipment 

service in support of Forest Service programs. The Department of Agriculture Organic 

Act of August 3, 1956, as amended by the Act of October 23, 1962 (15 U.S.C. 579b), 

established the WCF. WCF is a self-sustaining revolving fund that provides services to 

national forests, research stations, other Federal agencies, and, as provided by law, to 

State and private cooperators. 

The WCF requires no cash appropriation. Initially, regular Forest Service appropriations 

purchased assets and donated the assets to WCF. WCF rates are determined so that WCF 

recovers operating and replacement costs. WCF provides the following services: 

• Equipment Leasing Services, which owns and rents vehicles and aircraft; 

• Nursery Service, which consists of tree and grass seeds and other nursery seedlings; 

• Enterprise Services, which are reinvention teams accomplishing projects that improve 

customer service and reduce costs. 

The table below displays the volume of business for major WCF activities: 

Volume of Business for Major WCF Activities 

(Dollars in thousands) 

FY 2006 FY 2007 FY 2008

Equipment - Fleet $147,000 $145,900 $141,500 

Equipment - Aircraft 8,600 8,600 8,000

Nursery 13,500 13,500 13,500

Enterprise Services 30,900 32,000 33,000

Total $200,000 $200,000 $196,000 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-113 USDA WCF and Greenbook Charges 

USDA Working Capital Fund and Greenbook Charges 

Background 

The Forest Service, as an organizational entity of the U.S. Department of Agriculture, is 

provided administrative services managed centrally on behalf of the Department. These 

centrally administered programs are broken into two activities: the Working Capital Fund 

(WCF) and Greenbook. 

The Interior Subcommittee on Appropriations requires a 3-year display of total costs paid 

by the Forest Service for these centrally administered programs. It is important to note 

that cost estimates for actual usage programs change in response to demand for services 

on the part of the Forest Service. The Forest Service estimates for the activities assessed 

on a Full-time Equivalent (FTE) or standard methodology are likely to better reflect 

Forest Service shares of total costs, but these may vary during execution. 

USDA Working Capital Fund 

The Working Capital Fund (WCF) includes financial and administrative services 

provided with funding under the authority of 7 USC 2235. WCF is a financing 

mechanism supporting more than 20 activity centers across 5 Department-level 

organizations. These centers provide services to all USDA agencies, including the Forest 

Service, and a large number of non-USDA entities. Customers reimburse activity centers 

for the cost of services provided. 

WCF-supported activities do not receive appropriated funds and are not subsidized from 

other funding sources. All costs are recovered through reimbursements from serviced 

customers. The estimated reimbursement from customers represents their projected share 

of costs to deliver service. Under terms of the general provisions in annual 

appropriations to USDA, agency administrators must authorize the billing of their agency 

for services they receive. The Chief of the Forest Service, or her duly appointed 

representative, must sign an agreement at the beginning of the fiscal year authorizing 

billing for services provided and supplying the appropriate accounting data. 

The Forest Service serves as a lead overseer in the review of cost estimates for the 

National Finance Center through its participation in the WCF Executive Committee, a 

body comprising of representatives of various USDA agencies. The Executive 

Committee is charged with making budget recommendations and advising the 

Department’s Chief Financial Officer as to the financial effectiveness of WCF. 

On the following page is a table displaying Forest Service assessments for USDA 

working capital fund services. On subsequent pages is a table describing WCF services 

provided by the USDA. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-114 USDA WCF and Greenbook Charges 

FY 2006 – FY 2008 Working Capital Fund Assessments for the Forest Service 

FY 2006 FY 2007 FY 2008

Orgn. Activity Estimate Estimate Request *

OCFO National Finance Center 5,657 5,657 5,793

 Controller Operations 10,736 10,736 10,994

 Corporate Financial Management Systems 37,625 37,625 38,528

 Competitive Sourcing 299 299 306

OCFO Broadcast Media and Technology Center 306 306 313

 Visual Communications Center 465 465 476

OCIO NITC - IT Services 5,826 5,826 5,966

 National Telecommunications Services 1,387 1,387 1,420

 Computer Services Unit 619 619 634

 Telecom Customer Services Center TSCS 150 150 154

 Network Services 529 529 542

DA Central Supply Stores 261 261 267

 Central Forms and Publication Distribution Center 680 680 697

 Central Excess Property 82 82 84

 Central Shipping and Receiving 47 47 48

 Mail Services 1,321 1,321 1,353

 Printing and Duplication Services 91 91 94

 Copier Service 617 617 632

 Departmental Mailing List Systems 24 24 24

 Integrated Procurement Systems 4,019 4,263 4,365

OES Executive Secretariat 580 580 594

000

Subtotal for Agency Requested Services 71,324 71,568 73,285

* The FY 2008 Request is an estimate based upon the non-pay inflation increase of 2.4%. A revised 

estimate will be provided after the allocation is determined.

(Dollars in Thousands)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-115 USDA WCF and Greenbook Charges 

WORKING CAPITAL FUND ACTIVITIES 

Cost Recovery Methodologies 

Activity Description Cost Distribution 

National Finance Center, 

Financial Systems 

Provides: 1. Payroll/Personnel 

services to USDA/Non-USDA 

agencies 2. Applications support to 

Office of Personnel Management 

3. Record keeper/other services to 

support the Thrift Savings Plan 4. 

Support services for USDA 

accounting applications 5. PKI 

licenses/support 

Beginning in FY 2005, services 

provided by NFC will be 

negotiated between NFC and 

serviced agencies. The nature, 

volume, and cost of services will 

serve as the basis for Memoranda 

of Understanding between the 

parties. 

Controller Operations Provides: 1. Core 

accounting/reporting services 2. 

Agency-specific services 3. 

Operates a corporate controller 

organization that integrates 

accountability and systems across 

USDA 

Corporate Financial Management 

Systems 

Operates/maintains the following 

systems: 1. Foundation Financial 

Information System (FFIS - core 

accounting) 2. Real property 3. 

Corporate integrated administrative 

payments 4. Other systems as 

necessary to support program 

agency missions and fulfill USDA 

fiduciary responsibilities to 

taxpayers 

Financial/Adm. Pmts: Costs 

recovered based on agency share of 

FFIS workload (measured in 

general journal records) Real 

Property: Costs recovered basis on 

agency shares of USDA-owned 

and GSA/commercially-leased 

property 

Competitive Sourcing Provides Department-level 

coordination/guidance to agency 

efforts to comply with competitive 

sourcing/OMB Circular A-76 

requirements 

Costs are recovered from 

customers on the basis of their 

respective number of positions 

each customer agency has in the 

2002 FAIR Act inventory. 

Broadcast Media and Technology 

Center (formerly Video and 

Teleconferencing Center) 

The Broadcast Media and 

Technology Center (BMTC) 

provides a wide array of video 

production and teleconferencing 

(both audio and video) services. 

Agency shares (in pct.) are based 

on the most recently completed 

fiscal year billings for services. 

Actual costs reflect use of the 

service and are based on hourly 

rates for services purchased. 

Visual Communications Center The Visual Communication Center 

offers a variety of graphic 

production and exhibit and visitor 

center 

planning/fabrication/development 

services; the Center also provides 

web page graphic design services. 

Agency shares (in pct.) are based 

on the most recently completed 

fiscal year billings for services. 

Actual agency costs are based on 

needed labor hours, contractual 

costs, and or direct materials 

needed for the delivery of a 

product to the requesting agency. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-116 USDA WCF and Greenbook Charges 

WORKING CAPITAL FUND ACTIVITIES 

Cost Recovery Methodologies 

Activity Description Cost Distribution 

National Information Technology 

Center (NITC) IT Services 

Provide mainframe computer 

operations and application 

development and support services 

to support agency programs. NITC 

also provide IT consulting services 

and training, and support the data 

warehouse support to FFIS. 

Agency percentages are based 

estimates of services to be 

provided to users during the 

current fiscal year. Actual costs are 

based on the cost of services 

provided to requesting agencies 

under terms of interagency 

agreements. 

National Telecom Services Provide centralized 

telecommunications support 

services nationwide for the USDA; 

manages and provide internet 

access to USDA agencies and data 

connections between agencies 

(USDA Intranet); assists agencies 

in using telecommunication 

services in a cost-effective manner. 

Agencies shares (in percentage) are 

based on prior year agencies 

utilization of voice and data 

telecommunication services. 

Actual costs for technical and data 

services are recovered via 

distribution through the WCF. 

Computer Services Unit 

Provide LAN, Desktop, 

Application, and Web development 

support and maintenance to the 

Office of the Secretary (OSEC). 

Basic services for OSEC are paid 

by Office of Chief Information 

Officer (appropriate). The cost for 

the support services to Under and 

Assistant Secretaries are 

distributed among agencies based 

on estimates fiscal year nationwide 

FTEs. 

Telecom Customer Services Center 

TSCS 

Manages and maintains the USDA 

voice telephone services in the 

WMA that serves as the single 

point of contact for all local 

requests for telephone services and 

purchases; manages and 

administers the nationwide Voice 

Mail System; provides 

maintenance services for telephone 

equipment in the WMA and voice 

mail services. 

Agency shares (in pct.) are based 

on the number of telephone lines in 

the WMA and the number of voice 

mailboxes on the primary node. 

Network Services Provides technical/operational 

assistance on data networking 

telecommunications systems; 

designs, installs, operates, and 

manages shared services provided 

on Departmental networks and 

platforms; participates in the 

design, engineering, and operations 

management of the Enterprise 

Network. 

Agency shares (in pct.) are based 

on FTEs for the USDA facilities 

serviced by the Departmental LAN 

and e-mail usage. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-117 USDA WCF and Greenbook Charges 

WORKING CAPITAL FUND ACTIVITIES 

Cost Recovery Methodologies 

Activity Description Cost Distribution 

Central Supply Stores Provides required office supplies to 

the Office of the Secretary and 

USDA agencies in the Washington 

metropolitan area; provides nationwide supply support to the meat 

and poultry inspectors for the Food 

Safety Inspection Service. 

Agency shares (in pct.) are based 

on actual use of store services in 

the most recently completed fiscal 

year. Actual costs are recovered on 

the basis of the acquisition cost of 

supplies procured by agencies, plus 

an overhead charge. 

Central Forms and Publications 

Distribution Center 

Provides Acq (Printing), 

Warehouse, and worldwide 

distribution of adm forms and pub 

for all USDA agencies and nonUSDA agencies; provides 

warehouse distribution of agency 

program and pub for all USDA 

agencies and for other participating 

govt agencies; 

Based on the most recently 

completed fiscal year. 

Central Excess Property 

Operation/Excess Property 

Operations 

Provides customer svc and 

disposition for all excess property 

for USDA and other fed agencies 

in Washington Metropolitan area 

under the concept of a Cooperative 

Admin Support Program (CASU): 

provides property rehab svcs in an 

effort to promote utilization of 

serviceable excess and rehab 

property in lieu of purchasing new 

property. 

Excess Property Operations: 

Agency shares are based on FullTime Equivalents (FTE) for the 

Washington DC metropolitan area. 

Central Shipping and Receiving Provides a central facility to ship 

and receive large items for USDA 

agencies; maintains facilities in the 

DC Buildings Complex and at the 

Beltsville Service Center. 

Agency shares are based on the 

gross weight of shipments received 

in the most recently completed 

fiscal year. 

Mail Services Central Mail: Central processing of 

incoming, outgoing , and 

interoffice mail; special handling 

services for priority items in the 

DC area. Door-to-Door: Pickup 

and delivery service of routine and 

special mailings in the DC 

downtown bldgs complex. 

Central Mail/Door-to-Door: 

Agency shares are based on mail 

count samples taken by the Mail 

Unit. 

Printing and Duplication Services Provides full service and quick turn 

around printing for the Office of 

the Secretary and USDA agencies 

headquartered in the Washington 

metropolitan area. 

Agency shares are based on prior 

year billings. Actual costs are 

based on use of the service at 

published rates. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-118 USDA WCF and Greenbook Charges 

WORKING CAPITAL FUND ACTIVITIES 

Cost Recovery Methodologies 

Activity Description Cost Distribution 

Copier Service Provides centralized copier 

facilities and equip for employees 

in Washington DC, bldgs complex 

and nearby satellite locations 

(Riverdale Carver Center). A large 

inventory of pool/convenience 

copiers is placed within USDA 

agencies throughout DC area. 

Agency shares are based on prior 

year billings. 

Departmental Mailing List Systems Maintains centralized mailing lists 

for agencies and staff offices and 

high speed printer service for 

reports production. 

Agency shares are based on prior 

year billings. 

Integrated Procurement Systems Develops, implements, and 

maintains a suite of corporate 

acquisition software tools, 

streamlining processes, and 

providing procurement support to 

USDA agencies; develops, 

implements, and maintains an 

interface with the USDA corporate 

financial system. 

Cost is distributed based on actual 

agency use of the PURCH and 

PCMS systems. This will continue 

to be the cost recovery basis until 

IAS is fully implemented. 

Executive Secretariat Provides referral and 

correspondence control services to 

the Department for mail addressed 

to the Department, the Secretary, 

and the immediate office of the 

Secretary. 

User percentages are based on a 

moving average of correspondence 

processed by the unit. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-119 USDA WCF and Greenbook Charges 

Greenbook 

Central Cost Distribution Programs: USDA agencies pay a share of costs for external 

programs through “Greenbook” assessments. The Forest Service share is determined in a 

manner consistent with that for every other agency in the Department. Assessments are 

broken down into two categories: 

• Actual usage – costs are collected for programs such as GSA space, postage, 

unemployment and workers compensation based on actual costs incurred by 

individual agencies. 

• Outside assessments – costs such as OPM Federal employment, FirstGov, and 

GSA blue pages are distributed to executive departments for reimbursement; the 

Department has no discretion as to the cost of the program. 

Departmental Reimbursable Programs: These costs provide funding for Departmentwide 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 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-120 USDA WCF and Greenbook Charges 

FY 2006 – FY 2008 Forest Service Greenbook Costs 

FY 2006 FY 2007 FY 2008

 Estimate Estimate Request *

 GSA Space $37,801 $38,584 $39,510

GSA Building Security $0 $2,797 $2,864

 USPS Mail $460 $460 $471

 Unemployment Compensation $33,998 $36,922 $37,808

 Workers Compensation $28,173 $28,607 $29,294

National Archives Storage $180 $222 $227

Transit Subsidy $1,512 $1,263 $1,293

FTS 2001 $5,331 $7,297 $7,472

OPM Federal Employment Services $192 $186 $190

 Small Business Certification $10 $11 $11

FEMA $70 $71 $73

Government Wide Council Activities $135 $132 $135

GSA Blue Pages $115 $91 $93

Flexible Spending Accounts (FSAFEDS) $0 $397 $407

Total, Central Cost Programs $107,978 $117,040 $119,849

USDA Tribal Liaison $0 $26 $27

Faith-Based Initiatives $0 $155 $159

Radiation Safety $0 $95 $97

Labor and Employee Relations Case Tracking $0 $24 $25

Dashboard and Retirement Web Application $0 $116 $119

 Advisory Committee Liaison $42 $42 $43

American Indian Higher Education Consortium $89 $196 $201

 Hispanic Association of Colleges & Universities $546 $508 $520

1890's USDA Initiatives $993 $847 $867

 Sign Language Services $11 $129 $132

TARGET Center $330 $322 $330

USDA Diversity Council $543 $168 $172

USDA Visitor Information Center $88 $102 $104

Honor Awards $0 $32 $33

USDA Drug Testing Program $0 $116 $119

Emergency Operations Center $665 $645 $660

Pre-Authorized Funding $256 $169 $173

E-Gov Presidential Initiatives $4,018 $7,975 $8,166

HSPD 12 (Smart Cards) $0 $6,662 $6,822

Financial Mangement Modernization Initiative $0 $2,409 $2,467

Federal Biobased Products Procurement $0 $131 $134

Total, Reimbursable Programs $14,952 $23,458 $24,021

TOTAL GREENBOOK $122,930 $140,498 $143,870

* FY 2008 Request based upon estimate at time of publication. Final amount will be provided to 

Appropriations Committees.

(Dollars in Thousands)

Central Cost Distribution Programs

Departmental Reimbursable Programs

$7,371 $2,589 $2,651

USDA E-Gov Enablers (E-Gov Initiatives and 

Enterprise Authentication)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-121 USDA WCF and Greenbook Charges 

GREENBOOK ACTIVITIES

Central Cost Distribution Programs 

Activity Description Cost Distribution 

General Service Administration 

(GSA) Space – Agency 

Provides for the payment of rental to 

GSA for non-appropriated funded 

agency space, which is paid from 

agency funds. 

User percentages are based on 

occupied agency space not 

covered in the central 

(Departmental) appropriation for 

space. 

GSA Building Security Provides for the payment of security 

to DHS for non-appropriated funded 

agency security, which is paid from 

agency funds. 

User Cost Estimates are based on 

security not covered in the central 

(Departmental) appropriation for 

security. 

U.S. Postal Service Mail Provides reimbursement to the U.S. 

Postal Service (USPS) for mailing 

services provided to USDA agencies.

User percentages are based on 

prior year usage. Adjustments are 

made prior to the end of the fiscal 

year, based on direct 

accountability (i.e., metered costs, 

sampling, and anticipated 

increases in postal rates) 

Unemployment Compensation Provides reimbursement to the 

Department of Labor (DOL) 

unemployment trust fund for 

payment made to unemployed former 

USDA employees. 

User percentages are based on 

reconciled agency charges for the 

previous fiscal year. 

Worker’s Compensation Provides reimbursement to the 

Department of Labor (Office of 

Workers Compensation) for 

employment compensation to USDA 

employees due to on-the job injuries.

Distribution is based on reconciled 

agency cases and dollars. 

National Archives Storage Services Effective in FY 2001, the National 

Archives became a fee-for-service 

records center. Each agency is 

assessed for costs associated with 

records in storage plus an additional 

amount for those Departmental staff 

offices that store agency records as a 

part of their function. 

Distribution is based on each 

agency’s volume of records stored, 

plus a percentage of Departmentwide records stored based on 

nation-wide FTEs. 

Transit Subsidy In accordance with Executive Order 

13150, USDA is providing all 

qualifying employees nationwide a 

direct transit subsidy in order to 

reduce Federal employees’ 

contribution to traffic congestion and 

air pollution and to expand their 

commuting alternatives. 

Distribution is based on each 

agencys percentage of the actual 

costs for each quarter. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-122 USDA WCF and Greenbook Charges 

GREENBOOK ACTIVITIES

Central Cost Distribution Programs 

Activity Description Cost Distribution 

FTS 2001 The GSA FTS2001 Contract 

provides national and international 

telecommunications services for the 

Federal Government. This contract is 

mandatory for use by all USDA 

agencies. 

 GSA bills USDA each month 

through the IPAC process for all 

expenses incurred under this 

contract. The FTS2001 Billing 

Team in Fort Collins, CO, audit, 

validate and produce monthly 

reports to each USDA agency for 

the expenses resulting from the use 

of this contract. 

OPM Federal Employment and 

Administrative Law Judges Service 

Reimburses OPM for Federal 

Employment and Administrative 

Law Judges services and information 

provided to USDA agencies. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment for each agency. 

Small Business Certification This program reimburses SBA for 

the cost of the Certification Program 

for Small Businesses. 

User percentages are based on the 

number and dollar amount of 

contract actions for each agency. 

Federal Emergency Management 

Agency (FEMA) Emergency 

Preparedness 

Supports actions for procurement of 

an emergency relocation site, 

telecommunications, and 

miscellaneous support in the event of 

an emergency. 

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings for each 

USDA agency. 

Government-WideCouncil 

Activities 

Reimburses GSA for projects of the 

Chief Financial Officers Council, 

Chief Information Officers Council, 

and Procurement Executives Council. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment in each agency. 

GSA Blue Pages GSA is the lead agency in a public/ 

private multi-agency effort to set a 

standard, easy-to-use format for core 

government directory listings 

throughout the country. 

Distribution is based on current 

fiscal year Nationwide FTE 

ceilings for each USDA agency. 

USDA Tribal Liaison Program provides for travel for the 

national program director, support 

for an intern or other personnel, and 

other related programs. An update of 

the guide to USDA Programs for 

Native Americans was completed in 

2005. Started in 2004. 

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings for each 

USDA agency. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-123 USDA WCF and Greenbook Charges 

GREENBOOK ACTIVITIES

Central Cost Distribution Programs 

Activity Description Cost Distribution 

Faith-Based Initiatives Provides for Department level 

oversight of the USDA 

implementation efforts in this area 

and to support the White House 

Office of Faith-Based and 

Community Initiatives regional 

outreach conferences. 

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings for each 

USDA agency. 

Radiation Safety The Radiation Safety is responsible 

for administering the USDA radiation 

safety program including ensuring 

compliance with the licenses issued 

by the Nuclear Regulatory 

Commission (NRC) for use of 

radioactive materials in research and 

other programs. Six agencies use 

radioactive materials that require 

radiation safety overnight. 

Distribution is based on usage of 

radioactive materials by agency 

personnel. 

Labor and Employee Relations Case 

Tracking and Reporting System 

Labor and Employee Relations Case 

Tracking and Reporting System 

(LERACTRS) is the Departments 

enterprise web-based tracking system 

for employee and labor relations 

cases occurring within USDA. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment in each agency. 

Dashboard and Retirement Web 

Application 

This reimbursable program is a 

secure Department-wide web based 

system, which among other 

functions, captures service history, 

deposit/redeposit information, etc. 

FRB enables employees to fill out the 

appropriate forms online. It enables 

HR offices to calculate annuity 

estimates on demand. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment in each agency. 

Advisory Committee Liaison 

Services 

The immediate Office of the 

Secretary provides guidance and 

direction to USDA agencies on 

Advisory Committees and Boards. 

Costs to support this function and 

screening/selection of members are 

reimbursed from agencies to the 

Office of the Secretary. 

Costs are distributed on the basis 

of the number of advisory 

committees in each agency. 

American Indian Higher Education 

Consortium 

Promotes, fosters, and encourages 

implementing programs for 

improving post-secondary and higher 

education opportunities for America 

Indians, and establishing information 

centers for post-secondary and higher 

education institutions. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment in each agency. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-124 USDA WCF and Greenbook Charges 

GREENBOOK ACTIVITIES

Central Cost Distribution Programs 

Activity Description Cost Distribution 

Hispanic Association of Colleges 

and Universities 

A program to foster educational 

excellence in the Hispanic 

community and to promote Hispanic 

participation in fulfilling the USDA 

mission. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment in each agency. 

1890 USDA Initiatives Supports White House initiatives on 

Historically Black Colleges and 

Universities and USDA 1890 

institutions (Land Grant colleges and 

universities). USDA maintains an 

agricultural liaison office at each of 

the 17 1890 campuses, including 

Tuskegee University. 

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings for each 

USDA agency. 

Sign Language Interpreter - includes 

Agency Specific Services 

The Sign Language Interpretation 

program provided sign language 

interpretation services for the hearing 

impaired. Services are provided so 

that hearing impaired employees and 

visitor can communicate in the 

workplace. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment in each agency. 

TARGET Center Supports the Departments workforce 

diversity and Federal Workforce 

2001 policies; provides information 

on technologies to ensure equal 

access to electronic technologies and 

automated systems essential to 

today’s jobs for people with visual, 

hearing, speech, mobility, or 

dexterity impairments. 

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings for each 

USDA agency. 

USDA Diversity Council This program supports the following: 

Hispanic Advisory Council, 

Secretary’s Advisory Council on 

Employees with Disabilities, AsianAmericans and Pacific Islanders 

Group, Native Americans Group, 

Women’s Group, Gays and Lesbians 

Group. These groups provide the 

Secretary with ongoing advice on 

matters that affect their respective 

communities. 

Distribution is based on the current 

year’s nationwide FTE 

employment ceilings for each 

USDA agency. 

USDA Visitor Information Center The Visitors Center is a showcase for 

USDA programs and initiatives . 

Distribution is based on current 

fiscal year nationwide FTE 

employment in each agency. 

Honors Awards This program is designed to 

recognize significant 

accomplishments of USDA 

employees through the Departments 

highest honor awards program. 

Distribution is based on the current 

years nationwide FTE employment 

ceilings for each USDA agency. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-125 USDA WCF and Greenbook Charges 

GREENBOOK ACTIVITIES

Central Cost Distribution Programs 

Activity Description Cost Distribution 

USDA Drug Testing Program This program is mandated be 

Executive Order 12564 and PL 102-

143. Its purpose is to help ensure a 

drug free work place with programs 

such as: random, reasonable 

suspicion, post accident, volunteer 

and applicant testing. 

Distribution is based on each 

agency’s percentage of the actual 

costs and a minimum charge of 

$50 for all other agencies. 

Emergency Operations Center Provides highly trained and secure 

emergency operations capability on a 

24/7 basis. As the entry point for 

Homeland Security and emergency 

disaster response information 

received by the Dept, the Center 

operates newly developed or 

enhanced critical communications 

and coordination systems. 

Distribution is based on current 

fiscal year nationwide FTE 

employment in each agency. 

Pre-Authorized Funding Provides a funding mechanism for 

reimbursable activities with costs less 

than or equal to $100,000 involving 

other Federal departments and 

USDA. 

Distribution is based on the current 

years nationwide full-time 

equivalent (FTE) employment 

ceiling of each agency. 

E-Gov Presidential Initiatives To Improve IT planning through the 

expansion of electronic government 

to deliver significant productivity and 

performance gains across all federal 

departments. 

Distribution is based on 50% of 

agency full-time equivalents 

(FTEs) and 50% of the agency IT 

development, modernization, and 

enhancement (DME) spending. 

HSPD 12 (Smart Cards) Mandates the establishment of a new 

standard for credentialing federal 

government employees and 

contractors 

Distribution is based on 100% of 

agency full-time equivalents 

(FTEs). In FY 2006 the cost 

Distribution was based on a 50/50 

blend of nationwide FTEs and 

Agency Development, 

Modernization and Enhancement It 

investment budgets submitted as 

part of the Exhibit 53 submission 

to OCIO. 

Financial Management 

Modernization Initiative 

Financial Management 

Modernization Initiative (FMMI) 

Core System. The U.S. Department 

of Agriculture (USDA) is in the 

initial stages of procuring a new Core 

Financial Management System 

through the Financial Management 

Modernization Initiative (FMMI). 

The billing algorithm for the 

FMMI is a 50/50 blend of the 

current year Nation-wide FTEs 

and Agency DME ( Development, 

Modernization and Enhancement) 

Budgets.

Federal Bio-based Products 

Procurement 

This program was initiated to 

increase the awareness and 

understanding of bio-based products: 

how we can use them within USDA; 

how they can be used by 

clients/customers across the country. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment in each agency. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 27 17-126 USDA WCF and Greenbook Charges 

GREENBOOK ACTIVITIES

Central Cost Distribution Programs 

Activity Description Cost Distribution 

Projects included increased 

marketing, developing a website and 

establishing a resource center open to 

Federal agencies as well as the 

public. 

USDA E-Gov Enablers (E-Gov 

Initiatives and Enterprise 

Authentication) 

Provides single sign-on capability for 

access to web applications, 

management of user credentials, and 

verification of identity Enables 

secure electronic transactions by 

providing an electronic identity 

validation to allow electronic 

signatures and non-repudiation 

Distribution is based on 100% of 

agency full-time equivalents 

(FTEs) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 28 17-127 WCF-Forest Service - Fleet 

Forest Service Working Capital Fund - Fleet 

Program Description 

The Forest Service uses the Working Capital Fund (WCF) to procure motor vehicles and 

other fleet equipment in support of Forest Service programs. The WCF does not receive 

direct appropriations, but receives its authority through payment for services from 

appropriated accounts. Regular Forest Service appropriations purchase assets and then 

donate the assets to WCF. WCF rates are determined so that WCF recovers operating 

and replacement costs. WCF supports Equipment Leasing Services, an entity that owns 

and rents vehicles and other fleet equipment. 

Vehicle Allocation Methodology and Procurement Practices

The Forest Service does not currently allocate vehicle quantity limits but allows local 

units to determine the transportation and equipment to achieve their goals within the 

allotted budgets. 

With assistance from program and project leaders, fleet equipment specialists, line 

officers and managers determine transportation and equipment needs and the best 

methods of meeting those needs. Reassignment of existing fleet often meets the need. 

When a fleet addition or upgrade is required, a formal review and approval procedure is 

followed and documented. This procedure centralizes the procurement decision to the 

Region/Station level. 

As part of the annual replacement process, the Forest Service units (National Forests, 

etc.) and sub-units (Ranger Districts, etc.) conduct assessments of fleet operations that 

analyze vehicle effectiveness, cost-to-serve, life cycle cost, vehicle pooling, and 

operating costs. The Forest Service managers determine their on-going fleet needs. The 

Regional and Station fleet specialists, based on National guidelines, identify vehicles 

eligible for replacement. The final decision to procure a replacement vehicle is made at 

the Regional/Station level. 

In FY 2007, the Forest Service is coordinating with the General Services Administration 

(GSA) to develop a vehicle allocation methodology, similar to that described in GSA 

Bulletin FMR B-9. The methodology will provide additional criteria to measure 

transportation needs, fleet size, and make-up. The allocation methodology will become 

operational in FY 2008. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 28 17-128 WCF-Forest Service - Fleet 

Program Oversight 

To assure that the fleet program provides safe, efficient, and environmentally sound fleet 

equipment, and to ensure the safe, economical, and legal acquisition, operation, 

maintenance, and disposal of that equipment, the Forest Service uses a combination of 

the following:

1. Financial incentives: Forest Service organizations, programs, and projects pay 

monthly rates on all WCF equipment assigned to them. This payment structure 

encourages dropping non-essential vehicles. Dropped vehicles are reassigned to 

units in need, and receipts go to the WCF account. 

2. Business practices: Standard business practices require National and regional 

review. These include the physical property inventory, the annual assessments of 

fleet needs for scheduling replacements and holdovers, and the annual review and 

recalculation of monthly rates. The Forest Service recently implemented a 

formalized review and approval procedure for all fleet additions and up-grades. 

3. Monitoring: Typically, a region reviews fleet management activities on two to 

four forests each year, and the National office reviews one to two regions. 

Management actives regularly adjust the fleet size, mix, and assignment through out the 

year. This helps ensure an optimal fleet and helps to keep the fleet safe, effective, cost 

efficient, and in line with legal requirements. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-129 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

Report to Congress on Performance Management System 

The report that follows on pages 17-130 to 17-164 was delivered to the congressional 

appropriations committees on June 2, 2006, in accordance with the requirements found in 

the Conference Report for the Department of the Interior, Environment, and Related 

Agencies Appropriations Act, 2006 (P.L.109-54). The report is also presented in this 

special exhibit of the Forest Service FY 2008 Budget Justification so that it is posted to 

the internet as required. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-130 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-131 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

The Conference Report for the Department of the Interior, Environment, and Related 

Agencies Appropriations Act, 2006 (P.L.109-54) directed the Forest Service to provide a 

report on the performance management system, (H. Rept. 109-188, p. 125). The 

Conference Report refers to a March 2005 USDA Office of Inspector General (OIG) 

audit reviewing Forest Service implementation of the Government Performance and 

Results Act (GPRA). The audit found the Forest Service had not effectively 

implemented a comprehensive strategy to ensure that the performance data provided to 

interested parties is consistent, valid and supported. The Conference Report indicated 

that the Forest Service “...needs to implement a system of internal data controls and data 

transparency consistent with the recommendations by the USDA-OIG March 2005 

audit.” The Report also indicated that “...the Chief of the Forest Service should hold 

agency line officers accountable for reporting accurate performance data in fiscal year 

2006” and “should establish an independent review process to review the reported data.” 

This document provides a brief overview of the Forest Service’s performance 

management system, discusses issues raised in the conference report, and notes key 

improvements that will be put in place during FY 2006. 

Forest Service Budget Allocation, Accomplishment Reporting and Performance 

Accountability System Overview 

Performance accountability is an integral part of the Forest Service’s operating standards 

for work planning and accomplishment reporting. The agency allocates its funds to WO 

staff, regions, stations, and areas based on authorized spending levels, the agency’s 

strategic plan goals and objectives, and input from executive leaders as to on-the-ground 

capability. 

Each unit within the agency develops a program of work consisting of specific projects 

planned in the Forest Service WorkPlan system that includes projected costs and 

accomplishments based on congressional direction, the strategic plan, resource 

management plans and budget allocations. Project plans are reviewed and updated 

throughout the fiscal year to reflect changed conditions. Annually, the Forest Service 

reviews the performance measures and definitions and revises them as necessary. 

Accomplishment data is reported in a designated system/database and is gathered at the 

forest level and summarized to the region and agency level for use by internal and 

external customers. The accomplishment data for key performance measures is used as 

part of the annual Regional Forester and other SES individual performance evaluations. 

In order to provide more funds to the ground for target accomplishment, efforts are being 

made to reduce off-the-top (indirect) expenses at all levels of the organization, including 

the re-engineering of information resources management and financial management 

processes, and the establishment of the centralized IRM and Albuquerque Service Center 

staffs. Analysis and design of centralized human resources functions and staff are also 

currently underway to continue to streamline administrative processes and reduce indirect 

expenses. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-132 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

Despite the Forest Service’s commitment to improved performance management, we 

agree with the OIG findings that we continue to have problems obtaining valid, reliable 

performance data. Furthermore, we currently lack an effective internal control system to 

promote and ensure data quality. As a result of the OIG audit, however, we have taken 

specific steps and accelerated several efforts to improve our performance management 

system. These steps are consistent with the recommendations contained in the OIG audit 

as well as the direction in the FY 2006 Conference Report, and are described below. 

 

Internal Control System 

On February 16, 2005, the Forest Service issued an internal directive (ID-1410-2005-1, 

see attachment A) to improve internal controls over performance data reporting. The 

directive clarified the roles and responsibilities of line officers and Forest Service staff 

positions, including staff directors and program managers. (See attachment A) 

During FY 2005, every Regional office conducted two field reviews (at the Forest level) 

to assess the quality of data reported by the field, using a sample of key performance 

measures. As a part of this review, we identified several discrepancies in the 

interpretation of these measures due to incomplete definitions or unclear data collection 

protocols. Two additional internal control performance field reviews, on different units 

in each Region, will be performed in FY2006. 

Line Officer Accountability 

Maintaining and reporting quality performance data is reinforced through individual 

performance plan evaluations. As stated in letters issued in February 28, and June 8 of 

2005, all employee performance plans were to include an individual performance element 

on managing work assignments that links individual performance to organizational goals 

and desired outcomes and for improving data quality and reliability. (These letters are 

attached – see attachments B and C) 

The Forest Service also requires line officers at the Regional level to certify that key 

performance data are valid and reliable while documenting those data items that do not 

meet this standard. Accomplishment data are rolled up from field units to the Regional 

level. At that time, the Regional Office staff reviews the data to ensure it is valid with 

supporting documentation, with any exceptions to this standard noted. The senior line 

officer in the region is then required to sign a certification form. A copy of a sample 

form is attached (see attachment D). 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-133 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

Review Process

Accomplishment data is reviewed at the Agency level at mid-year and third quarter. 

Managers, supervisors and project staff review the completeness and quality of the data 

on an on-going basis at the Region, Forest and District level. On-site activity and 

program reviews conducted by Washington Office staff increase the review and analysis 

of information reported during the year. 

In FY 2006, performance reviews have been scheduled in four regions to evaluate and 

ensure the effectiveness of established internal controls and the reasonableness of 

reporting performance data. These reviews will supplement the Region, Station, and 

Area reviews required by the Forest Service directive discussed above. 

Data Transparency 

An internal website was established with the purpose of providing official 

performance/budget related information. Here, all employees can find performance 

measure definitions and data collection guidance. Additionally, WorkPlan, a web-based 

budget planning, implementation and accomplishment reporting system, standardized and 

thus provided more control over the way project work is planned and reported. A 

performance accountability system that will establish a change control process and 

stronger controls over data definitions for the purpose of improving the consistency and 

accuracy of the accomplishment data is scheduled to be operational in FY 2006 and fully 

implemented in FY 2007. 

Improvements Recognized by OIG 

The USDA OIG has recognized improvements made by the Forest Service. In its initial 

audit report, the OIG recommended that the Forest Service establish as a material 

weakness “inadequate controls over performance reporting” under the Federal Managers 

Financial Integrity Act. The Forest Service took immediate action to implement the audit 

recommendations, including those mentioned in this report. As are result of this work, 

the USDA-OIG supported a decision to change the material weakness to a reportable 

condition based on the significant efforts completed by the Forest Service to date. 

Attachment E summarizes the OIG Audit Report No. 08601-01-HY, “FS Implementation 

of GPRA,” issued March 31, 2005, recommendations; the agreed to Forest Service 

Management actions and corresponding references to comments in this Report. 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-134 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

FOREST SERVICE MANUAL 

NATIONAL HEADQUARTERS (WO) 

WASHINGTON, DC

FSM 1400 – CONTROLS 

 

CHAPTER 1410 – MANAGEMENT REVIEWS 

Interim Directive No.: 1410-2005-1 

Effective Date: February 16, 2005 

Duration: This interim directive expires on August 16, 2006.

Approved: JESSE KING

 Associate Deputy Chief/CFO 

Date Approved: 02/14/2005 

Posting Instructions: Interim directives are numbered consecutively by title and 

calendar year. Post by document at the end of the chapter. Retain this transmittal as the 

first page(s) of this document. The last interim directive was 1410-98-1 to FSM 1410. 

New Document id_1410-2005-1 10 Pages 

Superseded Document(s) 

(Interim Directive Number 

and Effective Date) 

None 

Digest: 

1419 - This interim directive adds a new section titled, Performance Accountability 

Review and Validation. The section provides direction for improving agency 

performance accountability. 

 (ATTACHMENT A) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-135 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

WO Interim Directive 

EFFECTIVE DATE: 02/16/2005 

DURATION: This interim directive expires on 08/16/2006. 

id_1410-2005-1 

Page 135 of 10 

FSM 1400 - CONTROLS 

CHAPTER 1410 - MANAGEMENT REVIEWS 

Table of Contents 

1419 - PERFORMANCE ACCOUNTABILITY REVIEW AND VALIDATION ..................3

1419.1 - Authority....................................................................................................................... 3

1419.2 - Objectives ..................................................................................................................... 3

1419.3 - Policy............................................................................................................................ 3

1419.4 - Responsibility............................................................................................................... 4

1419.41 - Washington Office.................................................................................................. 4

1419.41a - Deputy Chiefs ....................................................................................................... 4

1419.41b - Staff Directors....................................................................................................... 4

1419.41c - Director of Strategic Planning and Resource Assessment.................................... 5

1419.41d - Director of Program and Budget Analysis ........................................................... 5

1419.42 - Regions, Stations, and Area.................................................................................... 6

1419.43 - Line Officers........................................................................................................... 6

1419.5 - Definitions .................................................................................................................... 7

1419.6 - Performance Accountability......................................................................................... 7

1419.61 - Performance Measures Data Review...................................................................... 8

1419.62 - Performance Reporting Certification.................................................................... 10

1419.63 - Other Agency Reviews......................................................................................... 10

1419.64 - Independent Validation of Performance............................................................... 10

 (ATTACHMENT A) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-136 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

WO Interim Directive 

EFFECTIVE DATE: 02/16/2005 

DURATION: This interim directive expires on 08/16/2006. 

id_1410-2005-1 

Page 136 of 10 

FSM 1400 - CONTROLS 

CHAPTER 1410 - MANAGEMENT REVIEWS 

1419 - PERFORMANCE ACCOUNTABILITY REVIEW AND VALIDATION 

1419.1 - Authority 

Federal agencies are subject to numerous legislative and regulatory requirements that 

promote and support effective internal control. The following regulations set forth the policy

for establishing effective internal controls for performance accountability in the Forest Service. 

1. Government Performance and Results Act (GPRA). To support results-oriented 

management, GPRA requires agencies to develop strategic plans, set performance goals, 

and report annually on actual performance compared to goals (Section 3 and Section 4). 

2. Office of Management and Budget (OMB) Circular A-123, Management’s 

Accountability and Control, December 21, 2004. Management is responsible for establishing 

and maintaining internal control to achieve the objectives of effective and efficient operation, 

reliable financial reporting, and compliance with applicable laws and regulations. Management 

shall consistently apply the internal control standards to meet each of the internal control 

objectives and to assess internal control effectiveness. Follow the following link for more 

information on A-123. 

3. Federal Managers’ Financial Integrity Act (FMFIA) of 1982. Requires agencies to 

establish and maintain internal controls and provides the statutory basis for management’s 

responsibility for and assessment of internal control. 

4. Departmental Regulation 1110-002, Management Accountability and Control. 

Establishes department-wide policy and detailed guidelines and procedures for all agencies and 

staff offices to improve the accountability and effectiveness of USDA’s programs and operations 

through the use of sound systems of internal/management controls, and to ensure compliance 

with laws and regulations. 

1419.2 - Objectives 

A key component to implementing the Government Performance and Results Act (GPRA) of 

1993 is the validation and verification of the information reported against the agency’s 

performance measures. In the Office of Inspector General (OIG) audit report, “Implementation 

of the GPRA in the Forest Service,” dated June 2000, the OIG recommended the Forest Service 

implement a comprehensive strategy for GPRA to ensure the collection and reporting of 

accurate, complete, and meaningful performance data. As part of the strategy, OIG stated that 

the Forest Service should put in place a set of effective internal controls, to include a plan of 

comprehensive management reviews, program level reviews, and controls to test the 

reasonableness of reported performance data. 

1419.3 - Policy 

 (ATTACHMENT A)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-137 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

WO Interim Directive 

EFFECTIVE DATE: 02/16/2005 

DURATION: This interim directive expires on 08/16/2006. 

id_1410-2005-1 

Page 137 of 10 

FSM 1400 - CONTROLS 

CHAPTER 1410 - MANAGEMENT REVIEWS 

Management is responsible for establishing and maintaining internal control to achieve the 

objectives of effective and efficient operation, reliable financial reporting, and compliance 

with applicable laws and regulations. Management shall consistently apply the internal 

control standards outlined herein to meet the agency’s objectives for the performance 

accountability requirements of GPRA. 

It is the policy of the Forest Service that data quality is a shared responsibility. Senior 

management is responsible for ensuring that performance measures are appropriate, sufficiently 

defined and communicated. 

1419.4 - Responsibility 

1419.41 - Washington Office 

1419.41a - Deputy Chiefs 

It is the Deputy Chiefs’ responsibility to coordinate and carry out Forest Service programs at the 

National level. In carrying out this authority delegated by the Chief, Deputy Chiefs must ensure 

that necessary coordination occurs among WO Staff Directors that report to them and that they 

coordinate with other Deputy Chiefs to ensure consistent collection, interpretation, and reporting 

of accomplishment data and performance measures. 

The Deputy Chief for Programs, Legislation and Communication is responsible for facilitating 

coordination among other Deputy Chiefs and the WO Staff Directors. 

1419.41b - Staff Directors 

The Staff Directors for the Washington Office are responsible for: 

1. Providing clear protocols, operational definitions and performance standards. 

2. Monitoring program performance. 

3. Participating in conducting reviews. 

4. Ensuring that appropriate records and documentation of reviews and follow-up actions 

are established and maintained. 

5. Ensuring that personnel and records are available as requested by reviewing officials. 

6. Assisting with the reviewing, modifying and administering of an effective 

performance measures oversight/accountability process. 

 (ATTACHMENT A) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-138 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

WO Interim Directive 

EFFECTIVE DATE: 02/16/2005 

DURATION: This interim directive expires on 08/16/2006. 

id_1410-2005-1 

Page 2 of 10 

FSM 1400 - CONTROLS 

CHAPTER 1410 - MANAGEMENT REVIEWS 

7. Proposing adjustments to the Deputy Chief where oversight reviews suggest that the 

national performance measures are hindering program delivery and attainment of the agency 

mission. 

8. Providing performance accountability review training and guidance to employees who 

are expected to participate in conducting reviews. Inform staffs of relevance to GPRA and 

importance of sustaining a clean audit opinion. 

9. Ensuring their reporting systems or databases have sufficient internal controls to make 

certain the data is complete, timely and accurate. 

1419.41c - Director of Strategic Planning and Resource Assessment 

The Director of Strategic Planning Resource Assessment is responsible for: 

1. Coordinating with other Washington Office Staff Directors to resolve performance 

measures definitions. 

2. Managing the change process to add, delete, or modify performance measures. 

3. Ensuring any adjustments to performance measures are communicated to all affected 

staffs. 

4. Ensuring performance measure documentation and system support and linkage is 

maintained. 

5. Collecting, maintaining, and summarizing results of performance reviews. 

6. Incorporating findings and planned actions into the Performance and Accountability 

Report, as required in FSM 1417, “Yearend Report on Management Control”. 

1419.41d - Director of Program and Budget Analysis 

The Director of Program and Budget Analysis is responsible for: 

1. Collecting and consolidating performance reporting. 

2. Coordinating efforts to ensure performance data verification and validation procedures 

are followed. 

3. Reviewing and filing certifications for yearend reporting, including the supporting 

documentation from performance reviews. 

 (ATTACHMENT A) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-139 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

WO Interim Directive 

EFFECTIVE DATE: 02/16/2005 

DURATION: This interim directive expires on 08/16/2006. 

id_1410-2005-1 

Page 2 of 10 

FSM 1400 - CONTROLS 

CHAPTER 1410 - MANAGEMENT REVIEWS 

1419.42 - Regions, Stations, and Area 

Regions, Stations, and Area Managers coordinate and carryout Forest Service programs at the 

Regional, Station, and Area levels. In carrying out this authority as it relates to strategic 

planning, these managers must coordinate among assigned programs and with the WO Staff 

Directors as necessary to ensure the consistent collection, interpretation, and reporting of 

accomplishment data and performance measures. RSAs are responsible for monitoring and 

overseeing field implementation of their program and activity areas including: 

1. Monitoring unit and program performance. 

2. Participating in conducting reviews. 

3. Ensuring that appropriate records and documentation of reviews and follow-up actions 

are established and maintained. 

4. Ensuring that personnel and records are available as requested by reviewing officials. 

5. Ensuring that reviewers are knowledgeable of the programs they are reviewing. 

6. Proposing adjustments to the appropriate staff director where oversight reviews 

suggest that the national performance measures are hindering program delivery and attainment of

the agency mission. 

7. Providing performance accountability review training and guidance to employees who 

are expected to participate in conducting reviews. Inform staffs of relevance to GPRA and 

importance of sustaining a clean audit opinion. 

8. Certifying estimated accomplishments on or before September 9, 2005 and full-year 

actual accomplishments on or before December 5, 2005. 

1419.43 - Line Officers 

In conjunction with their responsibilities for management reviews, as outlined in FSM 1410.41, 

line-officers are responsible for: 

1. Providing performance accountability review training and guidance to employees who 

are expected to participate in conducting reviews. 

2. Ensuring that reviews evaluate the application and reporting of the national 

performance measures. 

3. Taking prompt and thorough corrective actions identified in review findings, including

the approval of follow-up action plans. 

 (ATTACHMENT A) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-140 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

WO Interim Directive 

EFFECTIVE DATE: 02/16/2005 

DURATION: This interim directive expires on 08/16/2006. 

id_1410-2005-1 

Page 140 of 10 

FSM 1400 - CONTROLS 

CHAPTER 1410 - MANAGEMENT REVIEWS 

4. Participating fully in performance accountability reviews of their units, ensuring that 

reviewing officials have access to all personnel and records as necessary to conduct reviews. 

5. Ensuring that accurate and complete performance data is entered into the databases of 

record in a timely manner. 

1419.5 - Definitions 

This section provides definitions related to terms used in this chapter. 

Internal Control. The tools (organization, policies, and procedures) to help 

program and financial managers achieve desired results and safeguard the integrity of their 

programs. 

Material Weakness. A deficiency that USDA leadership determines to be significant 

enough to be reported outside the Department. A material weakness results in a failure to 

meet one or more of the objectives of Section 2 or 4 of FMFIA. 

Performance Goal. A target level of performance at a specified time or period expressed 

as a tangible, measurable and defined outcome, against which actual achievement can be 

compared, including a goal expressed as a quantitative standard, value, or rate. A performance 

goal is comprised of a performance measure with targets and timeframes. 

Performance Measures. Indicators, statistics, or metrics used to gauge program 

performance. Collectively, measures convey a comprehensive story regarding what products and

services agencies provide, how well they do so, and with what result. 

1419.6 - Performance Accountability 

Internal controls are an integral part of the entire agency cycle of planning, budgeting, 

management, accounting, reporting, and auditing. The Forest Service is establishing the 

following internal controls to facilitate improved performance accountability reporting: 

1. Performance Measures Data Review (FSM 1419.61). 

2. Performance Reporting Certification (FSM 1419.62). 

3. Supplemental Review (FSM 1419.63). 

4. Independent Validation of Performance Measures (FSM 1419.64). 

 (ATTACHMENT A) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-141 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

WO Interim Directive 

EFFECTIVE DATE: 02/16/2005 

DURATION: This interim directive expires on 08/16/2006. 

id_1410-2005-1 

Page 8 of 10 

FSM 1400 - CONTROLS 

CHAPTER 1410 - MANAGEMENT REVIEWS 

1419.61 - Performance Measures Data Review 

In response to recommendations noted in the Office of Inspector General (OIG) audit titled, 

“Implementation of the Government Performance Results Act in the Forest Service,” the agency 

is implementing an internal control data review process to validate the information reported in its 

national performance measures. For FY 2005, the review will only encompass the Executive 

Priorities performance measures. The intent is to implement this new process with minimum 

impact to the Field. Thus it is expected that the Regions, Stations, and Area (RSA) will 

incorporate this process as part of the standard management/activity review format. 

Specifically, these reviews will be conducted by using the Performance Measures Review 

Template. See Exhibit 01. Each RSA will review all applicable Executive Priorities measures 

for at least 2 of their reporting units each fiscal year. Ultimately, each RSA’s reporting unit will 

have at least one performance review every three-five years. 

The following are examples of how this review would be implemented: 

1. A Region will review each Executive Priorities measure on a minimum of two forests, 

or 

2. A Region assigns each regional staff officer with their appropriate Executive 

Priorities, requesting the officer to validate the process in two separate reporting locations during 

the fiscal year. 

The Washington Office (WO) Staff Directors are expected to participate in performance reviews 

to provide oversight and performance measures expertise and to address inconsistencies 

identified across multiple Regions, Stations, and Areas (RSAs). The RSAs are responsible for 

collecting the completed templates for their units, conducting an initial review of the results, and 

maintaining a file of the reviews and any supporting documentation. The RSAs then forward 

signed templates to the WO Strategic Planning and Resource Assessment (SPRA) Staff for 

preparation of a performance review summary report. SPRA will distribute the templates to the 

appropriate WO Staff Directors. The WO Directors are responsible for addressing any 

inconsistencies and sending the results of their analysis to the affected RSA and to SPRA to 

assure all issues are accounted for and/or resolved. 

 (ATTACHMENT A) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-142 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

WO Interim Directive 

EFFECTIVE DATE: 02/16/2005 

DURATION: This interim directive expires on 08/16/2006. 

id_1410-2005-1 

Page 9 of 10 

FSM 1400 - CONTROLS 

CHAPTER 1410 - MANAGEMENT REVIEWS 

1419.61- Exhibit 01

Performance Measures Review Template

USDA Forest Service 

Performance Measures Review Template 

(For Executive Priority Measures only) 

Performance Measure: 

Review Unit: Region1 Review Date: 3/05/2006 

Reviewers: 

Ms. Velma Davis 

WO Staff/Program EXAMPLE: NFS-RGE, SP&F-CF

Official Performance 

Measure Definition 

SOURCE: WORKPLAN AND PROGRAM DIRECTION. 

Unit of Measure SOURCE: WORKPLAN AND PROGRAM DIRECTION. 

Reported Value THIS IS THE MOST RECENTLY REPORTED QUARTERLY VALUE. 

Year/Month YEAR/MONTH OF THE MOST RECENTLY REPORTED VALUE.

Method of 

Measurement 

HOW THE MEASURE WAS CALCULATED (I.E., CONVERSION 

FACTORS; PROTOCOLS USED; HOW QUANTIFIED; DATA USED; ETC.) 

Verified Value THE VALUE DETERMINED BY REVIEWER(S). 

Verification Method METHODOLOGY USED BY REVIEWER(S) TO DETERMINE VALUE.

Finding(s) and 

Recommendation(s)

DID THE REPORTED VALUE APPEAR TO BE CONSISTENT WITH THE 

DEFINITION BASED ON THE REVIEWERS’ OPINION? 

Comments EXPLAIN ANY DIFFICULTIES IN MEASUREMENT AND VERIFICATION;

USEFULNESS OF MEASURE; ETC.

Routing Required Actions 

RSAs RETAIN COPY FOR OFFICIAL FILE AND THE END OF YEAR 

CERTIFICATION. 

Director of SPRA RECEIVE RSA SUBMITS, TRANSIT TO THE STAFF DIRECTORS, AND 

PREPARE A SUMMARY REPORT. 

WO Staff Director(s) REVIEW AND TAKE ACTION AS NECESSARY. IF ACTION TAKEN,

FORWARD RESULTS TO SPRA. 

 (ATTACHMENT A) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-143 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

WO Interim Directive 

EFFECTIVE DATE: 02/16/2005 

DURATION: This interim directive expires on 08/16/2006. 

id_1410-2005-1 

Page 10 of 10 

FSM 1400 - CONTROLS 

CHAPTER 1410 - MANAGEMENT REVIEWS 

1419.62 - Performance Reporting Certification 

The Forest Service will continue to use the “Performance Reporting Certification Statement” to 

assure that the performance information reported has been carefully reviewed and validated as 

complete and accurate. The certification document must be signed by the Regional Forester, 

Station Director, Area Director, or an appointed substitute. The certification form will be sent by 

the Washington Office with a letter of explanation approximately 60 days prior to the date the 

information will be due. The format and process will be similar to that used in FY 2004. All 

completed performance review templates should be submitted prior to or along with the 

Performance Reporting Certification Statement. 

1419.63 - Other Agency Reviews 

Internal, or management controls, cover all aspects of an organization’s operations – program, 

administrative, financial, and compliance. To effectively assess and monitor internal controls, 

Forest Service managers should use the following sources, in addition to the Performance 

Measures Review Template (Exhibit 01), to ensure improved collection, interpretation, and 

reporting of accomplishment data and performance measures: 

1. Management knowledge gained from the daily operation of agency programs. 

2. Management reviews conducted to assess internal control or for other purposes. 

3. Program activity evaluations. 

4. Annual performance plans and reports. 

5. Program Assessment Rating Tool (PART). 

6. Other reviews or reports relating to agency operations. 

 1419.64 - Independent Validation of Performance 

The Agency’s performance measures will be subjected to independent validation by the 

Government Accountability Office (GAO) and/or the USDA Office of Inspector General (OIG). 

As part of the OIG financial statement audit process, the auditors will review the Performance 

and Accountability Report and conduct an independent assessment on the reported performance 

information. Performance information is also subject to review by other entities. 

 (ATTACHMENT A) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-144 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

File Code: 6140-3 Date: February 28, 2005 

Route To: (6140-3) 

Subject: Performance Management System - Alignment with Agency Goals and Objectives 

To: Regional Foresters, Station Directors, Area Director, IITF Director, and WO Staff 

 

REPLY DUE APRIL 1, 2005 

A new supplemental performance standard that aligns the Forest Service Performance Appraisal 

System with Agency goals and objectives for non-SES employees is being established. The 

supplemental standard establishes a closer tie between organizational performance and the 

performance ratings of employees. This is necessary to administering a performance 

management system that meets U.S. Department of Agriculture (USDA) and Office of Personnel 

Management (OPM) requirements to effectively link individual performance to organizational 

goals and desired outcomes; to comply with the President’s Management Agenda (PMA) 

Scorecard criteria for green (performance appraisal plans aligned with agency mission and goals 

through the organizational chain by January 1, 2005); and to integrate the Creditability Through 

Accountability (CTA) initiative within performance management. 

To effectively implement this initiative, we asked for your preliminary review and comments. 

Based on the feedback provided, we believe implementation can be accomplished in conjunction 

with the mid-year performance review cycle. 

Previously, in May 2004, Departmental and Agency direction was provided to Forest Service 

units that performance plans for all SES executives and GS-15 and GS-14 supervisors and 

managers required linkages to agency goals and objectives as of June 30, 2004. Subsequently, 

we are required to link agency goals and objectives to the remainder of the workforce. 

Effective January 1, 2005, the Performance Plan and Appraisal Form (FS-6100-37) for all 

employees is supplemented with the following performance standard to Performance Element 1 

– Managing Work Assignments: 

 Performance Element 1 – Managing Work Assignments: 

Performance standard “a” has been revised to read as follows: Manages assignments and 

prioritizes work effectively; turns in acceptably accurate and timely products. Optimizes 

the use of all available resources and develops solutions, demonstrating positive 

approaches toward the job and accomplishments. Demonstrates support in the 

accomplishment of individual and or team assignments based on the unit’s assigned 

targets and commitments as coordinated between the supervisor and employee, and 

which are linked to one or more of the following, where they exist: 1) unit work plans; 2) 

organizational objectives; 3) Chief’s top 20 Performance Measures; 4) Forest Service 

Strategic Plan, and or 5) the Forest Service Business Operations Strategic Plan. 

 (ATTACHMENT B) 

United States 

Department of 

Agriculture

Forest 

Service 

Washington 

Office 

1400 Independence 

Avenue, SW 

Washington, DC 20250

 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-145 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

Strategic Objectives are as follows: 

a. Identified Annual Targets and or Goals: _______________________________ 

 b. Identified Annual Commitments: ____________________________________ 

A copy of FS-6100-37 with the supplemented standard is attached. This supplementation is 

mandatory and applicable to all employees who are covered by the Forest Service Performance 

Management Program, FSH 6109.13 (temporary, seasonal, and permanent employees). 

Implementation for permanent employees is to begin immediately, whereas for any temporary or 

seasonal employees that may be off the rolls or in a non-pay status, implementation would be 

effective upon their return to duty or pay status. Supervisors should establish performance plans 

for new hires or employees who are placed into new positions within 30 days. 

The addition of the supplemental standard is a negotiated agreement between the USDA Forest 

Service and the National Federation of Federal Employees. 

Supervisors are responsible to explain how this supplemental standard applies to the 

individual’s work assignment. The supplemental standard needs to be a discussion point 

between the supervisor and employee during their performance review. Performance evaluations 

based upon contributions to organizational results will make agency-wide goals and objectives 

personally relevant. 

The information on the sample plans included as enclosures demonstrate how to tie specific work 

assignments and goals with specific desired outcomes. These are also cross referenced to the 

specific strategic planning documents from which the goals are taken and are tiered to those of 

the Agency. This creates a clear line of sight between the agency strategic plan and performance 

on the ground. The USDA Forest Service Strategic Plan is found at 

http://www.fs.fed.us/publications/strategic/fs-sp-fy04-08.pdf; the Forest Service Business 

Operations Strategic Plan is found at http://fsweb.wo.fs.fed.us/busops/docs/bosp_v2.pdf; and the 

Chief’s Top 20 (Executive Priorities for 2005) are located at 

http://fsweb.wo.fs.fed.us/pdb/Program%20Direction/FY%202005/06_Performance%20Reportin

g/Accomp_pd2005_12Jan 05.pdf. 

All units are requested to provide certification that the supplemental performance standard has 

been included in the 2005 Performance Plan and Appraisal (FS-6100-37) for applicable 

employees. Please provide certification of completion to Anita Adkins in WO HRM no later 

than April 1, 2005. If you have any questions concerning implementation of the above or need 

additional examples, please contact Anita Adkins, Human Resources Specialist at (703) 605-

0846 for additional information. 

/S/ CHRISTIOPHER L. PYRON 

/s/ Christopher L. Pyron 

CHRISTOPHER L. PYRON 

Deputy Chief for Business Operations 

Enclosures (5) 

cc: Anita Adkins-WO/HRM – LMER Staff 

 

 (ATTACHMENT B) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-146 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

USDA Forest Service, FS-6100-37 (/97)

12. PERFORMANCE ELEMENTS AND STANDARDS SUCCESSFUL UNACCEPTABLE

ELEMENT 1: MANAGING WORK ASSIGNMENTS 

(Critical) 

Standards: 

a. Manages assignments and prioritizes work effectively; turns in acceptably accurate and timely 

products. 

b. Listens and responds to needs of customer/clients. Shows efforts to incorporate and respond to 

customer when feasible. 

c. Meets commitments made to customers/clients and coworkers in a timely and effective manner. 

d. Completes work assignments on time or negotiates changed due dates with supervisor. 

e. Provides sufficient warning of impending work management crises. 

f. Completes work without supervisor's being required to check on progress. 

g. Performs work in a careful manner. 

h. Stays within budget and follows agency policy regarding meetings, procurement, personnel, and 

computer use in completing assignments. 

Supplemental Standards: (Optional)

a. Performance Standard "a" above is further defined in support of Forest Service mission results. 

Optimizes the use of all available resources and develops solutions, demonstrating positive 

approaches toward the job and accomplishments. Demonstrates support in the accomplishment of 

individual and/or team assignments based on the unit's assigned targets and commitments as 

coordinated between the supervisor and employee, and which are linked to one or more of the 

following, where they exist: 1) unit work plans; 2) organizational objectives; 3) Chief's top 20 

Performance Measures; 4) Forest Service Strategic Plan; and/or the 5) Forest Service Business 

Operations Strategic Plan. 

 Strategic Objectives as follows: 

 A) Identified Annual Targets and or Goals: ___________________________________________ 

 B) Identified Annual Commitments: _________________________________________________ 

 

 

 (ATTACHMENT B) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-147 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

USDA Forest Service Forestry Technician, GS-0462-05 FS-6100-37(/97) 

12. PERFORMANCE ELEMENTS AND STANDARDS SUCCESSFUL UNACCEPTABLE

ELEMENT 1: MANAGING WORK ASSIGNMENTS 

(Critical) 

Standards: 

a. Manages assignments and prioritizes work effectively; turns in acceptably accurate and timely 

products. 

b. Listens and responds to needs of customer/clients. Shows efforts to incorporate and respond to 

customer when feasible. 

c. Meets commitments made to customers/clients and coworkers in a timely and effective manner. 

d. Completes work assignments on time or negotiates changed due dates with supervisor. 

e. Provides sufficient warning of impending work management crises. 

f. Completes work without supervisor's being required to check on progress. 

g. Performs work in a careful manner. 

h. Stays within budget and follows agency policy regarding meetings, procurement, personnel, and 

computer use in completing assignments. 

Supplemental Standards: (Optional)

a. Performance Standard "a" above is further defined in support of Forest Service mission results. 

Optimizes the use of all available resources and develops solutions, demonstrating positive 

approaches toward the job and accomplishements. Demonstrates support in the accomplishment of 

individual and/or team assignments based on the unit's assigned targets and commitments as 

coordinated between the supervisor and employee, and which are linked to one or more of the 

following, where they exist: 1) unit work plans; 2) organizational objectives; 3) Chief's top 20 

Performance Measures; 4) Forest Service Strategic Plan; and/or 5) the Forest Service Business 

Operations Strategic Plan. 

 Strategic Objectives as follows: Identified from the District's Performance Work Plans - 

 A) Identified Annual Targets and or Goals: For GS-5 Trails position: 

 Maintain 60 miles of system trail (Poverty Creek and Crawfish Valley systems) to standard. 

 Lead trail crew in completion of 2.7 miles of new trail at Glen Alton by August 1. 

 Conduct at least two "Leave No Trace" Workshops to increase public awareness in utilization of 

public lands. 

 B) Identified Annual Commitments:For GS-5 trails position: 

 Complete the on-the-ground lay out for proposed new trails that connect to the White Cedar horse 

camp by April 1, weather permitting. 

 Complete new trail construction by July 1. 

 Provide tailgate safety sessions with summer trail crew at the beginning of each project or at least 

beginning of each week on longer projects to provide knowledge of safe work practices and activities. 

 Meet approximately every 6 months with the AT trail clubs, as schedules allow. 

 

 (ATTACHMENT B) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-148 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

USDA Forest Service Forestry Technician, GS-0462-09 FS-6100-37 (/97) 

12. PERFORMANCE ELEMENTS AND STANDARDS SUCCESSFUL UNACCEPTABLE

ELEMENT 1: MANAGING WORK ASSIGNMENTS 

(Critical) 

Standards: 

a. Manages assignments and prioritizes work effectively; turns in acceptably accurate and timely 

products. 

b. Listens and responds to needs of customer/clients. Shows efforts to incorporate and respond to 

customer when feasible. 

c. Meets commitments made to customers/clients and coworkers in a timely and effective manner. 

d. Completes work assignments on time or negotiates changed due dates with supervisor. 

e. Provides sufficient warning of impending work management crises. 

f. Completes work without supervisor's being required to check on progress. 

g. Performs work in a careful manner. 

h. Stays within budget and follows agency policy regarding meetings, procurement, personnel, and 

computer use in completing assignments. 

Supplemental Standards: (Optional)

 a. Performance Standard "a" above is further defined in support of Forest Service mission results. 

Optimizes the use of all available resources and develops solutions, demonstrating positive 

approaches toward the job and accomplishments. Demonstrates support in the accomplishment of 

individual and/or team assignments based on the unit's assigned targets and commitments as 

coordinated between the supervisor and employee, and which are linked to one or more of the 

following, where they exist: 1) unit work plans; 2) organizational objectives; 3) Chief's top 20 

Performance Measures; 4) Forest Service Strategic Plan; and/or 5) the Forest Service Business 

Operations Strategic Plan. 

 Strategic Objectives as follows: Identified from the District's Performance Work Plans - 

 A) Identified Annual Targets and or Goals: For GS-9 Recreation Manager: 

 Complete electric upgrades to Stony Fork Campground, coordinating with SO Engineering. 

 Complete trail restoration and warning sign installation at Cascade Falls , working w/SO on wording 

for signs and minimizing impact to visitors during trail work, by September 1. 

 Complete NEPA for new trails associated with horse camp by March 1. 

 B) Identified Annual Commitments: For GS-9 Recreation Manager: 

 Ensure no deficit in NFRW. 

 Provide oversight of host program, with particular attention to host situation at White Rocks 

Campground. 

 Update five of the developed recreation site brochures by March 1. 

 Update all developed recreation information on the web site by February 1. 

 Ensure timely completion and administration of recreation special use permits.. 

 

 (ATTACHMENT B) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-149 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

USDA Forest Service Information Receptionist, GS-1001-05 FS-6100-37 (/97)

12. PERFORMANCE ELEMENTS AND STANDARDS SUCCESSFUL UNACCEPTABLE

ELEMENT 1: MANAGING WORK ASSIGNMENTS 

(Critical) 

Standards: 

a. Manages assignments and prioritizes work effectively; turns in acceptably accurate and timely 

products. 

b. Listens and responds to needs of customer/clients. Shows efforts to incorporate and respond to 

customer when feasible. 

c. Meets commitments made to customers/clients and coworkers in a timely and effective manner. 

d. Completes work assignments on time or negotiates changed due dates with supervisor. 

e. Provides sufficient warning of impending work management crises. 

f. Completes work without supervisor's being required to check on progress. 

g. Performs work in a careful manner. 

h. Stays within budget and follows agency policy regarding meetings, procurement, personnel, and 

computer use in completing assignments. 

Supplemental Standards: (Optional)

a. Performance Standard "a" above is further defined in support of Forest Service mission results. 

Optimizes the use of all available resources and develops solutions, demonstrating positive 

approaches toward the job and accomplishements. Demonstrates support in the accomplishment of 

individual and/or team assignments based on the unit's assigned targets and commitments as 

coordinated between the supervisor and employee, and which are linked to one or more of the 

following, where they exist: 1) unit work plans; 2) organizational objectives; 3) Chief's top 20 

Performance Measures; 4) Forest Service Strategic Plan; and/or 5) the Forest Service Business 

Operations Strategic Plan. 

 Strategic Objectives as follows: Identified from the Unit's Performance Work Plans - 

 A) Identified Annual Targets and or Goals: 

 Provide support in adminstation of unit's correspondence and office management functions to effect a 

smooth flow of operations which are responsive to internal and external customer needs. 

 Exceeds customers' expectations in providing business services and products by serving as the first 

point of contact for the public. Customer complaints decrease from the previous year. 

 B) Identified Annual Commitments: 

 

 (ATTACHMENT B)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-150 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

USDA Forest Service Environmental Engineer, GS-0810-13 FS-6100-37 (/97)

12. PERFORMANCE ELEMENTS AND STANDARDS SUCCESSFUL UNACCEPTABLE

ELEMENT 1: MANAGING WORK ASSIGNMENTS 

(Critical) 

Standards: 

a. Manages assignments and prioritizes work effectively; turns in acceptably accurate and timely 

products. 

b. Listens and responds to needs of customer/clients. Shows efforts to incorporate and respond to 

customer when feasible. 

c. Meets commitments made to customers/clients and coworkers in a timely and effective manner. 

d. Completes work assignments on time or negotiates changed due dates with supervisor. 

e. Provides sufficient warning of impending work management crises. 

f. Completes work without supervisor's being required to check on progress. 

g. Performs work in a careful manner. 

h. Stays within budget and follows agency policy regarding meetings, procurement, personnel, and 

computer use in completing assignments. 

Supplemental Standards: (Optional)

a. Performance Standard "a" above is further defined in support of Forest Service mission results. 

Optimizes the use of all available resources and develops solutions, demonstrating positive 

approaches toward the job and accomplishments. Demonstrates support in the accomplishment of 

individual and/or team assignments based on the unit's assigned targets and commitments as 

coordinated between the supervisor and employee, and which are linked to one or more of the 

following, where they exist: 1) unit work plans; 2) organizational objectives; 3) Chief's top 20 

Performance Measures; 4) Forest Service Strategic Plan; and/or 5) the Forest Service Business 

Operations Strategic Plan. 

 Strategic Objectives as follows: As identified in the Forest Service Strategic Plan and Forest Service 

 Business Operations Strategic Plan. 

 A) Identified Annual Targets and or Goals: 

 3.1.2. Customer service standards established for major internal and external programs. 

 4.3.c. Provide guidance to implement EMS across the agency to meet Presidential mandate. 

 5.2.d. Monitor to reduce the number of significant non-compliance potable water systems. 

 B) Identified Annual Commitments: 

 4.1.1. Complete all health and safety action plan items and implement organizational changes based 

on FY-03 audit. 

 5.1.a. ___ % of manuals and handbooks are updated and meet current standards (FY05). 

 5.1.b. 80% of controlled corresponsence responded to within given timeframes upon receipt from 

controlled correspondence office. 

 5.1.d. Scheduled reviews will be accomplished on time. 

 

 (ATTACHMENT B)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-151 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

File Code: 6140-3 Date: June 8, 2005

Route To: (6140-3) 

Subject: Performance Management Plans for Senior Executives - FY 2005 

To: Regional Foresters, Station Directors, Area Director, IITF Director, and WO Staff 

 

REPLY DUE JUNE 24, 2005 AND JULY 15, 2005 

By now, most of you have prepared your FY 2005 performance plans and related documents. 

However, for those of you who have not, this letter will serve as a reminder that performance 

plans for fiscal year 2005 must all be complete and in place for all Senior Executive Service 

(SES) members by no later than June 24, 2005. New SES members should have their plans 

established within 30 days of their entry into their new position. 

As you all know, a new system that links pay and performance for the Senior Executive Service 

(SES) was established last year as a result of the National Defense Authorization Act of 2003 

(Public Law 108-136, November 24, 2003). The primary reason for the change was to establish 

a closer tie between organizational performance and the performance ratings of its leaders. Under 

the law, the USDA plan must be certified by Office of Personnel Management (OPM) (with 

input from the Office of Management and Budget (OMB)) in order for the pay cap for Senior 

Executives to be raised. As was the case last year, this year’s plan has received a one-year 

“provisional” certification. 

To maintain certification we must ensure that we have a performance management system that 

effectively links individual/team/unit performance to organizational goals and desired outcomes 

and that meets OPM’s requirements. Each executive’s performance measures document needs to 

identify specific measures/indicators for each performance element. In addition, non-SES 

employees must also have measures that are aligned with agency goals and objectives as 

discussed in our 6140-3 letter dated February 28, 2005, Subject: Performance Management 

System--Alignment with Agency Goals and Objectives. 

Senior Executive performance plan packages for fiscal year 2005 should be similar to those 

prepared for fiscal year 2004, and should include the following documents: 

A. Performance Agreement - Signed by the Senior Executive and his/her supervisor, 

outlining the performance elements and performance requirements (standards) (Enclosure 1). 

All Senior Executives’ plans shall include the following performance elements: 

1) Leadership/Management – Critical element 

2) Mission Results – Critical element 

 

 Caring for the Land and Serving People Printed on Recycled Paper 

 (ATTACHMENT C)

United States 

Department of 

Agriculture

Forest 

Service 

Washington 

Office 

1400 Independence 

Avenue, SW 

Washington, DC 20250
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-152 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

Regional Foresters, Station Directors, Area Director, IITF Director, and WO Staff Page 2 

3) Civil Rights – Critical element 

This element must be connected to ASCR memo of May 4, 2005 (see http://fsweb.wo.fs.fed.us/cr/) 

that stipulates that the Agencies will be rated beginning FY’05 by quantitative measures. 

(Written accomplishments are due to your supervisor and the WO CR Director by July 15th of 

each year.) 

4) Personal/Organizational Emphases – Non-critical element. Each Senior Executive 

will have one unique element that he or she will negotiate with his or her supervisor. It will 

address Personal/Organizational Emphases (generally 1-3 emphasis areas) that will contribute 

significantly to overall accomplishment for the Senior Executive’s organization. This will have 

the effect of personalizing the PWP to identify meaningful performance requirements (standards) 

that vary based on the unique needs of the organization led and the executive’s personal 

influence on the organization. The particular measures will be identified in the process of 

identifying which organizational issues need special attention for the individual Senior 

Executive. 

5) Safety, Health and/or Homeland Security – Critical element (For Regional Foresters, 

Station Directors, Area Director, and Deputy Chiefs/Associate Deputy Chiefs), or 

Safety - Critical element (For all Staff Directors). 

A. Performance Measures – In a separate document, each Senior Executive shall identify all 

the performance measures in each of the strategic plans that apply to them. The performance 

measures are to cross-reference and tier to the specific goals and objectives, the strategic 

planning documents they are related to, and to the specific performance element. References to 

the applicable strategic document(s) should be included with each performance measure. 

Accomplishing the measures will ensure appropriate progress against the multi-year 

implementation strategies. That is, the measures ensure that the strategic plans will be 

accomplished in the timeframe of the plan (e.g.; 5 years for the Forest Service Strategic Plan). 

The strategic planning documents include the President’s Management Agenda; the USDA 

Strategic Plan; Forest Service Strategic Plan 2004-2008; Business Operations Strategic Plan, 

Version 2, October 2004; the Assistant Secretary for Civil Rights letter dated May 4, 2005; and 

the Safety & Health Action Plan (2005). 

The links to the websites you will need to reference for applicable performance measures/ 

indicators related to agency strategic documents and the element to which they are pertinent is 

listed in parentheses as follows: 

• Forest Service Strategic Plan 2004-2008- http://fsweb.wo.fs.fed.us/rpa/ (primarily Mission 

Results)

• Business Operations Strategic Plan (Version 2, October 2004)

http://fsweb.wo.fs.fed.us/busops/docs/bosp v2.pdf (Leadership/Management) 

• Assistant Secretary for Civil Rights letter dated May 4, 2005 - http://fsweb.wo.fs.fed.us/cr/

and http://fsweb.wo.fs.fed.us/cr/CRAgyHeadassessment.doc (Civil Rights)

 (ATTACHMENT C) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-153 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

Regional Foresters, Station Directors, Area Director, IITF Director, and WO Staff Page 3 

• Safety & Health Action Plan (2005) 

http://fsweb.wo.fs.fed.us/OSOH/prog_elements/analysis.htm -click on Regional Foresters 

Evaluation Form OR Station Directors Evaluation Form OR Deputy Chiefs Evaluation 

Form. (Safety, Health and/or Homeland Security). Staff Directors should address items 

such as awareness and support in their Safety element.

• Executive Priorities – FY 2005 Plan|Executive Priority (see http://fsweb.wo.fs.fed.us/results/)

(Mission Results)

C. Form AD-435-C (9/04), Senior Executive Service Appraisal Record (Enclosure 2) – 

Sections with Personal and Performance Element information to be completed 

D. SES Executive Development Plan (Enclosure 3) – Plan to be completed and signed by 

Senior Executive. 

All Senior Executives are to send their completed performance plans (including items A through 

D above) to their supervisor by no later than June 24, for their review and approval, if not 

previously approved. All plans must be approved prior to June 30, 2005. 

If you have questions about any of the above, please contact Patty Bachtel at (703) 605-0854 or 

Darlene Herald at (703) 605-0834. 

/s/ Robin L. Thompson (for) 

DALE N. BOSWORTH 

Chief 

Enclosures 

cc: Paul Brouha, Kathleen Gause, Ronald Banegas, Hank Kashdan, Dick King 

(ATTACHMENT C) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-154 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

USDA Senior Executive Service

Performance Agreement 

Executives in the Department of Agriculture are accountable for supporting the Department’s 

mission to provide leadership on food, agriculture, natural resources, and related issues based on 

sound public policy, the best available science, and efficient management. The Department’s 

strategic goals are: 

 Expand markets for agricultural products and support international economic 

development; 

 Further develop alternative markets for agricultural products and activities; 

 Provide financing needed to help expand job opportunities and improve housing, utilities 

and infrastructure in Rural America; 

 Enhance food safety by taking steps to reduce the prevalence of foodborne hazards from 

farm to table; 

 Improve nutrition and health by providing food assistance and nutrition education and 

promotion; and 

 Manage and protect America’s public and private lands working cooperatively with other 

levels of government and the private sector. 



Appraisal Period: 

 

Employee Name: 

 

SSN: 

Position Title: Series and Salary: 

Organization: 

Certification of development and receipt of Performance Agreement 

Signatures certify discussion with employee and receipt of Performance Agreement which 

reflects current position description. 

Employee Signature: Date 

Supervisor’s Signature: Date 

Reviewing Official’s Signature: Date 

PROGRESS REVIEWS 

Employee’s Initials & Date Employee’s Initials & Date Employee’s Initials & Date 

Supervisor’s Initials & Date Supervisor’s Initials & Date Supervisor’s Initials & Date 

 (ATTACHMENT C) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-155 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

ELEMENT 1: Leadership/Management (critical):

Leads organizational change, motivating managers to incorporate vision, strategic planning and 

results-driven management into full range of the organization’s activities. Addresses 

programmatic and organization requirements as necessary to motivate and lead organization. 

Designs and implements strategies to maximize employee potential in meeting organization’s 

mission and goals. Acquires and administers human, financial, material, and information 

resources in a manner which instills public trust and accomplishes the organization’s mission and 

uses new technology to enhance decision making. 

Provides leadership to develop and implement strategic plans for civil rights. Enforces all civil 

rights laws, rules, regulations, and executive orders in leading and managing organization. 

Provides leadership in the accomplishment of agency programs or service functions, 

incorporating the Forest Service Goals and Objectives in the Strategic Plan for FY 2004-2008 

into program administration. Supports the President’s priorities as well as those established by 

the Secretary. 

Fully Successful Performance Requirement – Element 1: 

Human, financial and property resources were effectively managed to achieve performance goals. 

Current and future needs assessments were based on organizational goals and budget realities, 

and opportunities to reduce program and administrative costs were sought. 

Management control systems were established/maintained to monitor activities, identify problem 

areas, and initiate timely corrective action. 

Employee performance plans are aligned with organizational goals and focus on results achieved. 

Data from employee feedback indicates improvement in or general satisfaction with the planning, 

developing, monitoring, rating and rewarding of performance. 

Agency Civil Rights Plan and Strategic Plan were implemented timely. All applicable goals and 

objectives related to accountability, program delivery, outreach, workforce diversity, employment 

practices, resources and structure, performance, procurement activities, and communications were

met in accordance with Department and agency policy. 

A results-oriented annual performance plan that included performance measures consistent with 

GPRA requirements was implemented. Program goals were accomplished within specified 

timeframes. Interests were balanced and priorities were adjusted in response to changing 

demands. Customer feedback was analyzed and needs/concerns identified 

For Performance Measures, see attachment. (Refer to 6140-3 WO Letter for links to sites with 

performance measures & allocated targets identified in the Forest Service Program Direction.)

Rating: 

 Exceeds Fully Successful 

 Meets Fully Successful 

 Does Not Meet Fully Successful 

 (ATTACHMENT C) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-156 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

ELEMENT 2: Mission Results (Critical)

Demonstrates support for business strategic goals and initiatives within own organization and 

contributes to the achievement of overall USDA initiatives. Stresses accountability and 

continuous improvement to managers, makes timely and effective decisions, and produces results 

through strategic planning and the implementation and evaluation of programs and policies. 

Provides leadership for developing and implementing program initiatives, including Forest 

Service Goals and Objectives in the Strategic Plan for FY 2004-2008. 

Ensures a high degree of responsiveness to organizational leadership, the public, and internal and 

external customers. Continually reviews, monitors, and strives to improve organizational 

performance to achieve USDA mission results. 

Enforces all civil rights laws, rules, regulations, and executive orders in accomplishing the 

agency’s mission 

Fully Successful Performance Requirement – Element 2: 

Addresses identified business priorities through activities that produced measurable results. New 

insights and innovative solutions were developed, where needed, which resulted in progress to 

resolve difficult issues, improve management or capitalize on emerging opportunities. 

Recommendations and contributions were generally accepted because they were based on and 

demonstrated sound judgment, cost effectiveness, and sensitivity to the effects on overall policy, 

and were supported by sound analysis and rationale. 

The mission area and agency’s mission, core values, strategic goals and priorities were effectively

communicated to employees, customers and other critical stakeholders who were involved in the 

development of objectives to accomplish those goals. 

Administration and Department policies were supported and promoted in an affirmative manner. 

Policy issues were analyzed and strategic plans were developed from a long-term perspective. 

Strategies were developed and implemented that were consistent with the economic and political 

climate and agency goals. 

Superiors were informed of sensitive and controversial emerging issues as well as problems and 

challenges that arose in the implementation and administration of Department programs. 

Established schedules and deadlines for development of programs and policies were met and 

adaptations to changing priorities were made. 

For Performance Measures, see attachment. (Refer to 6140-3 WO Letter for links to sites with 

performance measures & allocated targets identified in the Forest Service Program Direction.)

Rating: 

 Exceeds Fully Successful 

 Meets Fully Successful 

 Does Not Meet Fully Successful 

 (ATTACHMENT C) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-157 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

ELEMENT 3. Civil Rights (Critical) 

Provides leadership to develop and implement strategic plans for civil rights. Enforces all civil 

rights laws, rules, regulations, and executive orders. Ensures that sufficient resources are 

available to provide for an effective civil rights program. Holds all managers and supervisors 

accountable for achieving measurable civil rights goals and objectives in all employment, 

program delivery, and procurement activities. 

Fully Successful Performance Requirement – Element 3: 

Incorporates the Civil Rights Performance Plan into the agency or staff office strategic and annual

performance plans developed in compliance with the Government Performance and Results Act. 

Implements and enforces all applicable policies, regulations, rules, memoranda, and other USDA 

guidance. 

For Performance Measures, see attachment. (Refer to 6140-3 WO Letter for links to sites with 

performance measures & allocated targets identified in the Forest Service Program Direction.)

Rating: 

 Exceeds Fully Successful 

 Meets Fully Successful 

 Does Not Meet Fully Successful 

 (ATTACHMENT C) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-158 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

ELEMENT 4. Personal/Organizational Emphases (Non-critical) 

Include a description of what this element means. 

(This is where each SES executive has the opportunity to include a unique element that

he/she will negotiate with his/her supervisor. It will address Personal/Organizational 

Emphases {generally 1-3 emphasis areas} that will contribute significantly to overall 

accomplishment for the senior executive’s organization. This will have the effect of 

personalizing the Performance Agreement to identify meaningful performance 

requirements (standards) that vary based on the unique needs of the organization led 

and the executive’s personal influence on the organization. The particular measures 

will be identified in the process of identifying which organizational issues need special 

attention for the individual executive.) 

Fully Successful Performance Requirement – Element 4: 

For Performance Measures, see attachment. 

(Performance measures will be those agreed to between executive and his/her supervisor when 

determining what this element will measure.) 

With respect to this element, enforces all civil rights laws, rules, regulations, and executive 

orders. 

Rating: 

 Exceeds Fully Successful 

 Meets Fully Successful 

 Does Not Meet Fully Successful 

 (ATTACHMENT C) 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-159 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

ELEMENT 5. Safety, Health, & Homeland Security (Critical). (Mandatory for Regional 

Foresters, Station Directors, Area Director, Deputy Chiefs and Associates Deputy Chiefs) 

ELEMENT 5. Safety (Critical) (Mandatory for all Staff Director.)

Incorporates safety, health, and homeland security considerations into work projects, activities, 

and program policies, resulting in a workplace that is free from recognized hazards. 

Fully Successful Performance Requirement – Element 5: 

For Performance Measures, see attachment. (Refer to 6140-3 WO Letter for links to sites with 

performance measures & allocated targets identified in the Forest Service Program Direction.)

With respect to this element, enforces all civil rights laws, rules, regulations, and executive 

orders. 

Rating: 

 Exceeds Fully Successful 

 Meets Fully Successful 

 Does Not Meet Fully Successful 

 (ATTACHMENT C)
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-160 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-161 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

(ATTACHMENT D)

REGION Accomplishment Certification Report Date Updated: 

REGION ...... Fiscal Year 2005 Accomplishments

Program 

Direction Projected Total Projected %

Accomplishment Code Accomplishment Description Target Accomplishment Accomplished Exceptions

FC-FAC-MNT-FN-NUM _Number of facilities maintained to standard %

FM-STEWARD-FN

_Stewardship Contract Improvements - Acres of 

contracts and agreement awarded %

FP-FUELS-ACRES-FN

_Acres treated in cond class 2 or 3 in fire regimes 1, 

2, or 3 outside the WUI (non-WUI subset) %

FP-FUELS-ACRES-FNOTH

_Haz fuels in cond class 2 or 3 treated w/ other 

dollars outside the WUI (fire regimes 1,2, or 3) %

FP-FUELS-ALL-FN

_Haz fuels in regimes 1, 2, or 3 moved to a better 

condition class -- WUI & non-WUI %

FP-FUELS-WUI-FN

_Wildland/urban interface (WUI) high-priority 

hazardous fuels treated w/Fuels $ %

FP-FUELS-WUI-FNOTH

_Wildland/urban interface (WUI) high-priority 

hazardous fuels treated w/other $ %

IM-LMP-M&E-FN

_Land Management Plan (LMP) Monitoring and 

Evaluation Reports %

LA-LND-PURCH-FN _Acres Acquired %

LM-ENG-EXC-FN

_Number of energy facility applications processed 

exceeding prescribed timeframes %

LM-ENG-FAC-FN-NUM

_Number of energy facility applications processed 

within prescribed timeframes %

LM-OWNER-ADJ-FN _Acres Adjusted %

LM-ROW-ACQ-FN _Rights-of-way acquired %

MG-OG-APP-FN

_Oil and Gas applications processed in prescribed 

timeframes %

MG-OG-EXC-FN

_Oil and Gas applications not processed or pending 

longer than prescribed timeframes %

PN-LMP-COMP-FN

_Land Management Plan (LMP) Revisions/New 

Plans Completed %

RD-HIGH-FN

_Total miles of high clearance road maintained at 

level 1 & 2 %

RD-PASS-FN

_Total miles of passenger car road maintained at 

levels 3, 4, & 5 %

RG-GZ-NEPA-FN

_Grazing Allotment Decisions Signed 

(Analyzed/NEPA) %

RM-TRV-PLN-FN-NUM

_Acres of NFS lands covered by travel management 

implementation plans %

TL-MTC-STD-FN _Miles of Trails receiving maintenance %

VW-INV-WFF-FN-NUM

_Number of inventoried watersheds in fully 

functioning condition %

VW-NOX-WD-TR-FN _Noxious Weed Treatment %

WL-HAB-FN _Terrestrial Wildlife Habitat Restored or Enhanced %

WL-LAK-RE-FN _Lakes Restored or Enhanced %

WL-STR-RE-FN _Streams Restored or Enhanced %

Performance information as reported has been validated and supporting documentation is available upon request. Exceptions are noted above.

 

Regional Forester Date
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-162 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

USDA Forest Service 

Summary Action Plan for Implementing the Government Performance and Results Act

Recommendation #/Description FS/OIG Management Decision 

Dated March 31, 2005 

‘Report to Congress’ 

Paragraph references and 

completed actions. 

OIG Audit Report No. 08601-01-HY, “FS Implementation of GPRA,” issued March 31, 2005

1. Forest Service officials should 

reopen the previous audit’s 

management decisions reached to 

reflect their current actions to resolve 

the findings from the previous OIG 

audit. 

1. See responses below to audit no. 08001-01-HY. For 

final action, the FS needs to implement the corrective 

actions presented in the response and provide the OCFO 

documentation that the recommendations have been 

implemented. 

1. Responses are at the end of this 

document. 

2. Forest Service officials should 

ensure that the new system, PAS, when 

fully implemented, has an internal 

control system that ensures data quality 

and uniformity and addressees all areas 

of concern from our original 

recommendation. 

2. To achieve final action, the Forest Service should 

provide the OCFO with documentation of the 

implementation of the interim internal controls set forth 

in FSM 1400. The Forest Service should also provide the 

OCFO with documentation supporting the 

implementation of the internal controls component of the 

Performance and Accountability System. 

2. – Page 2, Internal Control System

section, paragraph 1. 

-- Page 2, Internal Control 

System section, paragraph 2. 

-- Page 3, Review Process

section, paragraph 2. 

3. Accountability for performance 

measure reporting accuracy should be 

established throughout the Forest 

Service as was done in FY 2004 for 

Forest Service Managers and Senior 

Executive Service personnel. 

3. To achieve final action, the FS should provide the 

OCFO with documentation of the performance element 

on managing work assignments established to assure 

information reported is adequate, reliable, verifiable and 

useful. 

3. – Page 2, Line Officer 

Accountability section, paragraph 

1. 

4. The Chief of the Forest Service 

should redirect Forest Service line 

officers to implement GPRA, to 

include firm milestones and dates for 

accomplishment. This should include 

direction to Forest Service line officers 

to implement those management 

controls necessary to ensure adequate, 

reliable, verifiable, and useful 

information. 

4. To achieve final action, the Forest Service should 

provide the OCFO with documentation of the directions 

to Forest Service line officers to implement management 

controls as set forth in FSM 1235.5 and FSM 1400 and 

that the managers and executives have been evaluated on 

performance accountability. 

4. – Page 2, Line Officer 

Accountability section, paragraph 

1. 

5. Reinstate the material weakness on 

performance measure reporting in the 

next available Performance and 

Accountability Report until internal 

controls over performance 

accountability are in place and 

functioning effectively.

5. To achieve final action, the Forest Service should 

provide the OCFO with a copy of the FY 2005 

Performance and Accountability Report identifying 

performance measure reporting as a material weakness. 

5. – Based on significant work 

completed by the Forest Service, 

the OIG downgraded this 

material weakness to a reportable 

condition. 

-- Page 3, Data Transparency

section, paragraph 1. 

6. Establish an office or unit in the 

Washington Office to perform reviews 

of field units and identify areas where 

performance measures are reported 

inconsistently or erroneously. 

6. To achieve final action, the Forest Service should 

provide the OCFO with documentation of the 

implementation of the performance accountability 

reviews set forth in FSM 1400. 

6. – Assigned responsibility to the 

Strategic Planning and Resource 

Assessment Staff. 

7. The Performance and Accountability 

Report should identify all performance 

goals for which the available 

performance data are materially 

inadequate along with a brief reason 

why the data is inadequate. The annual 

report should briefly cite any actions 

being taken by the agency to remedy a 

material inadequacy. 

7. To achieve final action, the Forest Service should 

provide the OCFO with the section in the FY 2005 

Performance and Accountability Report covering 

materially inadequate performance data, reasons for 

inadequate data, and actions being taken to remedy the 

material inadequacy. 

7. – This was addressed in the 

FY2007 USDA Forest Service 

Budget Justification document 

issued in March 2006. 

Attachment E – Page 1 

 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-163 Performance Management System 

Added March 30, 2007 Report to Congress – June 2006 

USDA Forest Service 

Summary Action Plan for Implementing the Government Performance and Results Act

Recommendation #/Description FS/OIG Management Decision 

Dated March 31, 2005 

‘Report to Congress’ 

Paragraph references and 

completed actions. 

8. Revise the current strategic plan to 

include a section covering program 

evaluations and a schedule of future 

evaluations. 

8. To achieve final action, the Forest Service should 

provide OCFO with a copy of the amended Forest Service 

Strategic Plan for FYs 2004-2008. 

8. – Amendment was issued in 

July 2005. 

9. Ensure that the target and goals not 

met are identified in subsequent 

editions of the Performance and 

Accountability Report. Ensure that a 

description of the plans and schedules 

to meet an unmet goal is included in 

the report. 

9. To achieve final action, the Forest Service should 

provide OCFO with a copy of section in the FY 2005 

Performance and Accountability Report identifying 

unmet targets and goals, and plans to address the unmet 

goals. 

9. – This was addressed in the 

FY2007 USDA Forest Service 

Budget Justification document 

issued in March 2006. 

OIG Audit Report No. 08001-01-HY, “FS Implementation of GPRA,” issued June 28, 2000

1. Develop and implement a 

comprehensive strategy to ensure the 

collection and reporting of accurate, 

complete, and meaningful performance 

data (the strategy addresses cultural 

issues and provides training to field 

level staff). 

1. The FS is in the process of developing a 

comprehensive master schedule/strategy for 

implementing improved performance accountability 

within the Forest Service beginning FY 2005. Key to this 

strategy is the implementation of a new performance 

accountability system referred to as PAS. The system, 

processes, and controls to assure PAS is effectively 

implemented, i.e. ensures the collection and reporting of 

accurate, complete, and meaningful performance data, is 

in progress. Revisions to the agency directives, regarding 

the establishment of an internal control process and 

integrating performance reviews into the agency’s review 

processes, have been drafted... will address every aspect 

of implementing the Government Performance Results 

Act (GPRA).... The performance accountability process 

will communicate the management objectives and 

provide a consistent, integrated mechanism for all 

employees to plan, implement, track, and report their 

activities. The integrated system, PAS, will be designed 

to reduce the number of data entries, improve the speed, 

accuracy and consistency of reporting, allow the work we 

accomplish to be more visible, and provide credible and 

timely information for leaders and managers to assess 

progress and make more effective decisions and course 

correction. 

1. – Plan of action was developed 

for PAS. The system is in the 

process of being implemented. 

2. As part of Recommendation No. 1, 

require managers and field officers to 

attest to the accuracy of reported 

accomplishments in a written 

certification and if cannot, include a 

written explanation of the reasons and 

proposed corrective actions. 

2. The Forest Service began requiring written 

certifications to attest to the accuracy of the reported 

accomplishments in FY 2003. The agency recognized a 

need to revise the process and did so in FY 2004. In FY 

2005, the Agency will implement a performance data 

review process that further assists managers in 

completing the end-of-year certifications by assuring that 

managers perform onsite assessments of a representative 

sample of the data elements reported. This process will 

assure the consistency in applying performance measures 

throughout the agency and ensure that identified issues 

are tracked, monitored, and resolved as quickly as 

possible. 

2. – Written certifications were 

collected in FY 2005 from the 

regions, stations and areas 

attesting to the accuracy of the 

key performance measures. 

3. Ensure the strategy developed in 

response to recommendation no. 1 

incorporates a set of effective internal 

controls, to include a plan of strategic 

management review, program level 

review, and controls to test the 

reasonableness of reporting 

performance data. 

3. The policy to implement effective internal controls 

over performance data reporting has been drafted and 

issued through an interim directive, effective February 16, 

2005. The responsibilities of management at various 

levels of the organization are included. 

3. – ID issued February 2005. 

 Attachment E – Page 2 
FY 2008 Budget Justification USDA Forest Service

Special Exhibit 29 17-164 Performance Management System 

 Report to Congress – June 2006 

USDA Forest Service 

Summary Action Plan for Implementing the Government Performance and Results Act

Recommendation #/Description FS/OIG Management Decision 

Dated March 31, 2005 

‘Report to Congress’ 

Paragraph references and 

completed actions. 

4. Continue the process of establishing, 

publishing, and ensuring adequate 

written guidance defining each 

performance measure and setting forth 

the documentation needed to support 

reported accomplishments. 

4. Implement a new set of performance measures. Use the 

new measures as a tool to assess and report on agency 

performance. 

4. – Issued a new set of measures in 

FY 2006. The Forest Service 

continues to evaluate the 

effectiveness of its performance 

measures and to provide written 

guidance on their use. 

 Attachment E – Page 3 
Authorities 
(This page inserted to format for duplex printing) 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-1

AUTHORITIES 

These laws authorize and/or provide guidance for the use of appropriations to the Forest 

Service. 

RESEARCH 

P.L. 78-425, Department of Agriculture Organic Act of September 21, 1944 (7 

U.S.C. 2250). Section 703. Erect, alter, and repair buildings necessary to carry out 

authorized work. 

P.L. 81-478, Granger-Thye Act of 1950, as amended (16 U.S.C. 581i-1) ch. 97, sec. 20 

as added April 6, 1956, ch 177. Provideed authority to advance funds to cooperators for 

cooperative research. 

P.L. 85-934, Research Grants Act of 1958, as amended (42 U.S.C. 1891-1893). 

Provided agencies authority 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. 

P.L. 87-788, McIntire-Stennis Act of 1962, as amended by P.L. 101-624, Food, 

Agriculture, Conservation, and Trade Act of 1990 (Farm Bill), Title XII, Subtitle B, 

Chapter 1. (16 U.S.C. 582a, 582a-1--582a-7). Authorized the Secretary of Agriculture to 

cooperate and assist State colleges and universities in forestry research on a matching 

funds basis. Authorized the Secretary of Agriculture to make competitive grants to a 

State agriculture experiment station, college or university, research institution or 

organization. 

P.L. 88-74, 95-113, and 99-198, Research Facilities Act of 1963, as amended (7 U.S.C. 

390). Authorized support of agricultural (including forestry) research at eligible 

institutions through Federal grant funds, on a matching funds basis, to help finance 

facilities and equipment as required for the effective conduct of the research and related 

academic programs. 

P.L. 89-106, 97-98 and 99-198, Agriculture Grants and Powers Act of 1965, as 

amended (7 U.S.C. 2250a, 7 U.S.C. 450i). Provided authority to erect buildings and 

other structures on non-Federal land, if long-term lease on the land is obtained. Also, 

included authority to enter into a long-term lease on the land. Provided authority to make 

competitive grants to eligible institutions, including special grants and grants for facility 

renovation and refurbishment, to further the programs of the Department of Agriculture. 

P.L. 93-378, Forest and Rangeland Renewable Resources Planning Act, August 17, 

1974, as amended (16 U.S.C. 1601 note). Sections 2-5. Required preparation of a 

renewable resource assessment, program plans, inventories, and budget request and 

update every five years. Such sums as appropriated; no expiration date. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-2

P.L. 95-307, Forest and Rangeland Renewable Resources Research Act, June 30, 

1978, as amended by P.L. 100-521, Forest Ecosystems and Atmospheric Pollution 

Research Act of 1988, Section 3 (c), and as amended by P.L. 101-624, Food 

Agriculture, Conservation, and Trade Act of 1990 (Farm Bill), Title XII, Subtitle B 

(16 U.S.C. 1641 et. seq.). Provided authority for competitive grants, research studies, 

wood fiber recycling, conducting tests, and establishing a forestry student grant program 

for minority and female students. 

P.L. 101-513, Title VI, International Forestry Cooperation Act of 1990. Authorized 

support (including cooperation and financial and technical assistance without 

reimbursement) for international forestry and related natural resource activities outside 

the United States and its territories and possessions; authorized support of the Tropical 

Forestry Action Plan and activities specifically addressing tropical deforestation and 

degradation; authorized expansion of the capabilities of the Institute of Tropical Forestry 

in Puerto Rico. Such sums as necessary; no expiration date. 

P.L. 101-606, Global Change Research Act of 1990 (15 U.S.C. 2931). Establishes the 

Committee on Earth and Environmental Sciences, part of the Federal Coordinating 

Council on Science, Engineering, and Technology under the Office of Science and 

Technology Policy of the Executive Office of the President. Authorizes funded 

participation in the United States Global Change Research Program as the Forest Service 

Global Change Research Program. 

P. L. 107-171, Farm Security and Rural Investment Act of 2002 Title VIII, Forestry, 

Section 8102, reauthorized the Office of International Forestry within the Forest Service 

through fiscal year 2007. 

P.L. 108-148, The Healthy Forests Restoration Act, (December 3, 2003), a bill to 

improve the capacity of the Secretary of Agriculture and the Secretary of the Interior to 

conduct hazardous fuels treatment projects on National Forest and Bureau of Land 

Management lands aimed at protecting communities, watersheds and other at-risk lands 

from catastrophic wildfire. The bill amends previous Acts to encourage the use of 

Biomass technologies. Authority is granted to the Secretary of Agriculture to carry out 

silvicultural assessments and research projects under categorical exclusions for areas 

affected by insects and disease. 

STATE & PRIVATE FORESTRY 

Wildland Fire Management 

The Act of June 4, 1897, Organic Administration Act of 1897, as amended (16 U.S.C. 

551). Directed the Secretary of Agriculture to make provisions for the protection against 

destruction by fire and depredations upon the public forest and national forests. No 

specific authority; no expiration date. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-3

P.L. 101-121, The Department of Interior and Related Agencies Appropriations Act 

of 1990. Established a new appropriation for necessary expenses of firefighting, 

presuppression, and fuels management. No specific authority; to remain available until 

expended. 

P.L. 102-154, The Department of Interior and Related Agencies Appropriations Act 

of 1992. Established separate appropriations for Forest Service Firefighting and 

Emergency Forest Service Firefighting. 

P.L. 104-134, The Omnibus Consolidated Rescissions and Appropriations Act of

1996 (April 26, 1996). Consolidated fire appropriations into a single fund, Wildland Fire 

Management 

P.L. 105-277, The Department of Interior and Related Agencies Appropriations Act 

of 1999. Directed that moneys collected from States for fire suppression assisted 

rendered by the Forest Service on non-Federal lands not in the vicinity of National Forest 

System lands be used to reimburse appropriations originally used. Such moneys shall 

remain available until expended as the Secretary of Agriculture may direct in conducting 

activities authorized by 16 U.S.C. 2101 note, 2101-2110, 1606, and 211. 

Cooperative Work 

Various Public Laws including the Act of June 30, 1914, Cooperative Funds Act, as 

amended; and 7 U.S.C. 2269; 16 U.S.C. 471h, 498, 572, 535, 537, 693d, and 1643c. 

Cooperative work (trust fund) for investigation, protection, and improvement of national 

forests. No expiration date. 

P.L. 94-148, December 12, 1975, An Act to authorize Secretary of Agriculture to enter 

into cooperative agreements with public or private agencies, organizations, institutions, 

or persons for various purposes. P.L. 107-63, Interior and Related Agencies 

Appropriations for 2002, Title III, Sec. 328, Granting authority to the Secretary of 

Agriculture to enter into cooperative agreements under P.L. 94-148 for a purpose which 

includes the authority to use that legal instrument when the principal purpose is to the 

mutually significant benefit of Forest Service and other parties. P.L. 109-54, Section 

426 extended authority until September 30, 2007. 

P.L. 95-192, Soil and Water Resources Conservation Act of 1977 (16 U.S.C. 2008). 

Cooperation in soil and water resource appraisal and conservation. 

P.L. 95-313, Cooperative Forestry Assistance Act of 1978, July 1, 1978 (16 U.S.C. 

2101-2110). Sections 3 and 5-18, as amended by P.L. 101-624, the Food, Agriculture, 

Conservation, and Trade Act of 1990, Title XII, Subtitles A, B, and C, sections 1265 and 

1266; as amended by P.L. 101-513, Title VI, the International Forestry Cooperation 

Act of 1990. Authorized cooperation and assistance to non-federal forest landowners in 

rural forest management, urban and community forest , establishes a forest stewardship 

program to assist non-industrial private forest landowners, establishes a forest legacy 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-4

program and authorizes the acquisition of land, including conservation easements and 

rights of public access, authorizes financial assistance to State Foresters, and private 

forestry and other organizations to monitor forest health, authorizes cost share assistance 

to States to implement an integrated pest management strategy, authorizes an urban and 

community forest resources education and technical assistance program; a competitive 

Challenge Cost-share program for urban and community forestry projects; a Forestry 

Advisory Council, authorizes financial, technical, and related assistance to State Foresters 

and authorizes cooperative forestry assistance to foreign countries. 

P.L. 99-198, Food Security Act of 1985. (99 Stat. 1354, Title XII, Section 1231-1236) 

Conservation acreage reserve. Such sums as may be necessary; no expiration date 

specified. 

P.L. 101-624, Food, Agriculture, Conservation, and Trade Act of 1990,(Farm Bill) 

Title XII, Forest Stewardship Act of 1990 -Amended the Cooperative Forestry 

Assistance Act of 1978 to establish: (1) the Forest Stewardship Program; (2) the 

Stewardship Incentive Program; and (3) the Forest Legacy Program. Reviseed provisions 

regarding: (1) rural forestry assistance; (2) forest health protection; (3) urban and 

community forestry assistance, including the establishment of a National Urban and 

Community Forestry Advisory Council; (4) firefighting and mobilization assistance; and 

(5) Federal, State, and local coordination. 

P.L. 103-82, National and Community Service Act of September 21, 1993, 107 Stat. 

785, (42 U.S.C 12501, 12572-12681). Authorized the Secretary to enter into contracts or 

cooperative agreements with any qualified youth or conservation corps for completion of 

conservation work. 

P.L. 103-106, National Forest Foundation Act of October 3, 1993, 107 Stat. 102, (16 

U.S.C. 583j-3). Amended the National Forest Foundation Act (P.L. 101-593) to 

authorize start-up funds and matching funds for the National Forest Foundation for 

project expenses. 

P.L. 104-127, Federal Agricultural Improvement and Reform Act (April 4, 1996). 

Authorizes optional State grants for Forest Legacy Program. Established a Water Rights 

Task Force and stipulates an 18-month moratorium on bypass flow decisions. 

P.L. 105-83, Interior and Related Agencies Appropriation Act of 1998. Title III, Sec. 

334. (Wyden Amendment) Watershed Restoration and Enhancement Agreements. 

Appropriations for Secretary of Agriculture may be used for the purpose of entering into 

cooperative agreements and use with heads of other Federal agencies, tribal, State and 

local governments, private and nonprofit entities and landowners for the protection, 

restoration, and enhancement of fish and wildlife habitat on public or private land. 

Expired at end of FY 1998. ) P.L. 109-54, Interior-Environment Appropriations for 

FY 2006, Title III, Sec. 434, extended authority for agreements through fiscal year 2011. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-5

P.L. 105-83, The Department of Interior and Related Agencies Appropriations Act 

of 1998. Authorized the Secretary of Agriculture to enter into grants, contracts, and 

cooperative agreements as appropriate with the Pinchot Institute for Conservation, as well 

as with public and other private agencies, organizations, institutions and individuals, to 

provide for the development, administration, maintenance, or restoration of land, 

facilities, or Forest Service programs, at the Grey Towers National Historic Landmark.) 

P.L. 105-83, The Department of Interior and Related Agencies Appropriations Act 

of 1998. Authorizes the National Forest Foundation to invest Federal funds not needed 

for immediate disbursements in interest bearing obligations of the United States. 

P.L. 106-291, Title III, Section 331 of the Fiscal Year 2001 Interior and Related 

Agencies Appropriation Act. (Colorado Good Neighbor) Authority allows for the 

Secretary of Agriculture, via cooperative agreement or contract to permit the Colorado 

State Forest Service to perform watershed restoration and protection services on National 

Forest System lands in the State of Colorado when similar and complementary watershed 

restoration and protection services are being performed by the State Forest Service on 

adjacent State or private lands. The types of services include treatment of insect infected 

trees, reduction of hazardous fuels, and other activities to restore or improve watersheds 

or fish and wildlife habitat across ownership boundaries. NEPA responsibilities for 

National Forest System lands are retained by the Forest Service. P.L. 108-447, 

Consolidated Appropriations Act, 2005”, December 8, 2004, General Provisions 

Title III, Sec. 336, Extended authority for P.L. 106-291 until September 30, 2009. 

P. L. 107-171, Farm Security and Rural Investment Act of 2002 Title VIII, Repealed 

the Forestry Incentives and Stewardship Incentives Program, established the Forest Land 

Enhancement Program (FLEP) to provide financial, technical, educational and related 

assistance to State Foresters to assist private landowners in managing their land. 

Authorized the Forest Service to cooperate with State Foresters in the management of 

lands to (1) promote optimal firefighting efficiency at the Federal, State and local levels; 

(2) expand outreach and education programs to homeowners and communities about fire 

protection; and (3) establish defensible space around homes and property against wildfire. 

The Secretary, in consultation with State Foresters and with the consent of private 

landowners, may undertake specified activities on non-Federal lands to further these 

purposes. 

P.L. 108-7, Interior and Related Agencies Appropriations Act of 2003, Sec. 321, 

Authority for Secretary to enter into agreements that are mutually significant. P.L. 109-

54 FY 2006 Interior-Environment Appropriations, Sec. 426, Authority was extended 

until September 30, 2007. 

P.L. 108-148, The Healthy Forests Restoration Act, (December 3, 2003), An Act to 

improve the capacity of the Secretary of Agriculture and the Secretary of the Interior to 

conduct hazardous fuels treatment projects on National Forest and Bureau of Land 

Management lands aimed at protecting communities, watersheds and other at-risk lands 

from catastrophic wildfire. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-6

Granted authorities to the Secretary of Agriculture to work with states and colleges to 

address watershed issues on non-federal lands and establish a cost share fund. The Act 

directed the Secretary of Agriculture to establish a watershed forestry program in 

cooperation with Indian tribes and provide assistance to tribal lands. The Secretary was 

directed to establish a healthy forests reserve program for private lands and an inventory 

and monitoring program on federal and state lands. 

P.L. 108-447, Consolidated Appropriations Act, 2005, General Provisions Title III, 

Sec. 341, The Secretary was authorized to make grants to the Eastern Nevada Landscape 

Coalition for the study and restoration of rangeland and other lands in Nevada’s Great 

Basin. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004

Title III – General Provisions, Sec. 348, Authorized the Secretary to further the 

scientific, policy analysis, educational and cultural programs in natural resource 

conservation at Grey Towers. 

NATIONAL FOREST SYSTEM 

General 

The Act of June 4, 1897, Organic Administration Act of 1897, as amended (16 U.S.C. 

473-478, 479-482, 551). Section 24. Administration, protection, and management of the 

national forests. Such sums as appropriated; no expiration date. 

P.L. 63-293, Use and Occupancy Permits Act of 1915, as amended. Issuance of 

permits for use and occupancy of suitable lands. 

P.L. 78-412, Department of Agriculture Organic Act of September 21, 1944 (7 

U.S.C. 2250). Section 703. Erect, alter, and repair buildings necessary to carry out 

authorized work. 

P.L. 86-517, Act of June 12, 1960, 74 Stat. 215, Multiple-Use Sustained Yield Act of 

1960 (16 U.S.C. 528-531). Authorized and directed the Secretary of Agriculture to 

develop and administer the renewable surface resources of the National Forests for 

multiple use and sustained yield of the several products obtained there from. 

P.L. 90-583, Carlson-Foley Act of 1968 (43 U.S.C. 1241-1243). Section 3. Authorized 

reimbursement of States for noxious farm weed control on federal land. Such sums as 

appropriated; no expiration date. 

P.L. 92-82, Sisk Act of August 10, 1971 (16 U.S.C. 551(a)). Authorized cooperation 

with States and political subdivision for enforcement of State laws on national forest 

lands and reimbursement of expenses incurred for such activities. Such sums as 

appropriated; no expiration date. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-7

P.L. 93-378, Forest and Rangeland Renewable Resources Planning Act, August 17, 

1974, as amended (16 U.S.C. 1601 note). Sections 2-5. Required preparation of a 

renewable resource assessment, program, plans, inventories, and budget request and 

update every 5 years. Such sums as appropriated; no expiration date. 

P.L. 94-588, National Forest Management Act of 1976, October 22, 1976 (16 U.S.C. 

472(a-i) and 1601(d)(3)). Sections 1-14. Amended; Forest and Rangeland Renewable 

Resources Planning Act of 1974, and provided authority and requirements for sale of 

timber on National Forest System lands. Such sums as appropriated; no expiration date. 

Reforestation $200 million annually (16 U.S.C. 1601(d)(3). 

P.L. 99-570, Anti-Drug Abuse Act of 1986, Title XV, October 27, 1986, as amended by 

the Anti-Drug Abuse Act of 1988 (16 U.S.C. 559 b-f). Authorized the Secretary of 

Agriculture to prevent and control drug abuse on the NFS lands, including investigative 

powers beyond the exterior boundaries of NFS lands. $10 million annually; no expiration 

date. 

P.L. 103-66, Omnibus Budget Reconciliation Act of 1993, August 10, 1993, Title I, 

Subtitle D, Section 1401, Admission, entrance, and recreation fees. Title X, Section 

10001-10003, Fees, Title XIII, Section 13982, Sharing of Forest Service Timber Sale 

Receipts. Gave the Secretary of Agriculture the authority to charge admission or 

recreation use fees at lands administered by the Secretary. (16 U.S.C. 460l-6c). Amended 

the L&WCF Act to allow the Secretary of Agriculture and the Secretary of Interior to 

withhold 15 percent of L&WCF receipts to cover fee collection costs, establishes 

commercial tour use fees, authorizes the sale of Golden Eagles Passports by private 

businesses and other organizations, and mandated a 10 percent increase in 

communication site fees. (16 U.S.C 460). Set out a schedule of 25-percent fund 

payments to states and counties affected by the northern spotted owl. (16 U.S.C 500 

note.). 

P.L. 104-106, National Defense Authorizations Act for Fiscal year 1996 (February 10, 

1996). Established the Midewin National Tallgrass Prairie in Illinois, to be managed as 

part of the National Forest System. 

P.L. 105-277, The Department of Interior and Related Agencies Appropriations Act 

of 1999. Authorized the Forest Service to employ or contract with persons at regular pay 

rates to perform work caused by emergencies without regard to Sundays, Federal 

holidays, and the regular workweek. Authorizes the use of funds available to the Forest 

Service to disseminate program information to private and public individuals and 

organizations through the use of nonmonetary items of nominal value and to provide 

nonmonetary awards and incur necessary expenses for the recognition of private 

individuals and organizations making contributions to Forest Service programs. 

P.L. 106-291 Sec. 30. (Service First) Department of the Interior and Related 

Agencies Appropriations Act of 2001, Secretary of the Interior and Forest Service may 

pilot test agency-wide joint permitting and leasing programs until September 30, 2004. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-8

P.L. 109-54, FY 2006 Interior-Environment Appropriations Act, Sec. 428, extended 

the expiration date to September 30, 2008. 

P.L. 106-291, Interior and other Related Agencies Appropriation Act of 2001, Sec. 

320, Established an advisory committee to be known as the Forest Counties Payments 

Committee to develop recommendations regarding methods to ensure that States and 

counties in which Federal Lands are situated receive adequate Federal payments. P.L. 

108-319, An Act to Extend the term of Forest County Payments Committee, 

extended authority until September 30, 2007. 

P.L. 106-393, The Secure Rural Schools and Community Self-Determination Act of 

2000. (Oct. 30, 2000), To restore stability and predictability to the annual payments made 

to States and counties containing National Forest System lands and public domain lands 

managed by the Bureau of Land Management for use by the counties for the benefit of 

public schools, roads, and other purposes. The authority to initiate projects under this title 

terminated on September 30, 2006. 

P.L. 107-76, Agriculture, Rural Development, Food and Drug Administration, and 

Related Agencies Appropriations Act of 2002, for fiscal year ending September 30, 

2002. For the purpose of making payments under section 102 of P.L. 106-393 (Act) to 

eligible States and eligible counties for fiscal years 2002 through 2006, as required by 

section 101(a)(1) of such Act, the Secretary of Agriculture shall revise the table referred 

to in subsection (a) to accurately reflect, to the maximum extent practicable, each eligible 

State and eligible country's historic share of the 25 percent payments and safety net 

payments made for the fiscal years of the eligibility period. 

P.L. 108-447, Consolidated Appropriations Act, 2005, Title II – Administrative 

Provisions, Funds may be used for the purpose of expenses associated with primary and 

secondary schooling for dependents of agency personnel stationed in Puerto Rico. P.L. 

109-54 Interior-Environment Appropriations for FY 2006, Administrative 

Provisions, extended authorization through FY 2009. 

Facilities 

P.L. 78-425, Department of Agriculture Organic Act of 1944 (7 U.S.C. 2250). 

Section 703. Erect, alter, and repair buildings and other improvements necessary to carry 

out authorized work, if provided for in applicable appropriation. Such sums as 

appropriated; no expiration date. 

P.L. 88-657, Act of October 13, 1964, National Forest Roads and Trail Systems Act

(16 U.S.C. 532-538); P.L. 85-767, Title 23, United States Code Highways (23 U.S.C. 

205); P.L. 94-588, National Forest Management Act of 1976 (16 U.S.C. 472a); P.L. 93-

378, Forest and Rangeland Renewable Resources Planning Act of 1974, as amended, 

Section 10(a) (16 U.S.C. 1608). Acquisition, construction and maintenance of forest 

development roads and trails, and cooperation with States, counties, and other 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-9

subdivisions. Construction of roads by timber purchasers, or election to have Forest 

Service build. Such sums as appropriated; no expiration date. 

P.L. 89-106, The Act of August 4, 1965 (7 U.S.C. 2250a). Section 1. Authorized 

expenditure of funds for erection of buildings and other structures, on non-federal lands, 

and for the acquisition of long term leases. Such sums as appropriated; no expiration 

date. 

P.L. 89-665, Historic Preservation Act of 1966; P.L. 93-291, Preservation of Historical 

and Archaeological Data Act of 1974, and P.L. 96-95, P.L. 106-355 as amended to 

establish a national historic lighthouse preservation program. The Archaeological 

Resources Protection Act of 1979, as amended (16 U.S.C. 469, 469a-1, 470a, 470f, 470h2,470j, 470w-1, and 470aa-11). Authorized use of appropriated funds for the 

preservation and protection of historical and archaeological resources. Such sums as 

necessary; no expiration date. 

P.L. 95-307, Forest and Rangeland Renewable Resources Research Act, June 30, 

1978, as amended (16 U.S.C. 1643(a)). Section 3. Construction and acquisition of 

research laboratories and facilities. Such sums as necessary; no expiration date. 

P.L. 98-473, Title 1, Continuing Appropriations Act of 1985, Interior and Related 

Agency Appropriations, Title III (98 Stat. 1874; 5 U.S.C. 5911 as amended). Section 

320. Fund for the operation and maintenance of Forest Service quarters. 

P.L. 107-63, Interior and Related Agencies Appropriation Act of 2002, Pilot 

Program Authorizing Conveyance of Excess Forest Service Structures – The 

Secretary of Agriculture may convey by sale or exchange title to excess buildings and 

other structures located on National Forest System Lands. Limited to no more than 10 

sites, proceeds can be retained for maintenance and rehabilitation activities. Authority 

expires on September 30, 2005. P.L. 108-108, Interior and Related Agencies 

Appropriation Act of 2004, Extended authority for Pilot Program Authorizing 

Conveyance of Excess Forest Service Structures to no more than 30 sites and extending 

expiration date to September 30, 2007. P.L. 108-447, Consolidated Appropriations 

Act, 2005, December 8, 2004, Sec. 322, Extended authority until September 30, 2008 

and increased number of projects to 40. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004

Title III – General Provisions, Sec. 335, Authorized the Secretary to convey small 

parcels of land and use the proceeds for critical San Bernardino NF infrastructure 

improvements or to acquire additional lands with the NF boundary. 

P.L. 109-54, Fiscal Year 2006 Interior-Environment Appropriations, Title V – 

Facilities Realignment and Enhancement Act of 2005, Authorized Secretary to convey 

administrative sites on National Forest System Lands and retain receipts for construction, 

maintenance and renovation of facilities for administrative purposes. 
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Authorities 18-10

P.L. 109-54, Fiscal Year 2006 Interior-Environment Appropriations Sec. 429. 

Authorized Secretary to acquire by exchange or otherwise a parcel of real property 

including improvements of the Inland Valley Development Corp in San Bernardino, CA. 

Forest Health 

P.L. 108-148, The Healthy Forests Restoration Act, December 3, 2003, An Act to 

improve the capacity of the Secretary of Agriculture and the Secretary of the Interior to 

conduct hazardous fuels treatment projects on National Forest and Bureau of Land 

Management lands aimed at protecting communities, watersheds and other at-risk lands 

from catastrophic wildfire. 

P.L. 108-317, Southwest Forest Health and Wildfire Prevention Act of 2004, To

establish 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. 

P.L. 109-54, Interior-Environment Appropriations for FY 2006, Sec. 431, authorized 

the Secretary to make grants to the Eastern Nevada landscape coalition for the study and 

restoration of rangeland in order to help assure the reduction of hazardous fuels. 

P.L. 109-154, Public Lands Corp Healthy Forest Restoration Act of 2005, Amended 

the Public Lands Corps Act of 1993 to provide for the conduct of projects that protect 

forests, and for other purposes. 

Grazing 

P.L. 94-579, Federal Land Policy and Management Act of 1976; (43 U.S.C. 1751), as 

amended by P.L. 95-514, Public Rangelands Improvement Act of 1978 (43 U.S.C. 

1751(b)(1). Authorized appropriation of one-half of grazing receipts from national forest 

in the 16 Western States for range rehabilitation, protection, and improvements on the 

national forests from which collected. One-half of grazing receipts per annum; no 

expiration date

Heritage 

P.L. 109-338, National Heritage Areas Act of 2006, October 12, 2006. A bill to 

reduce temporarily the royalty required to be paid for sodium produced, and to establish 

certain National Heritage Areas, and for other purposes.

Lands 

P.L. 68-575, The Act of March 3, 1925, as amended (16 U.S.C. 555). Section 5. 

Purchase of land and acceptance of donations of land. Such sums as necessary, not to 

exceed $50,000 per fiscal year; no expiration date. 
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Authorities 18-11

P.L. 75-210, Title III, The Bankhead-Jones Farm Tenant Act of July 22, 1937, as 

amended (7 U.S.C. 1010, 1011). Sections 31 and 32. Land acquisition, exchange, and 

authorities to correct maladjustments for land utilization purposes. Such sums as 

necessary; no expiration date. 

P.L. 84-979, The Department of Agriculture Organic Act of August 3, 1956 (7 U.S.C. 

428a and (b)). Section 11. Authorized acquisition of land or interests in land by 

purchase, exchange, or otherwise to carry out authorized work. Such sums specified by 

annual appropriation; no expiration date. 

P.L. 97-465, Small Tracts Act of January 22, 1983 (16 U.S.C. 521(d)). Authorized the 

conveyance of NFS lands of forty acres or less and of $150,000 or less in value. Such 

sums as necessary; no expiration date. 

P.L. 103-93, Utah Schools and Lands Improvement Act of 1993, 107 Stat. 995, 

October, 1, 1993. Authorized the Secretary of Agriculture to accept land from the State 

of Utah in exchange for royalty receipts. 

P.L. 105-77, Inclusion of Dillon Ranger District in White River National Forest, 

Colorado. The distribution of receipts (16 U.S.C. 500) from the Arapaho National 

Forest and the White River National Forest Forestry to the affected county governments 

shall be based on the national forest boundaries that existed on the day before the date of 

enactment of this Act. 

P.L. 105-277, The Department of Interior and Related Agencies Appropriations Act 

of 1999. Authorized the use of funds collected under the authority of section 101 of 

Public Law 93-153 (30 U.S.C. 185(1)) as reimbursements of administrative and other 

costs incurred for processing pipeline right-of-way permit applications and other selected 

costs associated with any pipeline and related facilities, to reimburse appropriations 

originally charged for such costs. 

P.L. 106-206, May 26, 2000. Allowed the Secretary of the Interior and the Secretary of 

Agriculture to establish a fee system for commercial filming activities on Federal land. 

P.L. 106-558, Toiyabe National Forest Boundary Adjustment, to amend the 

National Forest and Public Lands of Nevada Enhancement Act of 1988 to adjust the 

boundary of the Toiyabe National Forest, Nevada, and to amend chapter 55 of title 5, 

U.S.C. to authorize equal overtime pay provisions for all Federal employees engaged in 

wildland fire suppression operations. 

P.L. 108-337, Alaska Native Allotment Subdivision Act (October 18, 2004), To 

authorize the subdivision and dedication of restricted land owned by Alaska Natives. 

P.L. 109-377, Pitkin County Land Exchange Act, (December 1, 2006). Directed the 

Secretary of Agriculture and the Secretary of the Interior, upon receipt of title to certain 

lands located in Pitkin County, Colorado, to convey to the County or to the Aspen Valley 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-12

Land Trust, if the County so requests, all right, title, and interest of the United States in 

and to certain National Forest and Bureau of Land Management lands located in the 

County. 

P.L. 109-387, Chequamegon-Nicolet Land Conveyance, (December 12, 2006), 

Provided for the conveyance of certain National Forest System land to the towns of 

Laona and Wabeno, Wisconsin. 

P.L. 109-389, Conveyance of the former Konnarock Lutheran Girls School, 

(December 12, 2006). Directed the Secretary of Agriculture to convey property in the 

Mount Rogers National Recreation Area, Smyth County, Virginia, containing the former 

Konnarock Lutheran Girls School to the Evangelical Lutheran Coalition for Mission in 

Appalachia. 

P.L. 109-391, Ouachita National Forest Boundary Adjustment Act of 2006, 

(December 12, 2006), To adjust the boundaries of the Ouachita National Forest in the 

States of Oklahoma and Arkansas. 

P.L. 109-432, Tax Relief and Health Care Act of 2006, Division C, Title III, Sec. 342-

343, White Pine County Conservation, Recreation and Development Act of 2006, 

(December 20, 2006). Transfer of NFS lands to BLM and the State of Nevada and 

conveyance of NFS lands to BLM in the State of Nevada.

LAND ACQUISITION 

P.L. 61-435, Weeks Act, (March 1, 1911), as amended by P.L. 94-588 (16 U.S.C. 516, 

521b). Sections 1 and 2. Land acquisition for watershed protection and timber 

production. Such sums as necessary; no expiration date. 

P.L. 76-589, 76-591, and 78-301 (54 Stat. 297 and 299 and 58 Stat. 227) Land 

acquisition for watershed protection and timber production within the exterior boundaries 

of the Cache, Uinta, Wasatch National Forest, Utah; the Toiyabe National Forest, 

Nevada; and the Angeles San Bernardino, Sequoia, and Cleveland National Forests, 

California. Toiyabe -$10,000 annual limit. Other such sums as available from the 

receipts of each national forest as appropriated; no expiration date. 

P.L. 80-733, Superior National Forest, Minnesota Act of June 22, 1948 (16 U.S.C. 

577g, h). Purchase and condemnation of lands in northern Minnesota. 

P.L. 84-979, Department of Agriculture Organic Act of 1956 (7 U.S.C. 428a(a)). 

Acquisition of land by purchase, exchange or otherwise, to carry out authorized work, 

provided that provision therefore is made in applicable appropriation. Such sums as 

necessary; no expiration date. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-13

P.L. 88-577, Wilderness Act, (September 3, 1964). Sections 5 and 6 (16 U.S.C. 

1121(note), 1131-1136). Land acquisition, exchange, donation for wilderness purposes. 

Such sums as appropriation; no expiration date. 

P.L. 88-578, Land and Water Conservation Fund Act of 1965, as amended (16 U.S.C. 

4601-4 to 460l-11). Acquisition of lands and other purposes. 

P.L. 90-171, Act of December 4, 1967, Land Exchanges in the National Forests, as 

amended (16 U.S.C. 484a). Acquisition of lands to complete land exchange with public 

schools and State and local governments. Such sums as appropriated; no expiration date. 

P.L. 90-542, Wild and Scenic Rivers Act, (October 2, 1968). Sections 6 and 16 (16 

U.S.C. 1277). Land acquisition, exchange, donation of land for inclusion in wild and 

scenic rivers system. Such sums as appropriated; no expiration date. 

P.L. 90-543, National Trails System Act, October 2, 1968, as amended by P.L. 98-11 

(16 U.S.C. 1241-1251). Sections 7 and 10. Land acquisition, exchange, donation of land 

for inclusion in the national trails system. Such sums as appropriated; no expiration date. 

P.L. 93-205, Endangered Species Act, (December 28, 1973). Sections 5 and 15. (16 

U.S.C. 1534 and 1542) Acquisition for protection of threatened and endangered species. 

Such sums as necessary; no expiration date. 

P.L. 93-622, Eastern Wilderness Act, (January 3, 1975). Sections 6 and 9. (16 U.S.C. 

1132 (note)). Land acquisition, exchange, donation of land for wilderness purposes. 

Such sums as appropriated; no expiration date. 

P.L. 95-442, Act of October 10, 1978 (7 U.S.C. 2269). Donations of land or interests in 

land. Such sums as necessary; no expiration date. 

P.L. 95-495, the Boundary Waters Canoe Area Wilderness Act of October 21, 1978. 

Section 7(d)(3). For the acquisition of lands and waters within the designated wilderness. 

Such sums as may be necessary; no expiration date. 

P.L. 96-586, Lake Tahoe Basin Act, (December 23, 1980). Sections 2 and 3. Land 

acquisition in the Lake Tahoe Basin. Such sums as appropriated; no expiration date. 

P.L. 99-663, Columbia River Gorge National Scenic Area Act, Columbia River 

Gorge National Scenic Area Act of November 17, 1986. 

Authorizes assistance to the Columbia Gorge Commission. Authorizes operation and 

maintenance of facilities included in the recreation assessment on non-federal lands. 

Provides for the completion of a resource inventory for the special management areas 

including private lands. Provides for the payment of $5,000,000 each to the States of 

Oregon and Washington for use by the States to make grants and loans for economic 

development projects. Provides for technical assistance to States and others. Provides 

for payments to counties in connection with the acquisition of lands or interests therein in 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-14

an amount equal to one percent of the fair market value on the date of acquisition. $40 

million; no expiration date 

P.L. 108-108, November 10, 2003, The Department of the Interior and Related 

Agencies Appropriations Act. Title III, Sec 333. The Secretary of Agriculture is 

authorized to transfer to a Special Account receipts from timber sales, land conveyances, 

land acquisition funds and excess receipts to be expended for the completion of land 

acquisitions authorized under the Gallatin Land Consolidation Act of 1998. The Special 

Account shall be closed at the end of FY 2008. 

Minerals/Energy 

Mining Law of 1866 (30 U.S.C. 21) and the General Mining Law of May 10, 1872 (30 

U.S.C. 22, 28 et seq., as amended). Governs mining activities for valuable minerals on 

public domain lands. 

P.L. 66-146, Mineral Leasing Act of February 25, 1920 (30 U.S.C. 181 et seq., as 

amended). Authorizes the Secretary of the Interior to issue leases for the disposal of 

certain minerals (coal, phosphate, sodium, potassium, oil, oil shale, gilsonite, and gas). 

The Act applies to National Forest System lands reserved from the public domain, 

including lands received in exchange for timber or other public domain lands, and lands 

with minerals reserved under special authority. Authorizes the issuance of rights-of-way 

for pipelines for transportation of oil, natural gas, synthetic liquid or gaseous fuels, or 

other refined products.

P.L. 80-291, Mineral Materials Act of 1947 (30 U.S.C. 226, 601-604, as amended). 

Provides for the disposal of mineral materials from the public lands through bidding, 

negotiated contracts and free use. 

P.L. 80-382, Mineral Leasing Act for Acquired Lands of August 7, 1947 (30 U.S.C. 

351-359). This act extended the provisions of the mineral leasing laws to Federally 

owned mineral deposits on acquired National Forest System lands and requires the 

consent of the Secretary of Agriculture prior to leasing. 

P.L. 84-167, Mining Act of July 23, 1955 (30 U.S.C. 611-615, as amended). Provided 

for disposal of common varieties of sand, stone, gravel, pumice, pumicite and cinders 

under the provisions of the Mineral Materials Act of 1947, and gives the Secretary of 

Agriculture authority to dispose of these materials. 

P.L. 84-375, Act of July 23, 1955, 69 Stat. 367; P.L. 100-203 Federal Onshore Oil 

and Gas Leasing Reform Act of 1987 (30 U.S.C. 226 and 601). Authority to dispose of 

mineral material, and approve and issue permits to explore and develop oil and gas 

leases. No specific sums; no expiration date. 

P.L. 91-581, Geothermal Steam Act of December 24, 1970 (30 U.S.C. 1001-1025). 

Provided the Secretary of the Interior the authority to lease National Forest System lands 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-15

for geothermal steam development, subject to the consent and conditions the Secretary of 

Agriculture may prescribe. 

P.L. 96-510, Comprehensive Environmental Response, Compensation and Liability 

Act (CERCLA) of December 11, 1980, (42 U.S.C. 9601 et seq., as amended). Provided 

Federal authority to respond directly to releases or threatened releases of hazardous 

substances from closed and abandoned hazardous waste sites that may endanger public 

health or the environment. 

P.L. 102-386, Federal Facility Compliance Act of January 3, 1992, (42 U.S.C. 6961, 

as amended). Mandated regulatory requirements and associated sanctions for Federal 

facilities regarding environmental compliance. 

P.L. 109-58, Energy Policy Act of 2005, as amended. Directed the Departments of 

Agriculture and of the Interior to provide better access for the purpose of leasing oil and 

natural gas on Federal lands and to streamline the permitting process for oil and natural 

gas development. The Act provided for categorical exclusions for oil and gas drilling 

related to exploration and development on Federal lands pursuant to the Mineral Leasing 

Act of 1920. Amended the Geothermal Steam Act to make it a priority for the Secretary 

of the Interior and for the Secretary of Agriculture with respect to National Forest System 

lands, to ensure timely completion of administrative actions, including amendments to 

applicable forest plans and resource management plans necessary to process applications 

for geothermal leasing pending on the date of enactment of this Act. It required all future 

forest and resource management plans for areas with high geothermal resource potential 

to consider geothermal leasing and development. 

P.L. 109-132, Valles Caldera Preservation Act, (December 20, 2005), Amended the 

Valles Caldera Preservation Act to require the Secretary of Agriculture to negotiate a 

price for buying the remaining mineral interests of the Valles Caldera Preserve in New 

Mexico. 

P.L. 109-385, Valle Vidal Protection Act of 2005, (December 12, 2006). Withdrew the 

Valle Vidal Unit of the Carson National Forest from: (1) all forms of entry, appropriation, 

and disposal under public land laws; (2) location, entry, and patent under mining laws; 

and (3) operation of laws pertaining to mineral leasing, geothermal leasing, and mineral 

materials. 

P.L. 109-432, Tax Relief and Health Care Act of 2006, Division C, Title IV, Sec. 403 

(December 20, 2006), Withdrawal of certain Federal Land from Location, Entry and 

Patent under the Mining Laws and Disposition under Mineral and Geothermal Leasing 

Laws within the Rocky Mountain Front Mineral Withdrawal area in the State of 

Montana. 

Recreation/Trails/Rivers 

P.L. 88-578, Land and Water Conservation Fund Act, as amended by the Omnibus 

Budget Reconciliation Act of 1993 (16 U.S.C. 460l-6a(i)(1)(B)). Authorized retention of 
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Authorities 18-16

up to 15 percent of fees collected for admission and use of recreation areas to cover the 

cost of collecting the fees. Sections referring to fees repealed with P.L. 108-447, 

Consolidated Appropriations Act, 2005”, (Div J, Title VIII – Federal Lands 

Recreation Enhancement Act), December 8, 2004.

P.L. 88-657, Act of October 13, 1964, National Forest Roads and Trails Systems Act

(16 U.S.C. 532-538). Sections 1-7. Authorized acquisition, construction, and 

maintenance of forest roads and trails. Such sums as appropriated; no expiration date. 

P.L. 90-543, National Trails System Act, October 2, 1968, as amended by P.L. 98-11

(16 U.S.C. 1241-1251). Sections 7 and 10. Land acquisition, exchange, donation. 

Management, development and volunteer assistance of the national trails system. Section 

10. Authorized administration, development, and maintenance of national trails; 

assistance to and from volunteer organizations and volunteers. Such sums as 

appropriated; no expiration date. 

P.L. 90-542, Wild and Scenic Rivers Act of October 2, 1968 (16 U.S.C. 1271-1287). 

National wild and scenic rivers system components. Such sums as appropriated; no 

expiration date. 

P.L. 95-495, Act of October 21, 1978 (92 Stat. 1649). Sections 18(e). Construction of 

dispersed recreation sites and trails outside the Boundary Waters Canoe Area Wilderness. 

Such sums as necessary; no expiration date. 

P.L. 101-612, Smith River National Recreation Area Act, November 16, 1990. 

Established the Smith River National Recreation Area in northern California. Authorized 

entitlement payments to counties within the NRA, for a period of 12 years whenever the 

annual payment to the State of California pursuant to 16 U.S.C. 500 for the benefit of the 

counties falls below the average payment over a specified 5-year period. 

P.L. 104-134, Interior and Related Agency Appropriations for FY 1996, (Recreation 

Fee Demonstration Program), Provided authority to implement a fee program to 

demonstrate the feasibility of user-generated cost recovery for the operation and 

maintenance of recreation areas or sites on federal lands. Authority to collect fees until 

September 30, 1998 and expend funds until September 30, 2001 P.L. 108-108, 

November 10, 2003, The Department of the Interior and Related Agencies 

Appropriations Act. Extended authority to collect fees under the Fee Demonstration 

Program until December 31, 2005 and to expend funds under this authority until 

December 31, 2008. Authorized the Secretary of Agriculture to conduct projects that are 

necessary to rehabilitate and restore lands in the North Fork drainage on the Flathead 

National Forest. 

P.L. 108-7, February 20, 2003 Consolidated Appropriations Resolution of 2003. 

(National Forest Organizational Camp Fee Improvement Act of 2003) – Established 

a land use fee system that provides equitable return to federal government for occupancy 

and use by organizational camps. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-17

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004, General 

Provisions Title III, Sec. 340 (Salmon River Camps), Authorized commercial outfitter 

hunting camps on the Salmon River to continue to be authorized, subject to such 

reasonable regulation as the Secretary deems appropriate. 

P.L. 108-447, Consolidated Appropriations Act, 2005, (Div J, Title VIII – Federal 

Lands Recreation Enhancement Act), December 8, 2004, Beginning in FY 2005, and 

thereafter, the Secretary may establish, modify, charge and collect recreation fees at 

Federal recreation lands and waters as provided for in the Act. Authority terminates 10 

years after the date of enactment. 

Timber/Vegetation 

P.L. 71-319, Act of June 9, 1930, Knutson-Vandenberg Act, as amended (16 U.S.C. 

576b). Section 3. Funds deposited by timber sale purchasers to cover the cost of 

reforestation, timber stand improvements, and special cultural measures to improve 

renewable resources on timber sale areas. No expiration date. 

P.L. 81-348, Act of October 11, 1949, Anderson-Mansfield Reforestation and 

Revegetation Act, (16 U.S.C. 581j-k). Sections 1 and 2. Authorized funding to provide 

for reasonable continuity of reforestation and range revegetation programs. Authorize 

acquisitions of land for nurseries. Such sums as needed; no expiration date. 

P.L. 94-588, National Forest Management Act of 1976, October 22, 1976 (16 U.S.C. 

472(h) and (i). Section 14(h) and (i). Timber salvage fund for harvesting insect infested, 

dead, and damaged trees. Section 472a(h). Timber purchaser roads constructed by the 

Forest Service. Section 472a(i). Permanent appropriations; no expiration date. 

P.L.96-451, Act of October 14, 1980, Reforestation Trust Fund, as amended (16 

U.S.C. 1606 a(d). Section 303. Establishment of Reforestation Trust Fund to be held 

by the Secretary of Treasury. Funds to be invested and provided to the secretary of 

Agriculture based on an estimated fiscal year need necessary to accomplish the treatment 

of acreage in the reforestation program. Such sums as are necessary, but not more than 

$30 million annually, from custom tariffs: no expiration date. 

P.L. 101-335, Pacific Yew Act, Act of August 7, 1992. Provided for the management of 

Federal lands containing the Pacific Yew to ensure a sufficient supply of taxol, a cancer 

treatment drug made from the Pacific Yew. Authorized the use of amounts received from 

the sale of Pacific Yew to pay the costs incurred by the Secretary (Agriculture and/or 

Interior) associated with the harvest and sale of Pacific Yew. 

P.L. 101-626, Tongass Timber Reform Act, January 23, 1990, 104 Stat. 4426 (16 

U.S.C 539d-e,1132). Amended the Alaska National Interest Lands Conservation Act, to 

protect certain lands in the Tongass National Forest in perpetuity, to modify certain longterm timber contracts, to provide for protection of riparian habitat, and for other purposes. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-18

Presidential Proclamation, Giant Sequoia in National Forests, July 14, 1992. 

Directed the Secretary of Agriculture to delineate the boundaries of Giant Sequoia groves 

on the Sequoia, Sierra, and Tahoe National Forests. Provided that designated groves will 

not be managed for timber production or included in the land base used to establish 

allowable sale quantities for the affected national forest. 

P.L. 103-443, Timber Sale Receipts (November 2, 1994). Authorized and directed 

payment of the Northern Spotted Owl Guarantee from any moneys in the Treasury not 

otherwise appropriated. 

P.L. 104-134 The Omnibus Consolidated Rescissions and Appropriations Act of 

1996 (April 26, 1996). Established new accounts, Timber Sales Pipeline Restoration 

Funds, for Interior and Agriculture for deposit of a portion of receipts from certain timber 

sales to be used for preparation of additional timber sales which are not funded by annual 

appropriations, and for the backlog of recreation projects. Permanent Appropriation; 

termination date to be determined by the Secretaries under provisions of the Act. 

P.L. 105-277 Omnibus Appropriations Act of 1999, (Stewardship Contracting) Title 

III – Sec. 347 Authorized the Forest Service to enter into no more than 28 contracts with 

private persons and entities to perform services to achieve land management goals for the 

National Forests that meet local and rural community needs. P.L. 108-7 February 20, 

2003, Joint Resolution Making Consolidated Appropriations for 2003. Title III, Sec. 

323 Amended P.L. 105-277 Sec 323 to extend authority for stewardship contracting until 

September 30, 2013. 

P.L. 105-277, Omnibus Appropriations Act of 1999. October 19, 1998 Section 401 

(Quincy Library Group Forest Recovery Act.) Directed the Secretary of Agriculture 

to conduct a Pilot Project that demonstrates the management activities championed by the 

Quincy Library Group for a period of five years. P.L. 108-7 Consolidated 

Appropriations Resolution Act of 2003, Extends expiration date by five years. 

P.L. 106-113, FY 2000, Consolidated Appropriations, Sec. 339, Pilot Program of 

Charges and Fees for Harvest of Forest Botanical Products. Pilot program to charge 

and collect not less than fair market value for forest botanical products harvested on 

National Forests. 

P.L. 109-54 Fiscal 2006 Interior-Environment Appropriations Sec. 412 August 2, 2005-

Amendment in Section 3(a) of the Act of June 9, 1930 (commonly known as the KnutsonVandenberg Act; 16 U.S.C. 576b). Expanded use of KV funds for National Forest purposes. 

Tribal 

P.L. 106-511, Cheyenne River Sioux Tribe Equitable Compensation Act, November 

13, 2000. Provided for equitable compensation for the Cheyenne River Sioux Tribe. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-19

P.L. 108-7, Consolidated Appropriations Resolution of 2003. (Tu’f Shur Bien 

Preservation Trust Act) (February 20, 2003) – Established preservation trust area on 

the Cibola National Forest and resolves claims by Pueblo Tribe. 

P.L. 108-67, August 1, 2003, An Act to direct the Secretary of Agriculture to convey 

24.3 acres in the Lake Tahoe Basin Management Unit located in Nevada to the Secretary 

of Interior in trust for the Washoe Indian Tribe of California and Nevada. 

P.L. 108-278, July 22, 2004, Tribal Forest Protection Act, To authorize the Secretary 

of Agriculture and the Secretary of the Interior to enter into an agreement or contract with 

Indian tribes meeting certain criteria to carry out projects to protect Indian forest land. 

P.L. 109-286, September 27, 2006 Pueblo de San Ildefonso Claims Settlement Act of 

2005. A bill to resolve certain Native American claims in New Mexico, and for other 

purposes.

Watershed/Fisheries 

P.L. 95-200, November 23, 1977, to provide improved authority for the administration 

of certain national forest system lands in Oregon. Established the Bull Run Watershed 

Management Unit within the Mount Hood National Forest, Oregon, to be administered by 

the Secretary of Agriculture. 

P.L. 96-586, Act of December 23, 1980. Section 2(h). Prevent, control, and mitigate 

water pollution, and manage NFS lands within the lake Tahoe Basin. Authorized 5 

percent of the L&WCF appropriation for Lake Tahoe Basin land acquisition each year. 

Expires when all Clark County, Nevada, land specified in the act is sold by the U.S. 

Department of Interior, BLM. 

P.L. 102-338, Zuni River Watershed Act of 1992, (August 11, 1992). Authorized the 

Secretary of Agriculture to conduct a study and prepare a plan for watershed protection 

and rehabilitation of the portion of the Zuni River Watershed that is upstream from the 

Zuni Indian Reservation on both public and private lands. Such sums as necessary; no 

expiration date. 

Wilderness 

P.L. 95-495, Boundary Waters Canoe Area Wilderness (BWCAW) Act of October 

21, 1978 (92 Stat. 1649), Section 11(f) and 18(e). Authorized appropriations for 

acquisition of minerals and mineral rights, and expansion of dispersed recreation outside 

the BWCAW. Such sums as necessary; no expiration date. 

P.L. 109-382, New England Wilderness Act (December 12, 2006). A bill to designate 

certain land in New England as wilderness for inclusion in the National Preservation 

system and certain land as a National Recreation Area, and for other purposes. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-20

P.L. 109-432, Tax Relief and Health Care Act of 2006, Division C, Title III, Sec. 323, 

White Pine County Conservation, Recreation and Development Act of 2006, 

(December 20, 2006). Designation of certain NFS lands within the State of Nevada for 

inclusion in the National Wilderness Preservation System. 

PERMANENT APPROPRIATIONS 

P.L. 60-136, Act of May 23, 1908, (Twenty-Five Percent Fund), Twenty-Five percent 

of all moneys received during any fiscal year from each National Forest shall be paid by 

the Secretary of the Treasury to the State in which such National Forest is situated. 

P.L. 62-430, Act of March 4, 1913 (16 U.S.C. 501) (Department of Agriculture 

Appropriations Act). Forest Road and trail improvements--10 percent financed from 

National Forest receipts. Permanent appropriations; no expiration date. 

P.L. 64-190, Act of August 11, 1916 (Department of Agriculture Appropriations Act), as 

amended (16 U.S.C. 490). Section 6. Disposal of brush and other debris due to timber 

sales in national forests. Permanent appropriations; no expiration date. 

P.L. 82-359, Act of May 23, 1952, as amended (16 U.S.C. 580p-2; 18 U.S.C. 711). 

Section 3. Forest fire prevention campaign (Smokey Bear). Permanent appropriations; 

no expiration date. 

P.L. 84-979, Department of Agriculture Organic Act of 1956, as amended by the Act 

of October 23, 1962 (16 U.S.C.579b). To provide services to Forest Service programs 

through use of a revolving fund. Such sums as are available; no expiration date. 

P.L. 85-464, Act of June 20, 1958 (16 U.S.C. 579C). Section 7. Restoration, 

improvements, and protection of Forest Service lands. Permanent appropriations; no 

expiration date. 

P.L. 93-318, Act of June 22, 1974, as amended (16 U.S.C. 580p--p-4; 18 U.S.C. 711, 

711a; and 31 U.S.C. 488a, 4886-3--4886-6). Section 1-6. Woodsy Owl antipollution 

campaign. Permanent appropriations; no expiration date. 

EXPIRING AUTHORITIES 

The following authorities will expire in either FY 2007 or FY 2008. 

P.L. 95-313, Cooperative Forestry Assistance Act, (Forest Land Enhancement 

Program) Establishes the Forest Land Enhancement Program and provides $100 million 

of funds from the CCC for financial, technical, educational, and related assistance to 

State Foresters to cost-share activities on private forest lands through FY 2007. 
FY 2008 Budget Justification USDA Forest Service

Authorities 18-21

P.L. 106-113, Consolidated Appropriations Act for FY 2000. Title II Sec. 331.( 

Enhancing Forest Service Administration of Rights-of-way and Land Uses.) The 

Secretary of Agriculture shall develop and implement a pilot program for the purpose of 

enhancing forest service administration of rights-of-way and other land uses. The 

authority for this program shall be for fiscal years 2000 through 2004. P.L. 108-447, 

Consolidated Appropriations Act, 2005”, December 8, 2004 Title III – General 

Provisions, Sec. 345, extends authorization until 2005. P.L. 109-54, Title III, General 

Provisions, Sec. 425, extended authorization until 2006. 

P.L. 106-224, Biomass Research and Development Act of 2000, Added new section 

310(a) of the Biomass Research and Development Act of 2000 that provides $14 million 

annually from the CCC to carry out activities under the title through September 30, 

2007. 

P.L. 106-291, Interior and other Related Agencies Appropriation Act of 2001, Sec. 

320, Establishes an advisory committee to be known as the Forest Counties Payments 

Committee to develop recommendations regarding methods to ensure that States and 

counties in which Federal Lands are situated receive adequate Federal payments. P.L. 

108-319, An Act to Extend the term of Forest County Payments Committee, extends 

authority until September 30, 2007. 

P. L. 107-171, Farm Security and Rural Investment Act of 2002 Title VIII, Forestry, 

Section 8102, reauthorized the Office of International Forestry within the Forest Service 

through fiscal year 2007. 

P.L. 108-7, Interior and Related Agencies Appropriations Act of 2003, Sec. 321, 

Authority for Secretary to enter into agreements which are mutually significant. P.L. 

109-54 FY 2006 Interior-Environment Appropriations, Sec. 426, Authority is 

extended until September 30, 2007.