FY 2014 Budget Justification USDA Forest Service

Table of Contents
FY 2014 Budget Justification USDA Forest Service

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FY 2014 Budget Justification USDA Forest Service

Table of Contents i

United States Forest Service

FY 2014 Budget Justification

Table of Contents

Page

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

Appropriations Language Changes................................................................................... 2-1

Forest and Rangeland Research........................................................................................ 3-1

State and Private Forestry ................................................................................................. 4-1

Landscape Scale Restoration ................................................................................................4-4

Forest Health Management...................................................................................................4-7

Federal Lands................................................................................................................4-12

Cooperative Lands........................................................................................................4-18

Cooperative Fire Protection ..................................................................................................4-22

State Fire Assistance.....................................................................................................4-23

Volunteer Fire Assistance.............................................................................................4-24

Cooperative Forestry.............................................................................................................4-25

Forest Stewardship Program.........................................................................................4-26

Forest Legacy Program.................................................................................................4-30

Community Forest and Open Space Conservation .......................................................4-34

Urban and Community Forestry ...................................................................................4-37

Forest Resources Information and Analysis.................................................................4-40

International Forestry............................................................................................................4-41

National Forest System....................................................................................................... 5-1

Integrated Resource Restoration...........................................................................................5-4

Collaborative Forest Landscape Restoration ........................................................................5-11

Restoration Partnerships.......................................................................................................5-20

Land Management Planning, Assessment and Monitoring...................................................5-25

Recreation, Heritage and Wilderness....................................................................................5-32

Grazing Management............................................................................................................5-39

Minerals and Geology Management.....................................................................................5-43

Landownership Management................................................................................................5-51

Law Enforcement Operations...............................................................................................5-56

Valles Caldera National Preserve .........................................................................................5-59

Capital Improvement and Maintenance........................................................................... 6-1

Facilities................................................................................................................................6-3

Roads ....................................................................................................................................6-10

Trails.....................................................................................................................................6-16

Deferred Maintenance and Infrastructure Improvement.......................................................6-20

Land Acquisition................................................................................................................. 7-1

Other Appropriations......................................................................................................... 8-1

Range Betterment Fund ........................................................................................................8-1
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Gifts, Donations, and Bequests for Forest and Rangeland Research.................................................8-3

Management of National Forest Lands for Subsistence Uses............................................................8-4

Wildland Fire Management............................................................................................... 9-1

Preparedness .........................................................................................................................9-3

Suppression...........................................................................................................................9-8

Hazardous Fuels............................................................................................................9-12

Research and Development ..........................................................................................9-17

Joint Fire Science Program...........................................................................................9-20

Forest Health Management - Federal Lands.................................................................9-22

Forest Health Management - Cooperative Lands.........................................................9-23

State Fire Assistance.....................................................................................................9-24

Volunteer Fire Assistance.............................................................................................9-28

FLAME Wildfire Suppression Reserve Fund.................................................................. 10-1

Payments to Communities.................................................................................................. 11-1

Permanent Appropriations................................................................................................ 12-1

Brush Disposal......................................................................................................................12-4

Hardwood Technology Transfer and Applied Research.......................................................12-6

Timber Salvage Sales............................................................................................................12-7

Timber Sale Pipeline Restoration .........................................................................................12-9

Forest Botanical Products.....................................................................................................12-12

Stewardship Contracting.......................................................................................................12-14

Recreation Fees, Forest Service............................................................................................12-17

Timber Purchaser Election Road Construction.....................................................................12-21

Operation and Maintenance of Forest Service Quarters.......................................................12-23

Roads and Trails for States...................................................................................................12-25

Land Between the Lakes Management .................................................................................12-27

Midewin National Tallgrass Prairie Rental Fees ..................................................................12-29

Midewin National Tallgrass Prairie Restoration...................................................................12-31

Quinault Special Management Area .....................................................................................12-32

Valles Caldera.......................................................................................................................12-34

Restoration of Forest Lands and Improvements...................................................................12-36

Commercial Filming and Still Photography Land Use Fee Retention..................................12-38

Organizational Camps Program............................................................................................12-40

Cost Recovery (Administration of Rights-of-Way)..............................................................12-42

Licensee Program Smokey Bear...........................................................................................12-45

Licensee Program Woodsy Owl ...........................................................................................12-46

Forest Service Go Green Program (Conservation) ...............................................................12-47

Conveyance of Administrative Sites.....................................................................................12-49

Site-Specific Lands Act ........................................................................................................12-56

Payment to States..................................................................................................................12-58

Trust Funds......................................................................................................................... 13-1

Cooperative Work - Knutson-Vandenberg ...........................................................................13-2

Cooperative Work, Other......................................................................................................13-5

Reforestation Trust Fund ......................................................................................................13-8

Land Between the Lakes Trust Fund ....................................................................................13-10
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Special Exhibits................................................................................................................... 14-1

Bark Beetle Infestation in the West ......................................................................................14-2

Biomass and Bioenergy ........................................................................................................14-5

Chief’s Reserve Fund............................................................................................................14-10

Conservation Education........................................................................................................14-12

Cost Pool (both Direct and Indirect) Totals..........................................................................14-15

Deferred Maintenance and Asset Management ....................................................................14-25

Efficiencies and Cost Control Measures...............................................................................14-31

Equal Access to Justice Act ..................................................................................................14-34

Facilities Maintenance Assessment ......................................................................................14-38

Fire Transfers........................................................................................................................14-43

Knutson-Vandenberg (K-V) Financial Status.......................................................................14-45

National Scenic and Historic Trails......................................................................................14-46

Office of General Counsel Reimbursement..........................................................................14-54

Office of Tribal Relations.....................................................................................................14-55

Partnerships...........................................................................................................................14-56

Reforestation.........................................................................................................................14-68

Region, Station and Area Allocations...................................................................................14-72

Research and Development Threat Assessment Centers......................................................14-84

Service First ..........................................................................................................................14-90

Stewardship Contracting.......................................................................................................14-93

Sustainable Operations..........................................................................................................14-99

Unobligated Balances...........................................................................................................14-102

USDA Working Capital Fund and Greenbook Charges.......................................................14-104

Wood Education and Resource Center .................................................................................14-118

Working Capital Fund – Forest Service................................................................................14-121

Working Capital Fund – Forest Service Fleet Management.................................................14-122

Forest Service Budget Authorities..................................................................................... 15-1
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FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-1

1. Annual Performance Report

 

USDA Forest Service

Annual Performance Report

Table of Contents

Introduction................................................................................................................................ 1-3

Forest Service Performance Management Framework.................................................................1-5

Data Validity and Verification......................................................................................................1-5

Forest Service Contribution to USDA Agency Priority Goal.......................................................1-6

Strategic Goal 1: Restore, sustain, and enhance the Nation’s forests and grasslands........ 1-7

Key Performance Measures for Goal 1: Wildland Fire Management...........................................1-8

Key Performance Measures for Goal 1: Invasive Species..........................................................1-11

Key Performance Measures for Goal 1: Healthy Watersheds and Diverse Habitats..................1-13

Strategic Goal 2: Provide and Sustain Benefits to the American People............................ 1-14

Key Performance Measures for Goal 2.......................................................................................1-15

Strategic Goal 3: Conserve Open Space ................................................................................ 1-18

Key Performance Measures for Goal 3.......................................................................................1-19

Strategic Goal 4: Sustain and Enhance Outdoor Recreation Opportunities..................... 1-21

Strategic Goal 5: Maintain Basic Management Capabilities of the Forest Service........... 1-24

Principal Programs to Achieve Goal 5........................................................................................1-24

Key Performance Measures for Goal 5.......................................................................................1-25

Strategic Goal 6: Engage Urban America with Forest Service Programs ......................... 1-26

Key Performance Measures for Goal 6.......................................................................................1-27

Strategic Goal 7: Provide Science-Based Applications and Tools for Sustainable Natural 

Resources Management........................................................................................................... 1-28

Key Performance Measures for Goal 7.......................................................................................1-29

Research and Program Evaluations....................................................................................... 1-30

External Audits and Reviews.................................................................................................. 1-33

Management Challenges ......................................................................................................... 1-35
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Introduction

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

in trust for future generations. They provide clean air and water, recreational opportunities, jobs, and a 

host of forest products. The Forest Service plays an important role in protecting and restoring America’s 

forests and grasslands and making them more resilient to threats and disturbances. In alignment with 

Secretary Vilsack’s vision of an “all-lands approach” to conservation, the agency’s efforts in 2012 were 

focused on enhancing water resources, responding to climate change effects, community-based 

stewardship, and jobs to assist rural communities. Measuring our activities through performance systems 

and using performance results throughout the year provides the Forest Service the opportunity to 

demonstrate our achievements, identify challenges, and examine our strategies and methods employed by 

our programs. 

This chapter presents the Forest Service’s performance information within the framework of the Forest 

Service’s 2007 - 2012 strategic plan and, as such, presents seven goals, each of their objectives, and the 

performance measures chosen to represent the agency’s progress toward those goals and objectives. The 

Forest Service’s accomplishments also inform progress toward goal #2 of the U.S. Department of 

Agriculture’s (USDA) 2010-2015 Strategic Plan - Ensure our national forests and private working lands 

are conserved, restored, and made more resilient to climate change, while enhancing our water 

resources. Outlined below are the Forest Service strategic goals and how they align to the USDA 

Strategic Plan. Specific performance measures that show the Forest Service’s contributions to this goal 

are listed on the next page.

Forest Service Strategic Goals

Goal 1: Restore, Sustain, and Enhance 

the Nation’s Forests and Grasslands

Goal 2: Provide and Sustain Benefits to 

the American People

Goal 3: Conserve Open Space

Goal 4: Sustain and Enhance Outdoor 

Recreation Opportunities

Goal 5: Maintain Basic Management 

Capabilities of the Forest Service

Goal 6: Engage Urban America with 

Forest Service Programs

Goal 7: Provide Science-Based 

Applications and Tools for Sustainable 

Natural Resources Management

USDA Strategic Goal #2:

Ensure our national forests and 

private working lands are 

conserved, restored, and made 

more resilient to climate 

change, while enhancing our 

water resources
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Annual Performance Report 1-4

Forest Service Contributions to USDA Strategic Goal Objectives and Measures:

Performance Measure USDA 

Baseline

FY 2011 

Actual

FY 2012 

Target

FY 2012 

Actual

FY 2013

Target

FY 2014 

Target

FY 2015 

Target***

1.1.5* Annual economic contribution of recreation on National 

Forests and Grasslands (number of jobs)

237,800 237,800 237,800 237,800 237,800 237,800 247,300

2.1.1 Annual acres of public and private forest lands restored or 

enhanced

N/A 4,924,904 3,992,210 4,424,845 4,322,384 3,517,384 4,337,500

2.1.3 Percentage of non-Federal and USDA-managed grazing 

lands with conservation or management applied to 

improve or sustain productivity and ecological health

34.6% 28.7% 20.1% 32.4% 20.1% 29.1% 20.1%

2.1.4 Total acres of agriculture and forest landscapes protected 

from conversion through conservation easements and fee 

simple purchases, to preserve natural resource quality, 

open space, and rural amenities

1,923,549 2,431,903 2,827,951 2,529,177 2,791,950 2,994,061 2,860,000

2.1.5 Number of communities with urban and community 

forestry programs resulting from Forest Service assistance

7,139 7,172 7,200 7,499 7,200 7,150 7,639

2.2.3 Percent of National Forests in compliance with the Forest 

Service climate change adaptation and mitigation strategy

0% 16% 17% 36% 40% 50% 100%

2.3.1 Acres of National Forest system watersheds at or near 

natural condition

58,000,000 102,735,767 102,749,436 102,429,088 102,749,436 102,400,000 62,000,000

2.3.4** Acres on which high impact targeted (HIT) practices are 

implemented on National Forest and private working 

lands in priority landscapes to accelerate the protection of 

clean, abundant water resources

0 304,565 300,000 321,203 300,000 270,000 300,000

2.4.1 Number of communities with reduced risk from 

catastrophic wildfire

10,000 3,902 13,300 3,973 7,980 4,200 18,000

2.4.2 Cumulative number of acres in the National Forest 

System that are in a desired condition relative to fire 

regime

58,500,000 59,269,943 60,089,400 59,468,313 60,568,200 61,047,000 61,500,000

2.4.3 Percentage of acres treated in the Wildland Urban 

Interface (WUI) that have been identified in community 

wildfire protection plans or equivalent plans.

41.0% 60.8% 75% 93% 75% 90% 55%

*Progress on measure 1.1.5 is not updated annually. The Forest Service calculates the impact of our national forests and grasslands on rural economies every four years, so we have identified one 

target for the entire strategic plan period. The next update will occur in 2014. Throughout this time, we will continue to support rural prosperity by conserving working forests, providing service 

contracts for a variety of activities, emphasizing the use of stewardship contracts, providing technical training to youth at our 125 Job Corps centers, and maintaining the recreational value of national 

forests and grasslands.

**Multiple agencies within USDA contribute to measure 2.3.4 to implement practices that have a high impact on water resources in targeted landscapes. In 2010, USDA identified landscapes of 

national importance including national forests and private working lands in the Chesapeake Bay, Great Lakes, Upper/Lower Mississippi, and California Bay Delta, and updated the contribution each 

agency will make to the goal in the immediate future. Agencies continue working together to achieve the FY 2015 goal of nine million acres for the entire Department.

***FY 2015 targets reflect published targets—or Forest Service contribution to multi-agency targets—in the USDA Strategic Plan.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-5

This Annual Performance Report is required by the Government Performance and Results Modernization 

Act. To attain the desired outcomes in USDA Strategic Goal #2, the agency focuses on achieving our 

strategic plan goals and objectives. In turn, these objectives drive efforts on the ground as well as the 

annual targets and performance goals we set for ourselves. To provide a framework for reporting, we 

present results by Forest Service strategic plan goals.

The discussion for each Forest Service strategic plan goal includes: (1) performance data for FY 2010 

through FY 2012, (2) an analysis of the most recent year’s results, and (3) corrective action plans, where 

appropriate1

. The Annual Performance Report is one of three reports issued by the Forest Service to 

describe financial and performance results. The other two reports include the Annual Financial Report 

and a Summary of Performance and Financial Information issued following the release of the FY 2014 

President’s Budget Request. All three reports are available on the Forest Service website.

Forest Service Performance Management Framework

To track its outputs and outcomes and to measure progress towards goals, the Forest Service has an 

established performance management framework. It begins with performance measures established in 

support of the strategic plan and individual budget line items, by the organizational unit (Deputy Area) 

responsible for the program. Measures vary in their objectives. Some track program outputs and others 

inform short-, mid-, and long-term outcomes. 

Targets for these measures are set annually, during the budget process, or as part of the direction issued to 

the Regions, Stations, and Area (generally referred to as the field). Targets are set nationally for most 

measures by the Deputy Area. As work occurs on the ground throughout the year, accomplishments that 

support these targets are tracked and reported in nearly 40 data sources across the agency. These data 

sources provide reporting to the agency’s official data source for external reporting, the Performance 

Accountability System (PAS). Once in PAS, these accomplishments represent the collective work of: 

• 155 forests and 20 National grasslands that contain more than 600 ranger districts

• Nine regional offices

• Northeastern Area for State and Private Forestry

• Seven research stations including Forest Products Laboratory and the International Institute for 

Tropical Forestry

• Three Centralized Business Services Units

The official accomplishments are reported to USDA, Office of Management and Budget, the Congress, 

and the public annually. They are also used by agency leadership to inform progress and provide 

accountability for results.

Data Validity and Verification

The Forest Service uses a number of processes and controls to ensure data quality and validity. In the 

field, managers, supervisors, and project staff are responsible for reviewing the completeness and quality 

of the data at the ranger district, national forest, and regional levels. The regions conduct self-reviews on a 

select number of performance measures each year to identify any discrepancies between reported and 

 1 Goals are considered to be “met” if actual accomplishments are within five percent (except where otherwise noted)

of the stated target for that year. Corrective action plans are discussed if a shortfall beyond the stated tolerance 

occurs.
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Annual Performance Report 1-6

actual results. The agency also requires regional-level leadership to certify that all appropriate procedures 

have been performed to ensure validity and reliability of key performance data, and to document data 

items that do not meet the standard. 

The Strategic Planning, Budget and Accountability Performance (SPBA) staff manages the national 

accomplishment reporting database, PAS, which includes the Metrics Management system that serves as 

the official source for national measures and definitions.

As part of the controls for this system, SPBA staff conducts yearly regional performance oversight 

reviews to ensure appropriate procedures are followed during the year. SPBA staff also analyze year-end 

accomplishment reports to develop national-level corrective action plans for unmet measures. The PAS 

system and associated controls framework provides a structured process for monitoring and measuring 

our goals, as well as ensuring consistency in data collection and data quality.

Forest Service Contribution to USDA Agency Priority Goal 

USDA Priority Goal #3 focuses on accelerating the protection of clean, abundant water resources by 

implementing high impact targeted (HIT) practices on national forests and private working lands in 

priority watersheds. The Forest Service implements specific activities and treatments to protect 

watersheds and water resources including establishing forest vegetation, improving rangeland vegetation, 

restoring lake and stream habitat, and maintaining or decommissioning roads. The Natural Resources 

Conservation Service (NRCS) and the Farm Service Agency also implement unique programs to protect 

water resources under this goal. Working together, the three agencies were able to achieve the USDA 

target for this goal of 2 million acres in FY 2012.
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Annual Performance Report 1-7

Strategic Goal 1: Restore, sustain, and enhance the Nation’s forests and grasslands

The health of our Nation depends, in many ways, on the vitality of our Nation’s forests and grasslands. 

These natural resources contribute a variety of essential elements to our well-being, including clean air 

and water. Stewardship of this land involves a complex integration of programs that foster recreation, 

energy, forest products, and resource sustainability. Following Secretary Vilsack’s vision of an All Lands 

approach, the Forest Service is focusing on improving the health of forest and grassland watersheds, 

restoring ecosystem function, and increasing forest resilience. 

Many challenges continue to test the resilience of the Nation’s forests and grasslands. Population growth 

and expanding urban centers raise demand for goods, services, and amenities from the Nation’s private 

and public forests and rangelands. Management problems caused by wildfires, changing rain patterns, and 

expanding forest insect infestations have been driven, in part, by climate change and future impacts are 

projected to be more severe. 

The threats that face forests and grasslands can sometimes be a natural part of the ecosystem cycle. Fire, 

for instance, when strategically managed, can help forests grow stronger, healthier, and more resilient. On 

the other hand, natural threats such as invasive and native pests, including certain insects, diseases, and 

plants, pose a long-term risk to forest and rangeland health. Recent trends such as over-crowded forest 

stands and drought conditions have increased the extent and frequency of insect-such as mountain pine 

beetle and gypsy moth-and disease outbreaks, which reduce the stands’ resilience to fire and increase the 

likelihood that fires will be catastrophic. In response, Forest Service programs prevent, detect, monitor, 

evaluate, and suppress insects and disease to restore and protect Federal forestlands and lands owned by 

States, local governments, private organizations, and individual land owners.

Principal Programs to Achieve Goal 1

The largest investment for maintaining forest and rangeland health, productivity, diversity, and resistance 

to disturbance is supported from the Wildland Fire Management budget. Other programs that contribute 

to this goal are also discussed below. 

Wildland Fire Management recognizes the importance of integrating fire as a critical natural process in 

land and resource management plans and activities, managing wildfire across landownership boundaries, 

and applying the best available science. Prior-year investments in fire management planning have been 

used to develop a full range of fire management tactics in response to naturally occurring fires. Such 

responses may include letting fires burn when it is beneficial to the ecosystem and do not pose significant 

risk to communities. 

Within Wildland Fire Management, the Hazardous Fuels program plays an important role in restoring 

forest health and reducing wildfire risks. Hazardous fuel reduction (through prescribed burning, 

mechanical treatments, and other methods) reduces the quantity or changes the arrangement of living and 

dead vegetation in forests and grasslands. 

To provide needed information, the Wildland Fire and Fuels Research and Development (R&D) provides 

managers and policymakers essential knowledge and tools for making cost-effective and 

environmentally-sound fire management decisions. Products from R&D ensure that the best science is 

available to sustain and enhance resources and public benefits and to minimize negative impacts of fire. 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-8

Within State and Private Forestry, Goal 1 activities are supported by the Forest Health Programs for 

Federal and Cooperative lands. The Forest Health Management Program provides insect, disease, and 

invasive plant surveying and monitoring information on forest health conditions for Federal forestlands 

and other land owners. Forest Health Management uses science, active land management, and technology 

transfer expertise to restore and sustain forest landscapes across urban, private, State, Tribal, and Federal 

forests. 

The Integrated Resource Restoration (IRR) facilitates a holistic approach to landscape management on 

National Forest System (NFS) lands. This includes actions to restore or sustain water quality and 

watershed processes; resilient and disturbance-tolerant landscapes; soil condition, stability and 

productivity; vegetative composition and condition; fish and wildlife habitat and populations; and aquatic 

ecosystems connectivity. The program directly funds landscape-scale restoration projects and leverages 

accomplishment of additional restoration objectives through program integration and partnerships. These 

investments will help sustain and restore the core components of functioning ecosystems, enhance 

watershed resilience in the face of climate change, and help meet the increasing demand for water 

resources. 

Key Performance Measures for Goal 1: Wildland Fire Management

Objective 1.1 – Reduce the risk to communities and natural resources from wildfire

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

1.1.a Number of percentage of 

acres treated to restore fireadapted ecosystems

(1) Moved toward desired 

conditions

Number (acres)

Percentage

(2) Maintained in desired 

conditions

Number (acres)

Percentage

799,215

27%

1,146,720

38%

693,957

24%

1,231,800

42%

787,478

35%

1,028,611

45%

640,000

40%

800,000

50%

493,015

31%

783,620

39%

77%

78%

98%

78%

1.1.b Number of acres brought 

into stewardship contracts 88,304 152,834 100,577 300,000 134,258 45%

Objective 1.2 – Suppress wildfires efficiently and effectively

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

1.2.a Percentage of fires not 

contained in initial attack that 

exceed a stratified cost index

22% 39.7% 20.8% 14% 24% 88%
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Annual Performance Report 1-9

Objective 1.3 – Build community capacity to suppress and reduce losses from wildfires

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

1.3.a Percentage of acres treated 

in the wildland urban interface 

that have been identified in 

community wildfire protection 

plans or equivalent plans

41% 44.8% 60.8 75% 93% 124%

FY 2012 Results Summary for Wildland Fire Management 

In FY 2012, the Forest Service accomplished 77 percent (493,015 acres) of the target for the number of 

acres treated to restore fire-adapted ecosystems that are moved toward desired conditions and 98 percent 

(783,620 acres) of target for acres maintained in desired conditions. The agency achieved 78 percent of 

the target for both of these measures when considered as a percentage of total acres treated in FY 2012. 

There are a suite of factors that affect these measures, resulting in fluctuations in annual performance. 

First, long-term drought, the severity of the fire season, and resource availability influence performance in 

unpredictable ways. Next, it often takes multiple treatments to move an area toward desired conditions 

and it may take repeated treatments over time to maintain an area in the desired condition. The number of 

treatments is also not very well predicted as it depends on a variety of conditions. Last, the Forest Service 

continues to focus on the treatment of hazardous fuels on high priority areas near communities in the 

Wildland Urban Interface (WUI). These strategically important areas are often more expensive to operate 

in, resulting in fewer acres treated and therefore fewer acres changing condition class. The FY 2012 

targets were set during the development of the Strategic Plan in 2006 and did not fully anticipate the costs 

of WUI acres.

The total use of stewardship contracting increased in FY 2012 as compared to FY 2011. While the total 

stewardship contracting acres increased from approximately 100,000 acres to approximately 134,000 

acres, we fell short of the aggressive 300,000 acre target previously set for FY 2012. One of the unique 

aspects of stewardship contracts is that, by design, they are based on long-term partnerships. The mix of 

goods and services work that occurs within the partnership area in a given year is subject to local and 

market conditions that can affect both the utility and economic incentives for performing specific work 

and expanding acres accomplished. Despite this limitation, the agency is focusing on continuing the use 

of stewardship contracting for a wide variety of forest restoration work, including enhancing wildlife 

habitat and treating invasive species. We believe that this focus will allow the Forest Service to expand its 

acreage under stewardship contracting in FY 2013 and beyond.

The Forest Service suppression performance measures are program outcome and efficiency measures that 

focus on reducing fire risk. To help analyze suppression costs the agency uses an efficiency measure that 

compares actual to expected suppression costs via a stratified cost index (SCI). SCI is a set of predictive 

models based on spatially explicit historical large fire data from 1995 to 2004. SCI determines expected 

suppression costs for each fire utilizing several factors found to influence suppression costs. Fires with 

costs more than one standard deviation higher or lower than expected are considered outside the range of 

expected SCI costs. In real time, the SCI provides a comparison of a fire’s expenditures to historical fires 

with similar characteristics (including fuel type, slope, elevation, and total housing value), increasing cost 

awareness and providing a basis for fire incident budgeting. 

The percentage of incidents not contained in initial attack that exceeded the SCI in FY 2012 was 24 

percent—an increase of 3.2 percent over FY 2011. The 2012 fire season was a very active one, and while 

we did not achieve our planned accomplishment of 14 percent, we did perform relatively consistently in 
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Annual Performance Report 1-10

2012 when compared to 2011. The FY 2012 target was established during the development of the Forest 

Service Strategic Plan in FY 2006, at which time this calculation methodology was very new with little 

historical data. Since then, more historical data sets have been added, as well as fire data from the fire 

seasons since 2006. Based on this additional information, and subsequent refinements to the model, we 

have learned that a target of 14 percent is unattainable and we expect that our performance will 

consistently fall in the 20 and 25 percent range. Our challenge is to consistently drive agency performance 

to the low end of this range.

The percentage of acres treated in the WUI identified in a Community Wildfire Protection Plan (CWPP) 

or equivalent has increased five-fold nationally since the baseline of 17 percent was established in 2006-

due to ongoing emphasis on the importance of these plans to focus fuels treatment resources, as well as a 

recognition that equivalent plans, especially in the Northeast and the Southern U.S., are also critical 

planning tools. In FY 2012, the Forest Service updated its data systems to more thoroughly capture fuels 

treatments that were identified not only in CWPP’s (used particularly in the Western U.S.), but also the 

Southern Wildfire Risk Assessment and the Northeast Wildfire Risk Assessment. This change enabled us 

to even more fully capture the integrated, partner-driven planning efforts that are going on at all levels of 

management. Viewed through this lens, agency efforts during the period of this strategic plan have been 

highly successful-resulting in an accomplishment of 93 percent of acres treated identified in a CWPP or 

equivalent plans in FY 2012. We will continue this work with our partner communities to develop and 

implement CWPPs by providing technical assistance. 

Means and Strategies for Success 

The detailed program budget justification identifies the operations and capital investments required to 

continue efforts on these objectives. In particular, we will emphasize the following:

• Modernizing our airtanker fleet to increase availability and efficiency

• Working with communities to develop, implement, and update CWPP’s and equivalent plans and 

improve local wildfire suppression capability and coordination

• Strategically and safely managing wildfire, promoting the appropriate use of prescribed fire, 

maintaining resilient land and water conditions at the watershed level, and restoring deteriorated 

lands and waters through strategic, risk-informed management and use of wildland fire. Phase II 

of the Cohesive Strategy builds upon the national strategy through development of regional 

strategies and comparative risk assessments

• The final Phase III, the National Risk Trade-Off Analysis will develop models that will better 

inform decision-makers and allow them to understand the risks and trade-offs associated with 

their wildland fire management decisions

Corrective Action for Measures Lower than 95 percent Achievement for FY 2012

The agency will continue to emphasize strategically treating hazardous fuels on more acres in the WUI 

which are often more costly. As such, we have lowered our targeted acres to be treated in the WUI 

accordingly. This shift means that fewer acres overall will be treated, resulting in fewer acres changing 

condition class and moving into a desired condition. Numerous entries into an area are also often required 

to maintain desired conditions. The continued emphasis on integrated restoration is likely to improve 

outcomes in both moving acres towards and maintaining them in desired conditions.

Stewardship contracting is just one of the important tools that the agency will continue to use to 

accomplish restoration objectives. While we did not reach the aggressive 300,000 acre target set for FY 

2012, we will focus on applying and expanding stewardship contracting practices where appropriate to 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-11

help achieve land management goals. The mix of goods and services, and therefore acres accomplished, 

will vary within a partnership area from year to year; however, the agency believes it will be able to 

expand acreage under stewardship contracting in FY 2013 and FY 2014. 

We are refining the methodology used to calculate the SCI as we obtain more data and improve 

computational ability. This will improve the SCI calculation by enabling us to more thoroughly analyze 

how our wildland fire management response decisions affect overall costs. We will also continue to

implement risk management and fiscal accountability initiatives that will ensure we have an appropriate, 

risk informed, and effective response to all wildland fires. We will also continue to refine how large and 

complex wildfires are managed, focusing on improving risk management protocols and striving to 

increase incident management efficiency.

Key Performance Measures for Goal 1: Invasive Species

Objective 1.4 - Reduce adverse impacts from invasive species, pests, and diseases.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

1.4.a Percentage of priority acres 

restored and/or protected from 

invasive species on Federal and 

Cooperative lands

NFS Lands

Other Federal and Cooperative 

Program lands (S&PF) 

81.5%

26.2%

78.6%

20%

75.2%

19%

90%

20%

78.4%

17.1%

87%

86%

FY 2012 Results Summary for Invasive Species 

This performance measure evaluates the effectiveness of the Forest Service’s invasive species program of 

reducing the impact of invasive species on priority Federal and non-Federal lands. Treatments are 

prioritized based on risk, efficacy and cost. Aquatic and terrestrial invasive species management includes 

activities for prevention, early detection, and rapid response for eradication, control and containment, and 

restoration and rehabilitation. In FY 2012, NFS program activities treated 331,462 acres of priority 

aquatic and terrestrial invasive species infestations, of which 271,469 acres targeted high risk invasive 

plants/noxious weeds and 59,994 acres were treated against other invasive taxa on NFS lands. These NFS 

program activities achieved a very successful treatment efficacy averaged across all treatment types and 

target species, resulting in a 78.4 percent outcome restoration accomplishment on NFS lands and waters. 

In addition, State and Private Forestry (S&PF) programs provided support to state and federal partners in 

FY 2012 to treat 106,920 acres for invasive species on other Federal lands, and 578,083 acres against 

invasive species on Cooperative lands. Overall, S&PF programs accomplished 86 percent of their national

outcome performance target. The Forest Service continued to protect critical forest ecosystems from 

established non-native insects such as mountain pine beetle and hemlock wooly adelgid and native 

diseases, such as Port Orford-cedar root disease and white pine blister rust. Work also continued on nonnative invasive pest threats, such as the emerald ash borer, gold-spotted oak borer and non-native diseases 

such as sudden oak death and thousand cankers disease.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-12

Means and Strategies for Success

Management of invasive species will be a critical element as the Forest Service implements integrated 

ecological restoration projects on priority landscapes. We will emphasize the following:

• NFS invasive species management activities will continue to target priority aquatic and terrestrial 

invasive species including invasive plants, pathogens, vertebrates, invertebrates, and other 

invasive taxa that threaten watershed condition and ecosystem health in coordination with local, 

state, Tribal, and national partners

• Implementing an all-lands approach to ecosystem restoration in cooperation with the NRCS, 

Animal and Plant Health Inspection Service (APHIS), and other partners and property owners to 

ensure the effectiveness of invasive species management activities across ownership and 

jurisdictional boundaries

• Utilizing risk maps to select forest insect and disease project locations for prevention work and 

aerial and ground survey techniques to identify suppression treatments

• Using state Forest Action Plans to help guide Forest Health Management activities, as forest 

health was often identified as a key element requiring attention

• Implementing the invasive species management policy provisions delineated in Forest Service 

Manual (FSM) 2900 to increase integration across NFS programs, and prioritizing prevention,

Early Detection & Rapid Response (EDRR) activities on National Forests and Grasslands in 

order to restore and improve watershed condition and ecosystem health

• Using EDRR efforts to find invasive insects and diseases early, thereby reducing future costs to 

address pest outbreaks

• Continuing funding for the Eastern Forest Environmental Threat Assessment Center in Asheville, 

North Carolina, and the Western Wildland Environmental Threat Assessment Center in 

Prineville, Oregon. These Forest Service facilities are jointly supported by S&PF, NFS, and R&D 

and provide information on how multiple threats interact with pests, focusing on the effects of a 

changing climate.

Corrective Action for Measures Lower than 95 percent Achievement for FY 2012

An agency review of the invasive species performance measure (listed above) and the activities that 

contribute to it indicated that a target of 90 percent efficacy of invasive species treatments is unattainable 

given the dynamic nature of invasive species. The FY 2012 accomplishment of 78.4 percent is considered 

high across the public invasive species management sector. Also, the new National Forest System 

Invasive Species Management directive FSM 2900, issued in late 2011, emphasizes invasive species 

management integration across multiple NFS programs, and prioritizes prevention, early detection, and 

rapid response to priority infestations in order to restore priority watersheds. FSM 2900 has helped 

increase the effectiveness, accountability, and transparency of the NFS invasive species program, and 

expanded collaborative efforts with internal and external partners at the local, Tribal, State, and Federal 

levels. As a result, nearly 241,000 acres in priority watersheds were restored on NFS lands in FY 2012 

under the new policy direction. NFS program activities are expected to improve and expand under the 

new FSM 2900 directive, and under the complimentary policy handbook currently in development.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-13

Key Performance Measures for Goal 1: Healthy Watersheds and Diverse Habitats

Objective 1.5 – Restore and maintain healthy watersheds and diverse habitats.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

1.5.a Percentage of watersheds in 

class 1 condition 30% 26% 52% 52% 52% 100%

1.5.b Acres and miles of 

terrestrial and aquatic habitat 

restored consistent with forest 

plan direction:

Acres of terrestrial habitat

Miles of stream habitat

Acres of lake habitat

2,153,749

3,498

23,570

2,037,110

3,577

27,779

2,629,476

3,878

26,832

1,980,000

2,670

24,000

2,714,456

3,704

32,369

137%

139%

135%

1.5.c Percentage of acres needed 

reforestation or timber stand 

improvement that were treated

18% 23% 16% 16% 14% 88%

FY 2012 Results Summary for Healthy Watersheds and Diverse Habitats

The Forest Service achieved 100 percent of its FY 2012 goal for the percentage of watersheds in class one 

condition. Condition class is assessed using the Watershed Condition Framework (WCF) – a set of 12 

indicators that, as a whole, inform decision-making on the types of watershed improvements that can be 

planned and undertaken. This target was met, in part, due to projects informed by the WCF. In FY 2012, 

247 Priority Watersheds were identified where restoration efforts will be focused, and 205 Watershed 

Restoration Action Plans were developed identifying specific restoration needs in the priority watersheds 

with activities ranging from fuel reduction, vegetation establishment, to road decommissioning and 

opening up of critical aquatic organism passages.

In FY 2012, the agency surpassed its targets for acres of terrestrial habitat restored (2,714,456 acres or 

137 percent of target), miles of stream habitat (3,704 miles or 139 percent of target), and acres of lake 

habitat restored (32,369 acres or 135 percent of target). Successful partnerships and collaborative efforts 

have led to the improvement of millions of acres of terrestrial habitat, and thousands of miles of streams 

for imperiled, common, and economically significant species throughout the Nation. Our partnerships 

support ecosystem services such as clean water and woody biomass. These partnerships have increased 

our capacity to conduct restoration through sizeable contributions of matching funds and in-kind support 

from external partners. 

The agency fell short of the target for treating acres in need of reforestation or timber stand improvement 

because some harvests did not sell and many forests experienced dryer than normal weather conditions. 

These two variables greatly influenced the number of acres established or improved which are the basis 

for accomplishment reporting under this measure. Costs were also higher than expected. The agency has 

increased its emphasis on planting to address areas lacking vegetation due to catastrophic wildfires. 

Planting costs are higher due to the use genetically improved stock that is resistant to insect and disease 

infestation, and able to tolerate conditions associated with a changing climate.

Means and Strategies for Success 

• The IRR landscape scale approach will align restoration actions through forest management, 

range management, wildlife and fisheries habitat management, vegetation & watershed 

management, non-WUI hazardous fuels management, and Legacy Roads and Trails
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-14

• These programs also incorporate implementation of the WCF and will, in the future, include the 

Terrestrial Condition Assessment, an important piece of the planned Ecosystem Condition 

Framework

• By combining the authority and funding of multiple land management programs into one budget 

line item, we are gaining administrative efficiency by reducing accounting codes and streamlining 

scheduling of multiple resource management activities in a single area or season

• The IRR program integration is playing a key role in bringing together resources and partners to 

develop a strategic focus, identifying priority areas on which to focus restoration activities, and 

helping us apply the right mix of restoration efforts in these priority areas

• Working at the landscape scale allows us to address many of the resource challenges facing NFS

lands, such as the bark-beetle epidemic, the decline of longleaf pine ecosystems, threatened and 

endangered species management, wild horse and burro management, restoring lands historically 

used as roads to a natural state, and replacement of bridges or major culverts to allow aquatic 

organism passage, while protecting the overall resiliency of forests and grasslands

Corrective Action for Measures Lower than 95 percent Achievement for FY 2012

The Forest Service fell short of the target for treating acres in need of reforestation or timber stand 

improvement in part because of higher costs associated with genetically-modified stock. Since those costs 

can be predicted, action will be taken to re-evaluate the target if all re-planting is undertaken with higher 

per-unit planting stock. 

Strategic Goal 2: Provide and Sustain Benefits to the American People

This Strategic Goal focuses on sustaining the productivity of the Nation’s forests and grasslands to meet 

present and future needs. The NFS provides essential goods and services that help meet the American 

people’s need for water, wood fiber, protein, energy, and other benefits. The Forest Service manages 193 

million acres of NFS lands; assists States, Tribes, and private landowners via technical and financial 

assistance; provides international technical assistance; and develops and disseminates science and 

technology to improve the health and use of the Nation’s forests and grasslands. Sustainable management 

of these resources ensures that the availability of goods and services and land productivity is maintained 

for both current and future generations.

Principal Programs to Achieve Goal 2

Through the IRR program, the agency actively manages forest vegetation, supports ecosystem and 

watershed restoration objectives, and focuses on landscape restoration and activities that promote 

watershed resilience. This landscape scale approach allows the agency to address many of the resource 

challenges facing NFS lands, such as the bark-beetle epidemic, the decline of longleaf pine ecosystems, 

threatened and endangered species management, wild horse and burro management, restoring lands 

historically used as roads to a natural state, replacement of bridges or major culverts to allow aquatic 

organism passage, and climate variability, while protecting the overall resiliency of forests and 

grasslands.

The Grazing Management program also contributes to this goal by managing the diverse rangeland 

resources to maintain a sustainable supply of forage for livestock and wildlife. The program seeks to 

maintain open space and habitat connectivity by linking NFS grazing authorizations to privately-owned 

lands managed for agricultural production, and by helping sustain the rural based ranching and farming 

lifestyle. Managing grazing allotments provides for the administration and monitoring of grazing permits 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-15

and activities. This includes issuance of grazing permits, processing permit transfers, preparation and 

processing of bills for collection, and the development of annual operating instructions.

The Minerals and Geology Management program provides significant contributions to meeting the 

Nation’s energy and mineral needs while providing jobs and protecting NFS watersheds and resources.

Renewable energy is a valuable benefit to the American public that the Forest Service provides through 

efforts such as the Woody Biomass Utilization Strategy. Other renewable activities include hydropower 

licensing, wind energy development, and geothermal operations on NFS lands.

Forest Service R&D provides science, management, and technology services to forest and rangeland 

owners, managers, policy makers, scientists, and the public so they can manage and use forest and 

rangeland resources to improve the standard of living and quality of life for current and future 

generations.

Key Performance Measures for Goal 2 

Objective 2.1 Provide a reliable supply of forest products over time that is consistent with achieving 

desired conditions on NFS lands and helps maintain or create processing capacity and infrastructure in 

local communities.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

2.1.a Amount of wood fiber 

provided each year to help meet 

the Nation’s demand for forest 

products in an environmentally 

sustainable manner

CCF

MMBF

4,829,254

2,415

5,020,841

2,592

4,845,059

2,533

5,232,000

2,600

5,084,308

2,644

97%

102%

2.1.b Number of green tons 

and/or volume of woody biomass 

from hazardous fuel reduction and 

restoration treatments on Federal 

land that are made available 

through permits, contracts, grants, 

agreements, or the equivalent

3,155,936 3,306,138 2,954,842 2,700,000 2,813,403 104%
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-16

Objective 2.2 Provide a reliable supply of rangeland products over time that is consistent with 

achieving desired conditions on NFS lands and helps support ranching in local communities.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

2.2.a Acres of national forests 

and grasslands under grazing 

permit that are sustainably 

managed for all rangeland 

products

79,097,281 76,153,782 75,387,241 73,819,816 75,067,407 102%

Objective 2.3 Help meet energy resource needs.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

2.3.a Percentage of land Special 

Use Permit applications for 

energy related facilities that are 

completed within prescribed 

timeframes

100% 100% 100% 100% 100% 100%

2.3.b Percentage of energymineral applications that are 

processed within prescribed 

timeframes

8% 5% 44% 43% 34% 79%

Objective 2.4 Promote market-based conservation and stewardship of ecosystem services.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

2.4.a Number of States that have 

agreements with the Forest 

Service to help private forest 

landowners market ecosystem 

services

17 20 23 21 29 138%

Goal 2 - FY 2012 Results Summary and Assessment 

The Forest Service met or exceeded all but one of the performance targets to provide and sustain benefits 

to the American public. To meet multiple resource objectives, the agency increased the target for board 

feet of wood fiber by 200 million in FY 2012. A focus on this important objective in the IRR pilot regions 

and across the agency resulted in reaching 102 percent of that goal2

. We were also successful meeting the 

goal for the number of green tons and/or volume of woody biomass from hazardous fuel treatments at 104 

percent. Providing a consistent supply of biomass material is important to support private sector 

bioenergy infrastructure and jobs.

The Grazing Management program also met its goal for sustainably managed acres for all rangeland 

products at 102 percent of the target. Benefits from this work include: a sustainable supply of forage for 

livestock and wildlife; economic opportunities for rural communities; improved grazing management 

 2 Board feet and cubic feet of timber are calculated volumes extracted from the Forest Service Timber Information Management System. The 

thousand cubic feet (CCF) metric accounts from all forest products sold from the NFS and million board feet (MMBF) is not calculated using a 

simple 2 to 1 conversion of CCF to MMBF. Instead, MMBF is a subset of the total volume sold and accounts for all dimensional lumber.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-17

practices to support ecosystem restoration efforts; and working landscapes associated with open space and 

habitat connectivity across NFS and other Federal, State, Tribal, and private lands. 

The Minerals program also continued their success in completing land Special Use Permit applications for 

energy related activities within prescribed timeframes (100 percent of goal), but was not able to reach the 

target for processing energy-mineral applications in prescribed timeframes (79 percent of goal). The 

shortfall in our anticipated FY 2012 accomplishment for mineral applications processed was due, in part, 

to court decisions which require full notice, comment, and appeal opportunities for actions that were once 

typically categorically excluded and added new permitting requirements. Proposals or plans for locatable 

minerals are often the result of walk-in traffic. These proposals are usually not planned, but instead are 

brought in by a proponent and are subject to the availability of specialists and other resources. Some 

proposals are not processed until the following year. Analyses are often completed during the summer 

months when the lands are accessible, which is also the season most prone to wildfires. Furthermore, 

conflicting programmed work and unpredictable safety issues (such as fire) may take precedence for 

available staff and other resources.

The importance of partnerships is illustrated by our efforts to help private forest landowners market 

ecosystem services, which was achieved at 138 percent of the goal. In FY 2012, we had a significant 

emphasis on partnerships, both internal and external, for accelerating the pace and scale of ecosystem 

services-based work. The Forest Service also supported the development and maintenance of Ecosystem 

Commons, an online community of practice for ecosystem services where partners can share discussion, 

ideas, papers, and events. In addition, the Forest Service continues to provide groundbreaking research on 

ecosystem services through R&D, which helps move the field forward, solve problems, and provide tools 

- like the Forests to Faucets tool - an online interactive map that provides information on important forest 

areas for surface drinking water, and i-Tree - a tool used to quantify the ecosystem services benefits of 

urban trees.

Means and Strategies for Success 

The Forest Service provides the public a diverse suite of ecosystem services such as clean water, forest 

and grassland products, energy resources, and other benefits of NFS Lands by using traditional and 

nontraditional land management tools in a collaborative, holistic manner. Specific means and strategies

include: 

• Shift the emphasis for the production of forest products toward being an outcome of meeting 

vegetation management, habitat management, and ecosystem restoration objectives. IRR program 

funds will be instrumental in implementing the projects identified through restoration planning on 

priority landscapes and other landscape scale ecosystem restoration efforts. 

• Utilize Stewardship Contracting, partnerships, and all other available authorities to accomplish 

integrated conservation, restoration, and maintenance work across all land ownerships. The Forest 

Service will aggressively seek new partnerships with States, the business sector, nongovernment 

organizations, and others to help plan, implement, finance, and monitor critical landscape 

conservation and restoration work.

• Increase the recognition and acceptance of excess woody biomass as a source of bioenergy. Focus 

on demonstrating the feasibility of providing a sustainable supply of woody biomass to support 

the development of new technology and infrastructure.

• Strengthen environmental awareness, understanding, and support among stakeholders for active, 

integrated management of forests and grasslands to provide ecosystem goods and services
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-18

Develop, execute, acquire, and deploy science and technology so that science-based tools, systems, and 

applications are used to sustainably manage, restore, enhance, and use the forests and grasslands to meet 

the needs of communities, regions, States, and the Nation as a whole. Focus on areas with energy resource 

potential in an effort to meet energy resource needs.

Corrective Action for Measures Lower than 95 percent Achievement for FY 2012

The agency did not meet its goal for processing energy-minerals applications within the prescribed 

timeframes, achieving 79 percent of the planned target. Accomplishments were lower than expected 

primarily due to outdated environmental analyses as well as litigation which has delayed many new

leasing activities. To address this issue we plan to focus available funding on high potential and high 

interest areas where we expect fewer resource impacts. Agency-wide, areas with a high amount of 

inventoried roadless areas will be avoided.

Strategic Goal 3: Conserve Open Space

Undeveloped forests and grasslands (including working farms, ranches, and timber lands) help protect 

water quality, conserve native wildlife, and provide renewable timber and non-timber products, recreation 

opportunities, and scenic beauty. Conservation of these open spaces is essential to maintain the multitude 

of public benefits, ecosystem services, and products we all need and enjoy. Cooperation across 

boundaries, including Federal, State, private, and Tribal lands, is essential to address large-scale 

conservation issues such as conservation of water resources and drinking water supply, reduction of 

wildfire risk, and protection of at-risk species while providing for job creation.

Under this goal, the Forest Service works with States and private landowners and Tribes to conserve 

environmentally important forests, ensuring their value and use for current and future generations. We 

also provide cutting-edge technology to identify critical private forest landscape areas where conservation 

threats and opportunities converge. The Forest Service and State Foresters are working to target planning 

and technical assistance where it will maximize ecosystem service returns for both the public and 

individual landowners. 

Consistent with the goals of the America’s Great Outdoors (AGO) Initiative, land acquisition and 

exchange programs conserve the integrity of undeveloped lands and prevent their conversion to 

incompatible uses. The Forest Service acquires lands, waters, and related interests through purchase, 

donation, or exchange within the NFS for such purposes as outdoor recreation, wildlife habitat 

conservation, water quality, invasive species control, fire suppression, watershed protection and 

enhancement, and resource management. 

Principal Programs to Achieve Goal 3

S&PF’s Forest Stewardship program works to maintain the benefits of forests and grasslands by 

partnering with State agencies and other entities to sustain and improve our Nation’s private forest 

landscapes. A primary focus of the program is the development of comprehensive, multi-resource 

management plans that provide landowners (at a landscape scale ) with the information they need to 

manage their forests for a variety of products and services. The program accomplishes that goal by 

delivering assistance through a national network of forestry technical assistance providers and programs. 

Because of this unique role, and since the majority of America’s forests are privately owned, the Forest 

Stewardship program is central to fulfilling the Secretary’s vision for managing for healthy forests across 

All Lands. 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-19

The Forest Legacy Program (FLP), administered by S&PF in cooperation with State partners, protects

environmentally important forest areas that are threatened by conversion to development and other nonforest uses. Land trusts and other conservation organizations play a critical role in identifying and 

completing projects. FLP projects are selected through a two-step nationally competitive process, and 

focus on the conservation of working forests that provide forest products, water, fish and wildlife habitat, 

and recreational opportunities. 

The Land Acquisition program funds the acquisition and donation of lands, waters, and related interests 

within the NFS to enhance opportunities for outdoor recreation and public access, to conserve habitat for 

wildlife including threatened and endangered species, and to protect water quality and quantity. The 

primary goal of land acquisition is to consolidate fragmented lands within NFS borders and specially 

designated areas, in order to support effective land management and improve stewardship functions like 

habitat restoration, fuels reduction, public access, costs associated with boundary line management and 

trespass encroachments.

The Community Forest and Open Space Conservation Program (CFP) complements the FLP and the 

Urban and Community Forestry Program (U&CF), but is not duplicative of either program. CFP and FLP 

each engage unique partners and utilize different tools for land protection. CFP is focused on creating 

community forests through land acquisition and FLP protects at-risk forests through conservation 

easements and land purchase.

Within Forest Service R&D, the Forest Inventory and Analysis program tracks a nationwide system of 

forest inventory plots in a statistically sound lands inventory matrix. This data provides detailed 

information on stand characteristics and complements the more broad-based Natural Resource Inventory 

carried out on non-Federal lands by NRCS.

Key Performance Measures for Goal 3

Objective 3.1 Protect forests and grasslands from conversion to other uses.3

 

 Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

3.1.a Acres of environmentally 

important forests and grasslands 

protected from conversion 

(number of acres added annually)

Annual

Cumulative

176,471

1,897,809

136,960

2,056,107

149,911

2,210,563

119,000

2,329,278

52,999

2,275,320

45%

98%

 3 Measure 3.1.a is reported annually. Annual numbers represent reported accomplishments at the end of the fiscal year. 

Cumulative numbers represent accomplishments through the end of the fiscal year plus adjustments made for late-arriving 

data from the States, which may result in a mathematical difference between the two representations.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-20

Objective 3.2 Help private landowners and communities maintain and manage their land as

sustainable forests and grasslands. 4

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

3.2.a Acres of nonindustrial 

private forest land that are being 

managed sustainably under forest 

stewardship management plans

Annual

Cumulative

2,076,447

18,582,449

1,805,353

19,592,387

1,531,858

21,124,245

1,750,000

22,500,000

1,652,087

21,045,039

94%

94%

Goal 3 - FY 2012 Results Summary and Assessment 

Through the FLP program, in FY 2012, 52,999 acres of environmentally important forests and grasslands 

were protected from conversion, achieving 45 percent of the planned accomplishment. The shortfall was 

the result of three easements not being finalized; which is a potential issue whenever complex real estate 

transactions and negotiations occur. The FLP did close projects totaling over 62,000 acres in the first 

quarter of FY 2013 including one of the large easements that was anticipated to close in FY 2012. In part 

because of the newly protected acres, the agency met 98 percent of the target for cumulative acres of 

forests and grasslands protected from conversion.

 

Through cooperative forestry programs, nationwide, more than 21 million acres of non-industrial private 

forest lands were managed according to ongoing, active Forest Stewardship Plans, with over 1.5 million 

acres being added in FY 2012. Each of these accomplishments was 94 percent of their target. The actual 

number of acres managed under Forest Stewardship Plans was lower than targeted primarily because 

State agencies continue to reorganize and adapt programs to target landscapes and priorities that were 

established in State Forest Action Plans. These adaptations continue to draw resources from individual 

landowner management plan development. Also, many program focus areas include different, and 

perhaps more diverse landowner demographics that require new and innovative outreach and educational 

tools. In addition, many State programs have been impacted by austerity measures to address budget 

deficits.

Means and Strategies for Success 

The Conserve Open Space goal requires integration and coordination among multiple programs to fully 

meet the goal and objectives. Internal dependencies include woody biomass utilization and renewable 

energy, rangeland management, recreation, urban and community forestry, land management planning, 

and cooperative fire programs. This area also relies on contributions from partners and participation by 

State agencies, willing landowners and willing communities. 

Opportunities for new markets, such as carbon sequestration payments, forest certification, and woody 

biomass, will likely provide additional opportunities for private landowners to maintain their lands as 

open space. Specific means and strategies for success include:

• Focus assistance in priority landscape areas that have been identified in States’ Forest Action 

Plans

• Permanently protect priority lands identified through States’ Forest Action Plans that provide 

landscape scale benefits and ecosystem services in the form of timber products, water quality 

protection, wildlife habitat, recreation, and carbon sequestration

 4 Includes acres managed under current Forest Stewardship Plans only.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-21

• Through the Community Forests and Open Space program, help communities purchase forestland 

to create community owned forests for several public benefits – including outdoor recreation, 

drinking water protection, and forest stewardship education

• Develop collaborative strategies with landowners, State, and local governments, other Federal 

agencies, tribes, and private sector organizations to address natural resource health, water 

resource improvements, hazardous fuels reduction, land protection and restoration, climate 

preparedness, and community capacity in natural resource work

• Provide financial, technical, and planning assistance to communities, farmers, ranchers, and forest 

landowners to conserve, restore, and protect wetlands and other natural resources; help maintain 

and sustainably manage forest lands; reduce emissions and sequester carbon; and provide 

beneficial water quality and improve water management

• Develop tools and material to quantify the value of ecosystem services, monitor and address 

conservation practice effectiveness, and connect and equip farmers, ranchers, and forest 

landowners with current market information and opportunities so they can earn revenue from the 

ecosystem benefits of their lands

Corrective Action for Measures Lower than 95 percent Achievement for FY 2012

The Forest Service remains focused on acquiring the highest priority lands that serve both the President’s 

AGO Initiative and the Department’s Strategic Plan for FY 2010-2015. The agency will continue to work 

with the National Association of State Foresters, the NRCS, the American Forest Foundation, and other 

partners to coordinate and streamline technical planning assistance delivery to make the most effective 

use of available program resources and better address diverse landowner needs. This includes the further 

adoption of a national Forest Stewardship Plan template that satisfies the requirements of all major private 

forest landowner assistance and incentive programs. Additionally, the agency is currently analyzing 

trends in targets and actual accomplishments to determine whether or not the methodology for setting 

targets for the “acres of environmentally important forests and grasslands protected from conversion” 

should be updated so that targets and accomplishments align more closely.

In the Forest Stewardship Program, State Forest Action Plans continue to point the way for program 

investments that yield multiple resource. We also expect to see accomplishments improve as the Forest 

Service and States together implement the recently adopted Landscape Stewardship Approach which 

includes the development of multi-landowner, landscape scale Forest Stewardship Plans. However, States 

will continue to be challenged within available resources to work with landowners to create new plans 

and to assist currently participating landowners to update or rewrite existing plans as they reach their 

expiration point.

Strategic Goal 4: Sustain and Enhance Outdoor Recreation Opportunities

The Forest Service is challenged with sustaining adequate high-quality outdoor recreational experiences 

to meet the Nation’s needs while maintaining the ecological integrity of national forests and grasslands. 

Over the past few years, the national forests and grasslands hosted on average nearly 166 million visits 

per year, with increasingly diverse visitors engaging in activities such as camping, picnicking, skiing, 

snowboarding, hunting, fishing, hiking, driving for pleasure, wildlife viewing, scenic driving, and visiting 

cultural sites and visitor centers. Population growth and increasingly limited public access to privatelyowned land contribute to high demand for quality recreation opportunities on NFS lands.

The agency is also committed to engaging communities across the Nation to reconnect with the outdoors, 

expand recreation benefits and the economic opportunities they represent. With America’s population 

projected to increase by nearly 50 percent by the middle of this century, increasing population demands 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-22

and declining public access to privately-owned forestland place significant pressure on public lands to 

provide recreational opportunities.

Principal Programs to Achieve Goal 4

Recreation, Heritage, and Wilderness Program – This program manages and administers nearly 20,000 

recreation sites, over 23,500 recreation special use authorizations, 25 major visitor centers, 22 National 

Historic Landmarks, over 345,000 heritage assets, 136 national scenic byways, 439 designated wilderness 

areas, and 122 wild and scenic rivers.

Capital Improvement and Maintenance Roads and Trails Program - The trails program ensures public 

safety and backcountry access through the operation, maintenance, rehabilitation, and improvement of 

NFS trails, serving a wide constituency of visitors at a relatively low cost. Out of a total of over 158,000 

miles of trails, about 32,000 miles of trails are inside designated wilderness areas.

Legacy Roads and Trails Program - Work accomplished under the Legacy Roads and Trails activity 

included urgently needed road and trail decommissioning, long-term road storage, repair, and 

maintenance and associated activities. The removal of fish passage barriers is especially important in 

areas where roads may be contributing to water quality problems in streams and water bodies that 

supported threatened, endangered or sensitive species. Road and trail repairs required due to storm 

disturbances in local communities that are urgently needed to protect community water resources is also 

an important function of this program.

Key Performance Measures for Goal 4

Objective 4.1 Improve the quality and availability of outdoor recreation experiences. 

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

4.1.a Percentage of recreation 

sites maintained to standard 67% 68% 71% 70% 73% 104%

4.1.b Percentage of total 

recreation capacity at developed 

recreation sites that meets 

accessibility standards

23% 19% 23% 25% 24% 96%

4.1.c Percentage of trails that 

meet national quality standards 26% 41% 25% 30% 26% 87%

4.1.d Percentage of customers 

who are satisfied with recreational 

facilities, services, and settings

91% 94% 94% 90% 94% 104%

4.1.e Percentage of road system 

intended for passenger car use 

that is suitable for passenger car 

use

89% 90% 90% 90% 90% 100%

Objective 4.2 Secure legal entry to national forest lands and waters.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

4.2.a Percentage of high priority 

access rights-of-way acquired 74% 106% 15% 85% 90% 106%
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-23

Objective 4.3 Improve the management of off-highway vehicle use.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

4.3.a Percentage of NFS lands 

covered by new motor vehicle use 

maps reflecting a designated-use 

system of roads, trails, and areas

43.7% 66.7% 76.8% 100% 79% 79%

Goal 4 - FY 2012 Results Summary and Assessment 

In FY 2012, the agency continued its high level of performance in improving the quality and availability 

of outdoor recreation experiences. Specifically, the Forest Service attained 104 percent of target in 

maintaining recreation sites to standard. For a site to be considered maintained to standard, a 

comprehensive set of criteria/measures must be met and address a site’s health and cleanliness, safety and 

security, condition of the facilities, and the responsiveness of Forest Service personnel to visitors. The 

Forest Service also met its target for accessibility at developed recreation sites at 96 percent of target. To 

provide accessibility and to maintain the wide range of recreational opportunities from which all people 

can choose, the Forest Service incorporates universal design into the agency’s recreation program. 

Universal design involves integrating accessibility into the design of recreational facilities to the extent 

appropriate to the natural setting, rather than constructing separate facilities for people with disabilities. 

The agency, however, did not achieve its target for 30 percent of trails that meet national quality 

standards, though this has not impacted satisfaction with facilities, services, and settings among recreation 

users as evidenced by the outperformance of the 90 percent user satisfaction target. Last, the target set for 

suitability of passenger car roads was met as well and demonstrates the agency’s commitment to the 

safety of visitors to National Forests. 

To enhance access to National Forest lands and waters, and ensure legal entry, the Forest Service pursued 

the acquisition of high priority access rights-of-way and achieved 106 percent of target. This 

accomplishment contributes to in a meaningful way to the intent of the AGO Initiative by providing more 

access points for the public.

The Forest Service’s travel management policy requires each national forest and grassland to identify and 

designate those roads, trails and areas that are open to motor vehicle use and complete new motor vehicle 

use maps (MVUMs). As of the end of FY 2012 approximately 77 percent of NFS administrative units had 

completed route and area designations for motor vehicle use though this is short of the 100 percent target 

for the year. Completing MVUMs has taken longer than anticipated due to the need for more public 

involvement and collaboration, and public controversy, appeals, and litigation have delayed producing 

some MVUMs. 

Means and Strategies for Success 

Specific means and strategies for success include:

• Championing the AGO Initiative

• Implementing the Forest Service Sustainable Recreation Framework

• Providing a diverse range of quality cultural and natural resource based recreation opportunities 

in partnership with people and communities 

• Protecting the natural, cultural, and scenic resources for present and future generations to enjoy

• Partnering with public and private recreation and heritage service providers to meet public needs 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-24

• Implementing agency-wide systems to ensure effective decisions, community engagement, 

investments in sound business practices, and enhance the professionalism of our workforce 

• Ensuring the road system needed to meet agency needs is sustainable with available resources and 

is in compliance with environmental and safety requirements 

Corrective Action for Measures Lower than 95 percent Achievement for FY 2012

The FY 2012 targets for the percentage of trails meeting national quality standards were set after efforts 

were made in FY 2011 to better understand and redefine the metric. The FY 2012 increase in the miles of 

trails meeting quality standards, and our achievements on the ground with miles of trail maintained and 

improved, indicate to us that we are moving in the right direction for this measure and can meet the target 

in FY 2013 without implementing corrective actions. 

No corrective actions will be undertaken to complete new MVUMs. The agency will continue to involve 

the public in decision making and work collaboratively to ensure the public’s concerns are addressed to 

the fullest extent prior to finalizing MVUMs, but acknowledges that litigation and appeals could slow the 

anticipated rate of accomplishment. 

Strategic Goal 5: Maintain Basic Management Capabilities of the Forest Service

Natural resources and public lands are affected by a wide range of forces, including natural events, public 

use, and various management activities. To restore forests, grasslands, and watersheds, strengthen 

communities, and reduce wildfire risk, the Forest Service maintains a workforce with the skills and 

capabilities to deal with the impacts of these events and assist other countries in managing their natural 

resources. Effectively managing its natural resources and ensuring the safety of the land and its users 

requires many things, including accurate data, land management plans, law enforcement officials, and 

facility maintenance.

The Forest Service released its final planning rule for NFS land management planning in April, 2012 

resulting in one of the most collaborative rulemaking efforts in agency history. Land management plans, 

required of each unit in the NFS, facilitate the implementation of governing laws and regulations. 

Collaboration with the public ensures that Forest Service units continually address changing conditions 

and public needs. Inventory and monitoring activities provide verifiable data and spatial resource 

information to support land management planning, assessments, and other program management needs. 

International Forestry maintains expertise to promote sustainable forestry management and address 

climate change effects issues globally. The Forest Service also maintains and manages dams, fire and 

administrative facilities, and supporting infrastructure critical to achieving resource management goals 

and objectives.

Principal Programs to Achieve Goal 5

Inventory and Monitoring - The agency funds and conducts inventory, monitoring, and assessment 

activities that are designed and integrated to meet land management planning and other business 

requirements through the Inventory and Monitoring program. This program also supports the 

development, maintenance, and coordination of numerous corporate applications and systems that support 

resource information storage and analysis needs of the agency.

Capital Improvement and Maintenance: Facilities - The Facilities program administers facilities and sites 

used for recreation, research, and fire, administrative and other (FA&O) purposes. FA&O facilities 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-25

include fire facilities, such as airtanker bases, lookouts, airports, heliports, and fire management centers; 

administrative facilities, such as administrative offices (ranger district offices, forest supervisor offices, 

regional offices, research stations and laboratories), and service and storage buildings; and other facilities, 

such as telecommunication facilities, towers, dams, and recreation visitor centers. This program includes 

carrying out maintenance, capital improvement, and management on approximately 22,000 recreation 

sites and approximately 23,100 research, recreation, and other administrative buildings.

Key Performance Measures for Goal 5

Objective 5.1 Improve accountability through effective strategic and land management planning and 

efficient use of data and technology in resource management.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual

Percent

Achieved5

5.1.a Percentage of selected data 

in information systems that is 

current to standard

54% 77% 77% 80% 85% 106%

Objective 5.2 Improve the administration of national forest lands and facilities in support of the 

agency’s mission.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

5.2.a Percentage of 

administrative facilities that are 

being maintained to standard

66% 64% 63% 60% 58% 97%

Goal 5 - FY 2012 Results Summary and Assessment

In FY 2012, the agency surpassed its target related to information systems data quality. Because of our 

ongoing emphasis on data quality we brought more focus to data quality management in FY 2012 and we 

continue to exceed our own expectations.

The agency accomplished 97 percent of the target to maintain FA&O facilities to standard. The focus of 

this work was facilities where the public has interaction with Forest Service staff and those facilities that 

house employees. Key maintenance needs related to safety and health concerns receive priority in these 

maintenance efforts. Part of the agency’s success is due to the reduction in the number of buildings. From 

2004 through 2012, the agency reduced its total number of buildings from 41,296 to 40,126 and the total 

square footage of its facilities by nearly 1.4 million square feet and continues to make significant progress 

in reducing its facilities footprint.

Means and Strategies for Success 

In order to build on these accomplishments, the Forest Service will:

• Utilize Green Building design in new projects or major renovations including the U.S. Green 

Building Council’s Leadership in Energy and Environmental Design (LEED) rating system 

 5 Percent achieved is a comparison of the actual performance (85%) to the target performance (80%), not an

indication that 106% of selected data was current to standard.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-26

(minimum Silver certification), Green Globes (minimum Two Green Globes certification) or 

other third-party certification system for those administrative projects over 10,000 gross square 

feet

• All other buildings, whether new or major renovation projects larger than 2,500 square feet, are 

designed to incorporate sustainable principles into the systems and components appropriate to the 

building type and project scope

• Coordinate inventory, monitoring and assessment activities through the development and 

implementation of an integrated program planning process that addresses essential information 

needs related to agency business requirements 

• Implement a standards-based approach and framework for information management, a national 

protocol governance strategy, and an Information Resources (IR) Governance Solution to ensure 

that all agency-wide decisions on information technology and information are transparent, 

coordinated, cost-effective, and integrated with the mission of the agency

• Focus resources towards right-sizing the portfolio of administrative infrastructure.

• Implement local facility master plans which identify the infrastructure necessary to support the 

mission

• Identify and resolve land and infrastructure jurisdictional issues to ensure administrative and 

public access to NFS lands

Strategic Goal 6: Engage Urban America with Forest Service Programs

The Forest Service promotes understanding and professional management of the Nation’s forests, 

including its nearly 100 million acres of urban and community forests. S&PF, Forest Service R&D, and 

the NFS all contribute to an integrated approach for natural resources stewardship to better connect urban 

residents to the value of well-managed public and private forests and to improve quality of life. This 

stewardship is particularly important because currently, approximately 83 percent of the Nation’s 

population lives in an urban area.

One of the goals of the AGO Initiative is to empower citizens, community groups, and local governments 

to share the responsibility for protecting natural areas and leaving a healthy, vibrant outdoor legacy for 

generations yet to come. The Forest Service uses its institutional capacity, expertise and extensive 

partnerships to engage and benefit urban America by:

• Providing all Americans broader access to the benefits trees and urban and community forests 

provide, such as: clean air, reduced energy costs, improved urban air quality, recreation, and jobs

• Providing conservation education and meaningful outdoor experiences—particularly for children

• Developing future natural resource leaders and providing outdoor recreational opportunities

• Providing urban residents increased opportunities to participate in natural resources stewardship 

and management-including green jobs-and enhancing sustainable management of urban natural 

resources for the benefit and well-being of all

Principal Programs to Achieve Goal 6

The U&CF program assists cities, suburbs, and towns across the country in improving the condition and 

extent of community trees and forests. With 83 percent of the Nation's population in urban areas, there are 

strong environmental, social, and economic opportunities to revitalize cities and towns. There are 100 

million acres of urban forest lands in the U.S. providing a multitude of services that a well-planned and 

managed urban tree canopy provides, including improved human health and well-being, green jobs, 

energy conservation, improved air and water quality, carbon sequestration, recreation, and wildlife 

habitat.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-27

Conservation Education helps people of all ages understand and appreciate our country's natural resources 

-- and learn how to conserve those resources for future generations. Through structured educational 

experiences and activities targeted to varying age groups and populations, conservation education enables 

people to realize how natural resources and ecosystems affect each other and how resources can be used 

wisely.

Key Performance Measures for Goal 6

Objective 6.1 Promote conservation education to increase environmental literacy through partnerships 

with groups that benefit and educate urban populations.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

6.1.a Number of people who 

annually participate in Forest 

Service environmental literacy 

programs and activities

4,195,964 5,244,401 5,183,467 4,200,000 6,878,710 164%

Objective 6.2 Improve the management of urban and community forests to provide a wide range of 

public benefits.

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

6.2.a Number of communities 

with developing or established 

urban and community forestry 

programs resulting from Forest 

Service Assistance

6,853 7,102 7,172 7,200 7,499 104%

Goal 6 - FY 2012 Results Summary and Assessment 

In FY 2012, the Forest Service achieved significant accomplishments in the number of people who 

annually participate in Forest Service environmental literacy program and activities, reaching more than 

6.8 million people, or 164 percent of the planned accomplishment. This success is a result of leveraging 

resources as well as strong public/private partnerships. Discover the Forest is an example of a 

Conservation Education (CE) program that contributed to the accomplishment. Discover the Forest aims 

to inspire children aged 8-12 and their parents to re-connect with nature, experiencing it first-hand. The 

campaign brings to life the joy and excitement kids have when they discover the wonders of nature, 

helping create interest in their environment and a lifelong relationship with it.

In FY 2012, U&CF achieved 104 percent of the planned accomplishment by providing assistance to 7,499

communities, reaching a total of 196 million people. An example of this assistance is the release of 

version 5.0 of the i-Tree program, a state-of-the-art software tool designed to help communities of all 

sizes to strengthen their urban forest management and advocacy efforts by quantifying the environmental 

services that trees provide and the structure of the urban forest. The i-Tree program currently has over 

8,200 unique users in the U. S. across all 50 States, Washington D.C., and 99 different countries. Version 

5.0 provides application upgrades and an innovative new watershed hydrology modeling application. As a 

result of assistance provided by this program, in FY 2012 over 31 percent of people in the U.S. are living 

in communities that are developing programs to protect and maintain their urban forests. With 

approximately 83 percent of the Nation's population in urban areas, there are strong environmental, social, 

and economic cases to be made for the conservation of green spaces to guide growth and revitalize city 

centers and older suburbs. U&CF will continue to respond to these needs by maintaining, restoring, and 

improving urban forest ecosystems.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-28

Means and Strategies for Success 

In order to build on these accomplishments, the Forest Service will:

• Assist communities in increasing professional urban forestry staffing, ordinances, management 

plans, and local advisory and advocacy groups for managing forest resources in cities, suburbs, 

and towns

• Assist communities in strategic tree planting and active management of the urban forest through 

program partners 

• Utilize State Forest Action Plans to inform CE planning activities and to focus needs and 

recognize emerging opportunities in the U&CF program

• Expand recreational opportunities and access for diverse, underserved, and increasingly urban 

audiences on national forests and grasslands and on State, private, and municipal lands as part of 

the AGO Initiative

• Develop and implement methods to measure environmental literacy and techniques to engage 

urban residents in the management of urban forests 

• Integrate, coordinate, and disseminate existing and new ecological and social research on urban 

issues

• Develop partnerships with nontraditional partners to engage urban and underserved audiences

• Enhance partnerships with organizations at the national and local level. These will continue to 

play a key role in enhancing the agency’s investment in environmental literacy programs and 

activities and ensure they meet local community needs

• Continue implementation, in partnership with The Ad Council, of the Discover the Forests 

campaign to reconnect children with nature

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

Management

The Forest Service provides science and technology solutions that are used internally and by clients and 

partners to sustainably manage forests and grasslands. To accomplish this goal, Forest Service R&D and 

Technology and Development Centers provide new knowledge and tools in areas such as invasive 

species, watersheds, fire, silviculture, inventory and monitoring, social sciences, and economics. This 

research is applied to pressing issues such as fire management; response to forest disturbance; watershed 

management; sustainable cities; and energy development. To maximize use and application of new 

research, R&D develops innovative syntheses of the best available science to support key management 

decisions; transforms science and technology into usable technologies and decision support tools; and 

creates and disseminates science applications to users through workshops, webinars, and other science 

delivery mechanisms. Partnerships with educational institutions and others are critical to program success 

and effectiveness.

Principal Programs to Achieve Goal 7

Forest Service R&D provides science, technology, and applications in support of sound policies and 

management decision making. It also develops and conducts high quality research to address emerging 

and future challenges. For example, the Inventory and Monitoring strategic program area provides the 

data and tools needed to identify trends, project future conditions, and develop management options 

related to fire, insects, disease, and other natural processes.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-29

The Forest Service builds on history of groundbreaking scientific research with a focus on seven priority 

research areas: forest disturbances, forest inventory and analysis, watershed management and restoration, 

bioenergy and bio-based products, urban natural resources stewardship, nanotechnology, and localized 

research needs. The priority research areas are structured around Forest Service R&D’s Strategic Program 

Areas that reflect the scope of Forest Service research capabilities. 

Key Performance Measures for Goal 7

Objective 7.1 Increase the use of applications and tools developed by Forest Service Research & 

Development and Technology & Development Centers. 6

Performance

Measure

FY

2009

FY

2010

FY

2011

FY 2012

Target Actual Percent

Achieved

7.1.a Customer satisfaction with 

R&D products and services 

(ACSI score)

75 75 75 75 79 105%

7.1.b Number of patent 

applications files, based on station 

and center discoveries, 

developments, and applications

6 6 13 8 8 100%

Goal 7 - FY 2012 Results Summary and Assessment 

Forest Service R&D partners include Federal and State agencies, universities, industry, nongovernmental 

organizations, Tribal groups, and foreign government research cooperators. One of the most important 

functions of Forest Service R&D is the distribution of information to forest managers and users who 

implement land management projects. The agency also provides valuable technology transfer to our 

research partners, land management practitioners, State agencies, urban planners, private forest owners, 

private organizations, horticultural organizations, agricultural interests, as well as forest practitioners 

internal to the Forest Service. Seeking and forging strategic partnerships will remain a critical activity of 

Forest Service R&D.

Customer satisfaction with R&D products and service, as determined by the American Customer 

Satisfaction Index, increased four points in FY 2012 to 79 percent due to a continuing focus on science 

applications and mechanisms for delivering research results and deploying tools and products of that 

research. The survey reached private and public users of Forest Service R&D products, including Forest 

Service managers, customers from other state, local and Federal agencies, universities, businesses, 

commercial, and non-profit organizations. Half of the survey respondents were in a technical or 

professional role and 15 percent in a research role. In addition to assessing overall performance, results of 

the survey were used to identify and address customer needs such as increasing the online accessibility of 

tools and publication, especially older legacy publications and increasing overall technology transfer 

efforts.

Examples of these tools included a free software application that helps people identify and control 

destructive invasive plants in southern forests and grasslands. The software provides photos and 

information that allows users to identify the 56 nonnative plants and plant groups currently invading the 

forests of 13 Southern States and provides recommendations for their control.

 6 The American Customer Satisfaction Index (ASCI) assesses the satisfaction of private and other external customers 

with the relevance, usefulness, and accessibility of R&D products and services.
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-30

ForWarn is another example of an applied research output produced in FY 2012. ForWarn is a forest 

monitoring Web-based tool that uses satellite imagery to produce weekly snapshots of vegetation 

conditions across the Lower 48 States. Forest and natural resource managers can use ForWarn to rapidly 

detect, identify, and respond to unexpected changes in the Nation’s forests impacted by severe weather, 

wildfires, insects, diseases, or other natural or human-caused events. ForWarn is the first national-scale 

system of its kind developed specifically for forest disturbances. A recent application of ForWarn was 

the rapid detection of extreme weather related disturbances to a municipal water supply watershed.

The agency also met its target for patent applications. An example of the agency’s patent-pending 

research is a technology to form cellulose fibers into structural and three-dimensional engineered 

fiberboard panels. These naturally bonded boards use fibers produced from a variety of renewable sources 

including forest thinnings and recycled paper fibers. Noble Environmental Technologies Inc., has signed 

an exclusive license agreement with USDA to manufacture and market these structures for office 

furniture and packaging applications. This collaboration will lead to reduced waste, economic 

efficiencies, and provides an excellent example of government and industry collaboration to meet market 

demands. Agricultural Research Service (ARS) is the lead USDA agency for patenting and licensing per 

USDA Departmental Regulation. The Forest Service follows ARS guidance when reporting fiscal year 

totals. Patent applications may be submitted for work done exclusively by agency researchers and also by

university and industrial cooperators working collaboratively with Forest Service scientists on jointly 

owned technologies.

Means and Strategies for Success 

In order to build on these accomplishments, the Forest Service will continue to:

• Develop new technologies that address the priority research areas

• Develop and deploy cost-effective methods for inventory and monitoring activities

• Provide information and science-based tools that are used by managers and policymakers

Develop and deploy analysis and decision-support systems

• Develop tools for evaluating the efficiency and effectiveness of alternative management practices

• Implement effective processes for engaging users in all phases of Forest Service R&D study 

development

• Develop and deploy more effective methods for transferring scientific information, technologies, 

and applications to public and private sectors

Research and Program Evaluations

Forest Service and partners utilize Forest Service R&D research and decision support tools to evaluate 

and increase the efficiency and effectiveness of land management practices. Reduced invasive species 

control costs and tools to improve forest planning, described below, are just two examples of the new 

knowledge and tools to improve management efficiency that R&D provides through its numerous longterm and targeted research projects. 

Reduced Management Costs through the Application of Science

Forest Service and other agencies invest sizable budgets to identify and eradicate non-native forest insects 

and diseases such as the emerald ash borer, hemlock woolly adelgid, or oak wilt. Forest Service R&D 

scientists developed a planning tool that helps organizations prioritize where to look for newly established 

populations and how much to spend on surveillance while minimizing the damage caused by invasive 

species. This analysis provides support for decision-making in western gypsy moth surveillance 

programs, where annual costs of gypsy moth establishment are estimated at $60 million. Optimizing 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-31

detection results in detecting new populations earlier, and reduces the size of areas that must be treated. 

Research on the ecology and population dynamics of gypsy moth also led to the development of the Slow 

the Spread (STS) program in the eastern U.S., where the moth has been established since 1869. Scientists 

discovered that the moth spreads in jumps that result in establishment of outlying colonies. STS focuses 

on detecting these outlying colonies, through a network of pheromone traps extending about 100 miles 

outward from the leading edge of the infestation. New and vigorous colonies detected farthest away from 

the established area are the highest priority for management. The following year, intensive surveys 

delimit the area where the colony exists, and the next year the colony is treated. Since 2000, this program 

has reduced the historical spread rate (21 km/yr) to less than 4 km/yr. The 20-year net benefit from 

slowing the spread of gypsy moth in the Eastern States is estimated at $21 to $33 million.

Gained efficiencies through Forest Service Research Products

Another tool to improve cost effectiveness of management is the Template for Assessing Climate Change 

Impacts and Management Options (TACCIMO). This web-based tool is a standardized, credible, and 

concise tool for translating the most current climate change science into practical forest planning and 

management. The TACCIMO allows land managers to assess climate change impacts and management 

options for their specific forest in minutes. The TACCIMO provides access to the most current climate 

change projections and science, including the likely range of projected climate for any state, county, or 

National Forest, and dynamically linked peer-reviewed scientific information on effects and management 

adaption options. The land manager selects the locations (e.g. county, National Forest, state, region) and 

areas (e.g. forest productivity, water yield, biodiversity, recreation) of interest. The TACCIMO then 

searches its database for specific impacts and management options to address any impacts. The tool then 

generates a report complete with peer reviewed citation references. This feature has saved thousands of 

staff hours across various agencies and departments. More importantly, the TACCIMO has provided a 

much more comprehensive and consistent assessment of climate change impacts and management options 

than previously possible. It provides managers with the ability to meet tight deadlines for information 

needs that would also not have been possible before the development of this tool. 

Integrated Resource Restoration (IRR) 

The USDA Strategic Plan for FY 2010-2015 targets the restoration of watershed and forest health as a 

core management objective of the national forests and grasslands. The Forest Service addressed this 

management objective by seeking the creation of the IRR program. In FY 2012, the Forest Service 

received Congressional authorization to pilot the IRR for a period of three years (FY 2012 through FY 

2014). Forest Service Regions 1, 3, and 4 were selected to pilot the IRR Program which facilitates and 

supports an integrated approach to land management that maintains, enhances, or restores watersheds at 

the landscape level to improve their resilience. 

The primary outcome measure associated with IRR is the number of watersheds moved to an improved 

condition class. There are also four output-based measures that indicate the Forest Service’s progress 

toward improving the condition class of watersheds: (1) acres treated annually to sustain or restore 

watershed function or resilience, (2) miles of stream habitat restored or enhanced, (3) volume of timber 

sold, and (4) miles of roads decommissioned. The agency met or exceeded its targets for both the 

outcome and the four output measures in FY 2012.

Not only are the output indicators representative of the type of work conducted but these measures were 

also chosen because the public recognizes them and have been interested in the Forest Service’s progress 

toward meeting historical targets. IRR works toward this outcome and associated outputs, in part, by 

consolidating funding previously in several other budget line items (i.e., wildlife and fisheries habitat 

management, forest products, vegetation and watershed management, non-WUI hazardous fuels, and 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-32

legacy roads and trails (including road decommissioning activity) to implement treatments deemed most 

necessary within a landscape. 

To proactively measure progress toward the improving watershed outcome, the Forest Service developed 

the WCF. The WCF improves the way the Forest Service approaches watershed restoration by targeting 

the implementation of integrated suites of activities in those watersheds that have been identified as 

priorities for restoration. The WCF also establishes a nationally consistent reconnaissance-level approach 

for classifying watershed condition, using a comprehensive set of 12 indicators that represent the 

underlying ecological, hydrological, and geomorphic functions and processes that affect watershed 

condition. Primary emphasis is on aquatic and terrestrial processes and conditions that Forest Service 

management activities can influence. The approach is designed to foster integrated ecosystem-based 

watershed assessments; target programs of work in watersheds that have been identified for restoration; 

enhance communication and coordination with external agencies and partners; and improve national-scale 

reporting and monitoring of program accomplishments. 

The three pilot regions used the WCF to assess the condition class of all of their 5,926 watersheds 

containing significant portions of NFS lands. Among them, 78 watersheds were selected as priorities for 

restoration activities within the three-year pilot period. The watersheds will continue to be assessed using 

the WCF, and the number of watersheds moved to an improved condition class will be reported annually. 

In addition to the WCF, the Forest Service is also evaluating the operational efficiencies of IRR. Regions 

1, 3, and 4 submit the following annually:

• Three to five case studies showcasing accomplishments, successes, and challenges of 

implementing IRR

• Examples of combining focus and funding with Collaborative Forest Landscape Restoration 

projects to advance on-the-ground restoration through community-based collaboration

• Descriptions of how consolidation of multiple budget line items affected 

programs/activities/project selection

• Advantages and disadvantages of a consolidated budget line item

Information derived from these evaluations will be applied to improve the application of IRR. Further, 

the evaluations will be used to communicate the three-year proof-of-concept to the House and Senate 

Appropriations Subcommittee on Interior, Environment, and Related Agencies.

 
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-33

External Audits and Reviews

FY 2012 OIG Audits Conducted on the Forest Service (FS)

OIG Open Audits

Audit Number Audit Title Report Issue 

Date Audit Status

08601-07-AT Invasive Species Program 9/30/10 Implementation of corrective 

actions is in progress

08601-54-SF FS Firefighting Succession 

Planning

3/31/10 Implementation of corrective 

actions is in progress

08601-55-SF FS Administration of Special Use 

Permits

6/16/11 Implementation of corrective 

actions is in progress

08703-01-HY ARRA - FS Oversight and 

Control of Forest Service ARRA 

Activities

9/30/11 Implementation of corrective 

actions is in progress

08401-01-11 FY 2011 Financial Statements 11/10/11 Implementation of corrective 

actions is in progress

08703-03-SF ARRA – FS Capital Improvement 

& Maintenance Projects - Roads, 

Bridges, & Related Watersheds

3/12/12 Implementation of corrective 

actions is in progress

08601-01-CH Evaluation of FS’s Processes to 

Obtain & Grant Rights-of-Way & 

Easements

3/15/12 Implementation of corrective 

actions is in progress

08703-06-SF ARRA – FS Capital Improvement 

and Maintenance Projects -

Abandoned Mine Remediation

5/3/12 Implementation of corrective 

actions is in progress

08703-01-SF ARRA – FS Wildland Fire 

Management – Wood-to-Energy 

Projects

6/15/12 Implementation of corrective 

actions is in progress

08703-02-SF ARRA – FS Capital Improvement 

& Maintenance Projects – Facility 

Improvement, Maintenance & 

Rehabilitation

7/3/12 Implementation of corrective 

actions is in progress

08703-04-SF ARRA – FS Capital Improvement 

and Maintenance Projects – Trail 

Maintenance & Decommissioning

7/3/12 Implementation of corrective 

actions is in progress

08703-01-AT ARRA – FS’s Use of ARRA 

Funds for Wildland Fire 

Management on Federal Lands

9/28/12 Implementation of corrective 

actions is in progress

OIG Audits Officially Closed in FY 2012

Audit Number Audit Title Report Issue 

Date Closure Date

08501-01-Te FS Acquisition of Information Technology 

Software/Hardware

2/13/12 8/22/12

08601-56-SF FS Forest Legacy Program 4/20/11 8/22/12
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-34

Summary of OIG Audits

FY 2012 Beginning Inventory 5

 Audits added 9

Subtotals 14

 Audits closed 2

FY 2012 Ending Inventory 12

FY 2012 GAO Audits

Audit Report 

Number Audit Title Report Issue Date Audit Status

GAO-12-73 Arizona Border Region: Federal 

Agencies Could Better Utilize Law 

Enforcement Resources in Support of 

Wildland Fire Management Activities

11/8/11 Implementation of corrective 

actions is in progress

GAO-12-155 Station Fire: Station Fire

Forest Service's Response Offers 

Potential Lessons for Future Wildland 

Fire Management

12/16/11 Implementation of corrective 

actions is in progress

GAO-12-505 Phosphate Mining: Oversight Has 

Strengthened, but Financial Assurances 

and Coordination Still Need Improvement

5/4/12 No recommendations issued 

for this report

GAO-12-544 Uranium Mining: Opportunities Exist to 

Improve Oversight of Financial 

Assurances

5/17/12 Implementation of corrective 

actions is in progress

GAO-12-775 Payment to Counties: More Clarity Could 

Help Ensure County Expenditures Are 

Consistent with Key Parts of the Secure 

Rural Schools Act

7/16/12 Implementation of corrective 

actions is in progress

GAO-12-874 Unconventional Oil and Gas 

Development: Key Environmental and 

Public Health Requirements

9/5/12 No recommendations issued 

for this report
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-35

Management Challenges

The OIG’s annual report to the Secretary on USDA Management Challenges was issued in August, 2012.

The report included one challenge specific to the Forest Service: “Forest Service Management and 

Community Action Needed to Improve Forest Health and Reduce Firefighting Costs (Challenge 6).” The 

challenge was related to prior audits conducted on the agency; specifically OIG audits conducted on the 

Forest Service Administration of Special Use Program and Evaluation of Forest Service’s Processes to 

Obtain and Grant Rights-of-Way and Easements. A summary of the actions planned for completion in 

FY 2013 for the two audits follow. 

FY 2013 Actions Planned:

Forest Service Administration of Special Use Program – OIG Audit Report No. 08601-55-SF:

• Continue to work with the Department on inclusion of fee retention authority

• Continue to pursue a joint update of cost recovery rates with Bureau of Land Management

• Administer Phase I of the contract for a market survey to establish minimum fees and seek funds 

for Phase II

• Establish automatic indexing of minimum fees in conjunction with implementation of the market 

surveys

• Establish data entry controls within the Special Uses Data System (SUDS) and issue guidance to 

notify regions of the need to verify and validate all SUDS data

Evaluation of FS Processes to Obtain and Grant Rights-of-Way and Easements – OIG Audit Report No. 

08601-1-CH: 

• Establish/re-establish specific goals, strategies, and timeframes for addressing the impacts of 

changing land use

• Clarify the process for analyzing and addressing the issues of whether

o Negotiations with timber cooperators for a Forest Roads and Trails Act of 1969 (FRTA) 

easement amendment should be a public process

o An Environmental Impact Statement needs to be completed under NEPA before an easement 

amendment can be finalized

• Develop a standard road use agreement specifically for use with homeowners associations and 

implement the standard agreement whenever circumstances warrant

• Develop consistent guidelines for field staffs to follow regarding residential successors to FRTA 

easements
FY 2014 Budget Justification USDA Forest Service

Annual Performance Report 1-36

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FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-1

2. Appropriations Language Changes

TITLE III

RELATED AGENCIES

DEPARTMENT OF AGRICULTURE

Because a full-year 2013 appropriation was not enacted at the time this budget was prepared, all proposed

language is shown in italics instead of showing changes from a previous appropriations act. Notes under 

each section of appropriation language explain what changes are proposed from the FY 2013 President’s 

Budget proposal.

FOREST SERVICE

FOREST AND RANGELAND RESEARCH

For necessary expenses of forest and rangeland research as authorized by law 310,236,000, to 

remain available until expended: Provided, That of the funds provided, $66,805,000 is for the 

forest inventory and analysis program.

Note: No language changes are proposed.

STATE AND PRIVATE FORESTRY

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, 239,954,000, to 

remain available until expended, as authorized by law; of which $60,000,000 is to be derived from 

the Land and Water Conservation Fund.

Note: No language changes are proposed.

NATIONAL FOREST SYSTEM (INCLUDING TRANSFER OF FUNDS)

1.

2.

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

protection, improvement, and utilization of the National Forest System, $1,556,662,000, to remain 

available until expended, and in addition, $5,000,000 for the processing of grazing permits and 

leases, to remain available until expended, to be reduced by amounts collected by the Forest 

Service and credited to this appropriation, which shall be derived by a $1.00 per head month 

administrative fee, as provided for in this Act: Provided, That of the funds provided, $39,851,000 

shall be deposited in the Collaborative Forest Landscape Restoration Fund for ecological 

restoration treatments as authorized by 16 U.S.C. 7303(f): Provided further, That funds provided 

under this heading may be used 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): Provided further, That funds provided under this heading 

shall be available for urgently needed road decommissioning, road and trail repair and 

maintenance and associated activities, and removal of fish passage barriers, especially in areas 

where Forest Service roads may be contributing to water quality problems in streams and water 

bodies that support threatened, endangered or sensitive species or community water sources, as 

authorized by Public Law 88-567, as amended (16 U.S.C. 532-538) and Public Law 85-767, as 

amended (23 U.S.C. 101 and 205): Provided further, That funds provided herein shall be 
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-2

3.

available for the decommissioning of roads which are no longer needed, including unauthorized 

roads not part of the transportation system: Provided further, That for fiscal year 2014 through 

fiscal year 2019, the Secretary may authorize the expenditure or transfer of such sums as 

necessary to the Department of the Interior, Bureau of Land Management, for removal, 

preparation, and adoption of excess wild horses and burros from National Forest System lands, 

and for the performance of cadastral surveys to designate the boundaries of such lands.

Note 1: Proposes a new grazing fee program.

Note 2: Includes language for management of subsistence uses in Alaska.

Note 3: Incorporates five year authorization for the transfer of funds to the BLM for the 

management of Wild Horses and Burros and cadastral surveys on National Forest System lands. 

Similar language was enacted for FY 2010 through FY 2012.

CAPITAL IMPROVEMENT AND MAINTENANCE (INCLUDING TRANSFER OF FUNDS)

1.

For necessary expenses of the Forest Service, not otherwise provided for, $328,783,000, to remain 

available until expended, for construction, capital improvement, maintenance and acquisition of 

buildings and other facilities and infrastructure; and for construction, reconstruction, and 

maintenance of forest roads and trails by the Forest Service as authorized by 16 U.S.C. 532-538 

and 23 U.S.C. 101 and 205: Provided, That funds becoming available in fiscal year 2014 under 

the Act of March 4, 1913 (16 U.S.C. 501) shall be transferred to the General Fund of the Treasury 

and shall not be available for transfer or obligation for any other purpose unless the funds are 

appropriated.

Note 1: Changes fiscal year.

LAND ACQUISITION

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, $57,984,000 to be derived from the Land and Water 

Conservation Fund and to remain available until expended.

Note: No language changes are proposed.

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, $912,000, to be derived from 

forest receipts.

Note: No language changes are proposed.
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-3

ACQUISITION OF LANDS TO COMPLETE LAND EXCHANGES

For acquisition of lands, such sums, to be derived from funds deposited by State, county, or 

municipal governments, public school districts, or other public school authorities, and for 

authorized expenditures from funds deposited by non-Federal parties pursuant to Land Sale and 

Exchange Acts, pursuant to the Act of December 4, 1967, as amended (16 U.S.C. 484a), to remain 

available until expended (16 U.S.C. 460l-516-617a, 555a; Public Law 96-586; Public Law 76-

589, 76-591; and Public Law 78-310).

Note: No language changes are proposed.

RANGE BETTERMENT FUND

For necessary expenses of range rehabilitation, protection, and improvement, 50 percent of all 

moneys received during the prior fiscal year, as fees for grazing domestic livestock on lands in 

National Forests in the 16 Western States, pursuant to section 401(b)(1) of Public Law 94-579, as 

amended, to remain available until expended, of which not to exceed 6 percent shall be available 

for administrative expenses associated with on-the-ground range rehabilitation, protection, and 

improvements.

Note: No language changes are proposed.

GIFTS, DONATIONS AND BEQUESTS FOR FOREST AND RANGELAND RESEARCH

For expenses authorized by 16 U.S.C. 1643(b), $40,000, to remain available until 

expended, to be derived from the fund established pursuant to the above Act.

Note: No language changes are proposed.

MANAGEMENT OF NATIONAL FOREST LANDS FOR SUBSISTENCE USES

Note: As with the FY 2013 President’s Budget, responsibility for the Management of National

Forest Lands for Subsistence Uses is proposed within the National Forest System.

WILDLAND FIRE MANAGEMENT (INCLUDING TRANSFERS OF FUNDS)

1.

For necessary expenses for forest fire presuppression activities on National Forest System lands, 

for emergency fire suppression on or adjacent to such lands or other lands under fire protection 

agreement, hazardous fuels reduction on or adjacent to such lands, for state and volunteer fire 

assistance, and for emergency rehabilitation of burned-over National Forest System lands and 

water, $2,046,669,000, 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, 

$6,914,000 of funds appropriated under this appropriation shall be available for the Forest 

Service in support of fire science research authorized by the Joint Fire Science Program, 

including all Forest Service authorities for the use of funds, such as contracts, grants, research 
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-4

2.

3.

joint venture agreements, and cooperative agreements: Provided further, That all authorities for 

the use of funds, including the use of contracts, grants, and cooperative agreements, available to 

execute the Forest and Rangeland Research appropriation, are also available in the utilization of 

these funds for Fire Science Research: Provided further, That funds provided shall be available 

for emergency rehabilitation and restoration, hazardous fuels reduction activities, support to 

Federal emergency response, and wildfire suppression activities of the Forest Service: Provided 

further, That of the funds provided, $201,228,000 is for hazardous fuels reduction activities, 

$19,795,000 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.), 

$69,459,000 is for State fire assistance, and $11,205,000 is for volunteer fire assistance under 

section 10 of the Cooperative Forestry Assistance Act of 1978 (16 U.S.C. 2106): Provided 

further, That amounts in this paragraph may be transferred to the “Forest and Rangeland” 

account to fund forest and rangeland research and the Joint Fire Science Program: 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 funds provided herein may be used by the Secretary of Agriculture 

to enter into procurement contracts or cooperative agreements or to issue grants for hazardous 

fuels reduction and for training or monitoring associated with such hazardous fuels reduction 

activities on Federal land or on non-Federal land if the Secretary determines such activities 

benefit resources on Federal land: Provided further, That funds made available to implement the 

Community Forest Restoration Act, Public Law 106-393, title VI, shall be available for use on 

non-Federal lands in accordance with authorities made available to the Forest Service under the 

“State and Private Forestry” appropriation: Provided further, That the Secretary of the Interior 

and the Secretary of Agriculture may authorize the transfer of funds appropriated for wildland fire 

management, in an aggregate amount not to exceed $50,000,000, between the Departments when 

such transfers would facilitate and expedite wildland fire management programs and projects: 

Provided further, That of the funds provided for hazardous fuels reduction, not to exceed 

$10,500,000 may be used to make grants, using any authorities available to the Forest Service 

under the “State and Private Forestry” appropriation, for the purpose of creating incentives for 

increased use of biomass from National Forest System lands: Provided further, That Section 5 of 

the Act of May 27, 1955 (42 U.S.C. 1856d, ) is amended in subsection (b) by inserting “or 

Department of Agriculture” after “Department of Defense”.

Note 1: Proposed language insertion implements budget structure changes.

Note 2: Proposed language change implements budget structure changes.

Note 3: Proposed language allows Forest Service to continue to retain funds reimbursed under 

the Reciprocal Fire Assistance Act while maintaining use of necessary mandatory waiver of 

claims provision that protects all parties, to be consistent with DOI authority.

FLAME WILDFIRE SUPPRESSION RESERVE FUND (INCLUDING TRANSFERS OF FUNDS)

For necessary expenses for large fire suppression operations of the Department of Agriculture 

and as a reserve fund for suppression and Federal emergency response activities, $315,000,000 to 

remain available until expended: Provided, That such amounts are available only for transfer to 

the “Wildland Fire Management” account and only following a declaration by the Secretary that 

either (1) a wildland fire suppression event meets certain previously established risk-based written 

criteria for significant complexity, severity, or threat posed by the fire or (2) funds in the 

“Wildland Fire Management” account will be exhausted within 30 days.

Note: No language changes are proposed.
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-5

ADMINISTRATIVE PROVISIONS FOREST SERVICE (INCLUDING TRANSFERS OF FUNDS)

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

purchase of passenger motor vehicles; acquisition of passenger motor vehicles from excess 

sources, and hire of such vehicles; purchase, lease, operation, maintenance, and acquisition of 

aircraft to maintain the operable fleet for use in Forest Service wildland fire programs and other 

Forest Service programs; notwithstanding other provisions of law, existing aircraft being 

replaced may be sold, with proceeds derived or trade-in value used to offset the purchase price for 

the replacement aircraft; (2) services pursuant to 7 U.S.C. 2225, and not to exceed $100,000 for 

employment under 5 U.S.C. 3109; (3) purchase, erection, and alteration of buildings and other 

public improvements (7 U.S.C. 2250); (4) acquisition of land, waters, and interests therein 

pursuant to 7 U.S.C. 428a; (5) for expenses pursuant to the Volunteers in the National Forest Act 

of 1972 (16 U.S.C. 558a, 558d, and 558a note); (6) the cost of uniforms as authorized by 5 U.S.C. 

5901-5902; and (7) for debt collection contracts in accordance with 31 U.S.C. 3718(c).

Note: No language changes are proposed.

Any appropriations or funds available to the Forest Service may be transferred to the Wildland 

Fire Management appropriation for forest firefighting, emergency rehabilitation of burned-over 

or damaged lands or waters under its jurisdiction, and fire preparedness due to severe burning 

conditions upon the Secretary's notification of the House and Senate Committees on 

Appropriations that all fire suppression funds appropriated under the headings “Wildland Fire 

Management” and “FLAME Wildfire Suppression Reserve Fund” will be obligated within 30 

days. 

Note: No language changes are proposed.

Funds appropriated to the Forest Service shall be available for assistance to or through the 

Agency for International Development in connection with forest and rangeland research, 

technical information, and assistance in foreign countries, and shall be available to support 

forestry and related natural resource activities outside the United States and its territories and 

possessions, including technical assistance, education and training, and cooperation with U.S., 

private, and international organizations. The Forest Service, acting for the International 

Program, may sign direct funding agreements with foreign governments and institutions as well as 

other domestic agencies (including the U.S. Agency for International Development, the 

Department of State, and the Millennium Challenge Corporation), U.S. private sector firms, 

institutions and organizations to provide technical assistance and training programs overseas on 

forestry and rangeland management.

Note: No language changes are proposed.

None of the funds made available to the Forest Service in this Act or any other Act with respect to 

any fiscal year shall be subject to transfer under the provisions of section 702(b) of the 

Department of Agriculture Organic Act of 1944 (7 U.S.C. 2257), section 442 of Public Law 106-

224 (7 U.S.C. 7772), or section 10417(b) of Public Law 107-107 (7 U.S.C. 8316(b)).

Note: No language changes are proposed.
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-6

Not more than $82,000,000 of funds available to the Forest Service shall be transferred to the 

Working Capital Fund of the Department of Agriculture and not more than $14,500,000 of funds 

available to the Forest Service shall be transferred to the Department of Agriculture for 

Department Reimbursable Programs, commonly referred to as Greenbook charges. Nothing in 

this paragraph shall prohibit or limit the use of reimbursable agreements requested by the Forest 

Service in order to obtain services from the Department of Agriculture's National Information 

Technology Center. Nothing in this paragraph shall limit the Forest Service portion of 

implementation costs to be paid to the Department of Agriculture for the Financial Management 

Modernization Initiative.

Note: No language changes are proposed.

Funds available to the Forest Service shall be available for priority projects within the scope of 

the approved budget, which shall be carried out by the Youth Conservation Corps and shall be 

carried out under the authority of the Public Lands Corps Act of 1993, Public Law 103-82, as 

amended by Public Lands Corps Healthy Forests Restoration Act of 2005, Public Law 109-154.

Note: No language changes are proposed.

Of the funds available to the Forest Service, $4,000 is available to the Chief of the Forest Service 

for official reception and representation expenses.

Note: No language changes are proposed.

Pursuant to sections 405(b) and 410(b) of Public Law 101-593, of the funds available to the 

Forest Service, up to $3,000,000 may be advanced in a lump sum to the National Forest 

Foundation to aid conservation partnership projects in support of the Forest Service mission, 

without regard to when the Foundation incurs expenses, for projects on or benefitting National 

Forest System lands or related to Forest Service programs: Provided, That of the Federal funds 

made available to the Foundation, no more than $300,000 shall be available for administrative 

expenses: Provided further, That the Foundation shall obtain, by the end of the period of Federal 

financial assistance, private contributions to match on at least one-for-one basis funds made 

available by the Forest Service: Provided further, That the Foundation may transfer Federal 

funds to a Federal or a non-Federal recipient for a project at the same rate that the recipient has 

obtained the non-Federal matching funds: Provided further, That authorized investments of 

Federal funds held by the Foundation may be made only in interest-bearing obligations of the 

United States or in obligations guaranteed as to both principal and interest by the United States.

Note: No language changes are proposed.
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-7

Pursuant to section 2(b)(2) of Public Law 98-244, up to $3,000,000 of the funds available to the 

Forest Service may be advanced to the National Fish and Wildlife Foundation in a lump sum to 

aid cost-share conservation projects, without regard to when expenses are incurred, on or 

benefitting National Forest System lands or related to Forest Service programs: Provided, That 

such funds shall be matched on at least a one-for-one basis by the Foundation or its subrecipients: Provided further, That the Foundation may transfer Federal funds to a Federal or 

non-Federal recipient for a project at the same rate that the recipient has obtained the nonFederal matching funds.

Note: No language changes are proposed.

Funds appropriated to the Forest Service shall be available for interactions with and providing 

technical assistance to rural communities and natural resource-based businesses for sustainable 

rural development purposes.

Note: No language changes are proposed.

1.

2.

Funds appropriated to the Forest Service shall be available for payments to counties within the 

Columbia River Gorge National Scenic Area, pursuant to section 14(c)(1) and (2), and section 

16(a)(2) of Public Law 99-663.

Note 1: Inserts section.

Note 2: Payments are still being made with this authority; agency needs to continue making 

payments.

1.

2.

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)).

Note 1: Inserts section.

Note 2: Section deleted in error. Authority still needed.

Funds available to the Forest Service, not to exceed $55,000,000, shall be assessed for the 

purpose of performing fire, administrative and other facilities maintenance and decommissioning. 

Such assessments shall occur using a square foot rate charged on the same basis the agency uses 

to assess programs for payment of rent, utilities, and other support services.

Note: No language changes are proposed.

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 nonlitigation-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.

Note: No language changes are proposed.
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-8

1.

2.

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.

Note 1: Inserts section.

Note 2: Section deleted in error. Authority still needed.

1.

2.

The 19th unnumbered paragraph under heading “Administrative Provisions, Forest 

Service” in title III of the Department of the Interior, Environment, and Related Agencies 

Appropriations Act, 2006, Public Law 109–54, as amended, is amended by striking 

“2014” and inserting “2019”.

Note 1: Inserts section.

Note 2: Proposes five year extension of authority for the use of funds to pay the expenses of 

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

where adequate public schooling is not available. 

Title IV

GENERAL PROVISIONS

(Including Transfers of Funds)

LIMITATION ON CONSULTING SERVICES

SEC. 401. The expenditure of any appropriation under this Act for any consulting service through 

procurement contract, pursuant to 5 U.S.C. 3109, shall be limited to those contracts where such 

expenditures are a matter of public record and available for public inspection, except where 

otherwise provided under existing law, or under existing Executive order issued pursuant to 

existing law.

Note: No language changes are proposed.

OBLIGATION OF APPROPRIATIONS

SEC. 402. No part of any appropriation contained in this Act shall remain available for 

obligation beyond the current fiscal year unless expressly so provided herein.

Note: No language changes are proposed.

PROHIBITION ON USE OF FUNDS FOR PERSONAL SERVICES

SEC. 403. 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.

Note: No language changes are proposed.
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-9

DISCLOSURE OF ADMINISTRATIVE EXPENSES

SEC. 404. 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. Changes to such estimates shall be presented to the Committees on 

Appropriations.

Note: No language changes are proposed.

MINING APPLICATIONS

1.

2.

SEC. 405. (a) LIMITATION OF FUNDS.—None of the funds appropriated or otherwise made 

available pursuant to this Act shall be obligated or expended to accept or process applications for 

a patent for any mining or mill site claim located under the general mining laws.

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

for the claim concerned (1) a patent application was filed with the Secretary on or before 

September 30, 1994; and (2) all requirements established under sections 2325 and 2326 of the 

Revised Statutes (30 U.S.C. 29 and 30) for vein or lode claims, sections 2329, 2330, 2331, and 

2333 of the Revised Statutes (30 U.S.C. 35, 36, and 37) for placer claims, and section 2337 of the 

Revised Statutes (30 U.S.C. 42) for mill site claims, as the case may be, were fully complied with 

by the applicant by that date.

(c) REPORT.—On September 30, 2014, the Secretary of the Interior shall file with the House and 

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

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

Department under the plan submitted pursuant to section 314(c) of the Department of the Interior 

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

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

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

allow the applicant to fund a qualified third-party contractor to be selected by the Director of the 

Bureau of Land Management to conduct a mineral examination of the mining claims or mill sites 

contained in a patent application as set forth in subsection (b). The Bureau of Land Management 

shall have the sole responsibility to choose and pay the third-party contractor in accordance with 

the standard procedures employed by the Bureau of Land Management in the retention of thirdparty contractors.

Note 1: Changes section number.

Note 2: Changes fiscal year.

CONTRACT SUPPORT COSTS

1.

2.

SEC. 406. Notwithstanding any other provision of law, amounts appropriated to or otherwise 

designated in committee reports for the Bureau of Indian Affairs and the Indian Health Service by 

Public Laws 103–138, 103–332, 104–134, 104–208, 105–83, 105–277, 106–113, 106–291, 107–

63, 108–7, 108–108, 108–447, 109–54, 109–289, division B and Continuing Appropriations 

Resolution, 2007 (division B of Public Law 109–289, as amended by Public Laws 110–5 and 110–

28), Public Laws 110–92, 110–116, 110–137, 110–149, 110–161, 110–329, 111–6, 111–8, 111–

88, and 112–10 for payments for contract support costs associated with self-determination or selfgovernance contracts, grants, compacts, or annual funding agreements with the Bureau of Indian 

Affairs or the Indian Health Service as funded by such Acts, are the total amounts available for 

fiscal years 1994 through 2013 for such purposes, except that the Bureau of Indian Affairs, tribes 

and tribal organizations may use their tribal priority allocations for unmet contract support costs 
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-10

of ongoing contracts, grants, self-governance compacts, or annual funding agreements.

Note 1: Changes section number.

Note 2: Updates year; however, provision is not applicable to the Forest Service. 

FOREST MANAGEMENT PLANS

1. SEC. 407. The Secretary of Agriculture shall not be considered to be in violation of subparagraph 

6(f)(5)(A) of the Forest and Rangeland Renewable Resources Planning Act of 1974 (16 U.S.C. 

1604(f)(5)(A)) solely because more than 15 years have passed without revision of the plan for a 

unit of the National Forest System. Nothing in this section exempts the Secretary from any other 

requirement of the Forest and Rangeland Renewable Resources Planning Act (16 U.S.C. 1600 et 

seq.) or any other law: Provided, That if the Secretary is not acting expeditiously and in good 

faith, within the funding available, to revise a plan for a unit of the National Forest System, this 

section shall be void with respect to such plan and a court of proper jurisdiction may order 

completion of the plan on an accelerated basis.

Note 1: Changes section number.

PROHIBITION WITHIN NATIONAL MONUMENTS

1. SEC. 408. No funds provided in this Act may be expended to conduct preleasing, leasing and 

related activities under either the Mineral Leasing Act (30 U.S.C. 181 et seq.) or the Outer 

Continental Shelf Lands Act (43 U.S.C. 1331 et seq.) within the boundaries of a National 

Monument established pursuant to the Act of June 8, 1906 (16 U.S.C. 431 et seq.) as such 

boundary existed on January 20, 2001, except where such activities are allowed under the 

Presidential proclamation establishing such monument.

Note 1: Changes section number.

LIMITATION ON TAKINGS

1.

SEC. 409. Unless otherwise provided herein, no funds appropriated in this Act for the acquisition 

of lands or interests in lands may be expended for the filing of declarations of taking or 

complaints in condemnation without providing prior notification to the House and Senate 

Committees on Appropriations: Provided, That this provision shall not apply to funds 

appropriated to implement the Everglades National Park Protection and Expansion Act of 1989, 

or to funds appropriated for Federal assistance to the State of Florida to acquire lands for 

Everglades restoration purposes.

Note 1: Proposed language clarifies the process regarding potential taking and condemnation 

activities.

PROHIBITION ON NO-BID CONTRACTS

1. SEC. 410. None of the funds appropriated or otherwise made available by this Act to executive 

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

into in accordance with the requirements of Chapter 33 of title 41, United States Code, or Chapter 

137 of title 10, United States Code, and the Federal Acquisition Regulation, unless—

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

requirements, including formula grants for States, or federally recognized Indian tribes; or (2) 
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-11

such contract is authorized by the Indian Self-Determination and Education and Assistance Act 

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

specifically authorize a contract within an Indian tribe as defined in section 4(e) of that Act (25 

U.S.C. 450b(e)); or (3) such contract was awarded prior to the date of enactment of this Act.

Note 1: Changes section number.

POSTING OF REPORTS 

1. SEC. 411. (a) Any agency receiving funds made available in this Act, shall, subject to subsections 

(b) and (c), post on the public website of that agency any report required to be submitted by the 

Congress in this or any other Act, upon the determination by the head of the agency that it shall 

serve the national interest. 

(b) Subsection (a) shall not apply to a report if—

(1) the public posting of the report compromises national security; or

(2) the report contains proprietary information.

(c) The head of the agency posting such report shall do so only after such report has been made 

available to the requesting Committee or Committees of Congress for no less than 45 days.

Note 1: Changes section number.

NATIONAL ENDOWMENT FOR THE ARTS GRANT GUIDELINES

1. SEC. 412. 

Note 1: Changes section number; however, provision is not applicable to the Forest Service.

NATIONAL ENDOWMENT FOR THE ARTS PROGRAM PRIORITIES

1. SEC. 413. 

Note 1: Changes section number; however, provision is not applicable to the Forest Service.

NATIONAL ENDOWMENT FOR THE ARTS AWARDS TO STATES

1. SEC. 414. 

Note 1: Changes section number; however, provision is not applicable to the Forest Service.

ALASKA NATIVE REGIONAL HEALTH ENTITIES 

1. SEC. 415. 

Note 1: Changes section number; however, provision is not applicable to the Forest Service.

CONGRESSIONALLY DIRECTED SPENDING

1. SEC 416. The Bureau of Land Management, Fish and Wildlife Service, National Park Service, 

and Forest Service may allocate either greater or lesser amounts than those specified under the 

heading "Congressionally Directed Spending" accompanying Public Law 111–8 and in the table 

entitled "Incorporation of Congressionally Requested Projects" in the joint explanatory statement 
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-12

of managers accompanying Public Law 111-8 within the construction, land acquisition, or 

capital improvement and maintenance accounts when necessary to complete projects based on 

the original project scope or to utilize excess funds available after completion of a project on 

other projects within the same account, in consultation with the House and Senate Committees on 

Appropriations.

Note 1: Changes section number.

ENHANCING FOREST SERVICE ADMINISTRATION OF RIGHTS-OF-WAY AND LAND USE 

1. 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 106-

113; 113 Stat. 1501 A-196; 16 U.S.C. 497 note), is further amended –

 (1) in subsection (a) –

 (A) by striking “develop and implement a pilot program” and inserting 

“implement a program”;

 (B) by striking “forest service” and inserting “Forest Service”;

 (C) by striking “through 2012” and inserting “and each fiscal year thereafter”; 

and 

 (D) by striking “Prior to the expiration” and all that follows through “permit 

applications.”; and 

 (2) in subsection (b), by striking “during fiscal years 2000-2012”.

Note 1: Changes section number.

INTERPRETIVE ASSOCIATIONS

1.

2.

SEC. 418. Partnership authorities.-

(a) In general.- The Secretary of Agriculture may enter into an agreement under the Cooperative 

Funds and Deposits Act (Public Law 94-148), with Federal, tribal, State, or local governments, or 

nonprofit entities, for additional purposes as follows:

 (1) to develop, produce, publish, distribute, or sell educational and interpretive materials and 

products;

 (2) to develop, conduct, or sell educational and interpretive programs and services;

 (3) to construct, maintain, or improve facilities not under the jurisdiction, custody, or control 

of the Administrator of General Services on or in the vicinity of National Forest System lands for 

the sale or distribution of educational and interpretive materials, products, programs, and 

services;

 (4) to operate facilities (including providing the services of Forest Service employees to staff 

facilities) in any public or private building or on land not under the jurisdiction, custody, or 

control of the Administrator of General Services for the sale or distribution of educational and 

interpretive materials, products, programs, and services, pertaining to National Forest System 

lands, private lands and lands administered by other public entities;

 (5) to sell health and safety products, visitor convenience items, or other similar items (as 

determined by the Secretary) in facilities not under the jurisdiction, custody, or control of the 

Administrator of General Services on or in the vicinity of National Forest System lands; and

 (6) to collect funds on behalf of cooperators from the sale of materials, products, programs, 

and services, as authorized by this section, when incidental to other duties of Forest Service 

personnel;

(b) Treatment of Contributions of volunteers.-The Forest Service may consider the value of 

services performed by persons who volunteer their services to the Forest Service and who are 
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-13

3.

recruited, trained and supported by a cooperator as an in-kind contribution of the cooperator for 

purposes of any cost-sharing requirement under any Forest Service authority to enter into mutual 

benefit agreements.

(c) Duration.-Subsection (a) and (b) shall remain in effect for fiscal years 2014-2019.

Note 1: Changes section number.

Note 2: The proposed language is consistent with the existing law. This proposed language 

would expand the Secretary’s authority to enter into mutual benefit agreements with cooperators, 

including Interpretive Associations pertaining to interpretive programs, services, materials, and 

products to enhance visitor awareness and knowledge of the Nation's natural resources and 

cultural heritage.

Note 3: Extends authority through FY 2019.

CONTRACTING AUTHORITIES

1.

2. 

SEC. 419. Section 412 of Division E of Public Law 112–74 is amended by striking

"fiscal year 2013," and inserting "fiscal year 2015,".

Note 1: Inserts section.

Note 2: Section deleted in error. Authority still needed.

CHESAPEAKE BAY INITIATIVE

1.

2. 

SEC. 420. Section 502(c) of the Chesapeake Bay Initiative Act of 1998 (16 U.S.C.

461 note; P.L. 105–312) is amended by striking "2013" and inserting "2014".

Note 1: Inserts section.

Note 2: Extends authority for the Chesapeake Bay Initiative.

AMERICAN BATTLEFIELD PROTECTION PROGRAM GRANTS

1.

2. 

SEC. 421. Section 7301(c)(6) of P.L. 111–11 is amended by striking "2013" and

inserting "2014".

Note 1: Changes section number; however, provision is not applicable to the Forest Service.

RECREATION FEE

1.

2. 

SEC. 422. Section 810 of the Federal Lands Recreation Enhancement Act (16

U.S.C. 6809) shall be applied by substituting "11 years" for "10 years".

Note 1: Inserts section.

Note 2: Extends authority for the Federal Lands Recreation Enhancement Act (16 U.S.C. 6809).

SERVICE FIRST

1.

2. 

SEC. 423. Section 330 of the Department of the Interior and Related Agencies

Appropriations act, 2001 (Public Law 106–291; 114 Stat. 996; 43 U.S.C. 1701 note),

concerning Service First authorities, as amended by section 428 of Public Law

109–54 (119 Stat. 555–556) section 418 of Public Law 111–8 (123 Stat. 747), and

section 422 of Public Law 112–74 (125 Stat. 1045), is amended by striking "involving
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-14

the land management agencies referred to in this section" in the first sentence and

inserting in the third sentence "or matters under the purview of other bureaus or

offices in either Department" after Forest Service.

Note 1: Inserts section.

Note 2: Expands authority for the Service First program to all of the Department of the Interior. 

Under the provision, Forest Service authorities for Service First would remain the same.

EXTENSION OF GRAZING PERMITS

1.

2.

SEC. 424. The terms and conditions of section 325 of Public Law 108–108, regarding

grazing permits at the Department of the Interior and the Forest Service, shall

remain in effect for fiscal year 2014. A grazing permit or lease issued by the Secretary

of the Interior for lands administered by the Bureau of Land Management that is

the subject of a request for a grazing preference transfer shall be issued, without

further processing, for the remaining time period in the existing permit or lease

using the same mandatory terms and conditions. If the authorized officer determines

a change in the mandatory terms and conditions is required the new permit must

be processed as directed in section 325 of Public Law 108–108.

Note 1: Inserts section.

Note 2: Extends the terms and conditions of Section 325 of the Department of 

the Interior and Related Agencies Appropriations Act, 2004, as amended (P.L. 108-108; 117 Stat. 

1307), which will expire on September 30, 2013, through FY 2014.

LIVESTOCK GRAZING ADMINISTRATION

1.

2.

SEC. 425. Beginning on March 1, 2014, and each subsequent year through February

28, 2018, and only to the extent and in the amount provided in advance in appropriations

Acts, the Secretary of Agriculture shall collect an annual administrative

fee for grazing domestic livestock on National Forests in the 16 contiguous western

States and on National Grasslands in the amount of $1.00 per head month for

cattle and its equivalent for other livestock. The administrative fee shall be billed

and collected using the process as provided in sections 222.50 through 222.52 of

title 36, Code of Federal Regulations. Fees collected may be used, subject to appropriation, to 

offset the cost of administering the livestock grazing program. Nothing

in this provision shall affect the calculation, collection, distribution, or use of the

grazing fee under 43 U.S.C. 1751(b), title III of the Bankhead Jones Farm Tenant

Act (7 U.S.C. 1010), and implementing regulations.

In fiscal years 2014–2017, beginning on March 1, 2014, and only to the extent

and in the amount provided in advance in appropriations Acts, the Secretary of

the Interior shall collect an administrative fee to offset the increased cost of administering

the livestock grazing program on public lands managed by the Bureau

of Land Management by charging $1.00 per Animal Unit Month, which shall be

billed, collected, and subject to the penalties using the same process as the annual

grazing fee in 43 C.F.R. 4130.8–1. Penalties assessed shall be deposited in the

General Fund of the Treasury. Nothing in this provision affects the calculation,

collection, distribution, or use of the grazing fee under 43 U.S.C. 315–315rr, 43

U.S.C. 1751(b), 43 U.S.C. 1905, Executive Order 12548, or administrative regulation.

Note 1: Inserts section.

Note 2: Established new grazing fee program. 
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-15

SEPARATE FOREST SERVICE DECISION MAKING AND APPEALS PROCESS 

1.

2.

SEC. 426. Section 322 of the Department of the Interior and Related Agencies Appropriations Act, 

1993 (Public Law 102–381; 16 U.S.C. 1612 note) and Section 428 of division E of the 

Consolidated Appropriations Act, 2012 (Public Law 112–74; 125 Stat. 1046; 16 U.S.C. 515 note) 

shall not apply to any project or activity implementing a land and resource management plan 

developed under section 6 of the Forest and Rangeland Renewable Resources Planning Act of 

1974 (16 U.S.C. 1604) that is 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.).

Note 1: Inserts section.

Note 2: Language clarifies that projects that are categorically excluded from documentation in 

an environmental assessment (EA) or an environmental impact statement (EIS) under the 

National Environmental Policy Act of 1969 (NEPA) are not subject to the predecisional objection 

process established in section 428 of Div. E of the Consolidated Appropriations Act, 2012 (P.L. 

112-74) and section 322 of the Department of the Interior and Related Agencies Appropriations 

Act, 1993 (Public Law 102–381; 16 U.S.C. 1612 note).

EXTENSION OF FOREST BOTANICAL PRODUCTS AUTHORITIES 

1.

2.

SEC. 427. Section 339 of the Department of the Interior and Related Agencies Appropriations Act, 

2000 (as enacted into law by section 1000(a)(3) of P. L. 106-113; 113 Stat. 1501, 1501A-199; 16 

U.S.C. 528 note), as amended, concerning a pilot program for the sale of forest botanical 

products by the Forest Service, is further amended by striking “until September 30, 2014” in 

subsection (h)(1) and inserting: “until September 30, 2019.”

Note 1: Inserts section.

Note 2: Current authorization within Section 339 of the Department of the Interior and Related 

Agencies Appropriations Act, 2000 (as enacted into law by section 1000(a)(3) of P. L. 106-113; 

113 Stat. 1501, 1501A-199; 16 U.S.C. 528 note) will expire on September 30, 2014 for charging 

fees, and the authority to expend retained fees will expire on September 30, 2015. This language 

extends the authority for five years. 

SHASTA TRINITY MARINA FEES 

1.

2.

SEC. 428. Section 422, Div. F, Consolidated Appropriations Act, 2008 (P.L. 110-161; 121 Stat. 

2149), as amended, is further amended by striking “and subsequent fiscal years through fiscal 

year 2014” and inserting “and subsequent fiscal years through fiscal year 2019”.

Note 1: Inserts section.

Note 2: Proposes five year extension of authority, amending Section 422, Div. F, Consolidated 

Appropriations Act, 2008 (P.L. 110-161; 121 Stat. 2149), which will expire on September 30, 

2014.
FY 2014 Budget Justification USDA Forest Service

Appropriations Language Changes 2-16

FEDERAL, STATE, COOPERATIVE FOREST, RANGE-LAND AND WATERSHED 

RESTORATION IN UTAH

1.

2.

SEC. 429. The authority provided by section 337 of the Department of the Interior and Related 

Agencies Appropriations Act, 2005 (Public Law 108–447; 118 Stat. 3012), as amended, shall 

remain in effect until September 30, 2014.

Note 1: Inserts section.

Note 2: Provision extended through FY 2014. 

COLORADO COOPERATIVE CONSERVATION AUTHORITY

1.

2.

SEC. 430. Section 331(e) of the Department of the Interior and Related Agencies Appropriations 

Act, 2001, (Public Law 106–291), as added by section 336 of division E of the Consolidated 

Appropriations Act, 2005 (Public Law 108–447), concerning cooperative forestry agreements 

known as the Colorado Good Neighbor Act Authority is amended by striking ‘‘September 30, 

2013’’ and inserting ‘‘September 30, 2014’’.

Note 1: Inserts section.

Note 2: Provision extended through FY 2014. 

NATIONAL COUNCIL ON THE ARTS

1. SEC. 431. 

Note 1: Inserts section; however, provision is not applicable to the Forest Service.
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-1

3. Forest and Rangeland Research

Appropriation Forest and Rangeland Research

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest and Rangeland Research

Annual Appropriations $295,300 $297,107 $310,236 $13,129 4.42%

Forest and Rangeland Research Total 295,300 297,107 310,236 13,129 4.42%

Annual Appropriations FTEs 1,919 1,919 1,919 0 0.00%

Total Full-Time Equivalents (FTEs) 1,919 1,919 1,919 0 0.00%

Forest and Rangeland Research

Wildland Fire & Fuels R&D 22,597 22,764 23,213 449 1.97%

Invasive Species R&D 35,800 35,826 37,757 1,931 5.39%

Recreation R&D 4,961 5,020 4,059 -961 -19.14%

Resource Management & Use 94,780 95,613 103,252 7,639 7.99%

Water, Air & Soil R&D 36,088 36,320 37,655 1,335 3.68%

Wildlife & Fish R&D 27,664 27,930 27,756 -174 -0.62%

Inventory & Monitoring R&D 73,410 73,634 76,544 2,910 3.95%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Forest and Rangeland Research

Customer satisfaction index score for R&D 75 75 75 79 79 79

Number of patent applications filed (3-year average) 6 13 8 8 6 7

Percent of Nation with accessible FIA data 94.0% 96.0% 92.0% 92.0% 94.0% 94.0%

Quality Science Index - peer-reviewed fire science 

publications per scientist year on a 3-year rolling average 3.5 3.5 3.5 3.0 3.5 3.5

Output Efficiency Index - total fire science products per 

scientist year on a 3-year rolling average 5.0 5.0 5.0 4.0 5.0 5.0

Invasive species tools developed, delivered and used on 

a 5-year rolling average 170 163 163 169 163 168

Forest and Rangeland Research Overview

The FY 2014 President’s Budget proposes $310,236,000 for Forest and Rangeland Research, an increase 

of $13,129,000 from the FY 2013 Annualized Continuing Resolution (CR). The Budget contains 

$1,586,000 for pay costs which includes $237,000 for annualization of the fiscal year 2013 pay raise and 

$1,349,000 for the anticipated fiscal year 2014 pay raise. The pay costs increase would enable the 

program to cover its increased staff costs without reducing the resources available for program delivery.

Funding maintains key research associated with the Priority Research Areas and Strategic Program Areas

(SPA). The President’s Budget also proposes to move the State and Private Forestry Forest Resources 

Information and Analysis program under the Forest and Rangeland Research appropriation. The request 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-2

provides $66,805,000 for the Forest Inventory and Analysis (FIA) program, a $2,805,000 decrease in the 

combined FIA program funding from the FY 2013 Annualized CR.

Forest Service Research and Development (Forest Service 

R&D) efforts provide scientific information and new 

technologies to support sustainable management of the 

Nation’s forests and rangelands. These products and 

services increase the basic biological and physical 

knowledge of the composition, structure, and function of 

forest, rangeland, and aquatic ecosystems. Forest Service 

R&D is federally mandated to provide new knowledge and 

technologies to foster healthy watersheds, forest products, 

wildlife protection, outdoor recreation opportunities, and 

other benefits, across all U.S. territories and States 

(including both Federal and non-Federal lands) benefiting 

rural and urban communities. 

Strategic Program Areas

The Forest Service R&D structure has two integrated 

components: Priority Research Areas and SPA. To address 

emerging needs and agency priorities, Forest Service R&D 

funds the Priority Research Areas from across the SPAs. The SPAs include: Wildland Fire and Fuels; 

Invasive Species; Recreation; Resource Management and Use; Water, Air, and Soil; Wildlife and Fish; 

and Inventory and Monitoring. The FY 2014 Priority Research Areas are: Forest Inventory and Analysis;

Forest Disturbances; Watershed Management and Restoration; Bioenergy and Biobased Products; Urban 

Natural Resources Stewardship; Nanotechnology; and Localized Needs Research. The following section 

displays information for each SPA. The Priority Research Areas are described in detail following the 

Priority Research Areas and SPA Matrix Funding Table.

Wildland Fire and Fuels Research & Development (R&D)

FY 2014 Program Changes 

The FY 2014 President’s Budget includes $23,213,000 for wildland fire and fuels research, an increase of 

$499,000 from the FY 2013 Annualized CR level. Research will continue in the five portfolio areas: 1) 

physical fire science, 2) ecological and environmental fire science, 3) social fire science, 4) integrated fire 

and fuel management research, and 5) science delivery. Priorities include research to predict and adapt to 

climate caused changes in fire regimes and to address the effects and effectiveness of hazardous fuels 

treatments, intended to ensure health and sustainability of fire-dependent forest and rangeland systems. 

This research supports managers as they protect life and property, restore fire-adapted ecosystems, and 

seek new land management practices in response to the impacts of extreme events such as drought, 

invasive species, and disturbances for example pine bark beetle. 

Past Performance

In FY 2012, Forest Service scientists produced an average of four fire science products (e.g., publications, 

new models, decision support systems, and workshops) per scientist. One of these products is a forest 

monitoring tool (ForWarn) that uses satellite imagery to produce weekly snapshots of vegetation 

conditions across the lower 48 United States. Forest and natural resource managers use ForWarn to 

rapidly detect, identify, and respond to unexpected changes in the Nation’s forests impacted by insects, 

Smoke Modeling Helps Protects Public Health

Forest Service scientists in 2012 provided 

customized smoke projections and analyses that 

guided public health outreach during major 

wildfires. These data and expert analyses were 

used by incident management teams, the 

Environmental Protection Agency, and State and 

local air quality agencies in the areas affected by 

the fires.
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-3

diseases, wildfires, severe weather, or other natural or human-caused events. This tool allows the public 

to prepare for and more rapidly respond to catastrophic 

disturbances and thus minimize damages and fatalities 

from these disturbances.

Forest Service scientists have developed a wildfire 

weather climatology tool that helps weather forecasters 

and fire managers assess where and why large wildfires 

have occurred in the past, so the onset of future wildfire 

events can be predicted with greater accuracy and 

confidence. These improved predictions allow managers 

to allocate fire suppression and control resources to the 

areas of greatest need and improve accuracy of warnings 

to communities.

Forest Service scientists and partners synthesized the 

latest science of weather patterns, fuel, and topographic 

factors that contribute to extreme fire behavior. This 

synthesis provides a valuable and time- saving resource 

by condensing thousands of pages of complex literature 

into one accessible source of information to inform fire 

response. The synthesis was distributed to land 

management offices across the country, including 

incident commanders, fire behavior analysts, incident 

meteorologists, National Weather Service office 

forecasters, and firefighters.

Program Overview

The Wildland Fire and Fuels SPA provides the knowledge and tools needed to help reduce the negative 

impacts and enhance the beneficial effects of fire and fuels on society and the environment. The program 

has five major focus areas: 1) understanding and modeling fundamental fire processes; 2) interactions of 

fire with ecosystems and the environment; 3) social and economic aspects of fire; 4) evaluation of 

integrated management strategies and disturbance interactions at multiple scales; and 5) application of fire 

research to address management problems. This research enables fire managers to develop science-based 

policy and to practice science-based fire management that results in reduced losses to society from fire 

and improves the resilience and sustainability of wildland ecosystems. 

Invasive Species R&D 

FY 2014 Program Changes

The FY 2014 President’s Budget includes $37,757,000 for invasive species research, an increase of 

$1,931,000 from the FY 2013 Annualized CR. This will enable maintenance of research on priority 

invasive species, such as emerald ash borer, hemlock wooly adelgid, and invasive plants. Additionally, 

research on emerging pests and pathogens such as gold-spotted oak borer, thousand canker disease, and 

laurel wilt will continue.

iPhone Application Helps People Identify and 

Control Harmful, Nonnative Plants

Forest Service scientists developed a free 

software application that helps people identify 

and control destructive invasive plants in 

Southern forests and grasslands. The Invasive 

Plants in Southern Forests: Identification and 

Management app is currently compatible with 

Apple products—iPad, iPhone and iPod Touch—

and available through iTunes. The software 

provides photos and information that allow users 

to identify the 56 nonnative plants and plant 

groups currently invading the forests of the 13 

Southern states and provides control 

recommendations. 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-4

Past Performance

In FY 2012, Forest Service R&D developed and delivered 169 tools used by public and private land 

managers, academia, and local and national policy makers. We were able to improve our research 

efficiency and exceed our target of 163 tools through increased partnerships. Among those 169 tools are: 

(1) a model to help State and Federal agencies optimize resources for surveillance versus control of 

invasive pests, (2) an iPhone application that helps people identify and control harmful, nonnative plants, 

and (3) a proactive strategy to manage high-elevation white pine ecosystems threatened by bark beetles 

and blister rust.

Nationwide, Federal and State agencies invest sizable budgets to identify and eradicate newly established 

non-native forest insects and diseases such as the emerald ash borer, hemlock woolly adelgid, or oak wilt. 

R&D scientists developed a planning tool that helps organizations prioritize where to look for newly 

established populations and how much to spend on surveillance while minimizing the damage caused by 

invasive species.

Forest Service R&D scientists and partners developed a proactive management strategy to sustain healthy 

high elevation white pine forests and mitigate the impact of white pine blister rust. High elevation white 

pine forests are valued by people for their aesthetics, longevity, their ability to survive at high altitudes, 

their capture of snow in the headwaters of western Northern American watersheds, and their seeds which 

serve as food for many wildlife species. Implementation of the strategy in high elevation white pine 

forests, under the threat of multiple stressors, is an excellent example of proactive management for 

ecosystem resilience.

Program Overview

The Invasive Species SPA provides the scientific information, methods, and technology to reduce, 

minimize, or eliminate the introduction, establishment, spread, and impact of invasive species, and to 

restore ecosystems affected by invasive species. This research focuses on non-native plants, animals, and 

diseases whose introduction may cause adverse economic or environmental consequences. Natural 

resource managers use Forest Service technology and knowledge to prevent, detect, and manage 

important invasive species and restore/rehabilitate the function and diversity of impacted ecosystems. 

Recreation R&D

FY 2014 Program Changes

The FY 2014 President’s Budget includes $4,059,000 for recreation research, a decrease of $961,000 

from the FY 2013 Annualized CR. Priority recreation science will be maintained in support of resilient 

ecosystems and thriving communities.

Past Performance

In FY 2012, Forest Service R&D published national projections of outdoor participation for 17 recreation 

activities through 2060. The projections were estimated for three future scenarios developed for the Forest 

Service 2010 Resources Planning Act Assessment. Each scenario varied by population growth, 

socioeconomic conditions, and land use changes and featured three associated climate futures. Findings 

indicated that outdoor recreation will increase overall in the United States. However, numbers may 

decline for some activities, such as snowmobiling, undeveloped skiing, and hunting. These results will 

help managers plan to meet future recreation needs and priorities. 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-5

Forest Service scientists examined the prevalence of 

public recreational access on family forestland, the 

factors influencing whether a family forest owner allows 

public access, and regional differences in the supply of 

public access. They found that the provision of public 

recreational access on family forest land access was 

modest, only 15 percent of owners. Owning more 

forestland, being a resident owner, owning an associated 

farm/ranch, participating in leasing or timber 

management, and having a management plan were

associated with higher levels of public access. 

Additionally, the authors discovered regional differences 

in the willingness of landowners to provide public 

access. 

Program Overview

The Recreation SPA is directed at understanding and 

increasing knowledge about a wide variety of outdoor 

environments, activities, and experiences that connect 

people with the natural world. Social and economic 

changes such as population growth, increased U.S. 

population diversity and mobility, globalization, 

changing values, and urbanization of rural places alter

recreation preferences, use patterns, and opportunities. 

This program area develops the knowledge and tools to 

address these complex issues and to inform management 

decisions that maintain and improve outdoor recreation opportunities for current and future generations 

while sustaining healthy ecosystems and economies.

Resource Management and Use R&D

FY 2014 Program Changes

The FY 2014 President’s Budget includes $103,252,000 for resource management and use research, an

increase of $7,639,000 from the FY 2013 Annualized CR. Funding will be used to maintain the highest 

priority research, including research on integrated management and production systems, sustainable 

bioenergy production, urban sustainability and natural resource stewardship, and forest genetics 

supporting restoration and climate adaptation. Included in this funding is $18,000,000 for research being 

conducted at the Forest Service R&D’s Forest Products Laboratory (FPL).

Past Performance

Forest Service researchers have developed technology to form cellulose fibers into structural and threedimensional engineered fiberboard panels. Noble Environmental Technologies Inc. of San Diego, CA, has 

signed an exclusive license agreement with USDA to use jointly patent-pending technology and structures 

for office furniture and packaging applications. These naturally bonded boards use fibers produced from a 

variety of renewable sources including forest thinnings and recycled paper fibers. This collaboration will 

lead to reduced waste, economic efficiencies, and provides an excellent example of government and 

industry collaboration to meet market demands.

Improving Urban Natural Resources: the San 

Juan ULTRA Approach

Over the last two years, the San Juan Urban 

Long-Term Area (San Juan ULTRA) has drawn 

an extensive network of scientists to evaluate the

social and ecological condition of San Juan, 

Puerto Rico. Despite the climate and economic 

vulnerabilities facing San Juan, scientists found 

surprising adaptive capacities. For instance, 

native aquatic species are thriving, forests grow 

rapidly and with high diversity on abandoned city 

spaces, and households are adapting to increased 

flooding events. San Juan ULTRA findings are 

shared online (www.sanjuanultra.org), via 

workshops and in print. 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-6

Helping to develop new markets for bioenergy is an important component of the Forest Service’s 

objectives to sustain healthy forests and rural communities. As a first step in establishing local markets, 

Forest Service scientists studied the information needs of forest managers, entrepreneurs, and civic 

officials interested in using various forms of local biomass as sources of energy in Alaska. They found 

that there is an economic incentive exists to convert to solid wood to fuel when the price of heating oil is

above $3.00 per gallon. Given the high transportation costs of importing products to Alaska, local 

markets are an important part of any business plan to produce energy products. 

The Climate Change Response Framework (Framework), developed by Forest Service R&D scientists 

and a diverse network of partners (Federal, State, Tribal, nongovernmental, and industry groups and 

organizations) is an integrated set of tools, partnerships, and actions to develop forest management 

practices that will provide ecosystem services such as timber, wildlife, and clean water under future 

climate scenarios. The Framework has expanded its coverage to 133 million acres, over nine States and 

11 national forests. 

Program Overview

The Resource Management and Use SPA provides the scientific and technological base to sustainably 

manage and use forest resources and forest fiber-based products. The use of forest products for timber and 

medicinal and food products contributes to local economies while the management of these forests 

provides an assortment of ecosystem services including clean air and water. Focus areas include plant 

science, soil science, silviculture, social science, productivity, forest and range ecology and management, 

forest harvesting and operations, forest and biomass products and utilization, economics, urban forestry, 

climate change, and nanotechnology. This program area helps ensure that our Nation’s forests remain a 

sustainable, strategic asset in achieving and enhancing energy security, economic opportunity, 

environmental quality, and global competitiveness.

Water, Air, and Soil R&D

FY 2014 Program Changes

The FY 2014 President’s Budget includes $37,655,000 for water, air, and soil research, an increase of 

$1,335,000 from the FY 2013 Annualized CR. The request focuses funds toward high priority watershed 

restoration and science delivery. The agency is committed to producing the science to support high 

quality water resources from resilient ecosystems.

Past Performance

In FY 2012, Forest Service research has enhanced our understanding of the effects of weather on forest 

fires and has developed tools to predict fire and smoke behavior that protect public health. Forest Service

scientists developed standards for characterizing and measuring effects of airborne pollutants on wild and 

planted forest lands, and for monitoring how ecosystems may be affected by changes in concentrations of 

pollutants over time. This research will increase the accuracy of models that land managers use to 

minimize effects of air pollution on public lands and wilderness areas. 

The 2012 Planning Rule requires National Forest System (NFS) to consider air quality when developing 

Land Management Plan components and to treat air resources similar to soil and water resources. Forest 

Service managers directly monitor and use models developed by Forest Service researchers to measure or 

estimate the amount of atmospheric deposition occurring on National Forests and how this deposition is 

affecting forest resources. Long-term air quality and resource monitoring on and near NFS lands and 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-7

Class I areas (area classification that receives the highest 

degree of protection under the Clean Air Act) has helped 

establish air pollution trends and existing condition of 

the resources. 

In FY 2012, Forest Service scientists helped forest 

watershed managers better understand sources of 

phosphorus pollution in forested watersheds of Lake 

Tahoe and the Great Lakes. Although low in forest soils, 

scientists found phosphorus was relatively high in forest 

soil water. Soil water phosphorus concentration is 

frequently lower following forest thinning or prescribed 

fire, suggesting that fuel management activities may 

reduce the delivery of phosphorus into the groundwater. 

These findings were used to develop a phosphorus 

delivery model.

Program Overview

The Water, Air, and Soil SPA enables the sustainable 

management of these essential resources by providing 

information on how to clean air and drinking water, 

protect lives and property from wildfire and smoke, and 

improve our ability to adapt to climate variability and 

change. The program area studies ecosystem services 

with a high level of integration between water, air, and soil research. It pays particular attention to the 

effects of climate variability and change on water budgets.

Wildlife and Fish R&D

FY 2014 Program Changes

The FY 2014 President’s Budget includes $27,756,000 for wildlife and fish research, a decrease of 

$174,000 from the FY 2013 Annualized CR. The focus will be on research and science delivery 

supporting landscape-scale restoration and improvements to watershed condition on private and public 

lands. This research will inform efficient and effective allocation of restoration dollars and support the 

2012 Planning Rule. 

Past Performance

In FY 2012, Forest Service researchers informed sage-grouse conservation and management measures 

through new research on the species biology, behavioral ecology, demographics, and habitat use patterns. 

Forest Service scientists also evaluated how fire, invasive species, and climate change affect sagebrush 

environments across the West. These studies provide resource managers with improved information to 

make restoration management decisions with reduced risk and uncertainty.

A 2012 book authored by a Forest Service scientist provides the first comprehensive view of the ecology 

and conservation of the over 300 species of North American freshwater mussels. Habitat alterations in the 

first half of the twentieth century resulted in extinction of at least 30 mussel species. Intended for resource 

managers, scientists, students, and those interested in natural history, North American Freshwater 

Mussels highlights the diversity of the continent’s mussel fauna, the animals’ ecology, human uses of 

Threats From Wind Energy Turbines 

Identified for Migrating Golden Eagles 

Wind power is a fast-growing industry with 

important implications for energy policy and 

broad potential to impact some migratory wildlife. 

Golden eagles are a species known to be at risk 

from development of wind energy and in some 

areas are killed in large numbers by turbines; 

however, at other sites turbines kill few eagles. A 

Forest Service scientist is leading a national team 

to study movement ecology of eagles to 

understand behaviors that may put them at risk. 

This work is being expanded to the California 

desert, where the team is characterizing and 

minimizing risk to eagles from development of 

wind energy on public lands.
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-8

mussels, and mussels’ conservation status. This book

provides a critical examination of conservation efforts 

designed to prevent future extinctions. 

Program Overview

The Wildlife and Fish SPA provides knowledge and 

tools to sustain the health, diversity, and productivity of 

aquatic and terrestrial animals on the Nation’s forests 

and grasslands. Forest Service R&D wildlife and fish 

research serves several needs: 1) supporting restoration 

and conservation actions across large landscapes and 

watersheds; 2) managing wildlife and fish under current 

and future environmental disturbances such as drought, 

fire, and invasive species; 3) creating innovative 

protocols for inventory and monitoring of fish and 

wildlife populations and habitats; and 4) providing 

strategies to meet the growing demand for water, energy, 

and other forest and grassland-based commodities while 

ensuring the sustainability and diversity of terrestrial and 

aquatic species and ecosystems.

Inventory and Monitoring R&D

FY 2014 Program Changes

The FY 2014 President’s Budget includes $76,544,000

for inventory and monitoring research, an increase of 

$2,910,000 from the FY 2013 Annualized CR. Inventory and Monitoring is comprised of Resource Data 

and Analysis and Forest Inventory and Analysis (FIA). The FY 2014 President’s Budget includes 

$9,739,000 for Resource Data and Analysis, an increase of $767,000 from the FY 2013 Annualized CR. 

The President’s Budget also proposes to move the State and Private Forestry Forest Resources 

Information and Analysis program under the Forest and Rangeland Research appropriation. The request 

provides $66,805,000 for the FIA program, a $2,805,000 decrease in FIA program funding from the FY 

2013 Annualized CR.

The FY 2014 President’s Budget will continue to support implementation of the FIA program in all 50 

States, except interior Alaska, and the U.S. territories of Puerto Rico, the U.S. Virgin Islands, and 

Guam. To maintain the national coverage, the re-measurement cycle will be extended to 10 years. Our 

ability to leverage funding with partners will continue at a lower level.

Past Performance

In FY 2012, Forest Service R&D implemented FIA annual forest sampling in all 50 states. Current and 

accessible FIA data were available for 46 states (92 percent), meeting the 2012 target. In excess of 42,000 

field plots were measured that represent 14 percent of the FIA national plot system. Current data defined 

as being less than two years old is publically available for 46 states and coastal Alaska on line at 

http://www.fia.fs.fed.us. Data from the previous survey cycle (generally 10 to 15 years old) is available 

for States where current data is not yet posted. Data is being collected, but currently not complete, for the 

other states.

Scientists Solve Mystery of Why Yellow-cedar 

is Declining in Alaska 

Yellow-cedar decline affects 60 to 70 percent of 

trees covering 600,000 acres in Alaska and British 

Columbia. Forest Service scientists synthesized 30 

years or research to determine that root freezing 

was the culprit for this decline and that the health 

of yellow-cedar depends on changing snow 

patterns. Thus, locations for appropriate 

conservation and management activities need to 

follow the shifting snow patterns on the 

landscape. Forest Service scientists are working 

with federal land managers in Alaska to use this 

new information for a comprehensive 

conservation strategy for yellow-cedar in the 

context of a changing climate.
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-9

Forest Service scientists used Light Detection and Ranging (LiDAR) technology to remotely and 

efficiently map Hardwood and Softwood Vegetation Types. These data are being used by partners, such 

as managers at the Department of Energy’s Savannah River Site, to assess the availability of smalldiameter hardwood material for bio-energy production and habitat suitability for the endangered redcockaded woodpecker.

In FY 2012, in response to a need in the National Greenhouse Gas Inventory and Biomass Assessments, 

Forest Service scientists completed the first National Inventory of Standing Dead Tree Biomass-Carbon. 

This inventory replaces older models and estimates that could not detect impact of disturbances such as 

droughts and insect outbreaks. The impact of forest disturbances on standing dead tree biomass/carbon 

estimates can now be measured on an annual rather than decadal scale. Beyond simply counting standing 

dead trees, research on standing dead tree wood density reduction and structural deductions improves the 

accuracy of standing dead tree carbon stock estimates.

Program Overview

The Inventory and Monitoring SPA provides the resource data, analysis, and tools needed to assess 

current status and trends of forests, management options and impacts, and threats from fire, insects, 

disease, and natural processes, enhancing the use and value of our Nation’s forests and grasslands. 

Assessing current and potential effects of climate change depends on monitoring forest ecosystems at 

greatest risk to rapid change. 

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

other natural resource agencies, interest groups—and many others—depend on our models, information 

and data for timely, scientifically credible assessments about our forests. An important component of 

monitoring is gaining a clear understanding of what has happened in the past and what is likely in the 

future. Specific examples include combining FIA field data and disturbance maps from time-series 

Landsat imagery to produce spatial and temporal disturbance trends. Maps produced through the North 

American Forest Dynamics Project methodologies offer the opportunity to communicate the timing, area, 

and intensity of fires, harvests, and other disturbances including the incidence of insect and disease 

outbreaks. This provides a clearer understanding of past and future trends in forest dynamics across the 

country.

Forest Service Research and Development Program Overview

Forest Service R&D provides scientific information and new technologies to support sustainable 

management of the Nation’s forests and rangelands. These products and services increase the basic 

biological and physical knowledge of the composition, structure, and function of forest, rangeland, and 

aquatic ecosystems. Forest Service R&D is federally mandated to provide new knowledge and 

technologies to foster healthy watersheds, forest products, wildlife protection, robust urban ecosystems, 

and other benefits, across all U.S. territories and States (including both Federal and non-Federal lands). 

Research is conducted at five research stations and FPL, and the International Institute of Tropical 

Forestry located in Puerto Rico. There are approximately 500 scientists at 67 sites located throughout the 

U.S. In addition, Forest Service R&D maintains 80 experimental forests and ranges across the Nation, 

which serves as sites for most of the agency’s long-term research. 

The following table illustrates the cross-disciplinary nature of most priority research areas and the balance 

of funding between national and localized research. 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-10

Priority Research Areas and Strategic Program Areas Matrix Funding Table

(dollars in thousands)

Priority 

Research Areas Fire Invasives Recreation

Resource 

Management 

and Use

Water, 

Air, 

and Soil

Wildlife Inventory 

and 

Monitoring

Total and 

Fish

Forest 

Disturbances $301 $204 $0 $16,984 $2,072 $3,247 $5,549 $28,357

Forest Inventory 

and Analysis 0 0 0 0 0 0 66,805 66,805

Watershed Mgt 

and Restoration 1,897 1,233 0 3,058 10,000 6,164 948 23,300

Bioenergy and 

Biobased 

Products

250 100 0 12,000 250 0 350 12,950

Urban Natural 

Resource 

Stewardship

369 0 1,676 3,111 1,107 0 1,737 8,000

Nanotechnology 0 0 0 7,000 0 0 0 7,000

Localized Needs 

Research 20,396 36,220 2,383 61,099 24,226 18,345 1,155 163,824

Total $23,213 $37,757 $4,059 $103,252 $37,655 $27,756 $76,544 $310,236

Priority Research Areas

Forest Disturbances - $28,357,000

This research area provides scientific information and tools that can be used by land managers and 

policymakers to address impacts of forest disturbances to forests and rangelands. The program strategy 

focuses on predicting impacts on ecosystems and providing the research that will lead to: enhanced 

ecosystem sustainability (adaptation); increased carbon sequestration, reduced emissions, and product 

substitution, including biofuels and wood products (mitigation); developing decision support tools; and 

establishing collaborations that will enhance the delivery of the science needed to manage forest and 

grassland ecosystems. This information is used to develop management strategies and provide decision 

support tools that aid managers and policy makers in fostering resilience to current and future forest 

disturbances across forest, range, and urban ecosystems. Forest Service R&D is investing $16,000,000 on 

research on how stressors resulting from the effects of climate change, such as drought and increasing 

fire, impact ecosystem processes and services such as clean water, fish and wildlife habitat, carbon 

cycling, and forest productivity. By maintaining healthy and productive forests and grasslands, the cost of 

preventing and mitigating damage from wildfire, invasive pests, and other threats can be substantially 

reduced. 

Forest Inventory and Analysis - $66,805,000

FIA reports on the current condition and recent trends in the area of public and private forest land in the 

U.S. FIA provides specific information on past, current, and projected tree numbers by species; the size 

and health of trees; tree growth, mortality, and harvest removals; loss of forested lands due to 

disturbances, such as hurricanes and wildland fires; wood production and utilization; and forest 

landownership. The program supplies the Nation’s land managers and private forest landowners with the 

data needed to make sound investment decisions in forest management activities. FIA data enables the 

natural resource community to understand the magnitude of changes in forest conditions and trends and to 

make projections of future conditions; information vital to the long-term health of forests and the multiple 

uses made from forests. 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-11

Watershed Management and Restoration - $23,300,000

Adequate supplies of clean water are essential to human health and economic growth. Population growth 

and forest disturbances, however, are stressing surface and ground water resources. New approaches are 

developed to effectively manage water resources given the changing social, economic, and environmental 

conditions. Forest Service R&D delivers:

• Best management practices for watershed management and restoration in forest, urban, and 

agricultural settings, which provide abundant, safe drinking water

• Methods for assessing changes in watershed condition as a result of changing demographics and 

development pressures

• Strategies for managing both surface and groundwater resources under changing forest conditions 

and urbanization

• Projections of national and regional water demand and supply as affected by forest disturbances, 

population growth, agriculture production, energy generation, and economic development

• Improved techniques for restoring watersheds, which will improve overall human and ecosystem 

health

Bioenergy and Biobased Products - $12,950,000

Our Nation’s forests are a sustainable, strategic asset in achieving and enhancing domestic energy 

security, economic opportunity, environmental quality, and global competitiveness. A sustainable 

renewable bioenergy and biobased products sector is a growing source of green jobs in the economy that 

contributes to energy security and greenhouse gas emissions reduction. Woody biomass is a critical 

renewable resource that has the potential to supply a significant portion of our energy needs, liquid fuels 

and chemicals, and sustainable substitutes for fossil fuel-intensive products. A robust and productive 

research and development program is crucial to building this economic sector. Critical areas of research 

include: sustainable feedstock production and management systems development, competitive 

conversion technologies for energy and coproducts, and effective decision-support and policy analysis 

tools. This research provides the science and technology to sustainably produce, manage, harvest, and 

convert woody biomass to liquid transportation fuels, chemicals, and other high-value products. By 

developing cost-effective conversion processes that deliver fuel and high-value co-products and efficient, 

high productivity biomass feedstock production and management systems for application to US woody 

biomass, this research reduces investor risk in woody biomass projects and significantly contributes to our 

energy security, environmental, and economic goals. (US Department of Energy 2011, National Science 

Foundation 2008)

Urban Natural Resources Stewardship - $8,000,000

Forest Service R&D provides leading science and new technology that informs urban natural resources 

management and policy and improves environmental health and community well-being in urban areas. 

R&D places emphasis on helping to create more livable and desirable urban areas and improve urban 

ecosystem services like clean air and water. Critical areas of research include: urban forest structure and 

effects modeling, urban ecosystem health, urban watershed conservation and rehabilitation, ecosystem 

services assessment tools, and green infrastructure strategies and “best management” practices. Forest 

Service R&D will invest in a Vibrant Cities program which will direct research efforts in selected urban 

areas to provide new information and tools to help in sustainability planning. This effort involves 

initiating urban forest inventory work and advancing long-term, place-based, collaborative urban forest-
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-12

related research in selected cities. This effort is closely aligned with the Vibrant Cities & Urban Forests 

National Call to Action initiative.

Nanotechnology - $7,000,000

Nanotechnology research is being conducted out of the Forest Service R&D FPL. Nanotechnology has 

the potential to bring about fundamental changes and significant economic and quality-of-life benefits to

the American people. Renewable wood-derived nanomaterials have a very broad range of application in 

traditional forest products and nontraditional new applications such as in medicine, electronics, 

transportation, and national defense. Utilizing these renewable materials, wood-based nanotechnology 

creates a pathway for expanded new markets, thereby helping accelerate the restoration of America’s 

forests. The $7,000,000 funding level includes an increase of $2,000,000 to nanotechnology research at 

FPL to increase basic nanotechnology research, develop new forest-derived nanomaterials and application 

of nanotechnology in forestry, forest products, and non-conventional areas, thus contributing to the 

agency’s forest restoration efforts.

Localized Needs Research - $163,824,000

In addition to the research investments in national Priority Research Areas, Forest Service R&D invests in 

research targeted to the geographic regions served by Forest Service research stations and field 

laboratories. Localized needs research is aligned with national strategic goals, but is particularly 

responsive to the social, economic, and ecological issues important to each region. Scientists from 

multiple research stations collaborate across regions to develop and share research findings and develop 

tools that solve common problems. Localized needs research by Forest Service R&D provides the 

foundation of basic and applied science needed to advance research in each of the SPAs previously 

reviewed and described in this document. 

Forest Service R&D develops and shares basic science, while developing applications specific to regional 

needs. This approach of developing a core foundation of basic science that drives the development of 

regionally specific knowledge, assessment methods, and management tools plays out at Forest Service 

R&D research labs throughout the Nation, addressing critical issues concerning wildlife, fish, water, air, 

forests and rangelands, invasive species, wood products utilization, recreation, economics, social science, 

and other needs critical to sustaining America’s natural resources and public uses.

Allocation and Integration

Forest Service R&D priorities are based on the agency’s mission and Administration priorities. The base 

R&D program is established using input from the field. The research stations, FPL, and International 

Institute of Tropical Forestry prioritize research in response to local and regional needs. Field requests are 

reviewed, coordinated with critical needs identified at the national level, and then merged into a national 

research program. Funds are distributed to support the seven SPAs. R&D is integrated into agency and 

departmental programs through joint strategic planning, Budget Performance Integration, and various 

boards and agreements that focus research toward integrated outcomes.

For the FIA program, funds have been allocated historically in equal proportion to Eastern States and 

Western States, as forest acres are evenly split between these two broad regions. However, partner 

contributions are 15 percent of the total funding of Eastern States, whereas partner funding is only 10

percent of total funding in Western States, with the remainder coming from appropriated funds. For 

further detail and trends see:

http://www.fia.fs.fed.us/library/bus-org-documents/docs/2011%20FIA%20Business%20Report-opt.pdf 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-13

The program also supports forest inventory activities with costs shared by States. Allocations to States are 

based upon the cost-effectiveness of past performance of State FIA implementation. State contributions 

represent approximately 11 percent of the entire program funds and are contingent on FIA’s ability to 

provide matching funds. In order to make efficient use of available resources, FIA contracts some 

services when partners can provide them at a lower cost. 

Approximately twenty percent of the FIA program (funding and resources) supports NFS including 

strategic inventory across 193 million acres in support of Forest Planning with information such as 

volume, biomass, growth, removals, mortality, forest carbon storage, forest health, and fire fuel loads. 

Partnerships

Forest Service R&D partners include Federal and State agencies, universities, industry, nongovernmental 

organizations, Tribal groups, and foreign government research cooperators. One of the most important 

functions of Forest Service R&D is the distribution of information to forest managers and users 

implementing land management projects. The agency provides valuable technology transfer to our 

research partners, land management practitioners, State agencies, urban planners, private forest owners, 

private organizations, horticultural organizations, agricultural interests, as well as forest practitioners 

internal to the Forest Service. Seeking and forging strategic partnerships is a critical activity of Forest 

Service R&D. 

The FIA program is managed as a partnership, led by Forest Service R&D in cooperation with NFS, State 

& Private Forestry, and the National Association of State Foresters. FIA customers include: National 

Forests and Grasslands, State forestry agencies, Federal and State policy makers; corporations and 

consultants; researchers; environmental organizations; land managers; media; and anyone interested in 

reliable, current forest data. Partners contribute funds to leverage FIA program commensurate with their 

individual needs. Partner funding is encouraged but not required to receive the base Federal program. In 

FY 2012, partners contributed over $9.7 million to FIA to shorten measurement cycles or otherwise 

enhance FIA program. Participating organizations in these states include State forestry agencies, 

universities, nongovernmental organizations, and other partners. Partner contributions are primarily used 

to lower inventory cycles or cost share research. Nearly 34 percent of FIA’s annual work is accomplished 

in this manner. Not all states participate each year, but over the last 10 years all states have contributed to 

FIA program.

Forest Service R&D is also working to strengthen our partnerships with Tribes and intertribal 

organizations. In FY 2012, Forest Service R&D partnered with the Intertribal Timber Council to identify 

priority tribal research needs, and entered into a cooperative project with the Salish-Kootenai Tribal 

College to develop new communication materials that highlight traditional knowledge around fire 

management. By enhancing the agency’s relationships with these groups, there will be enhanced ability to 

deliver critical science information to these communities, as well as opportunities to better leverage local 

and traditional knowledge into our research and development programs. 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-14

Land and Forest Area and FIA Federal 

Grants and Partner Funds By State in FY 2012

Region and State All Land Forest Land Federal FIA Grants Funds Partner Funds

Thousand Acres Dollars in Thousands

 Alaska, Coast 39,041 13,718 $521,327 $140,000 

 Alaska, Int. 326,000 113,151 0 0

 Alabama 32,481 22,815 450,000 53,405 

 Arkansas 33,328 18,720 425,328 107,016 

 Arizona 72,732 18,711 0 0

 California 99,824 32,946 0 76,400 

 Connecticut 3,101 1,687 0 500 

 Colorado 66,387 22,966 0 256,522 

 District of Columbia - - 379,013 0

 Delaware 1,251 341 0 20,489 

 Florida 34,520 17,323 444,581 145,673 

 Georgia 37,068 24,785 694,294 215,658 

 Hawaii 4,111 1,748 243,000 65,201 

 Iowa 35,760 3,026 58,025 17,645 

 Idaho 52,960 21,390 0 103,600 

 Illinois 35,580 4,861 58,280 23,359 

 Indiana 22,957 4,775 159,440 236,900 

 Kansas 52,367 2,279 135,592 34,938 

 Kentucky 25,428 12,411 331,440 501,472 

 Louisiana 27,883 14,412 0 0

 Massachusetts 5,016 3,015 145,986 40,451 

 Maryland 6,295 2,454 0 12,300 

 Maine 19,753 17,665 689,547 502,064 

 Michigan 36,359 20,003 109,986 58,950 

 Minnesota 50,955 17,291 609,310 728,529 

 Missouri 44,095 15,494 158,750 110,406 

 Mississippi 30,025 19,572 0 126,625 

 Montana 93,157 25,591 795,785 188,377 

 North Carolina 31,180 18,596 693,161 117,402 

 North Dakota 44,156 772 24,917 7,200 

 Nebraska 49,201 1,520 71,708 5,853 

 New Hampshire 5,740 4,826 45,000 31,650 

 New Jersey 4,748 1,985 0 1,667 
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-15

Land and Forest Area and FIA Federal 

Grants and Partner Funds By State in FY 2012

Region and State All Land Forest Land Federal FIA Grants Funds Partner Funds

Thousand Acres Dollars in Thousands

 New Mexico 77,674 16,687 352,414 1,126,187 

 Nevada 70,276 11,169 1,196,505 122,100 

 New York 30,223 18,964 85,745 29,890 

 Ohio 26,210 8,021 0 11,345 

 Oklahoma 43,955 12,612 309,810 57,804 

 Oregon 61,442 30,056 452,760 724,571 

 Pennsylvania 28,685 16,764 1,400 0

 Puerto Rico - - 117,175 100,000

 Rhode Island 668 352 0 3,069 

 South Carolina 19,272 13,101 370,119 106,526 

 South Dakota 48,574 1,883 62,000 22,752 

 Tennessee 26,381 13,955 469,776 162,744 

 Texas 167,626 63,300 634,600 194,113 

 Utah 52,587 18,277 426,676 1,480,117 

 Virginia 25,343 15,868 493,856 154,339 

 Vermont 5,920 4,580 0 8,600 

 Washington 42,612 22,379 0 0

 Wisconsin 34,761 16,872 0 1,495,847 

 West Virginia 15,415 12,081 37,525 49,300 

 Wyoming 62,147 11,448 0 0

TOTAL 2,263,230 809,218 $12,254,832 $9,779,556
FY 2014 Budget Justification USDA Forest Service

Forest and Rangeland Research 3-16

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FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-1

4. State and Private Forestry

Appropriation State and Private Forestry

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

State and Private Forestry

Annual Appropriations $252,926 $254,474 $239,954 -$14,520 -5.71%

State and Private Forestry Total 252,926 254,474 239,954 -14,520 -5.71%

Annual Appropriation FTEs 578 578 601 23 3.98%

Total Full-Time Equivalents (FTEs) 578 578 601 23 3.98%

State and Private Forestry

Landscape Scale Restoration 0 0 20,000 20,000 0.00%

Forest Health Management - Federal Lands 47,425 47,715 58,922 11,207 23.49%

State Fire Assistance 30,488 30,675 0 -30,675 -100.00%

Forest Stewardship 28,814 28,990 22,398 -6,592 -22.74%

Forest Health Management - Cooperative 

Lands 39,999 40,244 45,655 5,411 13.45%

Volunteer Fire Assistance 6,669 6,710 0 -6,710 -100.00%

Forest Legacy Program 53,303 53,629 60,000 6,371 11.88%

Community Forest and Open Space 

Conservation 1,997 2,009 4,001 1,992 99.15%

Urban and Community Forestry 31,327 31,519 25,326 -6,193 -19.65%

International Forestry 7,987 8,036 3,652 -4,384 -54.55%

Forest Resources Information and Analysis 4,917 4,947 0 -4,947 -100.00%

State and Private Forestry Overview

The FY 2014 President’s Budget proposes $239,954,000 for State and Private Forestry (S&PF), a 

decrease of $14,520,000 from the FY 2013 Annualized CR. The Budget contains $497,000 for pay costs 

which includes $78,000 for annualization of the fiscal year 2013 pay raise and $419,000 for the 

anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its 

increased staff costs without reducing the resources available for program delivery.

S&PF programs help sustain the Nation’s urban and rural forests, assist private landowners in maintaining 

their forests, and protect communities and the environment from insects, disease, and invasive plants. In 

order to improve program management and performance and reduce administrative complexity, the FY 

2014 President’s Budget continues to propose making several structural changes to the S&PF budget: 

consolidating all Forest Health Management funding under S&PF; consolidating State Fire Assistance 

and Volunteer Fire Assistance under the Wildland Fire Management appropriation; and consolidating the 

Forest Resources information and Analysis program within the Forest and Rangeland Research (Forest 

Service R&D) appropriation. 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-2

More than 50 percent our Nation’s forests - over 420 million acres - are privately owned. These forests 

supply almost 30 percent of the surface drinking water to cities and rural communities and over 90 

percent of our domestically-produced forest products (Report to Congress on Cooperative Forestry 

Assistance Act and Other USDA Programs That Benefit Private Forests, 2011). S&PF programs help 

protect these forests and provide support to keep working forests intact. This Federal investment 

leverages the capacity of State Foresters and their partners to manage State and private lands and produce 

ecological, social, and economic benefits for the American people. For example, almost 11 million acres 

are now being managed more sustainably because of landowner planning; have been treated to protect 

against wildfires and insects and diseases; or have been protected from development since 2008 as a result 

of S&PF program investments. In addition, Forest Service programs assisted over two million landowners 

through education programs or other related services during this same timeframe. 

Partnerships are critical in implementing and delivering S&PF programs. Through a coordinated effort in 

management, protection, conservation education, and resource use, S&PF programs help facilitate sound 

stewardship of lands across all ownerships on a landscape scale, while maintaining the flexibility for 

individual forest landowners to pursue their objectives. S&PF programs help Americans reconnect to the 

outdoors and are engines of job creation in rural communities. S&PF programs are key components of the 

President’s America’s Great Outdoors Initiative to conserve important landscapes and reconnect 

Americans to the outdoors. Along with the National Forest System, Forest and Rangeland Research, the 

Department of the Interior, and State and local partners, S&PF programs manage the impacts of wildland 

fires on communities and the environment. 

Landscape Scale Restoration 

In FY 2014, the Forest Service continues its proposal to further 

institutionalize the S&PF “Redesign effort,” a strategy to focus and 

prioritize funds and resources to better shape and influence forest land 

use on a scale, and in a way, that optimizes public benefits from trees 

and forests for current and future generations. “Redesigned” S&PF 

integrates a mix of competitive and formula funding. Competitive 

projects have been administered under a model of granting funds to 

result in a targeted, positive impact on the landscape while leveraging 

State capacity with strategic Federal dollars. Since FY 2008, S&PF has 

provided approximately $20 million annually in funding for 

competetive projects focused on issues and landscapes of national importance. In FY 2014 the Redesign 

effort will continue with the implementation of the landscape scale restoration Budget Line Item (BLI), 

which will institutionalize the process that has been used to competitively fund Redesign projects. This 

BLI will focus on “All Lands” projects that accomplish meaningful change in high-priority areas. 

The 2008 Farm Bill tasked all States and Territories with crafting assessments of the forests within their 

boundaries and developing strategies to address threats and improve forest health. The resulting Statewide 

Forest Resource Assessments and Strategies, or State Forest Action Plans 

(http://www.forestactionplans.org/), provide an analysis of forest conditions and trends and delineate 

priority forest landscape areas. These State Forest Action Plans are an integral part of “Redesigned” 

S&PF and represent the first-ever “strategic plan” for the Nation’s forests. The State Forest Action Plans 

focus on “All Lands” (State, private, Tribal, and Federal) and strategically assess the greatest need,

highest value, or strongest innovation potential. State Forest Action Plans are a new path to effectively 

address contemporary conservation issues across the country in the urban-to-rural spectrum. 

Cooperation and coordination across jurisdictional boundaries is needed to deal with the complex issues 

revealed in the State Forest Action Plans, most of which can only be meaningfully addressed at a 

S&PF Program Leverages

$22 Million in FY 2012

In FY 2012, S&PF competitively 

allocated $15.3 million to State 

Foresters, supporting 75 projects 

in 39 States and Territories. These 

allocations enabled the Forest 

Service to leverage over $22

million in partner dollars and inkind contributions. 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-3

landscape level and working through local communities. State forestry organizations and the Forest 

Service have a long history of working together on important forest management issues and State Forest 

Action Plans are helping us identify priority landscapes on which to focus critical conservation actions. 

These Plans will enable the Forest Service and State partners to better leverage stakeholder partnerships 

and heighten public awareness of the value and importance of the Nation’s public and private forests. By 

focusing on priority outcomes that address landscape-scale issues, the State Forest Action Plans guide 

investments to conserve, protect, and enhance our forests. 

As required by Congressional Direction (House Report 111-180, p. 127), the following table displays the 

allocation of funding to S&PF Redesign in FY 2012. These funds supported 75 projects, many of which 

were regional or multi-State in nature. They included a multi-State effort across Colorado, Idaho, and 

Montana to prepare for emerging pest threats by developing community action plans and outreach and 

education materials; a project to identify conservation “hotspots” in Virginia to proactively target 

conservation and stewardship actions in those areas; and restoring 40 acres of forest in the New Jersey 

Highlands (Highlands) that had been converted to unproductive uses. The Highlands are home to over 5 

million people and produce almost 380 million gallons of drinking water. Other projects supported by this 

funding included watershed restoration, developing management tools for private forest landowners, 

urban forest resource assessments, invasive species early detection and containment, and providing 

education, online resources and other materials to new forest landowners as part of real estate transactions 

in the Chesapeake Bay watershed. 

S&PF Redesign and Landscape Scale Restoration

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Enacted*

FY 2013 

Annualized 

CR ** Change**

FY 2014 

Pres Bud

S&PF Landscape Scale Restoration - - - $20,000

S&PF FHM Cooperative Lands 3,601 - - 0

WFM FHM Cooperative Lands 468 - - 0

S&PF State Fire Assistance 0 - - 0

WFM State Fire Assistance 5,266 - - 0

S&PF Forest Stewardship 2,529 - - 0

S&PF Urban and Community Forestry 3,440 - - 0

Total $15,304 $19,285 $715 $20,000

*In FY 2012 some Redesign funds were used in fire transfer.

**The specific FY 2013 funding amounts needed from each program will be determined after the competitive process. This 

funding estimate was derived by pro-rating FY 2012 planned Redesign funding to align with the FY 2013 Annualized CR 

amounts for each BLI.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-4

Landscape Scale Restoration

Budget Line Item Landscape Scale Restoration

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Landscape Scale Restoration

Annual Appropriations 0 0 $20,000 $20,000 0.00%

Landscape Scale Restoration Total 0 0 20,000 20,000 0.00%

Annual Appropriations FTEs 0 0 0 0 0.00%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Landscape Scale Restoration

Total value of resources (expressed as a ratio) leveraged 

through partnerships with states and other partners 0.0 1.1 1.1 1.4 1.2 1.2

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $20,000,000 in the Landscape Scale Restoration Budget Line 

Item (BLI) that formalizes the State and Private Forestry (S&PF) Redesign process. Because Landscape 

Scale Restoration does not fund any full-time equivalent employees, the Budget does not contain any pay 

costs for this program. The request for Landscape Scale Restoration builds on the successful Redesign 

process by allowing States to continue pursuing innovative, landscape-scale projects across Forest Health 

Management, State Fire Assistance, Forest Stewardship, and Urban & Community Forestry programs 

without the limitation of a specific mix of program funding. 

Past Performance

Because Landscape Scale Restoration is a new BLI there are not past performance measures to report. 

However, the Landscape Scale Restoration BLI builds on the Redesign process, so the results of the 

Redesign process provide a useful context for past performance. Through the Redesign process in FY 

2012, S&PF competitively allocated $15.3 million to State Foresters, supporting 75 projects in 39 States

and Territories. These allocations enabled the Forest Service to leverage over $22 million in partner 

dollars and in-kind contributions. Further information on the Redesign process is provided in the S&PF 

Overview section.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-5

Program Description

Program Overview

Since FY 2008, S&PF has provided approximately $20 million in funding annually for competitive 

projects, targeting issues and landscapes of national importance, by using 15 percent of the funding from 

selected S&PF programs. This allocation experiment was called “S&PF Redesign,” an effort that was 

designed to focus and prioritize resources to better shape and influence forest land use on a scale, and in a 

way, that optimizes public benefits from trees and forests. This program formalizes a process already in 

place and establishes a specific BLI, rather than combining funds from existing BLIs. This increased 

focus on “All Lands” projects brings particular attention to implementation of the priorities identified in 

State Forest Action Plans. This approach will allow States to implement the best projects without the 

limitation of a predetermined mix of programmatic funding for Redesign projects, achieving improved 

outcomes that support State Forest Action Plans.

The Redesign process has yielded numerous successful projects such as the Great Plains Tree and Forest 

Invasives Initiative in Kansas, Nebraska, North Dakota, and South Dakota, which is preparing these 

States for the arrival of the emerald ash borer; focusing on the recovery of one of the most biologically 

diverse ecosystems on the continent - longleaf pine - in Alabama and Georgia; and protecting Colorado’s 

Front Range watersheds from wildfire, insects such as bark beetles, and other hazards through the 

development of a collaborative watershed management strategy. Redesign projects have leveraged 

millions of dollars since 2008. A focused effort on collecting and recording partner dollar and in-kind 

contributions has demonstrated that these projects are matched on a more than one-to-one basis each year. 

This partnership success is expected to continue with this new BLI (see performance measure table 

above). The Redesign effort has been successful because forest management needs and forest health 

threats cross boundary lines and require integrated solutions that cross program lines. The mix and 

configuration of programs and services that can deliver the greatest public value varies among States. 

This BLI will continue to identify the greatest threats to forest sustainability and accomplish meaningful 

change in priority landscapes. As a competitive grant program, it will provide flexible opportunities to 

fund innovative projects across program boundaries and across landscape jurisdictions to address 

priorities and needs consistent with the State Forest Action Plans. Projects will be focused on restoring 

healthy and resilient forests and communities in the priority areas that States have already identified. This 

will offer them the opportunity to develop targeted, creative projects that most effectively leverage the 

Federal dollar. Having a dedicated BLI will better enable us to track performance with these funds. The 

traditional performance measures associated with the other applicable S&PF BLIs will still be tracked. 

Through new spatial tracking tools and improved reporting methodologies, these projects will serve as a 

springboard for developing novel methods to measure and demonstrate improved outcomes on the ground 

in these priority areas – such as enhanced water quality and quantity; reduced forest loss; improved forest 

markets; and the energy conservation and carbon sequestration benefits resulting from these projects. 

State and Private Forestry’s recently-implemented Stewardship Mapping and Reporting Tool will be used

to report spatial accomplishment tracking in this program. This program will continue to help ensure the 

ability of the Nation’s forests to sustain and enrich the well-being of all citizens and communities. 

Allocation and Integration

Funds will be allocated on a competitive basis, guided by the priorities outlined in State Forest Action 

Plans. Projects will be focused in priority areas also identified in the State Forest Action Plans. The 

projects will be required to address nationally and regionally significant issues or landscapes and will 

focus on conserving working forests, protecting forests from harm, and enhancing public benefits from 

trees and forests. Because there are different needs and focus areas in different parts of the country, 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-6

appropriate regionally-specific evaluation criteria may be developed, as in the past with Redesign 

projects. Projects will involve diverse collaboration and partnerships in planning and implementation and 

will coordinate with complementary State and Federal programs when possible. 

Partnerships 

The development and implementation of these projects will be coordinated through close collaboration 

with State and Territorial forestry agency partners. S&PF works directly with State forestry agencies to 

ensure that forest landowners have the best technical, educational, and financial assistance available to 

help them achieve their objectives in an environmentally beneficial way. This Federal investment 

leverages the capacity of State foresters and their partners to manage State and private lands and produce 

ecological, social, and economic benefits.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-7

Forest Health Management

Forest Health Management

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of

Program 

Changes

Forest Health Management

Annual Appropriations $87,424 $87,959 $104,577 $16,618 18.89%

Forest Health Management Total 87,424 87,959 104,577 16,618 18.89%

Annual Appropriation FTEs 352 352 470 118 33.52%

Total Full-Time Equivalents (FTEs) 352 352 470 118 33.52%

Forest Health Management

Forest Health Management - Federal Lands 47,425 47,715 58,922 11,207 23.49%

Forest Health Management - Cooperative 

Lands 39,999 40,244 45,655 5,411 13.45%

Forest Health Management Overview 

The FY 2014 President’s Budget proposes $104,577,000 for Forest Health Management (FHM), a budget 

line item increase of $16,618,000 but a net decrease of $7,693,000 from the funds in this account and 

Wildland Fire Management (WFM) in the FY 2013 Annualized CR. The Budget contains $403,000 for 

pay costs which includes $63,000 for annualization of the fiscal year 2013 pay raise and $340,000 for the 

anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its 

increased staff costs without reducing the resources available for program delivery.

The FY 2014 President’s Budget proposes consolidating FHM under State and Private Forestry. The net 

decrease is calculated from the combined budget line items as shown in the table below. The combination 

of funding into single budget line items improves program management and performance in addition to 

reducing administrative complexity.

FHM Federal Lands Consolidated Budget Line Items

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Enacted

FY 2013 

Annualized CR Change

FY 2014 

Pres Bud

S&PF FHM Federal Lands $47,425 $47,715 $11,207 $58,922

WFM FHM Federal Lands 15,958 15,958 (15,958) 0

S&PF FHM Cooperative Lands 39,999 40,244 5,411 45,655

WFM FHM Cooperative Lands 8,353 8,353 (8,353) 0

Total $111,735 $112,270 ($7,693) $104,577

The FHM program provides insect, disease, and invasive plant survey and monitoring information on 

forest health conditions on Federal and non-Federal (Cooperative) lands and provides technical and 

financial assistance to prevent, suppress, and control outbreaks threatening forest resources and watershed 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-8

conditions. FHM utilizes science, active land management, and technology transfer expertise to restore 

and sustain forest landscapes, across urban, private, State, Tribal, and Federal forests, and creates private 

sector jobs because of the expertise required to carry out this work. 

Federal Lands: activities on Federal lands are carried out in cooperation with the National Forest 

System, other Federal agencies, and Tribal governments. These activities optimize efficiency in executing 

a coordinated Federal program to prevent, detect, monitor, evaluate, and suppress insects and disease, and 

restore Federal forestlands. 

Cooperative Lands: activities on cooperative lands are carried out in cooperation with States and 

territories. These activities optimize efficiency in executing a coordinated program to maintain and restore 

forestlands damaged by insects, disease, and invasive plants on lands owned by States, local 

governments, private organizations, and individual land owners.

Background

Recently completed State Forest Action Plans have, in many cases, identified forest health as a key State 

priority. For example, most States in the South identified the southern pine beetle as a key threat in their 

area. The most frequently mentioned invasive plant in the Southern State Forest Action Plans was 

cogongrass, which easily spreads and thrives in disturbed landscapes making it hard to eradicate or slow 

down. These Forest Action Plans are being used to help guide protection and restoration priorities at the 

national and regional levels. 

This work helps to restore forest landscapes, and the communities that depend on them, and makes them 

more resilient and healthy. Healthy forests which maintain their tree cover conserve more water, provide 

key wildlife habitat, and store carbon. With technical and financial assistance, FHM helps ensure that 

forests remain healthy and resilient by minimizing impacts of native and non-native invasive insects and 

diseases, and invasive plants. In addition, FHM works on facilitating assisted tree migration efforts and 

gene conservation that involve reforestation and afforestation in those areas where species have been 

identified as vulnerable to effects of changing resource conditions. 

The FHM program will continue to treat prioritized areas, based on risk, to reduce the potential for new 

outbreaks; to protect these areas from damaging insects and diseases; and to reduce the risks of undesired 

mortality from wildfire. Allocations are based upon level of risk as identified in the National Insect and 

Disease Risk Map (NIDRM), current pest locations and abundances, and other factors including costeffectiveness and probability of successfully implementing a treatment. Forest health treatments are 

integrated with other Forest Service activities, such as hazardous fuels, forest management and watershed 

restoration, and maintenance activities. 

The Forest Service also continues to commit resources to address public safety concerns and forest health 

needs arising from the millions of acres of dead and dying trees from bark beetle infestations in the West. 

In FY 2014 the Forest Service will continue management actions to reduce forest susceptibility to beetle 

outbreaks and protect high value trees through multiple funding sources, including FHM. In coordination 

with partners and stakeholders, the Forest Service will direct funds to high-priority areas that have been 

experiencing tree mortality as a result of bark beetle infestations to more aggressively focus our response 

to promote human safety, forest recovery, and resiliency. See the Special Exhibit on Bark Beetles for 

more detailed information.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-9

Current and Future Conditions 

Current conditions of mortality and defoliation are monitored every year by extensive nationally 

standardized aerial and ground surveys conducted on over 400 million acres of forestlands. Surveys are 

conducted in conjunction with State agencies and the USDA Animal and Plant Health Inspection Service 

(APHIS). These surveys are an integral part of the FHM program because, in the long run, rapid and early 

detection of forest pests saves more forests and money. Surveys provide key information to forest 

managers, helping to best target treatments to address the growing bark beetle infestation in the west; 

monitor the rate of spread and activity of the gypsy moth in the East; and tracking the activity level of the 

southern pine beetle in the South. Current conditions of mortality caused by other pests are not wellrepresented in aerial detection surveys, so FHM uses other reporting mechanisms, like ground surveys, to 

obtain information on current depictions of damage caused by the emerald ash borer, the hemlock woolly 

adelgid, the Asian longhorned beetle, and sudden oak death. 

The NIDRM identifies acres at risk from more than 50 different pests, and highlights acres where 

mortality from these agents is projected to exceed 25 percent over the next 15 years. NIDRM was revised 

and updated in FY 2012, providing the most accurate assessment of expected future conditions of forest 

insect and disease activity. 

Current and Emerging Threats

To assist in the assessment and evaluation of the areas needing restoration, field units will continue to 

document the occurrence of damage caused by forest insects, tree diseases, and invasive plants; changes 

in the population dynamics of host preferences of pests; and other changes in pest activity caused by 

climatic and other changing conditions. FHM continues to collect important genetic material that is at 

risk, including five-needle pine species, such as whitebark pine, foxtail pine, limber pine, and bristlecone 

pine. FHM also is implementing a new effort, Monitoring on the Margins, whereby tree populations are 

tracked in areas likely to first experience environmental stress to monitor the interacting effects of a 

changing climate and forest pests. FHM also works collaboratively with other agencies, especially with 

APHIS, to combat several damaging invasive pests such as emerald ash borer, Asian longhorned beetle, 

sudden oak death, gold-spotted oak borer, hemlock woolly adelgid, thousand cankers disease, and 

invasive plants on non-Federal lands. Most of the partnership work includes mapping surveys, control 

actions, methods development (including biocontrol development), and education and outreach with the 

public.

The following table displays funding levels for selected insects, diseases and invasive plants for FY 2012 

to FY 2014. The funding strategy is based in large part on the findings from the NIDRM, current surveys 

of pest conditions, and priorities in the State Forest Action Plans.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-10

Funding for Selected Insects, Diseases and Invasive Plants by Fiscal Year

(dollars in thousands) 

R&D (Research Appropriation)

S&PF (S&PF and WFM Appropriations)

FY 2012

Enacted

FY 2013

Annualized 

CR

FY 2014

Pres. Bud

Asian Longhorned Beetle (Total) $110 $100 $98

 R&D 60 50 48

 S&PF 50 50 50

Douglas-fir Tussock Moth (Total) $146 $113 $110

 R&D 112 79 76

 S&PF 34 34 34

Emerald Ash Borer (Total) $3,892 $2,772 $2,883

 R&D 1,792 1,872 1,983

 S&PF 2,100 900 900

Gold Spotted Oak Borer, Thousand Canker Disease,

and Laurel Wilt (Total) $1,634 $1,612 $1,482

 R&D 1,054 1,032 1,032

 S&PF 580 580 450

Gypsy Moth (Total) $8,981 $9,503 $9,454

 R&D 849 734 705

 S&PF 8,132 8,769 8,749

 Slow-the-spread 8,000 8,000 7,000

 Suppression 75 720 1,700

 Eradication 57 49 49

Hemlock Woolly Adelgid (Total) $4,235 $3,935 $3,483

 R&D 2,335 2,035 1,983

 S&PF 1,900 1,900 1,500

Invasive Plants (Total) $2,818 $2,941 $2,658

 R&D 1,418 1,541 1,258

 S&PF 1,400 1,400 1,400

Oak Wilt (Total) $575 $571 $468

 R&D 75 71 68

 S&PF 500 500 400

Port Orford Cedar Root Disease - S&PF $189 $189 $189

Sirex Woodwasp (Total) $540 $460 $460

 R&D 140 60 60

 S&PF 400 400 400

Southern Pine Beetle (Total) $4,118 $3,918 $3,868

 R&D 1,118 918 868

 S&PF 3,000 3,000 3,000

Subterranean Termites - R&D (Total) $890 $600 $600

Sudden Oak Death (Total) $1,725 $1,725 $1,725

 R&D 375 375 375
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-11

R&D (Research Appropriation)

S&PF (S&PF and WFM Appropriations)

FY 2012

Enacted

FY 2013

Annualized 

CR

FY 2014

Pres. Bud

 S&PF 1,350 1,350 1,350

Western Bark Beetles (Total) $6,083 $5,935 $5,380

 R&D 2,083 1,935 1,880

 S&PF 4,000 4,000 3,500

Whitebark Pine Pests - (Total) $274 $274 $224

 R&D 24 24 24

 S&PF 250 250 200

White Pine Blister Rust (Total) $784 $634 $584

 R&D 284 284 284

 S&PF 500 350 300

Sub-Totals

 R&D $12,609 $11,610 $11,244

 S&PF $24,385 $23,672 $22,422

TOTAL $36,994 $35,282 $33,666
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-12

Federal Lands

Budget Line Item Forest Health Management - Federal Lands

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Health Management - Federal Lands

Annual Appropriations $47,425 $47,715 $58,922 $11,207 23.49%

Forest Health Management - Federal Lands 

Total 47,425 47,715 58,922 11,207 23.49%

Annual Appropriations FTEs 297 297 378 81 27.27%

Total Full-Time Equivalents (FTEs) 297 297 378 81 27.27%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Forest Health Management - Federal Lands

Federal acres treated - Invasives 138,293 157,507 136,515 104,037 152,643 153,629

Federal acres treated - Native pests 260,260 258,454 156,692 223,618 133,601 138,823

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $58,922,000 for Forest Health Management (FHM) Federal 

Lands, a budget line item increase of $11,207,000 but a net decrease of $4,751,000 from the funds in this 

account and Wildland Fire Management (WFM) in the FY 2013 Annualized CR. The Budget contains 

$324,000 for pay costs which includes $51,000 for annualization of the fiscal year 2013 pay raise and 

$273,000 for the anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program 

to cover its increased staff costs without reducing the resources available for program delivery.

The President’s Budget proposes consolidating the FHM Federal Lands into one budget line item under 

State and Private Forestry (S&PF) because this combination improves program management and 

performance and reduces administrative complexity. The net amount was calculated using the combined 

totals from FY 2013 as illustrated in the table below. 

FHM Federal Lands Consolidated Budget Line Items

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Enacted

FY 2013 

Annualized 

CR Change

FY 2014 

Pres Bud

S&PF FHM Federal Lands $47,425 $47,715 $11,207 $58,922

WFM FHM Federal Lands 15,958 15,958 (15,958) 0

Total $63,383 $63,673 ($4,751) $58,922
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-13

Funds are used to conduct forest insect and disease surveys on over 400 million acres of forestlands; 

conduct forest insect and disease prevention, suppression, restoration, and eradication projects; provide 

technical assistance; and to monitor forest health on all Federal lands including those of the Departments 

of Defense and the Interior, and the Army Corps of Engineers. Partnership work with USDA Animal and 

Plant Health Inspection Service (APHIS) will continue to leverage funds to combat several damaging 

invasive pests. Addressing these threats demonstrates an “All Lands” approach to supporting the 

resilience and health of the forests and the communities that depend on them. 

The request includes funding to meet the highest priority prevention and suppression needs for:

• Western bark beetles

• Emerald ash borer (EAB)

• Asian longhorned beetle (ALB)

• Sudden oak death

• Oak wilt, root diseases

• Hemlock woolly adelgid (HWA)

• Thousand cankers disease (TCD)

• Southern pine beetle (SPB)

Funding also supports efforts such as slowing the spread, eradication of new outbreaks, and suppression 

of gypsy moth on forests and grasslands managed by the Forest Service, other Federal agencies, and 

Tribal governments.

In FY 2013, the Forest Service committed additional funds to address public safety concerns and forest 

health needs arising from the millions of acres of dead and dying trees from bark beetle infestations in the 

West. In FY 2014, the Forest Service will continue to fund management actions to reduce forest 

susceptibility to beetle outbreaks and protect high value trees. In coordination with partners and 

stakeholders, the Forest Service directs funds to the areas that have been experiencing tree mortality as a 

result of bark beetle infestations to more aggressively focus our response. See the Special Exhibit on Bark 

Beetles for more detailed information.

Past Performance

The Forest Service partnered with other Federal agencies in FY 2012 to treat invasive species on 104,037

acres using funds from the S&PF appropriation and 2,883 acres from the Wildland Fire Management 

appropriation. This equals a total of 106,920 acres, as illustrated in the following table, under achieving 

the FY 2012 target of 139,550 acres. 

FHM Federal Lands Consolidated Invasives Performance FY 2012 through FY 2014

Approp. Performance Measure

FY 2012 

Target

FY 2012

Actual

FY 2013

Target

FY 2014

Target

S&PF Federal acres treated - Invasives 136,515 104,037 152,643 153,629

WFM Federal acres treated under 

National Fire Plan - Invasives 3,035 2,883 2,068 0

Total 139,550 106,920 154,711 153,629

For invasive species, priority treatments focused on slowing the advance of the gypsy moth infestation 

along a management zone stretching from North Carolina to Minnesota. The program continued to protect 

critical forest ecosystems from established non-native insects and diseases, such as Port Orford-cedar root 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-14

disease, white pine blister rust, and HWA. The program also addressed the threats of relatively new 

invasive pests such as EAB, sudden oak death, TCD, and gold-spotted oak borer. A decrease in invasive 

species acres treated is primarily due to fewer gypsy moth acres requiring treatment on Federal lands. 

Instead, focus was placed on more priority slow-the-spread treatments on cooperative lands. Additionally, 

changes in pest conditions, treatment methods, and unit costs also contributed to a decrease in acres 

treated for invasive species.

For FY 2012 and FY 2013, treatments done with WFM dollars have a higher unit cost per acre. The 

reason for the cost difference is the types of treatments and the pests treated. The WFM money is used 

mainly for Western bark beetle, particularly suppression treatments. These are mechanical treatments and 

are much more labor-intensive, and therefore expensive, than other kinds of treatment. The SPF funds are 

typically used for other types of pests, such as gypsy moth, HWA, and SPB, in particular. These 

treatments are focused on insecticide use, such as spraying and soil injections. Some SPF funds are also 

used for the Western bark beetle, but the treatments are more focused on insecticide treatment (spraying 

and soil injection) which is cheaper than mechanical treatment. 

The Forest Service, with partners, also treated native pest species on 223,618 acres in FY 2012, through 

the S&PF appropriation and native pests on an additional 21,108 acres, through the Wildland Fire 

Management appropriation. Treatment areas for native pests, such as the SPB and western bark beetle, 

focused on high priority large-scale watersheds. This equals a total of 244,726 acres, as illustrated in the 

following table, exceeding the target of 177,174 acres. 

FHM Federal Lands Consolidated Native Pests Performance FY 2012 through FY 2014

Approp. Performance Measure

FY 2012

Target

FY 2012

Actual

FY 2013

Target

FY 2014

Target

S&PF Federal acres treated - Native 

Pests 156,692 223,618 133,601 138,823

WFM Federal acres treated under 

National Fire Plan - Native Pests 20,482 21,108 8,316 0

Total 177,174 244,726 141,917 138,823

Targets are based on the average unit costs over the past five 

years, current year funding, and the relative risk to forests. 

The program allocates funds based on pests posing the 

greatest risks (e.g. mountain pine beetle, SPB, gypsy moth 

and invasives). In FY 2012, the significant increase in acres 

accomplished over the planned target for native species is 

attributed to changes in pest conditions, treatment methods, 

and unit costs. Additionally, more funding was allocated to 

address the bark beetle epidemic, resulting in a greater 

number of acres being treated than originally anticipated.

Program Description 

Program Overview

The FHM Federal Lands program monitors and assesses both 

short-term and long-term forest health conditions across the 

Nation. Funds support three objectives: conduct pest surveys 

and provide technical assistance; conduct prevention, 

Southern Pine Beetle

In 2012, SPB populations unexpectedly 

erupted on the National Forests of Mississippi, 

particularly on the Homochitto National 

Forest. From having no known infestations in 

2011, the Homochitto exhibited over 800 SPB 

infestations this year, of which more than 370 

required suppression measures. The aggressive 

suppression campaign has resulted in over 

1,000 acres of suppression treatments.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-15

suppression, restoration, and eradication projects; and monitor the health of the Nation’s forests. These 

investments provide for prevention, detection, monitoring, evaluation, and suppression of forest insects 

and diseases on forestlands managed by the Forest Service, other Federal agencies, and Tribal 

governments. Pests that are managed include white pine blister rust, sudden oak death, TCD, HWA, and 

ALB. For invasive plants, the FHM program primarily provides technical assistance to Federal land 

managers, as the National Forest System (NFS) has the management lead on NFS lands. Since pests do 

not obey boundaries, FHM uses an “All Lands” approach involving all partners in the development of 

integrated management strategies to address each important pest.

Treating priority areas makes the most efficient use of Federal dollars. Treatments protect priority areas 

from damaging insects and disease, reduce the risks of mortality from wildland fire, and prevent future 

outbreaks by increasing the resilience of treated areas. 

FHM also leads the Slow-the-Spread (STS) program for the gypsy moth, which continues to slow the 

progression of this invasive insect by 60 percent as it moves across the eastern U.S. Forest Service 

research indicates that without the STS program, over 50 million acres of oak hardwood forests would be 

infested with gypsy moth. STS is an integrated program of monitoring, trapping, and treating the gypsy 

moth so that populations do not spread rapidly. 

Projects also include gene conservation efforts to conserve at-risk tree species that we project will be 

negatively impacted by the effects of a changing climate, insects, and diseases.

The program continues to fund the Eastern Forest Environmental Threat Assessment Center in Asheville, 

North Carolina, and the Western Wildland Environmental Threat Assessment Center in Prineville, 

Oregon. These Environmental Threat Assessment Centers (Centers) are supported by S&PF, NFS, and 

Forest Service Research & Development (Forest Service R&D) and provide information on how multiple 

threats interact with pests, focusing on the effects of a changing climate. The Centers are interdisciplinary 

resources that work to identify, provide information, and response to emerging multiple threats to forest 

health. Center researchers work with other scientists nationally as well as with a variety of Federal, State, 

and local government agencies, universities, and nongovernmental partners to accomplish this work. This 

partnership illustrates the collaborative nature of the work necessary to determine and address the current 

and future challenges to forest health. See the Special Exhibit on Research & Development Threat 

Assessment Centers for more detailed information.

A brief synopsis of pest management strategies of the highest priority pests follows:

• Western bark beetle is causing severe mortality across many Western States, increasing risks for 

catastrophic fire, and health and safety of the people who use America’s forests. FHM resources 

are focusing on prevention and suppression, especially in high value sites such as campgrounds in 

coordination with NFS and other Federal land managers.

• EAB has killed millions of ash trees in 18 States. APHIS is the lead agency in EAB survey, 

quarantine, and eradication. The Forest Service provides technical assistance to States and 

Federal land managers and continues to make significant advances in EAB management and 

detection. In 2011, the Forest Service worked with APHIS to develop a national EAB trapping 

model and is currently developing a national EAB management strategy. Other staff and partners 

are working on developing biological control agents to mitigate the effects of this pest.

• ALB poses a serious threat to several species of trees found in both urban and rural forests. 

APHIS is the lead agency for ALB detection, eradication, and quarantine. The Forest Service 

provides technical and scientific support to APHIS and States to help manage ALB. 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-16

• Sudden oak death threatens oak woodlands, urban forests, and horticultural industries. FHM

continues to work with multi-agency partners, including Federal land managers, APHIS, the 

National Association of State Foresters, National Plant Board, and California Oak Mortality Task 

Force to better detect, contain, and manage this disease in forests where it is established. FHM 

funding continues to support the Oregon sudden oak death containment effort in Curry County, 

and most recently in northern Humboldt County in northern California.

• Oak wilt is the single most important disease affecting oaks in the eastern half of the Nation. 

FHM continues to support suppression efforts in the Great Lakes and Texas, including root graft 

disruption, spore tree removal, and threat-to-the-line tactics. 

• HWA remains a significant threat to the health of hemlock forests in the eastern U.S., and the 

Forest Service has implemented a HWA strategic plan to address this non-native insect on 

private, State, and Federal lands. The multi-agency integrated effort focuses on management of 

high value hemlocks (using biological and chemical controls) and continued research and 

methods development to better manage hemlocks across their range.

• TCD is a recently described insect/disease complex causing black walnut mortality. A team of 

Federal and State agencies, universities, and conservation groups was assembled to develop a 

National Response Framework for TCD. This strategy provides land managers with current 

information to better manage TCD. The Forest Service and APHIS have developed a reliable trap 

to detect the insect vector that was made available commercially in 2012 and is currently being 

used. FHM continues to organize and assist with TCD surveys working across multiple agencies 

to develop guidelines and a survey database. 

• SPB, which has historically been the most destructive forest pest in the South, continues to 

remain at low levels across the region. Since 2004, the Forest Service has implemented a SPB 

Prevention program which supports forest management activities to reduce SPB risk. In 2011, 

this program passed the one million acres treated milestone. In 2012 the southern region received 

the Secretary of Agriculture’s Honor Award for their work with the Forest Health Protection 

SPB Prevention Program.

Allocation and Integration

Annual priorities for mitigating the risk of future and current outbreaks are based, in large part, on the 

findings from the National Insect and Disease Risk Map as well as knowledge of current pest conditions 

and locations. Prevention and suppression programs for major pests such as the gypsy moth, western pine 

beetle, and SPB are directly related to the relative risk of these pests, areas currently experiencing pest 

outbreaks, and the availability of cost-effective treatment technologies. Some forest health pests, such as 

SPB, can be more easily treated than others, such as beech bark disease, for which there are few scientific 

tools available. 

Some of the techniques used to determine optimal areas for treatment include overlaying national map 

layers using Geographic Information Systems for insect and disease, fire, watershed condition, and 

Wildland Urban Interface. The spatial placement and sequencing of treatments on NFS lands are planned 

and coordinated with other Forest Service vegetation management program areas, such as hazardous fuels 

reduction and forest management through the “Sustainable Landscape Management” Board of Directors, 

a group of Directors from S&PF (FHM, Fire and Aviation Management), Forest Service R&D (Forest 

Management Sciences), and NFS (Forest Management, Range Management, and Watershed, Fish, 

Wildlife, Air, and Rare Plants). This coordination optimizes on-the-ground prevention and treatment, and 

improves the overall health of forestlands across landscapes and ownerships. 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-17

Partnerships 

This program funds the detection, evaluation, and suppression of forest insect and disease pests on lands 

managed by all other Federal agencies and Tribal governments. Where proposed treatment locations are 

adjacent to other Federal lands or non-Federal lands, treatment scheduling is coordinated with non-Forest 

Service partners to optimize improvements to forest health across landownership boundaries. 

The STS Gypsy Moth program works seamlessly across all landowners in a collaborative, “All Lands” 

approach, and partnership. This program has significantly reduced the spread of gypsy moth by over 60 

percent. We work closely with all of the State Departments of Agriculture or State Foresters in 10 STS 

States from Georgia to Wisconsin.

The Forest Service works with APHIS and other partners to combat these important invasive pests and 

has systems established to survey, monitor and respond to these invaders, as well as help communities 

restore degraded ecosystems.

Other Federal agencies, such as the Department of the Interior and the Department of Defense, submit 

their project requests to the Forest Service regional or national office and the projects are evaluated in a 

competitive process. Coordination meetings occur frequently between the other agencies and the Forest 

Service to ensure the funds are used wisely.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-18

Cooperative Lands

Budget Line Item Forest Health Management - Cooperative Lands

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Health Management - Cooperative 

Lands

Annual Appropriations $39,999 $40,244 $45,655 $5,411 13.45%

Forest Health Management - Cooperative 

Lands Total 39,999 40,244 45,655 5,411 13.45%

Annual Appropriations FTEs 55 55 92 37 67.27%

Total Full-Time Equivalents (FTEs) 55 55 92 37 67.27%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Forest Health Management - Cooperative Lands

Cooperative lands acres treated - Invasives 533,508 475,150 358,707 546,025 408,996 425,492

Cooperative lands acres treated - Native pests 152,119 151,564 32,966 33,483 43,498 47,626

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $45,655,000 for Forest Health Management (FHM) 

Cooperative Lands, a budget line item increase of $5,411,000 but a net decrease of $2,942,000 from the

funds in this account and Wildland Fire Management (WFM) in the FY 2013 Annualized CR. The Budget 

contains $79,000 for pay costs which includes $12,000 for annualization of the fiscal year 2013 pay raise 

and $67,000 for the anticipated fiscal year 2014 pay raise. The pay costs increase would enable the 

program to cover its increased staff costs without reducing the resources available for program delivery.

The President’s Budget proposes consolidating the FHM Cooperative Lands into one budget line item 

under State and Private Forestry (S&PF) because this combination improves program management and 

performance and reduces administrative complexity. The net amount was calculated using the combined 

totals from FY 2013 as illustrated in the table below. 

FHM Cooperative Lands Consolidated Budget Line Items 

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Enacted

FY 2013 

Annualized CR Change

FY 2014 

Pres Bud

S&PF FHM Cooperative Lands $39,999 $40,244 $5,411 $45,655

WFM FHM Cooperative Lands 8,353 8,353 (8,353) 0

Total $48,352 $48,597 ($2,942) $45,655
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-19

Funds will provide technical and financial assistance to State Forestry Agencies and State Departments of 

Agriculture to conduct forest insect and disease surveys; to provide technical assistance; to conduct 

prevention, suppression, restoration, and eradication projects for forest insects, diseases, and invasive 

plants; and to monitor forest health on State and private lands. In FY 2014, the Forest Service will reduce 

monitoring and treatments in some efforts such as the Slow-the-Spread (STS) program for gypsy moth 

and for work on sudden oak death, and hemlock woolly adelgid.

The program funds the highest priority prevention and 

suppression needs associated with western bark beetles, 

hemlock woolly adelgid, oak wilt, and southern pine beetle; 

and fund slowing the spread, eradication of new outbreaks, 

and suppression of gypsy moth on non-Federal lands. These 

pests are mentioned in State Forest Action Plans as highpriority pests. Other invasive pests also receive high priority 

as they can affect and spread to all forestlands. These pests 

include hemlock woolly adelgid, emerald ash borer, Asian 

longhorned beetle, sudden oak death, gold-spotted oak 

borer and thousand cankers disease. We work with our 

partners to educate the public, map the pests with new 

surveys and develop methods to manage and mitigate these 

pests. 

In FY 2013, the Forest Service committed additional funds 

to address public safety concerns and forest health needs 

arising from the millions of acres of dead and dying trees 

from bark beetle infestations in the West. In FY 2014, the Forest Service will continue to fund 

management actions to reduce forest susceptibility to beetle outbreaks and protect high value trees. In 

coordination with partners and stakeholders, the Forest Service directs funds to the areas that have been 

experiencing tree mortality as a result of bark beetle infestations to more aggressively focus our response. 

See the Special Exhibit on Bark Beetles for more detailed information.

Past Performance

The Forest Service partnered with other Federal agencies in FY 2012 to treat invasive species on 546,025

acres of State and private lands using funds from the S&PF appropriation. Invasive species were also 

treated on 32,058 acres using funds provided by the Wildland Fire Management appropriation. This 

equals a total of 578,083 acres, as illustrated in the following table, exceeding the target of 394,099 acres.

FHM Cooperative Lands Consolidated Invasives Performance FY 2012 through FY 2014

Approp. Performance Measure

FY 2012 

Target

FY 2012 

Actual

FY 2013 

Target

FY 2014 

Target

S&PF

Cooperative lands acres treated -

Invasives 358,707 546,025 408,996 425,492

WFM

Acres treated on cooperative lands 

under NFP - Invasives 35,392 32,058 35,544 0

Total 394,099 578,083 444,540 425,492

Priority treatments for invasive pests focused on slowing the advancing front of gypsy moth on State and 

private lands from North Carolina to Minnesota. Priority treatments also focused on invasive plants. The 

program continued to protect critical forest ecosystems from established insects and diseases, such as Port 

Orford-cedar root disease, white pine blister rust, hemlock woolly adelgid, and invasive plants. These

Gypsy Moth Slow-the-Spread Program

The STS program has reduced the spread rate of 

gypsy moth by 60 percent along a 1,000 mile 

long project area from NC to MN, and has 

delayed the need for increased expenditures by 

Federal, State, and local governments as well as 

landowners. In 2012, STS treated more than 

526,000 acres in eight States. Without STS 

about 50 million more acres would be infested.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-20

funds also continued to mitigate the threats of relatively new invasive pests such as the emerald ash borer, 

sudden oak death, and thousand cankers disease. The increase in acres treated is primarily due to more 

acres treated to slow-the-spread of gypsy moth. The gypsy moth treatment program covers both 

cooperative and Federal lands, when suppression or eradication needs are reduced; funds are focused on 

slow-the-spread treatments, which are mostly conducted on State and private lands. The number of acres 

treated through the Gypsy Moth STS program is expected to continue in FY 2014.

In FY 2012, the Forest Service treated native pest species on 33,483 acres, through the S&PF 

appropriation, and 3,862 acres through the Wildland Fire Management appropriation. This equals a total 

of 37,345 acres, as illustrated in the following table, exceeding the target of 36,413 acres. Treatment areas 

for native pests, such as the southern pine beetle and western bark beetles, focused on the highest priority 

large-scale watersheds.

FHM Cooperative Lands Consolidated Native Pests Performance FY 2012 through FY 2014

Approp. Performance Measure

FY 2012 

Target

FY 2012 

Actual

FY 2013 

Target

FY 2014 

Target

S&PF

Cooperative lands acres treated -

Native pests 32,966 33,483 43,498 47,626

WFM

Acres treated on cooperative lands 

under NFP - Native pests 3,447 3,862 4,295 0

Total 36,413 37,345 47,793 47,626

Targets are based on the average unit costs over the past five years, current year funding, and the risk to 

forests. The program allocates funds based on pests posing the greatest risks (e.g. mountain pine beetle, 

southern pine beetle, and gypsy moth). In FY 2012, the increase in acres accomplished over the target for 

native and non-native species is attributed to changes in pest conditions, treatment methods, and lower 

unit costs. 

Program Description

Program Overview

The FHM Cooperative Lands program provides technical and financial assistance to States and territories 

to monitor, assess, and mitigate forest health threats on non-Federal lands across the Nation. Treatments 

protect priority acres from damaging insects, diseases, and invasive plants; reduce the risks of mortality 

from wildland fire; protect highly valued sites; and prevent future outbreaks by increasing the resilience 

of the vegetation in treated areas. Funds support three objectives: conducting pest surveys and providing 

technical assistance; conducting prevention, suppression, restoration, and eradication projects; and 

monitoring the health of the Nation’s forests. 

The Forest Service uses risk maps to select insect and disease project locations for prevention work and 

aerial and ground survey techniques to identify suppression treatments. State Forest Action Plans help 

guide FHM activities, as forest health was often identified as a key element requiring attention. Treatment 

placements incorporate local priorities including priority landscapes such as: Wildland Urban Interface 

areas, municipal water supply areas, outdoor recreational sites, and administrative sites. The program also 

funds the use of Early Detection and Rapid Response efforts to find invasive insects and diseases early, 

thereby reducing future costs to address pest outbreaks. 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-21

Allocation and Integration

Annual priorities are based, in large part, on the findings from National Insect & Disease Risk Map and 

current surveys of pest conditions and priorities in the State Forest Action Plans. Some pests, such as 

southern pine beetle, are more easily mitigated through management than others, such as oak decline. The 

Forest Service is working to align more closely identified risk with allocation, using an All Lands 

approach.

The program works with the FHM Federal Lands program to identify priority lands and manage forest 

insects and diseases across the landscape. In FY 2012 almost $35 million in grant dollars for prevention 

and suppression were leveraged on a 1:1 basis with States and other non-Federal partners. 

Partnerships 

Partnerships leverage Federal financial assistance with non-Federal resources to implement programs and 

projects that protect forest resources and improve the health of the Nation’s forests.

Program activities are also coordinated closely with the Animal and Plant Health Inspection Service and 

State departments of agriculture to detect and monitor introductions of new invasive species such as the 

emerald ash borer, Asian longhorned beetle, sudden oak death, and thousand cankers disease. 

The Gypsy Moth STS program is a strong partnership with State forestry and agriculture agencies, which 

is successfully slowing the spread of gypsy moth by over 60 percent.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-22

Cooperative Fire Protection

Cooperative Fire Protection

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Cooperative Fire Protection

Annual Appropriations $37,157 $37,385 0 -$37,385 -100.00%

Cooperative Fire Protection Total 37,157 37,385 0 -37,385 -100.00%

Annual Appropriation FTEs 51 51 0 -51 -100.00%

Total Full-Time Equivalents (FTEs) 51 51 0 -51 -100.00%

Cooperative Fire Protection

State Fire Assistance 30,488 30,675 0 -30,675 -100.00%

Volunteer Fire Assistance 6,669 6,710 0 -6,710 -100.00%

Cooperative Fire Protection Overview 

FY 2014 Program Changes

The FY 2014 President’s Budget proposes consolidating the State Fire Assistance program and the 

Volunteer Fire Assistance program under the Wildland Fire Management appropriation. Information 

about this program is within the Wildland Fire Management Chapter, State Fire Assistance and Volunteer 

Fire Assistance Sections.

Past Performance

For more information on Performance Metrics, as illustrated in the table above, see the Wildland Fire 

Management Chapter.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-23

State Fire Assistance

Budget Line Item State Fire Assistance

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

State Fire Assistance

Annual Appropriations $30,488 $30,675 0 -$30,675 -100.00%

State Fire Assistance Total 30,488 30,675 0 -30,675 -100.00%

Annual Appropriations FTEs 51 51 0 -51 -100.00%

Total Full-Time Equivalents (FTEs) 51 51 0 -51 -100.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

State Fire Assistance

Communities assisted (number) 6,153 3,843 4,900 6,631 5,416 0

FY 2014 Program Changes

The FY 2014 President’s Budget proposes consolidating the State Fire Assistance program into one 

budget line item under Wildland Fire Management. Information about this program is within the 

Wildland Fire Management Chapter, State Fire Assistance Section.

Past Performance

This program has been incorporated into the Wildland Fire Management Chapter.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-24

Volunteer Fire Assistance

Budget Line Item Volunteer Fire Assistance

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Volunteer Fire Assistance

Annual Appropriations $6,669 $6,710 0 -$6,710 -100.00%

Volunteer Fire Assistance Total 6,669 6,710 0 -6,710 -100.00%

Annual Appropriations FTEs 0 0 0 0 0.00%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Volunteer Fire Assistance

Volunteer fire departments assisted (number) 5,294 4,177 3,900 4,080 3,512 0

FY 2014 Program Changes

The FY 2014 President’s Budget proposes consolidating the Volunteer Fire Assistance program into one 

budget line item in the Wildland Fire Management appropriation. Information about this program is in the 

Wildland Fire Management Chapter, Volunteer Fire Assistance Section.

Past Performance

This program has been incorporated into the Wildland Fire Management Chapter. 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-25

Cooperative Forestry

Cooperative Forestry

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Cooperative Forestry

Annual Appropriations $120,358 $121,094 $111,725 -$9,369 -7.74%

Cooperative Forestry Total 120,358 121,094 111,725 -9,369 -7.74%

Annual Appropriation FTEs 142 142 116 -26 -18.31%

Total Full-Time Equivalents (FTEs) 142 142 116 -26 -18.31%

Cooperative Forestry

Forest Stewardship 28,814 28,990 22,398 -6,592 -22.74%

Forest Legacy Program 53,303 53,629 60,000 6,371 11.88%

Community Forest and Open Space 

Conservation 1,997 2,009 4,001 1,992 99.15%

Urban and Community Forestry 31,327 31,519 25,326 -6,193 -19.65%

Forest Resources Information and Analysis 4,917 4,947 0 -4,947 -100.00%

Cooperative Forestry Overview

The FY 2014 President’s Budget proposes $111,725,000 for Cooperative Forestry, a decrease of 

$9,369,000 from the FY 2013 Annualized CR. The Budget contains $81,000 for pay costs which includes 

$13,000 for annualization of the fiscal year 2013 pay raise and $68,000 for the anticipated fiscal year 

2014 pay raise. The pay costs increase would enable the program to cover its increased staff costs without 

reducing the resources available for program delivery.

Cooperative Forestry promotes working in partnership with States, Tribal governments, communities, and 

private landowners to improve management and protection of forests and use of forest-based goods to 

enable them to care for their lands and communities. 

The Cooperative Forestry programs are Forest Stewardship Program, Forest Legacy Program, 

Community Forest and Open Space Conservation Program, and the Urban and Community Forestry 

program. 

The Forest Resources Information and Analysis program is shifted to the Forest and Rangeland Research 

appropriation. 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-26

Forest Stewardship Program

Budget Line Item Forest Stewardship

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Stewardship

Annual Appropriations $28,814 $28,990 $22,398 -$6,592 -22.74%

Forest Stewardship Total 28,814 28,990 22,398 -6,592 -22.74%

Annual Appropriations FTEs 58 58 50 -8 -13.79%

Total Full-Time Equivalents (FTEs) 58 58 50 -8 -13.79%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Forest Stewardship

Percentage of nonindustrial private forest acres in 

important forest resource areas being managed 

sustainably, as defined by a current Forest Stewardship 

Plan 1.8% 2.8% 5.0% 2.8% 5.0% 3.0%

Acres of nonindustrial private forest land that are being 

managed sustainably under forest stewardship 

management plans. (Annual) 1,805,353 1,531,858 1,750,000 1,652,087 1,500,000 1,250,000

Acres of nonindustrial private forest land that are being 

managed sustainably under forest stewardship 

management plans. (Cumulative) 19,592,387 21,124,245 22,500,000 21,045,039 22,000,000 20,000,000

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $22,398,000 for the Forest Stewardship Program (FSP), a 

decrease of $6,592,000 from the FY 2013 Annualized CR. The Budget contains $43,000 for pay costs 

which includes $7,000 for annualization of the fiscal year 2013 pay raise and $36,000 for the anticipated 

fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its increased staff 

costs without reducing the resources available for program delivery.

The program’s focus and impact have been significantly enhanced by the application of the completed 

State Forest Action Plans, better coordination with program delivery partners, landowner peer-to-peer 

networks, and information technology advances. State Forest Action Plans are enabling States to focus 

and coordinate program delivery to produce cumulative, landscape scale, measurable impacts, with multilandowner, multi-partner planning and technical assistance efforts. In addition, State Forest Action Plans 

help States identify and address opportunities resulting from emerging ecosystem service and biomass 

energy markets, and focus program assistance to conserve a “green infrastructure” of interconnected, 

viable forested landscape areas. Efforts will continue to focus program delivery in priority landscape 

areas, further leverage existing partnerships, and further develop tools for reaching more landowners with 

limited resources.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-27

The program also extends its reach through peer-to-peer efforts which support the program’s long-term 

goal of managing significant landscapes, such as priority watersheds (as opposed to scattered, individual 

properties), and the conservation of strategically-located and connected open spaces. Through the use of 

the recently deployed Stewardship Mapping and Reporting Tool (SMART), the program’s cumulative 

impact will be tracked spatially, to inform landscape based strategic planning and leverage place based 

partnerships. 

Past Performance

In FY 2012, nationwide, more than 21 million acres of non-industrial 

private forest lands were managed according to ongoing, active 

Forest Stewardship Plans, with over 1.5 million acres being added in 

FY 2012, slightly under achieving FY 2012 targets. Of this total, 

10.7 million acres (2.9 percent of nonindustrial private forestlands in 

important forest resource areas) are within high priority landscape 

areas identified through the Forest Stewardship Spatial Analysis 

Project and/or by State Forest Acton Plans. SMART enables us to 

spatially track accomplishments with respect to these priority areas. 

States monitor the implementation of Forest Stewardship Plans using 

a statistically reliable, nationally consistent, field monitoring 

program. 

The actual number of acres (21,045,039) managed under Forest 

Stewardship Plans was lower than targeted (22,500,000) primarily because States agencies continue to 

reorganize and adapt programs to target landscapes and priorities that were established with State Forest 

Action Plans. These adaptations continue to draw resources from individual landowner management plan 

development. Also, many program focus areas include different, and perhaps more diverse landowner 

demographics that require new and innovative outreach and educational tools. In addition, many State 

programs have been impacted by austerity measures to address budget deficits. The Forest Service will 

continue working with States to focus program investments where multiple resource outcomes are more 

likely, based on State Forest Action Plan assessment work. Performance is also likely to improve as the 

Forest Service and States together implement the recently adopted Landscape Stewardship Approach 

which includes the development of multi-landowner, landscape scale Forest Stewardship Plans. 

Program Description

Program Overview

The Forest Stewardship Program is the only Forest Service program focused exclusively on private forest 

land management. A primary focus of the program is the development of comprehensive, multi-resource 

management plans that provide landowners with the information they need to manage their forests for a 

variety of products and services. The program focuses on priority landscape areas and attempts to connect 

individual landowners to the broader landscape. Assistance is delivered through a national network of 

forestry technical assistance providers and programs. Because of this unique role, and since the majority 

of America’s forests are privately owned, the Forest Stewardship Program is central to fulfilling the 

Secretary’s vision for managing for healthy forests across “All Lands.”

Forest Stewardship Plans lay out strategies for achieving unique landowner objectives and sustaining 

forest health and vigor. Actively managed forests provide timber, wildlife habitat, watershed protection, 

recreational opportunities, and many other benefits for landowners and communities. Forest Stewardship 

The Stewardship Mapping and 

Reporting Tool (SMART)

SMART, formerly known as 

WebDET, is a powerful web-based 

plan-writing and spatial 

accomplishment tracking tool for 

field foresters and program 

managers. It displays and relates all 

program accomplishments to 

landscape priority areas identified 

by State Forest Action Plans and 

associated forest resource attributes. 

SMART provides the ability to 

identify our impact at the landscape

scale.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-28

Plans motivate landowners to become more active in planning and managing their forests, greatly 

increasing the likelihood that their forests will remain intact, productive and healthy, and that the social, 

economic and environmental benefits of these lands will be sustained for future generations.

As such, the Forest Stewardship Program plays a fundamental role in “keeping forests as forests,” 

providing places where Americans can reconnect to the outdoors. The program also helps create jobs in 

rural communities by sustaining local forest products markets and increasing demand for qualified private 

forestry consultants and State agency field foresters. Additionally, the program helps prepare forest 

landowners for ecosystem services markets and other incentive programs. 

The Forest Service continues to work with the National Association of State Foresters, the Natural 

Resources Conservation Service (NRCS), the American Forest Foundation, and other partners to 

coordinate and streamline technical planning assistance delivery to make the most effective use of 

available program resources and better address diverse landowner needs and priority resource concerns. 

This includes the deployment of a web-based management plan and spatial accomplishment tracking tool, 

SMART, and the development of a national geodatabase for relating program accomplishments to a 

variety of landscape management objectives. 

The Forest Stewardship Program is increasingly serving as a “gateway” through which landowners can 

gain access to a variety of assistance and programs including USDA cost-share, State tax abatement, 

forest certification, and emerging ecosystem service and renewable energy markets. Demand for Forest 

Stewardship planning assistance has increased significantly because the 2008 Farm Bill expanded 

eligibility for several USDA conservation programs to include private forest landowners. 

All Forest Stewardship Plans are required to consider the possible near and long-term impacts of a 

changing climate, including increased fire risk, invasive species migration and species range and habitat 

shifts. Where appropriate and feasible, management plans will include actions to mitigate the adverse 

impacts of a changing climate. 

Allocation and Integration

Program funding is allocated to Forest Service regions, the Northeastern Area and the International 

Institute of Tropical Forestry based on statewide comprehensive program potential and cumulative 

program impact within priority landscape areas. Priority landscape areas are delineated in State Forest 

Action Plans and/or through the Forest Stewardship Spatial Analysis Project. Program impact is measured 

primarily by the number of acres within high priority landscape area being managed according to active 

Forest Stewardship Plans as confirmed through a statistically valid field monitoring program. States 

greatly enhance program impact by integrating programs and leveraging partnerships to target high 

priority areas, maximizing Federal program investment. This approach emulates both the Secretary of 

Agriculture’s “All Lands” vision and the Administration’s emphasis on integrated, place-based program 

delivery. 

Partnerships 

All Forest Stewardship activities are coordinated with and delivered through State and Territorial forest 

agency partners; thus, the program leverages substantial non-Federal financial and human resources. 

States are required to provide a minimum 1:1 match for Federal funds, but most far exceed this level. 

In FY 2012, the Forest Stewardship Program funded over $22 million in grants to States and other 

partners that were matched at least 1:1 by funding and in-kind contributions. 
FY 2014 Budget Justification USDA Forest Service

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Through the Forest Stewardship Program, the Forest Service works regularly with a variety of forest and 

resource conservation partners including the American Forest Foundation, the Resources First 

Foundation, the National Woodland Owner Association, and The Nature Conservancy. 

The Forest Stewardship Program also continues to provide funding for the Chesapeake Bay Watershed 

Forestry program for ecosystem restoration activities because the Chesapeake is the Nation's largest 

estuary and a high priority for Federal investment to improve water quality. In executing this program, the 

Forest Service works closely with State and Federal partners and other organizations in the Chesapeake 

Bay program to implement forest stewardship, restoration, and conservation actions that contribute to 

overall watershed health, and specifically to water quality. This program helps to improve coordination in 

the implementation of riparian forest buffers to protect water quality, and provides educational, and 

technical assistance to partners at all levels. 

The Forest Stewardship Program also provides 

funding to partner with the NRCS to support the 

National Agroforestry Center, which successfully 

transfers sustainable agroforestry technologies to 

thousands of land management professionals each 

year. This Center, a multi-agency USDA 

partnership, is focused on three primary outcomes:

(1) increasing the adoption of agroforestry practices 

that improve water, soil and air quality; sustainable 

agriculture; product diversity and rural wealth; (2) 

creating tailored, science-based agroforestry tools

that can be used by landowners to address complex 

environmental, economic, and social conditions 

across all lands; and (3) integrating agroforestry 

into USDA programs and policies. 

Also, Forest Stewardship provides funding for the 

Reforestation Nurseries and Genetic Resources 

program, which provides technical assistance to 

Federal, State, Tribal, Territorial, and private 

nurseries, supplying them with the latest technical 

information, thereby supporting an extensive 

network for seedling production. This Reforestation program is focused on six strategic areas: (1) 

providing leadership in reforestation, conservation, and restoration; (2) maintaining technical expertise in 

growing and planting adapted seeds and seedlings; (3) expanding the use of native plants; (4) assisting 

underserved communities; (5) streamlining and leveraging resources; and (6) conserving and assuring the 

proper use and development of genetic resources. 

Reforestation Nurseries and Genetic Resources

The National, Virtual Center for Reforestation, Nurseries, 

and Genetic Resources (RNGR) promotes, facilitates, and 

supports the collection, propagation, and deployment of 

native plant materials to meet USDA and Forest Service 

goals. The RNGR Team provides technical support to 

Federal, State, Tribal, Territorial, and private nurseries 

with special emphasis on Native Americans and underserved communities in the Pacific and Caribbean. RNGR 

transfers science-based, pragmatic information to resource 

professionals through on-site workshops, award-winning 

publications, an on-line digital reference library, and an

on-line database of native plant propagation protocols. 

Through its digital effort, RNGR annually delivers about 

100,000 publications and protocols to more than 145 

countries.
FY 2014 Budget Justification USDA Forest Service

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Forest Legacy Program

Budget Line Item Forest Legacy Program

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Legacy Program

Annual Appropriations $53,303 $53,629 $60,000 $6,371 11.88%

Forest Legacy Program Total 53,303 53,629 60,000 6,371 11.88%

Annual Appropriations FTEs 22 22 22 0 0.00%

Total Full-Time Equivalents (FTEs) 22 22 22 0 0.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Forest Legacy Program

Acres of environmentally important forests protected 

from conversion (Annual accomlishment for 

Discretionary funds) 136,960 149,911 119,000 52,999 135,000 105,000

Acres of environmentally important forests protected 

from conversion (Annual accomplishment for Mandatory 

funds) 0 0 0 0 0 42,000

Acres of environmentally important forests protected 

from conversion (Cumulative) 2,056,107 2,210,563 2,329,278 2,275,320 2,410,320 2,557,320

Parcelization of forests avoided (number of parcels 

prevented) (Discretionary funds) 2,682 3,822 4,806 2,361 5,203 3,536

Parcelization of forests avoided (number of parcels 

prevented) (Mandatory funds) 0 0 0 0 0 1,430

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $60,000,000 in discretionary funds, an increase of $6,371,000 

from the FY 2013 Annualized CR. In addition, the request includes $24,800,000 in mandatory funds for 

the Forest Legacy Program (FLP) as a transfer from the Land and Water Conservation Fund (LWCF) in 

the Department of the Interior, for a total of $84,800,000. 

Forest Legacy funds are used for the protection of important forests that are under significant 

development pressure and that protect air and water quality, provide access, and protect important habitat 

for threatened or endangered wildlife or fish species. The Forest Legacy Program is funded through the 

LWCF. By permanently protecting important working forest lands, the Forest Legacy Program helps to 

create and maintain rural jobs and ensure a robust forest infrastructure. 

The increased funding for Forest Legacy is a key component of the President’s America’s Great Outdoors 

Initiative to conserve important landscapes and reconnect Americans to the outdoors. The funding helps 

the Forest Service continue to work across boundaries to support projects that protect forests in key 

landscapes as identified by State forestry agencies in their recently completed Forest Action Plans that 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-31

address the national priorities for private forests. These projects are coordinated with other partners to 

create viable and cohesive zones where the economic, social, and environmental values of forests are 

conserved.

In planning for FY 2014, 37 States submitted 57 proposed projects, totaling nearly $154 million, to the 

Forest Service for funding consideration by the national selection panel. Funding is provided to highest 

priority activities that can demonstrate performance in a transparent manner. FLP projects are located in 

Priority Areas or Forest Legacy Areas identified in Forest Action Plans. In FY 2014, 28 projects are 

proposed for funding. Refer to the FY 2014 Forest Legacy Program Proposed Projects at the end of this 

section. The FY 2014 program targets include new measures for the acres of environmentally important 

forests protected from conversion using mandatory funds and parcelization of forests avoided using 

mandatory funds. 

Past Performance

In FY 2012, the FLP completed 32 conservation easements and 18 fee simple tract purchases, leveraging 

$46,700,000 of Federal funds with $32,000,000 of partner funds to protect a total of 52,999 acres. The 

number of acres protected was below the FY 2012 target of 119,000 acres. The FLP also prevented 2,361 

parcels from parcelization, which was below the target of 4,806 parcels. Completed acres and parcels 

prevented from parcelization in FY 2012 were lower than anticipated due to the following factors: (1) A 

number of projects were costlier than anticipated and (2) real estate negotiations are very unpredictable, 

lengthening the project completion timeline. In addition to the unpredictable nature of real estate 

transactions, FLP projects typically take about two years to close, resulting in a time lag between annual 

funding and the accomplishments. Since the FLP program was authorized, a total of 2.27 million acres 

has been protected across the country. These acres include approximately 165,000 acres of bodies of 

water and 2,700 miles of streams. 

In addition to these challenges that impact all projects, two projects totaling nearly 17,500 acres were 

unsuccessful and the States have returned the grant funds to the Forest Service. Oregon’s Skyline project 

and Florida’s St. Vincent project were unsuccessful. We anticipated that a third large project of 

approximately 50,000 acres would close in FY 2012. Maine’s Lower Penobscot II and Machias III

projects, which are two separate projects with one landowner was expected to close in FY 2012. 

However, there have been significant challenges and that project is not yet closed. The agency will 

continue to work to match program goals and targets as closely as possible with expected project 

completions. Additionally, the agency is currently analyzing trends in targets and actual accomplishments 

to determine whether or not the methodology for setting targets should be updated so that targets and 

accomplishments align more closely.

Program Description

Program Overview

Through FLP, the Forest Service works with States, private landowners, and other conservation partners 

to protect environmentally critical forests threatened by land conversion through conservation easements 

and fee-simple purchases. Projects are evaluated by a panel in order to fund the highest priority land 

conservation areas. Funds for the FLP are provided through the Land and Water Conservation Fund. 

More than 50 percent (over 420 million acres) of our Nation’s forests are privately owned. Family forest 

owners and timber companies are facing increasing pressure to sell, subdivide, and develop their land. 

This program provides financial incentives to private landowners to conserve their forests, thereby 

protecting outdoor recreation opportunities, fish and wildlife habitat, and water quality. The program 
FY 2014 Budget Justification USDA Forest Service

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operates on a “willing buyer-willing seller” basis and is a non-regulatory, incentive-based land 

conservation program. 

Protection of private forests through FLP maintains a multitude of public benefits, ecosystem services, 

and products that forests provide. Eighty-nine percent of all FLP acres are adjacent to other protected 

lands. Conservation across a landscape rather than focusing solely within ownership boundaries is 

essential to address large-scale conservation issues such as protection and restoration of watersheds, 

reduction of wildfire risk, and protection of at-risk species. 

Research also shows that approximately 17 percent of human-caused greenhouse gas emissions worldwide are the result of deforestation or conversion of forest land to other uses (Congressional Research 

Service, International Forestry Issues in Climate Change Bills; 2009). Protecting forests from conversion 

is key to ensuring resiliency to impacts of a 

changing climate on resource conditions.

Allocation and Integration

FLP projects are nominated through a twostage competitive process (State-level 

identification and approval, and a national 

review and ranking), resulting in high-quality 

projects supported both locally and nationally. 

Each project is ranked using three standardized 

criteria: (1) importance – public benefits 

gained from the protection and management of 

the property, (2) threat – likelihood of 

conversion to non-forest uses resulting in a loss 

of forest values and public benefits, and (3) 

strategic – project fits with a larger 

conservation plan, strategy, and initiative, and 

enhances previous conservation investments. 

Project management funds are allocated to the 

regions based on management needs for the 

projects.

Partnerships

To date, more than two million acres of 

environmentally important private lands have been protected through FLP. States and landowners are the 

primary partners, but land trusts and other conservation organizations play a critical role in identifying 

and completing projects. While the program requires a 25 percent non-Federal match, the program 

averages a 50 percent non-Federal match.

Crotched Mountain

The Crotched Mountain project protected a 1,165 acre 

certified Tree Farm in southern New Hampshire, continuing 

a 50-year tradition of integrating exemplary forest 

stewardship with critical care for people with disabilities, 

through a conservation easement. The project will protect 

working forests and related resources while empowering 

Crotched Mountain Rehabilitation Center to establish the 

Nation’s most significant center for universally accessible 

outdoor recreation, including recreation from visitors with 

physical disabilities. This project protected and connected the 

remaining large, ecologically significant forest block in the 

highlands of New Hampshire. Nearly 6,000 acres in size, this 

block of unfragmented forestland supports sensitive 

amphibians, reptiles, mammals, migratory birds and 

invertebrates as well as protects headwater streams that drain 

into the Merrimack River.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-33

FY 2014 Forest Legacy Program Proposed Projects

Priority 

Rank State Project Name Request

Administrative Funds $6,400,000

1 OR Gilchrist Forest 3,000,000

2 MS Pascagoula River Conservation Lands 5,035,000

3 NH Mahoosuc Gateway 5,715,000

4 ME Cold Stream Forest 6,000,000

5 ID McArthur Lake East 5,225,000

6 MA Quabbin Reservoir to Wachusett Mountain 5,000,000

7 WI Brule-St. Croix 4,500,000

8 CA McCloud Working Forest Phase I 2,335,000

9 SD Blood Run National Historic Landmark Area 1,205,000

10 WA Klickitat Canyon Working Forest 3,500,000

11 GA Paulding County Land Area 2,000,000

12 WA Pysht Coastal Forest 3,000,000

13 CA Ryan Creek Conservation Easement 2,000,000

14 ME Moosehead-Seboomook Inholding 500,000

15 NM Upper Rio Chama River Watershed Phase III 2,980,000

16 VT Groton Forest Legacy Initiative 1,605,000

Subtotal, Discretionary 60,000,000

16 VT

Groton Forest Legacy Initiative - remainder of 

total recommended funding 1,895,000

17 GA Rocky Hammock at Broxton Rocks 2,000,000

18 CO Sawtooth Mountain Ranch 3,000,000

19 WY Munger Mountain Corridor 3,000,000

20 MT Clear Creek Conservation 595,000

21 ID North Idaho Timber Communities 1,545,000

22 TX Bobcat Ridge 2,370,000

23 VT Windham Region Working Forest 2,185,000

24 TN Carter Mt. Working Forest Conservation Easement 1,875,000

25 SC Liberty Hill Phase I 2,000,000

26 AR Wye Mountain Headwaters 1,915,000

27 NC Poison Fork Forests 1,500,000

28 CT Thorpe Mountain 920,000

Subtotal, Mandatory 24,800,000

Total Funding $84,800,000
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-34

Community Forest and Open Space Conservation

Budget Line Item Community Forest and Open Space Conservation

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Community Forest and Open Space 

Conservation

Annual Appropriations $1,997 $2,009 $4,001 $1,992 99.15%

Community Forest and Open Space 

Conservation Total 1,997 2,009 4,001 1,992 99.15%

Annual Appropriations FTEs 1 1 1 0 0.00%

Total Full-Time Equivalents (FTEs) 1 1 1 0 0.00%

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $4,001,000 for the Community Forest and Open Space 

Conservation Program (CFP), a $1,992,000 increase above the FY 2013 Annualized CR. The Budget 

contains $800 for pay costs which includes $100 for annualization of the fiscal year 2013 pay raise and 

$700 for the anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to 

cover its increased staff costs without reducing the resources available for program delivery.

The purpose of CFP is to achieve community benefits through grants to local governments, Tribal 

governments, and qualified nonprofit organizations to establish community forests by acquiring and 

protecting forestlands. By creating community forests through land acquisition, communities and tribes 

provide public access and recreational opportunities, protect vital water supplies and wildlife habitat, 

address the effects of a changing climate, provide demonstration sites for private forest landowners, and 

derive financial and community benefits from sustainable management. 

The Forest Service will use the FY 2014 funds to monitor previously funded projects and fund additional 

community forest projects. In addition, these funds will ensure that the agency has capacity to continue 

implementation of this program. 

Past Performance

In FY 2012, the CFP issued its first request for applications, received applications, and selected 10 CFP 

projects from across the country, awarding $3.5 million in grants. The awarded CFP Federal funds are 

expected to leverage an additional $8.5 million in partner funds. Grants are awarded for an initial two 

year period. As such, there may be a time delay before projects close and accomplishments can be 

reported.

The CFP program was authorized in 2008 and received funding in FY 2010, FY 2011, and FY 2012. The 

final implementation regulations were issued October 14, 2011. These regulations outlined application 
FY 2014 Budget Justification USDA Forest Service

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requirements as well as the standard selection criteria used by the Forest Service to manage the national 

competitive process to prioritize and fund CFP projects.

Program Description

Program Overview

The CFP authorizing language specifies that the Secretary of Agriculture, acting through the Chief of the 

Forest Service, may award grants to local governments, Tribal governments, and qualified nonprofit 

organizations to permanently protect through fee simple acquisition private forests that are threatened by 

conversion to non-forest uses and provide specified public benefits to communities. This program 

promotes protection and enjoyment of the Nation’s outdoor heritage by empowering people and 

communities to protect and restore places they cherish. It is a key piece of the President’s America’s 

Great Outdoors Initiative because it connects people to the outdoors where they live, not faraway places 

that are difficult to access. Community forests provide special public places that promote health, provide 

a place to find quiet and solitude, and generally improve quality of life. 

Community benefits under CFP include, but are not limited to: (1) economic benefits through sustainable 

forest management and related jobs, and clean drinking water, (2) environmental benefits, including clean 

water and wildlife habitat, (3) benefits from forest-based educational programs, including vocational

education programs in forestry, (4) benefits from serving as replicable models of effective forest 

stewardship for private landowners, (5) recreational benefits, including hunting and fishing, and (6) public 

access benefits. The Federal contribution to the project cannot be more than 50 percent of the total project 

cost. However, cost sharing provides key opportunities to increase financial capacity and promotes local 

investment, allowing communities to actively participate in sustainable management of their local forests. 

The CFP complements the Forest Legacy Program (FLP) and the Urban and Community Forestry 

Program (U&CF), but is not duplicative of either program. CFP and FLP each engage unique partners and 

utilize different tools for land protection. CFP is focused on creating community forests through land 

acquisition, while FLP protects at-risk forests through easements and land purchase. While a few projects 

may align with the intent of both programs, most projects will qualify for only one. Also, unlike U&CF 

which builds capacity for communities to develop and implement urban forestry programs, CFP is a land 

protection program. The program provides another tool to those entities that have demonstrated a 

sustained commitment to community forestry.

Allocation and Integration

The Forest Service conducts a competitive review and ranking process. The review and rankings are

based on the criteria outlined in the published regulations. The Forest Service periodically issues a request 

for applications, which provides additional specificity on the review process, review criteria, and 

timelines.

Partnerships

The CFP has received and continues to receive support from State and local governments, Tribal 

governments, land trusts and other conservation organizations, and communities. Though not required, 

some State agencies provide assistance to applicants in the development of their applications. In the case 

of one funded project, two non-profits and a Tribe worked closely together to develop a project and the 

application even though the non-profit organizations will not hold title to the community forest. The 

degree of community and partner support for the program is evident from the project cost-share 
FY 2014 Budget Justification USDA Forest Service

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dollars. Community Forest Program funds totaling nearly $3.5 million were awarded to ten projects in FY 

2012. These dollars will leverage an additional $8 million in non-Federal cost share.
FY 2014 Budget Justification USDA Forest Service

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Urban and Community Forestry

Budget Line Item Urban and Community Forestry

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Urban and Community Forestry

Annual Appropriations $31,327 $31,519 $25,326 -$6,193 -19.65%

Urban and Community Forestry Total 31,327 31,519 25,326 -6,193 -19.65%

Annual Appropriations FTEs 44 44 43 -1 -2.27%

Total Full-Time Equivalents (FTEs) 44 44 43 -1 -2.27%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Urban and Community Forestry

Percentage of people living in communities managing 

programs to plant, protect, and maintain their urban and 

community trees and forests. 43.0% 44.0% 43.0% 46.2% 43.0% 46.0%

Percentage of people living in communities developing 

programs and/or activities to plant, protect, and maintain 

their urban and community trees and forests. 33.6% 33.0% 34.0% 31.0% 34.0% 31.0%

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $25,326,000 for the Urban and Community Forestry (U&CF) 

program, a decrease of $6,193,000 from the FY 2013 Annualized CR. The Budget contains $37,000 for 

pay costs which includes $6,000 for annualization of the fiscal year 2013 pay raise and $31,000 for the 

anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its 

increased staff costs without reducing the resources available for program delivery.

Currently, more than 83 percent of all Americans live in metropolitan areas. With the proposed FY 2014

President’s Budget, U&CF will continue to work with State forestry agencies and other partners to assist 

communities in developing and advancing their urban forestry programs. U&CF will work to optimize the 

social, economic, and environmental services that urban and community trees and forests provide. Special 

emphasis will be placed on landscape scale demonstration projects that have regional and national 

significance for urban and community forest management across landscapes.

Past Performance

In FY 2012, U&CF provided assistance to 7,499 communities, exceeding the USDA Strategic Plan target 

of 7,200 communities. Through these efforts, the program reached a total of 196 million people, over 60 

percent of the population of the U.S. This assistance helped communities develop and maintain urban 

forestry programs, which protect their urban trees and forests. As a result of assistance provided by this 
FY 2014 Budget Justification USDA Forest Service

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program, in FY 2012, 46 percent of people in the U.S. are living in communities that are managing 

programs to protect and maintain their urban forests, exceeding the target of 41 percent. Additionally, in 

FY 2012 over 31 percent of people in the U.S. are living in communities that are developing programs to 

protect and maintain their urban forests, which is slightly below the target of 34 percent. This decrease 

can be attributed to more communities transitioning from developing urban and community forestry 

programs to managing urban and community forestry programs. 

This program has also helped to ensure that people in the 

U.S. are living in communities that are healthier and more 

livable. U&CF continued to work with State Forestry 

agencies and other partners to assist communities in 

developing and advancing their urban forestry programs. 

Funding is provided to the highest priority activities that can 

demonstrate results in a transparent manner.

Program Description

Program Overview

U&CF assists cities, suburbs, and towns across the country in 

improving the condition and coverage of community trees 

and forests. With 83 percent of the Nation's population in 

urban areas, there are strong environmental, social, and 

economic opportunities to revitalize cities and towns. The 

U&CF program promotes the creation of healthier, more 

livable urban environments across the Nation by focusing on 

connecting people from where they live to community parks, 

green spaces, and the trees along their streets. Trees and tree 

planting create strong ties among neighbors, provide a greater 

sense of safety, and reduce crime rates. The presence of healthy trees encourages outdoor activity among 

children and adults, improving physical health and lowering stress. 

U&CF maintains, restores, and improves urban forest ecosystems. There are 100 million acres of urban 

forest lands in the U.S. All Americans benefit from the multitude of services that a well-planned and 

managed urban tree canopy provides, including improved human health and well-being, green jobs, 

energy conservation, improved air and water quality, carbon sequestration, recreation, and wildlife 

habitat. Forest Service researchers have helped shed light on the extent and value of these ecosystem 

services. Also, increased real estate values generated by trees produces direct economic gains to the local 

community through property taxes. 

Allocation and Integration

This program allocates funds based on performance, tracked in a web-based accomplishment reporting 

system. Allocations target communities that have established one or more of the following: (1) 

professional urban forestry staff, (2) tree ordinances, (3) urban forest management plans, or (4) tree 

boards or advisory organizations. 

The U&CF program is well integrated with other Forest Service programs. The U&CF and Forest Health 

Management programs work together to survey and monitor conditions of urban forests’ health, including 

the early detection and response to invasive insect pests such as emerald ash borer and Asian longhorned 

beetle. 

Urban Forest Health Initiative

In partnership with The Nature Conservancy 

(TNC), Forest Service piloted a comprehensive 

program designed to help maintain the health 

of urban forest resources and more effectively 

address the major threat that non-native tree 

pests pose to our trees and forests. TNC, in 

collaboration with the Urban and Community 

Forestry Program, will establish a national 

steering committee to develop, coordinate and 

implement the multi-year action plan and 

oversee the implementation of the Initiative in 

three pilot cities (one each in the Northeast, 

West, and South.
FY 2014 Budget Justification USDA Forest Service

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U&CF works with Forest Service Research and Development to develop, disseminate, and support iTree, an urban and community forest benefits assessment and management software. i-Tree is a state-ofthe-art software tool designed to help communities of all sizes to strengthen their urban forest 

management and advocacy efforts by quantifying the environmental services that trees provide and the 

structure of the urban forest. The software tools are public domain and are freely accessible. i-Tree 

currently has over 8,200 unique users across all 50 States and 99 different countries. Version 5.0 of the iTree software was released in October 2012, providing application upgrades and an innovative new 

watershed hydrology modeling application. Version 5.0 features a new data collection web form that 

allows any device, such as smart phones or tablets, with a modern internet browser to be used to collect 

and enter field data. Additionally, a new function within i-Tree forecasts the growth and benefits of trees 

through time, based on species and location-specific growth models.

Partnerships

U&CF delivers its program through State forestry 

agencies, other Federal agencies, local governments, 

community organizations, and volunteers. State programs 

leverage the Forest Service investment with other funding 

sources to deliver financial assistance to communities for 

urban and community forestry, often providing at least a 

2:1 match for the Federal funds. 

To achieve program priorities, U&CF is also working with 

the USDA National Agroforestry Center, The 

Conservation Fund, Sustainable Urban Forest Coalition, 

National Association of Regional Councils, National 

Science Foundation, and other national partnership 

organizations. The Forest Service is the Urban Waters 

Federal Partnership lead on behalf of USDA. This Federal 

partnership includes 11 Federal agencies, including USDA, 

the Environmental Protection Agency, the Department of 

Commerce, Housing and Urban Development, the 

Department of Transportation, the Department of the 

Interior, and the Army. This innovative Federal partnership aims to stimulate regional and local 

economies, create local jobs, improve quality of life, and protect Americans’ health by revitalizing urban 

waterways in under-served communities across the Nation. The partnership also supports President 

Obama’s America’s Great Outdoors Initiative aimed at making the Federal Government a better partner 

with communities that are working to provide safe, healthy, and accessible outdoor spaces.

Student Intern Program

FY 2013 will be the third year of a three year grant 

to the Society of Municipal Arborists to conduct an 

Urban and Community Forestry Student 

Internship program. This successful program 

supports students in university urban forestry 

programs by providing them with a hands-on work 

experience alongside practicing professionals. At 

least 25 students, from diverse backgrounds, will 

have been placed in municipal forestry programs 

around the country and in Canada over the three 

summers. 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-40

Forest Resources Information and Analysis

Budget Line Item Forest Resources Information and Analysis

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Resources Information and Analysis

Annual Appropriations $4,917 $4,947 0 -$4,947 -100.00%

Forest Resources Information and Analysis 

Total 4,917 4,947 0 -4,947 -100.00%

Annual Appropriations FTEs 17 17 0 -17 -100.00%

Total Full-Time Equivalents (FTEs) 17 17 0 -17 -100.00%

FY 2014 Program Changes

The FY 2014 President’s Budget proposes consolidating the Forest Resources Information and Analysis 

program within the Forest and Rangeland Research (Forest Service R&D) appropriation. Funding to 

support implementation of Forest Inventory and Analysis activities will be provided entirely within Forest 

Service R&D. 

Program Description

For more information on Program Changes, Program Description, and Past Performance, refer to the 

Forest and Rangeland Research Chapter.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-41

International Forestry

Budget Line Item International Forestry

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

International Forestry

Annual Appropriations $7,987 $8,036 $3,652 -$4,384 -54.55%

International Forestry Total 7,987 8,036 3,652 -4,384 -54.55%

Annual Appropriations FTEs 33 33 15 -18 -54.55%

Total Full-Time Equivalents (FTEs) 33 33 15 -18 -54.55%

FY 2014 Program Changes 

The FY 2014 President’s Budget proposes $3,652,000 for the International Forestry program, a decrease 

of $4,384,000 from the FY 2013 Annualized CR. The Budget contains $13,000 for pay costs which 

includes $2,000 for annualization of the fiscal year 2013 pay raise and $11,000 for the anticipated fiscal 

year 2014 pay raise. The pay costs increase would enable the program to cover its increased staff costs 

without reducing the resources available for program delivery.

With the proposed FY 2014 Budget, the International Forestry program will continue to focus on high 

priority investments in natural resource conservation issues, including protecting U.S. forests from 

invasive species, conserving habitat of U.S. migratory species, and addressing illegal logging and other 

U.S. policy interests. 

Past Performance

Addressing Illegal Logging - Worldwide trade of forest products is estimated to exceed $1 trillion per 

year, approximately 15 percent of which is from illegally harvested wood. The artificially low price of the 

illegal harvest leads to an imbalance in which world markets cannot equally participate. This imbalance 

undercuts the competiveness of U.S. forest products companies who are playing by the rules, resulting in 

the loss of jobs in the U.S. One of the major problems in policing illegal logging worldwide has been the 

difficulty in identifying wood species, especially tropical wood species. Identification is complex because 

of the sheer number of species and the difficulty in tracing illegally harvested wood. International 

Forestry staff is working on improving information on wood identification, fostering the competitiveness 

of the U.S. forest products industries, which depend on a steady supply of legally-sourced tropical 

hardwoods. This work includes the development of a hand held device using laser technology for wood 

identification. The device, which will become available in 2013, will enable wood processors, customs 

officials, and civil society organizations to more easily identify commercial species in the field. In the 

U.S. and other countries, producers and manufacturers need this state-of-the-art computer technology to 

be competitive in global markets.

Protecting U.S. forests from Invasive species - International Forestry works to protect the U.S. economy 

from the damage that invasive species inflict on our forests. The program involves Chinese counterparts 

to address one of the most destructive invasive forest pests, the emerald ash borer (EAB). International 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-42

Forestry continues to work with the USDA Agricultural Research Service (ARS) to better understand 

why the borer is so resilient and pervasive. This will help predict and prevent potential future outbreaks 

by related wood boring beetles. With an aim of identifying biocontrol mechanisms, a partnership was 

formed between the Forest Service’s Northern Research Station, the ARS and counterparts in China. With 

support from International Forestry, the team is working to find natural enemies of EAB in its native 

range. Two locations with different forest types will be selected in China and specimens of key natural 

enemies, primarily egg and larval parasitoids, will be collected and evaluated for their potential use in 

biological control programs. The scientists will also be looking for other wood-boring insect species that 

may have a high risk of becoming invasive in the U.S. Ultimately, this effort will contribute to the 

calculated use of biocontrol agents, including parasitoid wasps, which is likely to continue to be a key 

strategy to understanding and managing EAB in North America. 

Conserving U.S. migratory species that are declining or at risk - Many U.S. organizations, including environmental 

groups, private citizen groups, and governmental and nongovernmental agencies, together invest millions of dollars 

in protecting habitat for listed migratory species. The American public cares about these birds, bats and butterflies 

which often spend the winter in Latin America and the Caribbean. If habitats in these areas are not protected, the 

large U.S. domestic investment in conservation is wasted. The current situation is dire: some 61 percent of 

neotropical migratory species are declining. We work extensively in their winter range to develop capacity to better 

manage the winter home for these birds – a small investment with a huge impact. Additionally, when species are 

listed or declining, American forests are closed off from being managed, stifling the forest products industries that 

need access. To address this, International Forestry works with counterparts to protect and restore habitat, develop 

conservation education, and improve protected area management. Work is always done with partners including 

Ducks Unlimited, Bat Conservation International, The Nature Conservancy, the Audubon Society, and others to 

prevent species from becoming listed under the Endangered Species Act and to decrease the number of species 

currently listed as endangered and threatened.

Program Description

Program Overview

The International Forestry program is critical in leveling the playing field in international trade for U.S. 

timber producers by encouraging the trade of legally harvested timber. Improving the legality and 

sustainability of timber management overseas means less underpriced timber on the world market. The 

program both addresses illegal logging and promotes sustainable, and legal, forest management overseas. 

The focus is on countries with significant forest resources and important forest product related trade with 

the U.S. In addition, the program addresses several critical domestic natural resource conservation issues, 

including protecting the Nation from invasive species as well as conserving habitat for U.S. migratory 

species of high importance. Forest Service land managers and scientists provide technical cooperation, 

policy assistance, and training in sustainable natural resource management as well as disaster 

preparedness and response. Innovations and important technologies are often brought back to the U.S. as 

a result of this work. 

Allocation and Integration

The program prioritizes work in collaboration with other Forest Service programs and in conjunction with 

the U.S. Department of State to address the most important international natural resource management 

issues including illegal logging, migratory species habitat, invasive forest pests, and sustainable forest 

management.
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-43

Partnerships

The International Forestry program works in coordination with Forest Service field units, domestic and 

international partners including those in other Federal agencies, foreign governments, international and 

local environmental organizations, universities and the private sector, on a range of forest management 

and policy issues. International Forestry engages in technical collaboration to develop capacity, 

strengthen institutions, and develop economic alternatives to unsustainable and illegal harvesting. 
FY 2014 Budget Justification USDA Forest Service

State and Private Forestry 4-44

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FY 2014 Budget Justification USDA Forest Service

National Forest System 5-1

5. National Forest System

Appropriation National Forest System

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

National Forest System

Annual Appropriations $1,554,13

7 $1,563,648 $1,556,662 -$6,986 -0.45%

National Forest System Total 1,554,137 1,563,648 1,556,662 -6,986 -0.45%

Annual Appropriation FTEs 11,442 11,442 11,429 -13 -0.11%

Total Full-Time Equivalents (FTEs) 11,442 11,442 11,429 -13 -0.11%

National Forest System

Integrated Resource Restoration 0 0 756,788 756,788 0.00%

Collaborative Forest Landscape Restoration 39,936 40,180 39,851 -329 -0.82%

Restoration Partnerships 0 0 10,029 10,029 0.00%

Land Management Planning, Assessment & 

Monitoring 0 0 184,781 184,781 0.00%

Land Management Planning 39,936 40,180 0 -40,180 -100.00%

Inventory and Monitoring 161,721 162,711 0 -162,711 -100.00%

Recreation, Heritage, and Wilderness 281,176 282,897 260,796 -22,101 -7.81%

Wildlife & Fisheries Habitat Management 140,036 140,893 0 -140,893 -100.00%

Grazing Management 55,356 55,695 35,663 -20,032 -35.97%

Forest Products 335,511 337,564 0 -337,564 -100.00%

Vegetation & Watershed Management 184,046 185,172 0 -185,172 -100.00%

Minerals and Geology Management 83,426 83,937 70,970 -12,967 -15.45%

Landownership Management 85,738 86,263 71,131 -15,132 -17.54%

Law Enforcement Operations 143,829 144,709 126,653 -18,056 -12.48%

Valles Caldera National Preserve 3,426 3,447 0 -3,447 -100.00%

National Forest System Overview

The FY 2014 President’s Budget proposes $1,556,662,000 for the National Forest System (NFS), a 

decrease of $6,987,000 from the FY 2013 Annualized CR. The Budget contains $9,449,000 for pay costs 

which includes $1,542,000 for annualization of the fiscal year 2013 pay raise and $7,907,000 for the 

anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its 

increased staff costs without reducing the resources available for program delivery.

The NFS appropriation provides funds for the stewardship and management of the over 193 million acres 

of national forests and grasslands. The FY 2014 President’s Budget includes budget structure changes 

designed to increase efficiency in program administration and delivery and to reduce redundancy and 

overhead costs while continuing to support the Administration’s highest priorities.

Following Secretary Vilsack’s “All Lands” vision, the Budget focuses on meeting the challenges of 

ecological restoration through collaborative approaches to address fire and fuels, invasive species, and 

watershed degradation; engaging communities to help Americans reconnect to the outdoors, expand on 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-2

recreation benefits and create a wide range of opportunities for economic expansion to retain and create 

jobs; and partnering with communities and fellow agencies to reduce the threat of wildland fires.

Conserving forests and grasslands not only conserves air quality, water, plants, and wildlife; it responds 

to the public’s interests and needs. Forests and grasslands generate wealth by providing opportunities for 

outdoor recreation and tourism such as camping, picnicking, skiing, snowboarding, hunting, fishing, 

hiking, driving for pleasure, wildlife viewing, scenic driving, and visiting cultural sites and visitor centers. 

People improve their health and well-being by engaging in the wide array of outdoor activities available 

on NFS lands. The restoration of landscapes, sustainable forest management, and the development of 

markets for ecosystem services provide jobs to communities that benefit rural economies.

Management of the vast array of natural resources on NFS lands requires effective integration of many

different and complex program areas. The suite of NFS programs support the planning, coordination, 

implementation, and monitoring of activities that provide: water-quality protection and improvement; 

recreation opportunities for the public; energy for the Nation; timber and non-timber forest products; 

habitat for wildlife; and forage for domestic animals. All of these services support the maintenance of 

jobs as well as growth in the domestic job market. These activities are managed to meet the needs of the 

Nation while maintaining or improving the health of the land and protecting the environment to provide 

the greatest good in the long term.

Integrated Resource Restoration (IRR)

The President’s Budget continues the FY 2012 pilot and fully implements IRR as a way of improving 

efficient delivery of many NFS programs throughout the Nation. This budget structure aligns with the 

Secretary’s vision of integrating watershed protection and restoration into all aspects of our management 

of national forests and grasslands and to create or maintain local economic opportunities and jobs. This 

budget structure allows us to more effectively accomplish forest health and water quality improvement 

goals. IRR leads to improved project integration and accomplishments to high priority, geographically 

specific, places on the ground. The following table illustrates IRR in FY 2012 and FY 2013 as a pilot 

compared to FY 2014 fully implemented without separating individual budget line items. 

Integrated Resource Restoration Consolidated Budget Line Items

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Pilot 

FY 2013 

Annualized 

CR Change

FY 2014

Pres Bud

NFS Integrated Resource Restoration* - - $756,788 $756,788

NFS Wildlife and Fisheries Habitat 

Mgmt. 25,508 25,664 (25,664) -

NFS Forest Products 44,514 44,786 (44,786) -

NFS Vegetation and Watershed 

Management 42,383 42,642 (42,642) -

CIM Legacy Roads and Trails 12,979 13,059 (13,059) -

WFM Hazardous Fuels non-Wildland 

Urban Interface 20,966 20,966 (20,966) -

Total $146,350 $147,117 $609, 671 $756,788

*Integrated Resource Restoration in FY 2012 and FY 2013 is a pilot program in Regions 1, 3, and 4.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-3

Land Management Planning, Assessment, and Monitoring

The President’s Budget proposes a consolidated budget line item (BLI) to facilitate an integrated

approach to landscape management. We propose to merge the current BLIs of Land Management 

Planning, and Inventory and Monitoring, into a single budget line item called Land Management 

Planning, Assessment, and Monitoring. Forest Service management occurs around a continuous cycle of 

assessing, planning at multiple levels, implementing and adjusting programs, and projects based on 

information acquired through integrated inventory and monitoring activities. 

The proposed BLI provides the agency flexibility to achieve efficiencies in several central activities in 

this cycle that are core to implementing the requirements of the 2012 Planning Rule. The 2012 Planning 

Rule promotes a collaborative science-based approach for planning, monitoring, and conducting 

assessments that considers information from and about all lands affected by, or influencing, planning unit 

activities. The need to integrate regional and local monitoring and assessment activities with unit planning 

efforts can be accomplished more effectively, clearly, and efficiently under the proposed budget line item.

The proposed budget structure improves accountability within the activities funded as well as facilitates a 

more complete alignment with other budget line items that fund agency information management 

activities by reducing the complexity of agency budgeting and accounting structures. Accountability is 

improved though aligning priority management, information needs, and communicating explicit 

performance expectations in agency direction.

Land Management Planning, Assessment, and Monitoring Consolidated Budget Line Items 

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Enacted

FY 2013 

Annualized 

CR Change

FY 2014 

Pres Bud

NFS Land Management Planning, 

Assessment, and Monitoring - - $184,781 $184,781

NFS Land Management Planning 39,936 40,180 (40,180) -

NFS Inventory and Monitoring 161,721 162,711 (162,711) -

Total $201,657 $202,891 ($18,110) $184,781
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-4

Integrated Resource Restoration

Budget Line Item Integrated Resource Restoration

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Integrated Resource Restoration

Annual Appropriations 0 0 $756,788 $756,788 0.00%

Integrated Resource Restoration Total 0 0 756,788 756,788 0.00%

Annual Appropriations FTEs 944 944 5,792 4,848 513.56%

Total Full-Time Equivalents (FTEs) 944 944 5,792 4,848 513.56%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Integrated Resource Restoration

Number of watersheds moved to an improved condition 

class 0 0 5 9 10 15

Acres treated annually to sustain or restore watershed 

function and resilience 0 2,624,016 2,600,000 2,569,617 2,600,000 2,210,000

Miles of stream habitat restored or enhanced 3,577 3,878 2,670 3,704 3,315 3,100

Volume of timber sold (million board feet (MMBF)) 2,592 2,533 2,600 2,644 2,800 2,380

Miles of roads decommissioned 2,549 1,540 2,028 2,103 2,028 2,000

FY 2014 Program Changes

The FY 2014 President’s Budget continues to emphasize Integrated Resource Restoration (IRR) as the 

leading approach to accomplish on-the-ground restoration. This work will lead to improved forest and

grassland health and resilience using landscape scale restoration to recover watershed health and clean 

water and create or maintain local economic opportunities and jobs. The IRR budget line item (BLI) was 

first introduced in FY 2011 and proposed again in FY 2012 with the addition of portions of Hazardous 

Fuels from the Wildland Fire Management BLI and Legacy Roads and Trails, and the road 

decommissioning activity from the Capital Improvement and Maintenance Appropriation. 

The FY 2014 President’s Budget proposes $756,788,000 for IRR as a single budget line item, an increase 

of $609,671,000 compared to FY 2013 Annualized CR. The Budget contains $4,788,000 for pay costs 

which includes $782,000 for annualization of the fiscal year 2013 pay raise and $4,007,000 for the 

anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its 

increased staff costs without reducing the resources available for program delivery.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-5

In FY 2013, IRR is a pilot program in Regions 1, 3, and 4 with up to $147,117,000. IRR includes 

activities accomplished through previous budget line items for Wildlife and Fisheries Habitat 

Management, Vegetation and Watershed Management, Forest Products, Legacy Roads and Trails, 

Hazardous Fuels in non-Wildland Urban Interfaces, and Rehabilitation and Restoration to reestablish 

watershed, forest and grassland health fire-adapted landscapes, and ecosystem function. 

Funding focuses on implementing maintenance and restoration activities in priority places and through 

priority programs including emphasis on the Collaborative Forest Landscape Restoration projects. IRR 

aligns funding with program and policy direction from the Secretary of Agriculture reinforcing the 

agency’s commitment to accomplish work more efficiently through collaboration and an “All Lands” 

restoration approach. The following table illustrates the programs that comprise IRR in FY 2013, under 

the pilot authority. In FY 2014, IRR would be fully implemented without separating individual budget 

line items. 

In FY 2012, Regions 1, 3, and 4 were first selected to be part of the IRR pilot to demonstrate the benefits 

derived by merging multiple BLIs into a single BLI. The agency appreciates the approval of a limited IRR 

authority for Regions 1, 3, and 4. 

Integrated Resource Restoration Consolidated Budget Line Items 

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Pilot

FY 2013 

Annualized 

CR Change

FY 2014

Pres Bud

NFS Integrated Resource Restoration* - - $756,788 $756,788

NFS

Wildlife and Fisheries Habitat 

Mgmt. 25,508 25,664 (25,664) -

NFS Forest Products 44,514 44,786 (44,786) -

NFS

Vegetation and Watershed 

Management 42,383 42,642 (42,642) -

CIM Legacy Roads and Trails 12,979 13,059 (13,509) -

WFM

Hazardous Fuels non-Wildland 

Urban Interface 20,966 20,966 (20,966) -

Total $146,350 $147,117 $609,671 $756,788

 *Integrated Resource Restoration in FY 2012 and FY 2013 is a pilot program in Regions 1, 3, and 4.

Investing in IRR in FY 2014 is expected to result in 2,210,000 watershed acres treated; 2,380 MMBF 

timber volume sold, approximately 2,000 miles of road decommissioned; and 3,100 miles of stream 

habitat restored or enhanced. In addition, 15 watersheds will be restored to a higher condition class. 

Details on Forest Service funding with IRR for biomass and bioenergy, including the Community Wood 

to Energy Program, is outlined in the Special Exhibit on biomass and bioenergy.

Past Performance

In FY 2012, the Forest Service received authorization to pilot the Integrated Resource Restoration (IRR) 

Program for a period of three years (FY 2012 through FY 2014). Forest Service Regions 1, 3, and 4 were 

selected for the pilot program which facilitates and supports an integrated approach to land management 

that maintains, enhances, or restores watersheds at the landscape level to improve their resilience.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-6

The primary outcome measure associated with IRR is the number of watersheds moved to an improved 

condition class. There are four output-based measures that indicate the Forest Service’s progress toward 

improving the condition class of watersheds: (1) acres treated annually to sustain or restore watershed 

function or resilience, (2) miles of stream habitat restored or enhanced, (3) volume of timber sold, and (4) 

miles of roads decommissioned. Not only are the output indicators representative of the type of work 

conducted but these measures were also chosen because the public recognizes them and has been 

interested in the Forest Service’s progress toward meeting historical targets. IRR works toward this 

outcome and associated outputs, in part, by consolidating funding previously in several other budget line 

items (e.g., wildlife and fisheries habitat management, forest products, vegetation and watershed 

management, non-WUI hazardous fuels, and legacy roads and trails, including road decommissioning 

activity) to implement treatments deemed most necessary within a landscape.

The three pilot regions used the Watershed Condition Framework (WCF) to assess the condition class of 

all of their 5,926 watersheds containing significant portions of National Forest System (NFS) lands. 

Among them, 78 watersheds were selected as priorities for restoration activities within the three-year pilot 

period. The watersheds will continue to be assessed using the WCF, and the number of watersheds moved 

to an improved condition class will be reported annually. 

In addition to the WCF, the Forest Service is also evaluating the operational efficiencies of IRR for FY 

2012. Regions 1, 3, and 4 are in the process of submitting: 

• Three to five case studies showcasing accomplishments, successes, and challenges of 

implementing IRR

• Examples of combining focus and funding with Collaborative Forest Landscape Restoration 

projects to advance on-the-ground restoration through community-based collaboration

• Descriptions of how consolidation of multiple budget line items affected 

programs/activities/project selection, and

• Advantages and disadvantages of a consolidated BLI

The evaluations will be used to summarize the first year’s accomplishments. The information will also be 

used to evaluate and improve the application of IRR and communicated to the House and Senate 

Focus on Accomplishments under IRR

The FY 2012 Budget Justification proposed IRR performance measures: Number of Watersheds in Condition 

Class 1, Class 2 and Class 3. As we completed the watershed condition assessments in FY 2011 it became clear 

that proposed performance measures would not be adequate to assess our accomplishments. The main issue with 

the previously proposed performance measures is that declines in watershed condition due to natural disturbances 

such as large fires, floods, or other landscape-altering events will mask improvements directly related to agency 

investments. Adapting our management to what we have learned during the watershed assessments, we proposed a 

more valid performance measure for FY 2013 and began collecting this information in FY 2012.

To more clearly capture the number of watersheds we improved as a result of our management actions, the FY 

2012 accomplishments are reported under the new measure: Number of watersheds moved to an improved 

condition class. This represents the number of watersheds we improved through management actions. This number 

is not offset by the number of watersheds adversely affected by environmental factors such as fire or floods. This 

new accomplishment reporting measure is being used to track the number of watersheds purposefully moved to an 

improved condition. This measure is part of the foundation measure for the Watershed Condition Framework, a 

critical component to validate the success of the integrated resource restoration approach.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-7

Watershed Condition Framework

The Forest Service has established a 

framework to guide the improvement of 

watershed health on national forests and 

grasslands. The WCF is a comprehensive 

approach for: (1) evaluating the condition 

of watersheds, (2) prioritizing work in areas 

important to the public and where work 

results in noticeable differences in overall 

watershed condition, (3) strategic integrated 

restoration, and (4) tracking and monitoring 

outcomes.

Watersheds were classified using a core set 

of 12 indicators. These indicators identify 

elements to be addressed to maintain a 

watershed’s condition class or move it to an 

improved condition class, and track changed 

watershed condition aspects over time.

The classification of 15,000 sub-watersheds 

and the identification of over 200 priority 

watersheds were completed in FY 2011. The 

initial assessment determined that 52 

percent (7,882) of watersheds were Class 1 

– Good, 45 percent (6,751) were Class 2 -

Fair, and 3 percent (431) were Class 3 -

Poor. In FY 2012, Step C, the development 

of the watershed action plans designed to 

move priority watersheds to an improved 

condition class, focused on the high priority 

watersheds. Integrated project 

implementation began in FY 2012 and will 

continue in FY 2013.

A website has been developed for the public 

to share more detailed information and post 

map products as the processes are 

completed. This link is:

http://www.fs.fed.us/publications/watershed

Appropriations Subcommittee on Interior, Environment, 

and Related Agencies in the Integrated Resource 

Restoration Pilot Program Accountability report.

The overall FY 2012 accomplishments for IRR are listed 

below for: 

• Number of watersheds moved to an improved 

condition class 

• Acres treated annually to sustain or restore 

watershed function and resilience

• Miles of stream habitat restored or enhanced 

• Volume of timber sold, and

• Miles of road decommissioned 

Number of watersheds moved to an improved condition 

class (180 percent of the targeted accomplished). In FY 

2012 the agency moved nine watersheds to an improved 

condition. The four additional watersheds improved over 

the initial target of five watersheds represent the 

refocusing of restoration efforts in the priority watersheds 

and the further maturing of the watershed restoration 

action plan components of the WCF. 

Acres treated annually to sustain or restore watershed 

function and resilience (99 percent of target 

accomplished). In FY 2012 the agency treated 2,569,617 

acres. These represent the cumulative acre-based 

accomplishments achieved through Integrated Resource 

Restoration related activities that sustain or restore 

watershed function and resilience and include treatments 

that contribute significantly to improvement of watershed 

conditions. 

Many of these resiliency activities contributed to the more 

than 300,000 acres of high impact targeted (HIT) practices 

that were accomplished within the USDA Landscapes of 

National Importance (LNIs). These HIT practices are 

actions that contribute to the USDA’s Agency Priority 

Goal, formerly High Priority Performance Goal, for water 

resources. These HIT actions are implemented on NFS

and private working lands in priority landscapes that 

accelerate the protection of clean, abundant water. 

Miles of stream habitat restored or enhanced (139 percent 

of target accomplished). In FY 2012 the agency restored 

3,704 miles of stream habitat. This accomplishment 

enhanced habitat for native fishes with commercial and 

non-commercial value, as well as for desired non-native 

species important to recreational fishing. 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-8

This accomplishment is a critical component of our threatened, endangered, and sensitive (TES) aquatic 

species restoration. For example, while there are benefits to all aquatic species, the aquatic organism 

passage component is a key element for helping offset the effects of a changing climate. The removal of 

passage barriers significantly expands the potential range available to these TES species which may be 

limited to isolated, short segments of stream, often limited to as little as a half-mile of stream or less, 

making them highly vulnerable to increasing temperatures or catastrophic impacts of climate change 

related factors such as wildfires or flood damage that can significantly alter habitat.

Opening barriers and expanding potential suitable habitat gives those vulnerable species the ability to 

relocate to more suitable habitat in the event of catastrophic impacts affecting a segment of their occupied 

range. Longer stream segments also mean more access to a wider variety of stream habitats and a larger 

effective population size, all of which help those isolated TES populations be more robust and better able 

to resist impacts to their environment. Restoration activities also remove invasive species that outbreed or 

out compete native fish species, and disrupt aquatic stream habitat. 

Other work accomplished that was particularly beneficial to aquatic TES habitat includes the 

reconstruction of stream channels and the enhancement of riparian habitat. Target accomplishments 

continue to be on an upward trend that reflects integrated restoration and effective partnerships. 

Volume of timber sold (101 percent of targeted accomplished). In FY 2012, the agency prepared and sold 

2,644 million board feet (MMBF) using forest products appropriations and permanent and trust funds. 

Timber harvest is an important tool used to achieve multiple resource objectives. Integrated with other 

activities including road decommissioning, stream restoration, and others, it helps to achieve the agencywide goal of increasing watershed health and improving resilience at the landscape level. Timber harvest 

also makes important contributions to rural economies; each year forest products from NFS lands 

contribute approximately 42,000 jobs and $2.7 billion to the national economy.

Miles of road decommissioned (104 percent of target accomplished). In FY 2012 the agency 

decommissioned a total of 2,103 miles of roads through IRR and Legacy Roads and Trails funding. In 

addition, the agency maintained 1,232 miles of roads; improved 596 miles of roads; disposed or 

transferred two bridges; repaired or replaced 14 bridges or major culverts; and constructed or 

reconstructed 75 stream crossings for aquatic organism passage. All of these accomplishments, including 

the road decommissioning work, make key contributions to our restoration goals by addressing the 

environmental impacts from our transportation systems.

The agency also maintained 353 miles of trails to standard and improved 32 miles of trails. Work was 

targeted to mitigate conditions that were causing water quality issues adversely effecting threatened, 

endangered, or sensitive species or impacting community water systems. These accomplishments also 

contribute directly to achieving resource restoration goals.

Program Description

Program Overview

The Secretary of Agriculture’s vision for active forest management advances the role of healthy forests to 

protect and enhance water resources and to maintain landscape resilience in response to impacts of a 

changing climate and other stressors. The IRR program focuses on priority needs for landscape scale 

activities that promote watershed resilience. Included is all traditional work activities associated with 

investments, management and services that occurred under previous individual budget line items. Active 

management of national forest and grasslands is critically necessary to address threats to health and safety 

of America’s forest-dependent communities and watersheds. IRR enhances the capacity of the agency to 
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increase the pace and scale of restoration activities agency-wide. The IRR landscape scale approach 

aligns and emphasizes restoration actions through forest management, range management, wildlife and

fisheries habitat management, vegetation and watershed management, hazardous fuels management in 

non-WUI areas, road decommissioning, and activities previously accomplished under the Legacy Roads 

and Trails, and Rehabilitation and Restoration programs. 

Activities previously accomplished under the Legacy Roads and Trails activity continues under IRR, 

including urgently needed road and trail decommissioning, long-term road storage, repair, and 

maintenance and associated activities. The removal of fish passage barriers is especially important in 

areas where roads may be contributing to water quality problems in streams and water bodies that 

supported threatened, endangered or sensitive species. Road and trail repairs required due to storm 

disturbances in local communities that are urgently needed to protect community water resources is also 

an important consideration for funding within IRR.

The WCF will be used interactively to identify where decommissioning will occur within priority 

watersheds and where culverts blocking fish passage should be removed or upgraded to protect aquatic 

resources and provide resiliency to flooding. Road and trail decommissioning will continue to be based 

on travel management analysis and to reduce the impact of unneeded systems by putting roads into long 

term storage to protect water quality and other resources such as wildlife, fish, and plant communities. 

The IRR program also incorporates implementation of the WCF. By combining the budget authority of 

multiple land management programs into one budget line item, we gain administrative efficiency by 

reducing accounting codes, and flexibility to schedule multiple resource management activities at one 

time, in one place. 

Several activities contribute to the number of watershed acres treated, including reforestation, rangeland 

improvements, invasive species treatments, terrestrial habitat improved for wildlife, soil and water 

resource improvements, and non-WUI fuel treatments. Other work supported in the IRR program includes 

air quality monitoring, wildlife interpretation and education programs, water rights management, and soil 

quality management, stewardship contracts, timber sales, special forest products, and firewood sales. 

The IRR, landscape scale approach also allows the agency to better address many of the resource 

challenges facing NFS lands, such as the bark-beetle epidemic (see Special Exhibit for additional 

information), the decline of longleaf pine and other forest ecosystems, threatened and endangered species 

management, wild horse and burro management, restoring lands historically used as roads to a natural 

state, replacement of bridges or major culverts to allow aquatic organism passage, and impacts from 

climate variability, while protecting the overall resiliency of forests and grasslands. 

IRR implementation emphasizes collaboration with stakeholders and internal interdisciplinary planning in 

an effort to continuously improve restoration projects and increase community support. In return, the 

agency expects to accomplish more on-the-ground work, create or maintain jobs, and improve the 

stability of rural communities and the safety of their drinking water. 

Watershed restoration, fish, wildlife and threatened and endangered species enhancement activities, 

vegetation management, timber management, and road restoration activities contribute to, enhance, and 

maintain jobs in rural communities where employment opportunities are often limited. These restoration 

activities provide critical support to local economies.

Stewardship contracts are a critically important tool used to implement integrated resource restoration 

projects across priority watersheds and Collaborative Forest Landscape Restoration Projects (CFLRP). 

Use of this authority creates jobs in the forest products industry, helping to sustain communities and 
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develop and maintain forest operations infrastructure. By using the value of forest products to offset the 

cost of services, we can better provide opportunities to achieve landscape scaled management goals. 

Allocation and Integration

Allocations to the regions represent a strategic investment of financial resources focused on sustaining, 

improving, and restoring natural ecosystems. Allocations reflect priority needs for landscape and 

watershed restoration; reducing wildfire risk; support for local economic infrastructure and jobs; 

decommissioning of roads or trails; forest vegetation management; and resource needs to address TES

species, air quality, invasive species, and those activities that are critical to the overall management of the 

national forests and grasslands. Funds continue to also support core and historical operations and 

management functions to prevent the decline in the health and condition of the national forest and 

grassland ecosystems. 

As regions compile and analyze data from Watershed Condition Action Plans it is estimated that regional 

allocations will be at 10 percent or more of total IRR funding. Restoration activities reflect the need to 

support strong and diverse forest products and livestock grazing industries, facilitating their important 

contributions to jobs and communities.

Integration and collaboration with other programs not included in IRR is important to implementing land 

management activities. Coordination of efforts with S&PF programs and other USDA agencies such as 

the NRCS has resulted in a synergistic effect in restoring priority watersheds on a landscape scale. 

Partnerships

The agency continues to enhance program delivery and accomplishments through an extensive network of 

collaborators and long-term partners, Federal and State agencies, Tribal governments, nongovernmental 

organizations, and local communities. For decades, the agency has worked closely with this extensive 

network and with local communities; civic organizations; and national conservation-oriented 

organizations such as The Nature Conservancy, Trout Unlimited, the National Fish and Wildlife 

Foundation, the National Forest Foundation, Rocky Mountain Elk Foundation, Wildlife Forever, Ducks 

Unlimited, and the National Wild Turkey Federation. In FY 2011 external partners helped the agency 

complete over 6,000 fish and wildlife projects on national forests and grasslands. The dollar and in-kind 

value of these partner contributions totaled nearly $80 million. 

Successful partnerships and collaborative efforts have led to the improvement of millions of acres of 

terrestrial habitat, and thousands of miles of streams for imperiled, common, and economically significant 

species throughout the Nation. Our partnerships support ecosystem services such as clean water and 

woody biomass. These partnerships have increased our capacity to conduct restoration through sizeable 

contributions of matching funds and in-kind support from external partners (See Special Exhibit on 

Partnerships for more detailed information). 

The Forest Service has also entered in to partnership agreements with several organizations (including 

American Forests, the National Arbor Day Foundation, the National Forest Foundation, and the National 

Garden Clubs) and businesses to increase the amount of NFS lands receiving reforestation treatments 

following catastrophic wildfires and other natural events. 
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National Forest System 5-11

Collaborative Forest Landscape Restoration

Budget Line Item Collaborative Forest Landscape Restoration

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Collaborative Forest Landscape Restoration

Annual Appropriations $39,936 $40,180 $39,851 -$329 -0.82%

Collaborative Forest Landscape Restoration 

Total 39,936 40,180 39,851 -329 -0.82%

Annual Appropriations FTEs 38 38 38 0 0.00%

Total Full-Time Equivalents (FTEs) 38 38 38 0 0.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Collaborative Forest Landscape Restoration

Acres of forest vegetation established 0 5,537 8,000 20,906 3,500 19,400

Acres of forest vegetation improved 0 20,561 26,000 34,591 51,000 173,200

Acres of noxious weeds and invasive plants treated 0 11,393 20,600 19,478 15,800 24,700

Miles of stream habitat restored or enhanced 0 38 55 298 130 222

Acres of terrestrial habitat enhanced 0 167,263 69,000 182,046 185,000 382,000

Volume of timber sold (million board feet (MMBF)) 0.0 121.3 50.0 216.0 165.0 420.0

Number of green tons and/or volume of woody biomass 

from hazardous fuel reduction and restoration treatments 

on Federal land that are made available through permits, 

contracts, grants, agreements, or the equivalent 0 267,890 445,000 354,906 518,000 534,900

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

hazardous fuels treated 0 77,133 62,000 142,661 87,000 304,500

Acres of hazardous fuels treated outside the Wildland 

Urban interface to reduce risk of catastrophic fire 0 45,884 79,500 114,758 108,500 197,300

Miles of roads decommissioned 0 50 170 169 173 555

Miles of passenger car system road reconstruction and 

capital improvement 0 25 140 89 67 229

Miles of high clearance system road reconstruction and 

capital improvement 0 40 65 56 40 87

FY 2014 Program Changes 

The FY 2014 President’s Budget proposes $39,851,000 for the Collaborative Forest Landscape 

Restoration Program (CFLRP), a decrease of $329,000 from the FY 2013 Annualized CR. The FY 2013 

Annualized CR amount is based on the annualized continuing resolution calculations. The authorized 

level is $40 million. The Budget contains $32,000 for pay costs which includes $5,000 for annualization 

of the fiscal year 2013 pay raise and $27,000 for the anticipated fiscal year 2014 pay raise. The pay costs 

increase would enable the program to cover its increased staff costs without reducing the resources 

available for program delivery. The amount for FY 2013 is based on annualized CR calculations; the 

authorized level is $40 million.
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National Forest System 5-12

The proposed FY 2014 President’s Budget will continue to support implementation of the 20 CFLRP 

projects selected in FY 2010 and FY 2012. Three additional projects were recommended by the CFLRP 

Advisory Committee in FY 2012 and will receive funding in FY 2013 and FY 2014. The High Priority

Projects are located in Arkansas, Mississippi, and Washington.

Project activities include:

• Safety enhancement through the treatment of hazardous fuel acres

• Restoration of watershed function and resilience

• Improvement of forest vegetation and wildlife habitat, and

• Generation of commercial timber and biomass for bioenergy as a result of restoration treatments

The FY 2014 projects and emphasis areas are listed in the following table and described below. 

FY 2014 CFLRP Projects

Project Name Region Forest(s)

Southwestern Crown of the Continent 1 Flathead, Lolo and Helena NFs

Selway-Middle Fork 1

Nez Perce-Clearwater and 

Bitterroot NFs

Kootenai Valley Resource Initiative 1 Idaho Panhandle NF

Uncompahgre Plateau 2 Uncompahgre NF

Front Range 2

Pike, San Isabel, Arapaho and 

Roosevelt NFs

Four Forest Restoration Initiative 3

Apache-Sitgreaves, Coconino, 

Kaibab and Tonto NFs

Southwest Jemez Mountains 3

Santa Fe NF and Valles Caldera 

National Preserve

Zuni Mountain CFLRP 3 Cibola NF

Weiser-Little Salmon Headwaters CFLRP 4 Payette NF

Dinkey Landscape Restoration Project 5 Sierra NF

Burney-Hat Creek Basins Project 5 Lassen NF

Amador-Calaveras Consensus Group Cornerstone 

Project 5 Eldorado and Stanislaus NF

Tapash 6 Okanogan-Wenatchee NF

Deschutes 6 Deschutes NF

Lakeview Stewardship CFLRP 6 Fremont-Winema NF

Southern Blues Restoration Coalition 6 Malheur NF

Northeast Washington Forest Vision 2020* 6 Colville NF

Accelerating Longleaf Restoration 8 Florida-Osceola NF

Shortleaf-Bluestem Community 8 Ouachita NF

Grandfather Restoration Project 8 Pisgah NF

Ozark Highlands Ecosystem Restoration* 8 Ozark-St. Francis NF
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National Forest System 5-13

Project Name Region Forest(s)

Longleaf Pine Ecosystem Restoration and 

Hazardous FuelsReduction* 8 De Soto NF

Missouri Pine-Oak Woodlands Restoration Project 9 Mark Twain NF

 *These projects were recommended by the CFLRP Advisory Committee in FY 2012 but were not funded in FY 2012

 because only two projects could be selected per Forest Service region in a given year. These high priority projects will be 

 funded in FY 2013 and FY 2014.

FY 2014 Project Emphasis Areas

Southwestern Crown of the Continent

This project, located on the Flathead, Lolo and Helena National Forests, will focus on protecting 

communities and enhancing terrestrial habitat by removing hazardous fuels on acres within and outside of 

the Wildland Urban Interface (WUI). Pre-commercial and commercial thinning will restore forested 

acres, generating forest products such as timber and biomass to support local communities. 

Selway-Middle Fork

The Selway-Middle Fork project, located on the Nez Perce-Clearwater and Bitterroot National Forests, 

will focus on improving aquatic habitats through road decommissioning, road and trail maintenance and 

improvement, and replacing culverts for aquatic organism passage. Terrestrial wildlife habitat will be 

improved through pre-commercial thinning and prescribed burning, and the invasive plant management 

program will be expanded through implementation of revegetation work, bio-control introductions and 

weed-free area detection and treatment. 

Kootenai Valley Resource Initiative

This project, located on the Idaho Panhandle National Forest, will focus on protecting communities and 

enhancing ecosystems by removing hazardous fuels. This work will lead to the production of woody 

biomass that can support local rural communities. Road maintenance, improvement and 

decommissioning, trail maintenance, and stream crossing reconstruction will help to protect local 

watersheds and enhance aquatic habitat. 

Uncompahgre Plateau

The focus of the Uncompahgre Plateau Project, located on the Grand Mesa, Uncompahgre and Gunnison 

National Forests, will be to restore structure and function of priority ecosystems across broad landscapes. 

This goal will be achieved through the use of prescribed fire, mechanical treatments using stewardship 

contracting, restoration of native plant communities and riparian areas, and control and treatment of 

invasive plants in high risk areas. 

Front Range

This project, located on the Pike, San Isabel, Arapaho, and Roosevelt National Forests, will emphasize 

restoring ponderosa pine ecosystems and protecting communities through hazardous fuels reduction in the 

Wildland Urban Interface. Additional accomplishments will include noxious weed treatment, watershed 

restoration, and wildlife and fish habitat improvement. 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-14

Four Forest Restoration Initiative

The Four Forest Restoration Initiative (4FRI) is located on the Apache-Sitgreaves, Coconino, Kaibab, and 

Tonto National Forests. Implementation of the 4FRI Integrated Resource Stewardship Contract will 

increase to approximately 30,000 acres annually. Hazardous fuels reduction thinning will lead to 

enhanced community security and restored ecosystems, and produces woody biomass and timber to 

support local economies. Treatments will also lead to enhanced terrestrial habitat for wildlife species and 

improve rangeland vegetation.

Southwest Jemez Mountains

The project straddles the Santa Fe National Forest and Valles Caldera National Preserve. Implementation 

will focus on reducing hazardous fuels and restoring landscapes through large scale thinning and 

prescribed burns. Erosion will be reduced through the maintenance, improvement and decommissioning 

of roads, as well as implementation of erosion control measures throughout the Las Conchas fire burn 

perimeter. Working with a non-profit collaborator, the project will restore riparian and rangeland areas, 

including the repair of an earthen dam, addressing erosion issues, restoring historic wetlands, and building 

fences to protect riparian areas. 

Zuni Mountain

The Zuni project, located on the Cibola National Forest, will build on mechanical treatments completed in 

previous years by increasing implementation in prescribed burning. The project twill support local 

businesses through the production of timber and woody biomass, improve forest and rangeland 

vegetation, and restore or enhance terrestrial habitat for wildlife. 

Weiser-Little Salmon Headwaters

This project is located on the Payette National Forest. The project will protect local communities through 

the treatment of hazardous fuels in the WUI. These treatments will generate timber and woody biomass to 

support local industry, and will help to restore terrestrial habitat for wildlife. Forest vegetation will be 

improved, and noxious weeds and invasive plants will be managed and controlled on Federal lands. 

Dinkey Landscape Restoration Project

This project is located on the Sierra National Forest. Stewardship Contracting will be implemented on the 

Bald Mountain project. Implementation will include commercial and non-commercial thinning, 

prescribed burning, watershed improvement, meadow restoration, plantation maintenance, and wildlife 

habitat improvement. 

Burney-Hat Creek Basin

This project is located on the Lassen National Forest. The project will focus on implementing active and 

adaptive management to reduce fuels, improve forest vegetation and enhance habitat for wildlife. Timber 

removed in restoration treatments will support rural economies. 

Amador Calaveras Consensus Group Cornerstone

This project, located on the Eldorado and Stanislaus National Forests, will implement treatments to 

improve forest health and resiliency. Vegetation treatments will include commercial and pre-commercial 

thinning, biomass removal, and brush mastication. In addition, two washed-out road stream crossings will 

be decommissioned in order to improve aquatic habitat and decrease the amount of sediment flowing into 

the Mokelumne River. Hazardous fuels reductions will continue with under-burning and burn 

preparations throughout the project, as well as hand cutting, piling and burning fuels within existing 

cultural sites. 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-15

Tapash

This project is located on the Okanogan-Wenatchee National Forest. Forest vegetation will be improved 

through commercial timber sale preparation, non-commercial thinning and stand improvement, and 

preparation of helicopter-based vegetation treatments. The project will also continue to implement 

activities that benefit fisheries and the aquatic resources. Risk of catastrophic wildfire will also be reduced 

by thinning hazardous fuels outside of the WUI. 

Deschutes

This project, located on the Deschutes National Forest, will continue to implement forest vegetation 

improvements and hazardous fuels reductions through stewardship contracts. In addition, the project will 

treat noxious weeds and re-establish native plants in key acres. Watersheds will be improved through road 

decommissioning and the construction of a culvert for fish passage. 

Lakeview Stewardship CFLR

This project is located on the Fremont-Winema National Forests. Restoration work will include hazardous 

fuels reduction to protect communities, enhance ecosystems, and reduce the risk of uncharacteristic 

wildfire. In addition, prescribed fire will enhance ecosystem resiliency, and treatments will restore 

wildlife and aquatic habitats. 

Southern Blues Restoration Coalition

This project is located on the Malheur National Forest. This project will increase the pace of restoration to 

support local economies. Working with local and state officials, the goal will be to double the annual 

outputs from restoration activities, including the volume of commercial products and acres treated. Local 

communities will also be protected through the thinning of hazardous fuels in the WUI.

Northeast Washington Forest Vision 2020

This project is located on the Colville National Forest. The project will continue to work under the 

guidance of the original project proposal, the Colville National Forest Restoration Strategy, and with the 

feedback of the collaborative group. Local communities will be supported through the sale of timber 

harvested through restoration treatments, and protected through the treatment of hazardous fuels in the 

Wildland Urban Interface.

Accelerating Longleaf Restoration

This project, located on the Florida-Osceola National Forest, will continue to establish and improve forest 

vegetation and thin and remove hazardous fuels to protect communities and reduce the risk of 

uncharacteristic wildfire. These treatments will generate commercial timber and woody biomass to 

support local economies and will enhance terrestrial habitat for wildlife. 

Shortleaf Bluestem Community

This project, located on the Ouachita National Forest, will focus on prescribed burning to restore the 

understory and structure of the Shortleaf Pine-Bluestem community. Commercial thinning will produce 

timber to support local communities and herbicide treatment will manage invasive species populations. 

Habitat improvement work will support endangered species by creating open, park-like stands, and native 

plant species such as milkweed will be reestablished. 

Grandfather Restoration Project

This project is located on the Pisgah National Forest. The project team will continue to treat non-native 

invasive species in key drainages while restoring and enhancing wildlife habitat through mechanical and 

herbicide treatments. Maintaining and improving roads will reduce sedimentation into streams, and 

prescribed fire will restore fire adapted ecosystems. 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-16

Ozark Highlands Ecosystem Restoration Project

This project is located on the Ozark-St. Francis National Forests. The project team will continue to look 

for efficiencies, such as contracting project layout, to more effectively implement their program of work. 

Restoration activities will focus on the restoration and enhancement of wildlife habitat and on treating 

high priority acres for invasive terrestrial and aquatic species. 

Longleaf Pine Ecosystem Restoration & Hazardous Fuels Reduction

This project, located on the National Forest of Mississippi, De Soto National Forest, supports

implementation of the restoration plan through high priority, accelerated restoration activities including 

hazardous fuels reduction, pitcher plant bog restoration, and cogongrass (invasive species) treatments. 

Roads will be decommissioned, and roads and trails will be improved and maintained to enhance 

watershed health. 

Missouri Pine-Oak Woodlands

This project is located on the Mark Twain National Forest. Understory thinning will restore pine-oak 

woodlands and generate timber to support local economies. Prescribed fires will also contribute to this 

restoration, while simultaneously reducing the risk of uncharacteristic wildfire and protecting 

communities. In addition, road maintenance and improvements will reduce sediment and enhance aquatic 

habitat. 

Past Performance 

In FY 2012, the CFLRP projects implemented treatments to restore ecosystem resilience and adaptive 

capacity while also generating forest products to help support local infrastructure and economies. 

National targets established for CLFRP were estimates for FY 2012 because: 

• FY 2012 was the first year for full implementation of CFLRP projects under the Act

• Decisions on how to allocate project resources are made locally

• Local CFLRP targets could not be determined before the FY 2013 President’s budget was 

published due to the factors of conceptual design and local decision making

CFLRP project accomplishments contribute to unit and regional accomplishments. CFLRP 

accomplishments will continue to reflect local decision making, in accordance with the Forest Landscape 

Restoration Act (FLRA, Title IV of the Omnibus Public Land Management Act of 2011, P.L. 111-11). 

While annual accomplishment estimates will continue to improve over the 10-year life of CFLRP 

projects, those projects will continue to focus on the strength of local decision making to achieve the 

outcomes of CFLRA, as opposed to accomplishing an estimated national target.

For example, in FY 2012: 55,497 acres of forest vegetation were improved or established (163 percent of 

estimate); 142,661 acres of forest were treated to reduce hazardous fuels in the WUI (230 percent of 

estimate); 216 million board feet (MMBF) of timber was sold (432 percent of estimate); and 354,906 

green tons of woody biomass were made available for bioenergy production (80 percent of estimate). In 

2012 CFLRP projects created or maintained approximately 4,192 jobs, generating an estimated 

$177,433,218 in labor income.

CFLRP is a unique program in that it funds projects with a 10-year life span. Ten of the twenty projects 

have been implementing and monitoring treatments since FY 2010. Over three years (FY 2010 to FY 

2012), these projects sold more than 444.8 MMBF of timber, made 1,157,984 green tons of woody 

biomass available, established or improved 106,665 acres of forest vegetation, decommissioned 249 miles 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-17

of roads, restored or enhanced 363 miles of streams, decreased hazardous fuels in 310,494 acres of the 

WUI, and created or maintained approximately 3,374 jobs in FY 2011, and 4,174 jobs in FY 2012, 

generating almost $272,000,000 in labor income.

Starting in 2011, the Forest Service worked with partners to produce an annual report on all CFLRP 

funded projects, summarizing the accomplishments of each selected proposal beginning in the fiscal year 

that CFLRP funding was first received and annually thereafter for the life of the project. The report 

includes the following information for each project: the size and type of treatment, effectiveness of 

treatments, benefit to local communities, the results from multi-party monitoring, and a summary of 

treatment costs. 

The 2012 annual report is available on the internet at 

http://www.fs.fed.us/restoration/documents/cflrp/CoalitionReports/CFLRP2012AnnualReport20130108.p

df

Program Description

Program Overview

The CFLRP encourages collaborative, science-based ecosystem restoration of priority forest landscapes. 

The CFLRP was authorized by the Omnibus Public Land Management Act of 2009 (Pub. L. 111-11, Title 

IV, March 30, 2009, 123 Stat. 1141). This Act authorizes the ecosystem restoration of priority forest 

landscapes that must be at least 50,000 acres in size, with the aim of recovering resilience and adaptive 

capacity of ecosystems that have been degraded, damaged, or destroyed. 

The CFLRP funds can be matched with appropriated, permanent and trust, or partnership funds, in-kind 

contributions, and restoration treatments funded through timber value within a stewardship contract. The 

CFLRP funds may be used to pay up to 50 percent of the cost of carrying out and monitoring ecological 

restoration treatments that occur on NFS lands. Activities implemented using CFLRP funds include: 

reducing the risk of uncharacteristic wildfire, including the use of fire for ecological restoration and 

maintenance and reestablishing natural fire regimes; improving fish and wildlife habitat; maintaining or 

improving water quality or watershed function; preventing, remediating, or controlling invasions of exotic 

species; maintaining, decommissioning, and rehabilitating roads and trails; and facilitating the removal 

and utilization of woody biomass and small trees produced from projects implementing the strategy. No 

more than $4 million of CFLRP funds can be allocated to an individual project in any one year. Land 

areas for consideration must have a substantially complete restoration strategy, be primarily composed of 

forested NFS land, and be accessed by wood-processing infrastructure to use the woody biomass and 

small-diameter wood removed during ecological restoration treatments.

Investing in CFLRP advances on-the-ground restoration through community-based collaboration, 

implementation, and monitoring. Furthermore, it supports local rural communities through the generation 

of forest products such as timber and biomass for bioenergy production, as well as the creation and 

maintenance of jobs.

Allocation and Integration

A Federal Advisory Committee Act Advisory Panel reviewed CFLRP project proposals and made

recommendations for selection. The Secretary of Agriculture then made the final decision as to which 

projects would receive funding. The amount of CFLRP funds distributed to each project varies depending 

upon the amount requested in the original proposal and the amount of funding allocated to the CFLRP 

from Congress. The CFLRP funds can be spent on up to 50 percent of implementation and monitoring 
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National Forest System 5-18

Results of Forest Treatments on the Mark 

Twain National Forest in Missouri

An aerial photo of the burn area a few weeks 

later shows a much opened canopy.

within the CFLRP project boundary on NFS lands. The other 50 percent of implementation and 

monitoring must be funded by specified matching Forest Service budget line items, funds contributed 

through agreements, partner in-kind contributions, or service work accomplished through goods-for 

services funding with a stewardship contract. Matching budget line items are interdisciplinary, and the 

primary purposes must be consistent with the CFLRP project description and landscape restoration 

strategy. Matching funds can include a combination of appropriated, permanent and trust, or partnership 

funds, in-kind contributions, and restoration treatments funded through timber value within a stewardship 

contract. Determination for qualification of a BLI as appropriate for matching the CFLRP BLI is based 

upon: budget direction primary purpose and definition as a treatment activity necessary to implement a 

landscape restoration treatment in the context of the project restoration strategy.

Partnerships

At the national level, the Forest Service works with the National Forest Foundation (NFF) to provide 

support to the field units. NFF has facilitated several peer-to-peer webinars for CFLRP projects. These 

webinars are designed to facilitate the sharing of information and best practices, and have focused on 

topics such as implementation, collaboration, and multi-party monitoring. The Forest Service also worked 

with field units and partners to develop methodologies for tracking project progress. In June 2011, the 

Forest Service met with interested partners and field representatives to develop indicators of project 

progress to develop the five year report to Congress required by the Act. These indicators cover topics 

including ecology, jobs, fire cost reduction, leveraged funds, and collaboration. Four of these indicators 

were implemented by the Forest Service in FY 2012. The CFLR Coalition, a partner group spearheaded 

by five non-governmental organizations, is taking on the collaboration indicator independently. The 

Forest Service also partnered with the CFLR Coalition to draft a report on the program’s progress in 

November 2011; an updated version of this report was published in late 2012.

Described below are two examples (Missouri Pine Oak Woodland Restoration Project and Four Forest 

Restoration Initiative-4FRI) of how public and non-governmental organizations are working together to 

prioritize and accomplish forest landscape restoration. 

Missouri Pine-Oak Woodlands Restoration Project: All 

Lands Success

On March 26-27, 2012, two Mark Twain National Forest 

Ranger Districts completed prescribed burns totaling 11,758 

acres in the Pineknot and Handy project areas. These areas 

have great importance to the survival of forest interior birds 

and endemic aquatic wildlife, and are a part of the world’s 

largest restorable fire-mediated shortleaf pine-bluestem 

ecosystems. 

What made these burns unique and successful were the 

partnerships developed with local landowners using the 

Wyden Amendment (P.L. 105-277, Section 323 as amended 

by P.L. 111-11, Section 3001). The Wyden Amendment 

authorizes the Forest Service to enter into cooperative 

agreements to benefit resources within watersheds on NFS 

lands. Agreements may be with willing Federal, Tribal, State, and local governments, private and 

nonprofit entities, and landowners.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-19

Coconino National Forest in Arizona

On the Coconino National Forest, a feller 

buncher reduces over-crowding in a Ponderosa 

Pine forest and stacks restoration byproducts to 

be removed for market. Similar activities will 

occur under the new contract. 

The use of private lands allowed for the expansion of the burn unit perimeters to major roads, green 

pastures, and large creeks. The location of the containment lines increased firefighter safety, reduced 

environmental and visual impacts, and created a contiguous area for natural community restoration across 

boundaries and the landscape. Furthermore, by burning a large landscape over a two-day period, local 

communities were affected by smoke for a shorter duration than if prescribed burns were conducted on 

multiple days within the same geographical area.

The cooperation between Missouri Department of Conservation Private Lands Division, which supports 

the program, has augmented the community support in surrounding areas. Mark Twain National Forest 

districts continue to have private landowners interested in partnering and in restoring natural communities 

on their lands. 

The Four Forest Restoration Initiative: Supporting Local 

Economies and Increasing the Pace of Restoration

In 2012, the Four Forest Restoration Initiative awarded the 

largest stewardship contract in Forest Service history. This 

contract will result in 300,000 acres of treatments that will 

improve forest health, reduce the risk from wildfire to 

communities, create jobs and improve local economies. The

expectation is that the cost of restoration will be covered by 

the value of the wood products removed, creating sustainable 

ecosystems and industries over the long term. 

The desired outcome is a forest with groups of trees of similar 

size or age, fewer trees per acre, and openings between 

groups of trees. The groups and openings will be well 

distributed across the landscape. This first entry treatment is 

designed to begin the process of converting these dense, mostly even-aged stands to clumpier, open, 

uneven-aged stands of trees with a vigorous grass and forb understory.

Pioneer Forest Products, the company that received this contract, plans to build a plant near Winslow, AZ,

where they will convert ponderosa pine timber into non-commodity, high value lumber, laminate wood 

panels, door and doorframe, window frames, furniture, cabinetry, and specialty components. They will 

use a portion of the slash from the forest operations and mill waste to fire the kiln used to dry their 

material. The remainder will be used to create bio-diesel fuel at a bio-diesel plant built as part of their 

overall operation.

Pioneer Forest Products estimated they will create approximately 550 jobs in order to fulfill this contract. 

It is estimated there will be about 170 jobs associated with the work in the woods and 380 jobs associated 

with the mill operations.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-20

Restoration Partnerships

Budget Line Item Restoration Partnerships

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Restoration Partnerships

Annual Appropriations 0 0 $10,029 $10,029 0.00%

Restoration Partnerships Total 0 0 10,029 10,029 0.00%

Annual Appropriations FTEs 0 0 35 35 0.00%

Total Full-Time Equivalents (FTEs) 0 0 35 35 0.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Restoration Partnerships

Total value of resources (expressed as a ratio) leveraged 

through partnerships with states and other partners 0.0 0.0 0.0 0.0 0.0 1.1

FY 2014 Program Changes

The FY 2014 President’s Budget proposes a new budget line item, Restoration Partnerships, at 

$10,029,000. The Budget contains $29,000 for pay costs which includes $5,000 for annualization of the 

fiscal year 2013 pay raise and $24,000 for the anticipated fiscal year 2014 pay raise. The pay cost increase 

would enable the program to cover its increased staff costs without reducing the resources available for 

program delivery.

We propose a new $10 million program to create and build partnerships for improving municipal and 

beneficial-use watersheds, reduce risks from wildfire to public utilities and infrastructure, and reduce 

biomass to sustain landscape fuel reduction and watershed investments. This program will include a costshare program that supports the development of partnerships with municipalities, public utilities, and 

other organizations complying with the requirements of the National Environmental Policy Act and 

analysis of the siting and implementation of restoration project proposals, especially those that involve 

energy and electrical transmission corridors.

This program will develop public-private partnerships to reduce risk to fire prone communities, protect 

and enhance water quality in municipal watersheds and beneficial use watersheds and for other public 

service utilities; and help maintain and restore resilience to aquatic ecosystems through the agency’s 

Watershed Condition Framework (WCF). Eligible for restoration partnership funding will be national 

forests that largely comprise a municipal watershed’s area or that have special use utility permits. Those 

national forests identified as having priority partnership actions within the WCF will also be eligible. 

Many public utilities are authorized on or adjacent to national forests. Hazardous fuel loading and 

associated wildfire present common risk to electrical service throughout rural communities, as wildfires 

can burn into utility corridors and cause outages. This program will support Restoration Partnership 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-21

projects reducing fire risk through hazardous fuels reduction, forest thinning, and similar vegetative 

activities to protect and enhance water quality and reduce risk to utility investments. These project 

activities will also provide ancillary benefits for public recreation and trails, as well as fish and wildlife 

management.

Restoration Partnerships emphasizes the critical role of non-Forest Service resources across projects 

diverse in scope and duration to improve municipal water quality protection, reduce risks associated with 

other public utilities in meeting contemporary restoration needs, and reduce live and dead vegetation fuels 

in order to sustain watershed investments and landscape fuel reduction by changing and removing the 

size, component structure, and distribution of accumulated vegetation. These projects may incorporate 

partnerships underway such as Western Utilities Fuel Reduction and Fire Protection Partnership where

the Forest Service and Western Utilities Group have formed a contemporary partnership to increase 

vegetation management efforts outside of transmission right-of-ways. Also, the Western Watershed 

Enhancement Partnership, with the Bureau of Reclamation, showcases shared Federal cooperation in 

establishing pilot projects designed to improve watershed functions and reduce the risk of 

uncharacteristically severe wildfire.

Past Performance

This is a newly proposed budget line item and as such, there is no past performance on which to report. 

We will track the total value of resources (expressed as a ratio) leveraged through partnerships with States 

and other partners.

Program Description

Restoration Partnership Program Overview

For a century, the Forest Service has maintained a commitment to working with a variety of organizations 

and interests while fulfilling our motto of “caring for the land and serving people”. This program will 

focus on expanding public-private partnerships and serve as a catalyst to stimulate a number of high 

profile partnerships ready for development. Developing innovative partnerships involving more diverse 

people and organizations is an essential mechanism for achieving social, economic, and ecological goals 

associated with public lands and dependent local municipalities. We exercise many creative and 

innovative approaches to address place-based needs and opportunities and to promote healthy and vibrant 

watersheds, forests, grasslands, and communities. These opportunities for partner engagement include not 

only funding support, but significant volunteerism and in-kind contributions across the country in areas 

where partner and Forest Service interests intersect. Expanding public-private partnerships, and the strong 

and enduring relationships they build, are essential to assuring that the National Forests and Grasslands 

continue to offer the myriad of benefits the American public has come to expect from them. This new 

budget line item will support the agency’s objectives as outlined in the agency’s initiative to accelerate 

landscape restoration to:

• Save time and money

• Make better use of available resources through leveraging

• Engage youth and underserved communities through public land corps involvement 

• Increase delivery of goods and services

• Broaden public and stakeholder support for mission delivery through the use of partnerships 

• Increase leadership alignment, both within the agency and with federal partners in order to 

facilitate comprehensive discussion/engagement across the agency

• More effectively and efficiently implement national policy and programs
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-22

This program will be delivered through the Agency’s Watershed Condition Framework, placing emphasis 

in at least two key areas:

Municipal and Beneficial Use Watersheds - A national forest that largely comprises a municipal 

or beneficial use watershed (used for irrigation, recreation, fisheries and other non-culinary water 

uses) area will be eligible for restoration partnership funding. Forest Service regions will be able 

to respond affirmatively to beneficial partner sponsored projects ranging from reducing fire risk 

and implementing watershed restoration to protect and enhance water quality while providing 

ancillary benefits for public recreation and trails, as well as fish and wildlife management.

Utility Corridors - This restoration program includes a wide and diverse scope of projects and 

durations, and emphasizes the critical role of non-Forest Service resources to improve municipal 

water quality protection or reduce risks associated with other public utilities in meeting 

contemporary restoration needs. Additionally, there are important benefits of vegetation 

management outside of utility corridors in terms of reducing fire risk through hazardous fuels 

reduction and biomass energy production, as well as, developing new technologies. 

Allocation and Integration

Funding for both Restoration Partnership activities will be competed among the regions using project 

criteria and selection determined by the Chief of the Forest Service.

Within Restoration Partnerships, funding will be allocated to a cost-share program and to partnership 

development. Partnership development funding will allow the agency to continue fostering an efficient 

NEPA process by focusing on improving agency policy, quality assurance, learning, and appropriate use 

of technology to deliver NEPA analysis more efficiently. This new partnership authority will be used to 

help analyze, approve, and monitor the implementation of proposals by users and special use permittees. 

Additionally, work will be done to explore options within current authorities such as Cost Share and 

Stewardship Contracting to mitigate concerns or create new opportunities.

Partnerships

The Restoration Partnerships program will enable regions and forests to act on innovative partner 

supported ideas, with diverse partners and a variety of public service utilities. The projects supported will 

expand the success of smaller scale projects to much larger landscapes; they will grow the circle of 

partners to include more and a broader number of municipal, utility, and NGO partners. The projects will 

build on a greater public appreciation of the ecosystem services and benefits that accrue to communities 

from the agency’s watershed condition framework, and they will increase the contribution of major 

partners and congressionally chartered foundations including the National Forest Foundation, the National 

Fish and Wildlife Foundation, and the National Environmental Education Foundation. 

This new authority will help the agency to achieve restoration based outcomes including:

• Active involvement in restoration objectives across the agency

• Acreage and volume goals outlined in the February 2012 document “Increasing the Pace of 

Restoration and Job Creation on Our National Forests” are achieved

• Sound, comprehensive, and science-based restoration work is implemented on the National 

Forests on a trajectory that ultimately achieves the pace and scale necessary to counter current 

trends: ever-increasing large-scale wildfires, insect and disease outbreaks, drought, and growing 

impacts from invasive species, all exacerbated by a changing climate and increasing human use
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-23

• Focus on landscape-scale restoration treatments that are developed collaboratively, with an alllands approach, and incorporate social, economic, and ecological considerations

• Partnership involvement and support results in a significant increase in accomplishments without 

additional appropriated funding

• Efficiencies in project planning processes and implementation result in reduced cost and 

increased accomplishments

Several models for emerging public-private partnerships and a sampling of potential candidates for the 

program are introduced below: 

Water Quality and Quantity - To be truly effective, watershed-based restoration efforts in fire risk 

communities require the involvement of partners; local, State, Tribal, other Federal agencies, 

interest groups, and citizens. The WCF provides ample opportunity for such partner involvement. 

The Forest Service and its partners recently finished classifying over 15,000 national forest 

watersheds through a nationally consistent, comparable, and science-based approach to help 

prioritize restoration projects. Partners and forests will work together to develop and implement 

priority watershed restoration action plans where national forests function as municipal 

watersheds. 

Municipalities and utilities represent two classes of increasingly supportive partners for Forest 

Service projects to protect key sources of water and utility investments. In one southwestern city, 

the city government has entered into a collection agreement for $900,000 to support Forest 

Service work in the municipal watershed. Individual rate-payers fund the city’s investment 

through a “payment for watershed services” strategy designed by a consortium of partners, 

including the Forest Service. Elsewhere in the West, major water utilities have partnered with the 

Forest Service and other corporate and non-profit partners to invest significantly in watershed 

restoration projects that protect and restore their water resource. In one region, a suite of partners 

will contribute nearly $20 million to help the Forest Service mitigate the pine beetle epidemic, 

reduce the risk of catastrophic wildfires, improve water quality, and restore areas burned by past 

wildfires.

Community and Corporate Investments in Restoration - Working together, the partners are able to 

develop agreements and joint funding mechanisms to make the forests more resilient to 

environmental stresses and uncharacteristically severe wildfire and restore impacted landscapes. 

Cities at risk from fire damage and flooding stand ready to commit considerable resources to the 

restoration of their local landscapes. Similarly, corporations have made multiple investments to 

support re-forestation and water quality enhancements in areas severely burned by wildfire. One 

corporation has provided approximately $3 million to support two re-forestation projects that will 

generate voluntary carbon sequestration offsets. Through the Restoration Partnerships program,

forests will be equipped to accommodate and encourage these commitments made by their 

surrounding neighbors and businesses.

Two new relative examples of enabling partnerships include:

Western Utilities Fuel Reduction and Fire Protection Partnership – Wildfire has impacted electric 

transmission both at the local community level and on a national scale. These increasingly 

volatile fires have also resulted in significant impacts on National Forest System lands and 

adjacent lands, including loss of resources at a great financial and personal cost to many. The 

Forest Service and Western Utilities Group are working together in this new partnership to 

increase vegetation management efforts outside of transmission rights-of-way. The Forest Service 

has assembled a comprehensive team from various staff, to develop pilot sites and implement 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-24

initial projects. Goals of such projects are to: (1) treat and restore Forest Service lands; (2) 

enhance financial leverage for Forest Service funds going toward vegetation and fuels 

management; (3) reduce risk to transmission lines and other utility infrastructure; (4) reduce 

disruption to transmission line capacity and infrastructure; and (5) avoid costs for repair and 

replacement of utility infrastructure. Additionally, there may be added cost benefit in working 

across Forest Service deputy areas to develop and implement wood-to-energy technologies. 

Western Watershed Enhancement Partnership – By filtering rain and snowmelt and regulating 

runoff and soil erosion, healthy forests provide drinking water to millions of people and the 

environment. The Forest Service and the Bureau of Reclamation have begun a new chapter of 

Federal cooperation, embarking on a national Memorandum of Understanding and several pilot 

projects designed to improve watershed functions and reduce the risk of uncharacteristically 

severe wildfire. Working collaboratively with water users, the pilot project program is in the 

process of outlining partnership action plans and potential restoration projects that will realize the 

goals of this new high-performance partnership and reap the benefits of the avoided-cost 

approaches, leveraging other Forest Service investments with partner contributions.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-25

Land Management Planning, Assessment and Monitoring

Budget Line Item Land Management Planning, Assessment & 

Monitoring

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Annual Appropriations

Inventory and Monitoring $161,721 $162,711 0 -$162,711 -100.00%

Land Management Planning 39,936 40,180 0 -40,180 -100.00%

Land Management Planning, Assessment & 

Monitoring 0 0 $184,781 184,781 0.00%

Land Management Planning, Assessment & 

Monitoring Total 201,657 202,891 184,781 -18,110 -8.93%

Annual Appropriation FTEs

Inventory and Monitoring 1,010 1,010 0 -1,010 -100.00%

Land Management Planning 271 271 0 -271 -100.00%

Land Management Planning, Assessment & 

Monitoring 0 0 1,238 1,238 0.00%

Total Full-Time Equivalents (FTEs) 1,281 1,281 1,238 -43 -3.36%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Land Management Planning, Assessment & 

Monitoring

Number of land management plan amendments 

underway 41 33 26 38 26 20

Number of land management plan revisions or creations 

underway 20 19 28 23 25 16

Acres of inventory data collected and acquired 32,882,996 44,871,472 20,078,000 30,489,750 20,078,000 16,650,000

Number of annual monitoring requirements completed 1,387 1,464 1,350 1,542 1,350 1,158

Number of land management plan assessments 

completed 62 58 38 49 38 21

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $184,781,000, for the Land Management Planning, 

Assessments, and Monitoring Program, a net program decrease of $18,110,000 from the FY 2013

Annualized CR. The Budget contains $1,023,000 for pay costs which includes $167,000 for annualization 

of the fiscal year 2013 pay raise and $856,000 for the anticipated fiscal year 2014 pay raise. The pay costs 

increase would enable the program to cover its increased staff costs without reducing the resources 

available for program delivery.

The FY 2014 President’s Budget proposes consolidating the Land Management Planning and Inventory 

and Monitoring programs into one budget line item. The net amount was calculated using the combined 

totals from FY 2013 Annualized CR as illustrated in the table below. 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-26

Land Management Planning, Assessment, and Monitoring Consolidated Budget Line Items 

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Enacted

FY 2013 

Annualized 

CR Change

FY 2014 

Pres Bud

NFS Land Management Planning, 

Assessment, and Monitoring - - $184,781 $184,781

NFS Land Management Planning 39,936 40,180 (40,180) -

NFS Inventory and Monitoring 161,721 162,711 (162,711) -

Total $201,657 $202,891 ($18,110) $184,781

The consolidation was first proposed in the FY 2012 President’s Budget. Forest Service management 

occurs around a continuous cycle of assessing, planning at multiple levels, implementing and adjusting 

programs and projects based on information acquired through integrated inventory and monitoring 

activities. The proposed BLI provides the agency flexibility to implement the requirements of the 2012 

Planning Rule which includes an increased focus on agency assessment and monitoring activities, 

although we will still track performance and funding allocated to historic activities. Under the proposed 

BLI, critical work would not be constrained by insufficient funds in one activity that would otherwise 

prevent successful implementation of the full range of activities in the management cycle. The need to 

integrate regional and local monitoring and assessment activities with unit planning efforts can be 

accomplished more effectively and efficiently under the proposed budget line item. These efficiencies 

help achieve plan revisions in three to four years instead of the five to six years it currently takes.

The 2012 Planning Rule has been developed under 36 CFR 219 and replaces the 2008 Planning Rule 

invalidated by the Federal district court decision in Citizens for Better Forestry v. USDA, 632 F.Supp. 2d 

968 (N.D.Cal., 2009). The 2012 Planning Rule promotes a collaborative science-based approach for 

planning, monitoring, and conducting assessments that considers information from and about “All Lands” 

affected by, or influencing, planning unit activities. National Forest System (NFS) units work with 

counterparts in Research and Development and State and Private Forestry, as well as with the public, 

Tribes, and other partners, to revise and amend plans, develop unit and regional monitoring programs and 

strategies, conduct assessments in advance of plan revisions, and ensure that inventories, data 

management, and corporate data systems support these and other business requirements. 

Management priorities and actions funded under each activity area include:

Land Management Plan Revisions and Amendments - The FY 2014 President’s Budget includes 

funds for the creation, revision, and amendment of land management plans (LMPs). Funding 

supports LMP revisions required under the National Forest Management Act (NFMA). These 

funds will allow continued assessment and revision work on 22 land management plans including 

six currently scheduled for completion by the end of FY 2014. The agency will continue to 

improve its capacity to revise LMPs and implement the other provisions of the 2012 Planning 

Rule. In addition, the agency amends, corrects or adjusts, as needed, the plans not currently under 

revision, focusing on completing amendments to address critical issues and decisions, including 

energy corridors, integrated forestry, travel management plans, and watershed restoration 

opportunities. This funding level supports work on 20 LMP amendments. 

Assessments and Monitoring - The FY 2014 President’s Budget funds inventory, monitoring and 

assessment work on national forests and grasslands in support of LMP revisions, amendments, 

and other agency priorities. The agency also integrates and improves databases and ensures that 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-27

all existing and newly acquired data resides in a centralized repository which supports the 

efficient implementation of the 2012 Planning Rule and other programs requiring forest-wide 

inventory data. Assessments conducted in advance of LMP revisions determine the need to 

change direction in existing plans. The agency will complete 21 assessments in FY 2014. 

The 2012 Planning Rule establishes a planning framework that emphasizes developing 

collaborative, science-based unit-monitoring programs and broad-scale monitoring strategies at 

the regional and national level to address high-priority resource questions, conditions, and issues. 

These could include watershed and ecological conditions, focal species, visitor use and recreation 

objectives, influences from a changing climate, and other local, regional and national objectives. 

This multi-tiered approach highlights ecological, social, and economic trends and conditions 

relevant to LMPs. The approach also generates efficiencies in data collection, mapping, storage, 

reporting, and use. Units will be completing and compiling monitoring information prior to 

initiating revisions or amendments in order to assess plan direction and identify resource issues. 

Past Performance

Number of land management plan amendments underway (146 percent of target accomplished). In FY 

2012 NFS units had 38 plan amendments underway. Additional amendments were initiated to address the 

sage grouse habitat issue in the Idaho, Nevada, Utah and Wyoming. The agency continues to expect that 

the number of major amendments underway and completed during the next two to three years will 

stabilize as the agency transitions to the requirements under the 2012 Planning Rule. 

Number of land management plan creations or revisions underway (82 percent of target accomplished).

In FY 2012, the agency was working on 20 plan revisions using the 1982 procedures under the 2000 

Planning Rule. Initial assessment activities were also started on eight Early Adopter units that are 

implementing the requirements of the 2012 Planning Rule. However, these eight units could not officially 

commence planning work in FY 2012, and thus, could not correctly claim target accomplishment for 

revisions underway. As a result, the correct target for revisions underway in FY 2012 should have been 

20. The assessment work begun in advance of initiating revisions on these eight units could be claimed as 

target accomplishment for the Assessments Completed performance measure. Plan revision work on the 

20 units using the 1982 procedures resulted in three revision completions in FY 2012 with another six

units expected to be completed in FY 2013. 

Acres of inventory data collected and acquired (152 percent of target accomplished). In FY 2012 the 

agency inventoried over 30 million acres. Additional acreage was accomplished on several units due to an 

increase in the migration of legacy data from digital or hardcopy sources into corporate applications and 

the purchase or acquisition of remote sensing data from external sources. Inventory data supported 20 

plan revisions, 38 amendments, assessments and other agency priorities. 

Number of land management plan assessments complete (129 percent of target accomplished). In FY 

2012, the agency completed 49 plan assessments, many of which reflect anticipation of the 2012 Planning 

Rule. Assessments are a key initial step for determining the need to revise or amend plans in response to 

changing ecological, social and economic conditions and for collaborating with the public.

Program Description

Program Overview

The Land Management Planning, Assessments and Monitoring program funds the inventory, monitoring, 

and assessment activities that are integral to the development, maintenance, and revision of Land 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-28

Management Plans (LMPs). The program funds the acquisition, analysis, and storage of data that supports 

planning and a variety of other business requirements and resource management needs of the agency. 

A LMP provides broad guidance for identifying, prioritizing, and implementing the programs and projects 

that move a NFS unit towards achieving desired conditions and agency objectives. Collaboration with the 

public and partners results in plans that address a wide variety of programs and issues. Goals and 

objectives may include adapting to changing climate conditions, ensuring abundant clean water, providing 

recreation opportunities, restoring and maintaining forest and rangeland ecosystems, and improving 

priority watersheds across larger landscapes. 

The National Forest Management Act (NFMA) requires that each unit of the NFS have a LMP that is 

formally revised every 10 to 15 years to address changing conditions and new information related to 

natural resources, management goals, and public use. The Forest Service has developed 125 LMPs to

guide the management of 155 national forests, 20 grasslands, and other unique units of the NFS. Since the 

late 1980s, the agency has revised 59 LMPs, about 48 percent of the total. 

The agency funds and conducts inventory, monitoring, and assessment activities that are designed and 

integrated to meet land management planning and other business requirements. This program also 

supports the development, maintenance, and coordination of numerous corporate applications and 

systems that support resource information storage and analysis needs of the agency. 

Examples of data collected through inventory and monitoring activities, analyzed in assessments, and 

used for planning and restoration purposes include: vegetation conditions; wildlife habitat; social and 

economic conditions and impacts; air, water and soil quality; recreation visitor use; and potential impacts 

to climate. Inventory activities help establish baselines of information that are used to identify, prioritize, 

and frame objectives for achieving desired conditions through restoration programs and activities. 

Assessments consider and evaluate social, economic and ecological conditions, trends and future 

management opportunities for the unit. Monitoring provides information for evaluating progress towards 

achieving objectives. 

Specific program objectives needing information resource support include:

• Planning for the management of land and other resources

• Enhancing scientific understanding of ecosystems 

• Fulfilling agreements for conducting inventory and monitoring activities with partners

• Providing data, information, and analyses to decision makers in response to current management 

needs and emerging issues

• Providing information necessary to assess efficacy and responsiveness of Forest Service 

programs

• Supporting cost-effective program delivery

This program is delivered through the following major activities:

Land Management Plan Revisions and Amendments - This activity includes all planning 

activities associated with LMP revisions, creations, amendments, corrections, and other plan 

maintenance identified in the current planning rule. This includes: collaboration and public 

involvement; development of LMP components; conducting any analyses after legal notice 

initiating an amendment or revision; development and evaluation of alternatives; preparation of 

draft and final environmental impact statements; content analysis of public comments; and 

resolving appeals, litigation, and objections to the LMP. 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-29

Assessments and Monitoring - This activity includes the inventory, assessments, and monitoring 

essential to the development, amendment, or revision of LMPs. Resource inventories are 

designed to meet LMP requirements and other management needs of the agency. Resource 

inventory activities include data collection and acquisition; data entry, including migration of 

legacy data, and storage in corporate systems; data evaluation and analyses to ensure accuracy 

and determine data classifications; documentation and implementation of quality control 

procedures and compilation of metadata; and resource mapping. LMP development and revision 

assessments evaluate current and desired resource conditions and trends for the unit at appropriate 

scales. These assessments rapidly evaluate existing information about relevant ecological, 

economic, and social conditions, trends and sustainability and their relationship to the LMP 

within the context of the broader landscape. LMP implementation assessments assist in 

identifying and locating projects and activities designed to achieve plan objectives. Monitoring 

and evaluation assists in determining if there is a need to change direction in an LMP. Both 

implementation and effectiveness monitoring are needed to evaluate progress towards achieving 

desired LMP conditions and objectives. The development and implementation of broader scale 

monitoring strategies assist in obtaining information on specific resource issues that need to be 

addressed consistently at the regional or national level.

Allocation and Integration

Integrated allocations for this program are based on several factors related to each activity. These include 

the number of LMPs in each region that are under revision, the number of plans in a non-revision or 

maintenance mode, and the number of units and total acreage in each region. Priority for allocating funds 

for planning is given to those units revising their LMPs under the current planning rule. Funding is also 

provided for inventory, assessment, and monitoring activities which support land management planning 

under the 2012 Planning Rule. Additional funding may also be allocated to field units conducting roadless 

area evaluations. Adjustments may be made among regions based on regional capability or to mitigate 

situations where a proposed allocation would create undesirable transition effects. Coordination with 

other programs with responsibility for inventory, monitoring and assessments ensures that appropriate 

direction, funding, and performance expectations are included in agency program and information 

resource direction.

Partnerships

Collaboration with partners and the public is critical to developing, revising or amending LMPs, 

conducting assessments and developing and implementing a monitoring program. Collaborative activities 

assist in identifying needs, establishing desired conditions, crafting alternatives or scenarios for future 

management, and identifying information needs and monitoring requirements.

For plan development, revision, and maintenance activities, agency field units work closely with citizens 

and organizations with an interest in how the land is managed. The agency also works with Federal, 

regional, and local partners to inventory and monitor its lands. Within the Federal Geographic Data 

Committee, the agency has the lead responsibility to work with other agencies to set standards for 

vegetation classification. It also works with governmental and nongovernmental partners to collect data 

and set inventory and monitoring protocols for consistent data collection methods.

See next page for the Land Management Plan Revision Schedule.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-30

Land Management Plan Revision Schedule 

Creations and Revisions Completed prior to FY 2013 (Total =59)

R-1 Beaverhead-Deerlodge R-5 Los Padres R-9 Allegheny 

R-1 Dakota Prairie NG R-5 San Bernardino R-9 Chequamegon-Nicolet 

R-2 Arapaho-Roosevelt R-5 Sequoia NM R-9 Chippewa 

R-2 Black Hills R-8 Chattahoochee-Oconee R-9 Finger Lakes 

R-2 Bighorn R-8 Cherokee R-9 Green Mountain 

R-2 Medicine Bow R-8 Croatan R-9 Hiawatha

R-2 Nebraska R-8 Daniel Boone R-9 Hoosier 

R-2 Rio Grande R-8 Francis Marion R-9 Huron-Manistee 

R-2 Routt R-8 Jefferson R-9 Mark Twain 

R-2 Thunder Basin NG R-8 Kisatchie R-9 Midewin National 

R-2 White River R-8 El Yunque Tallgrass Prairie (new plan) 

R-3 Cibola NG R-8 Land Between the R-9 Monongahela

R-4 Boise Lakes NRA (new plan) R-9 Ottawa 

R-4 Caribou R-8 NFs in Alabama R-9 Shawnee 

R-4 Payette R-8 NFs in Florida R-9 Superior

R-4 Sawtooth R-8 NFs in Texas R-9 Wayne 

R-4 Targhee R-8 Ouachita R-9 White Mountain

R-4 Uinta R-8 Ozark-St. Francis R-10 Chugach

R-4 Wasatch-Cache R-8 Sumter R-10 Tongass

R-5 Angeles R-8 George Washington

R-5 Cleveland R-8 Uwharrie 

Revisions and Early Adopter Assessments Underway in FY 2013 (Total = 25) 

R-1 Idaho-Panhandle* R-3 Coronado** R-6 Okanogan-Wenatchee 

R-1 Kootenai* R-3 Kaibab* R-6 Umatilla

R-1 Clearwater R-3 Prescott** R-6 Wallowa-Whitman

R-1 NezPerce R-5 Lake Tahoe Basin* R-8 NFs in Mississippi**

R-2 San Juan* R-5 Sequoia NF# R-8 El Yunque

R-2 Shoshone** R-5 Sierra# (2nd revision)

R-3 Apache-Sitgreaves** R-5 Inyo# R-8 George Washington*

R-3 Cibola NF# R-6 Colville (2nd revision)

R-3 Coconino** R-6 Malheur R-10 Chugach (2nd Revision)

* Expected completions in FY 2013 (6)

** Expected completions in FY 2014 (6)

# Conducting assessments; Notice of Intent to Revise LMP expected in early FY 2014 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-31

Revisions starting in FY 2014 and Beyond (Total = 46)

R-1 Bitterroot R-4 Ashley R-5 Stanislaus

R-1 Custer R-4 Bridger-Teton R-5 Tahoe

R-1 Flathead R-4 Dixie R-6 Deschuttes

R-1 Gallatin R-4 Fishlake R-6 Fremont-Winema 

R-1 Helena R-4 Humboldt-Toiyabe R-6 Gifford Pinchot

R-1 Lewis & Clark R-4 Manti-La Sal R-6 Mt. Baker-Snoqualmie 

R-1 Lolo R-4 Salmon-Challis R-6 Mt. Hood

R-2 Cimarron-Comanche NG R-5 Eldorado R-6 Ochoco

R-2 Grand Mesa, R-5 Klamath R-6 Olympic

 Uncompahgre, Gunnison R-5 Lassen R-6 Rogue River

R-2 Pike-San Isabel R-5 Mendocino R-6 Umpqua

R-3 Carson R-5 Modoc R-6 Siskiyou

R-3 Gila R-5 Plumas R-6 Siuslaw

R-3 Lincoln R-5 Shasta-Trinity R-6 Willamette

R-3 Santa Fe R-5 Six Rivers R-8 Nantahala-Pisgah

R-3 Tonto R-8 Francis Marion

There will be 21 LMP revisions underway (Notice of Intent published) in FY 2013. Seventeen of those 

are using the 1982 procedures under the 2000 Planning Rule. Eight “Early Adopter” units began 

assessment work in FY 2012 in advance of initiating revisions under the 2012 Planning Rule. Four of 

these units will initiate their revisions in FY 2013 and four in FY 2014. An additional three units will 

begin assessment work in FY 2013 in advance of initiating revisions in FY 2014. The units initiating 

assessment work in FY 2012 (Early Adopters) and FY 2013 are:

FY 2012 and FY 2013 Early Adopters List

FY Assessment Initiated Region Unit State

2012 1 Clearwater NF Idaho

2012 1 Nez Perce NF Idaho

2012 5 Inyo NF California

2012 5 Sequoia NF California

2012 5 Sierra NF California

2012 3 Cibola NF New Mexico

2012 8 El Yunque NF Puerto Rico

2012 10 Chugach NF Alaska

2013 1 Flathead NF Idaho

2013 8 Francis Marion NF South Carolina

2013 8 Nantahala-Pisgah NF North Carolina
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-32

Recreation, Heritage and Wilderness

Budget Line Item Recreation, Heritage, and Wilderness

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Recreation, Heritage, and Wilderness

Annual Appropriations $281,176 $282,897 $260,796 -$22,101 -7.81%

Recreation, Heritage, and Wilderness Total 281,176 282,897 260,796 -22,101 -7.81%

Annual Appropriations FTEs 2,231 2,231 2,171 -60 -2.69%

Total Full-Time Equivalents (FTEs) 2,231 2,231 2,171 -60 -2.69%

Recreation, Heritage, and Wilderness

Manage Recreation Operations 154,701 155,157 143,285 -11,872 -7.65%

Administer Recreation Special Use 

Authorizations 44,403 44,872 41,267 -3,605 -8.03%

Manage Heritage Resources 33,774 33,983 31,326 -2,657 -7.82%

Manage Wilderness & Wild & Scenic Rivers 48,298 48,885 44,918 -3,967 -8.11%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Recreation, Heritage, and Wilderness

Number of recreation site capacity (PAOT days) 

operated to standard 88,711,234 86,575,330 86,575,330 83,127,395 88,115,038 74,080,790

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 66.7% 76.8% 100.0% 79.0% 100.0% 100.0%

Number of recreation special use authorizations 

administered to standard 14,772 13,308 13,300 13,784 14,098 12,279

Number of wilderness areas managed to minimum 

stewardship level 176 220 279 307 309 365

Number of wild and scenic river areas meeting statutory 

requirements 46 42 44 53 44 57

Number of heritage programs managed to standard 0 0 65 77 80 61

Heritage program score 0 0 4,452 5,108 5,414 4,130

Customer satisfaction with value for fee paid 83.0% 83.0% 85.0% 83.0% 80.0% 80.0%

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $260,796,000 for the Recreation, Heritage and Wilderness 

program, a decrease of $22,101,000 from the FY 2013 Annualized CR. The Budget contains $1,795,000 

for pay costs which includes $293,000 for annualization of the fiscal year 2013 pay raise and $1,502,000 

for the anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover 

its increased staff costs without reducing the resources available for program delivery.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-33

This program implements the Framework for Sustainable Recreation which is the Forest Service’s 

commitment to the President’s America’s Great Outdoors and the First Lady’s “Let’s Move” Initiatives. 

As a part of this effort, the recreation program will focus on improved operation and maintenance of 

recreation facilities, the continued enhancement of Recretion.gov, volunteer and youth programs, the 

Travel Management Rule, the National Travel and Tourism Strategy, and the 10-Year Wilderness 

Stewardship Challenge (10YWSC). 

Promoting America’s Great Outdoors 

In support of the President’s America’s Great Outdoors Initiative, the Forest Service expands recreation 

opportunities for youth and diverse populations, supports job creation through youth conservation corps, 

and expands opportunities for private sector outfitters and guides, ski areas and resorts that operate on the 

National Forest System (NFS). We also improve recreational access, a major goal of AGO. 

The Federal Interagency Council on Outdoor Recreation (FICOR) was established in accordance with the 

America’s Great Outdoors (AGO) Report. As a charter member and 2013 chair of the FICOR, we aim to 

increase coordination and collaboration among the Federal land and water agencies to increase 

efficiencies and provide more seamless visitor experiences. On January 9, 2012, the President signed an 

Executive Order establishing a new Task Force on Travel and Competitiveness. We will continue to 

engage a diverse array of recreation stakeholders to encourage their ongoing input to implement better 

cooperative recreation management. We will increase access to recreation information by making 

improvements to Recreation.gov by expanding its web-based information and use of other technologies 

such as smart phone applications. These improvements enhance trip-planning and link to local and 

regional itineraries as well as the National Travel and Tourism Strategy and AGO goals. We will also 

continue working with others to identify our gaps in visitor information and to leverage resources to 

conduct market research. This research in the short-term, when coupled with our National Visitor Use 

Monitoring, will illuminate gaps between what domestic and international visitors expect and what we are 

currently offering.

By greening our operations, we reduce our environmental footprint while maintaining a comparable level 

of service to the public and helping to protect recreation opportunities for generations to come. We are 

also working to diversify recreation offerings, including those delivered by special use permittees. 

The AGO listening sessions identified peoples’ desire for more user friendly access to their rivers, 

waterways and wild places. In response we will continue to work to forge stronger connections between 

Framework for Sustainable Recreation

Launched in January 2011, this guiding tool recognizes that outdoor recreation experiences are the best way to connect 

people to their natural and cultural heritage, promote healthy lifestyles, and provide economic benefits to communities, 

States, and the Nation as a whole. The Forest Service is thus taking a collaborative, community-focused approach to 

recreation to provide environmental integrity, social stability, and economic vitality to communities near the National 

Forest System (NFS). As the Forest Service moves into revising Forest Plans under the 2012 Planning Rule, this 

Framework will guide forests to:

• Restore recreation settings affected by declining forest health or unmanaged recreation and adapt them to meet 

America’s needs

• Integrate services and access to community parks and open spaces, State lands, and the NFS

• Forge strategic partnerships with nonprofit organizations, volunteers, the private sector, and other Federal 

providers to integrate resources and operate more efficiently.
FY 2014 Budget Justification USDA Forest Service

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communities and Wilderness and Wild and Scenic Rivers using assistance from partner groups. For 

example, the National Wilderness Stewardship Alliance and its members, American Rivers, and others 

are helping us engage the public and implement the Wilderness Character Monitoring protocol and the 

10YWSC. The Arthur Carhart Interagency Wilderness Training Center and the Aldo Leopold Wilderness 

Research Institute continue their efforts to provide education and research that directly supports 

ecosystem health, resilience, and restoration of Wilderness and Wild and Scenic Rivers.

The 2014 President’s Budget provides funds for Volunteer and 

Youth programs. These funds provide public service opportunities 

for people of all races, age, and socio-economic backgrounds. In 

FY 2012 more than 106,000 volunteers contributed service valued 

at $93 million, representing a 6 percent increase above FY 2011 

levels. They produce significant long-term benefits by building a 

knowledgeable and energetic constituency base for natural 

resources and the agency’s mission. The program is delivered 

through volunteers, Youth Conservation Corps, and hosted 

Programs. Hosted program organizations such as the Greening 

Youth Foundation, Student Conservation Association, 

AmeriCorps, Los Angeles Conservation Corps, Southwest 

Conservation Corps, and others work with the agency to offer public service opportunities to connect 

youth with nature and prepare the next generation of conservationists. Over 80 percent of these 

contributions have been in the areas of recreation, trails, and wilderness. Invasive species control, 

disturbed landscape restoration, hazardous fuels reduction, reforestation, and erosion control continue to 

be growth areas.

The Recreation, Heritage and Wilderness program is subdivided into four activities; specific priorities 

within each activity include:

Manage Recreation Operations - The FY 2014 President’s Budget provides funding for 

Recreation Operations. While integrating key concepts of the Framework for Sustainable 

Recreation, we will provide to the public such services as, campgrounds, cabins, lookouts, 

reservations, visitor centers, picnic areas and other day use sites, interpretive and heritage 

services, outfitter guides and recreation events. 

Implementation of route and area designations for motor vehicle use, reflected on Motor Vehicle 

Use Maps (MVUMs), helps us sustain critical watersheds and ecosystems in the face of climate 

change, and enables us to provide recreation opportunities for Off-Highway Vehicle enthusiasts. 

The Forest Service’s Route and Area Designation Implementation Guide identifies four activities 

for focus: Education, Engineering, Enforcement, and Evaluation. 

Completing MVUMs has taken longer than anticipated due to the need for more public 

involvement and collaboration. Public controversy, appeals, and litigation has delayed producing 

some MVUMs. At the end of FY 2012 approximately 79 percent of NFS administrative units had 

completed route and area designations for motor vehicle use. We will continue our efforts to 

complete all remaining MVUMs in FY 2013 and 2014. 

We engage stakeholders, youth, and volunteers as we implement the America’s Great Outdoors 

Initiative, the National Travel and Tourism Strategy, and the Framework for Sustainable 

Recreation. Our coordination with Federal, State, local agencies, and stakeholders provides 

efficiencies in planning and delivers improved access to recreation opportunities on NFS lands. 

These efforts support community based outdoor recreation and sustainable tourism development, 

Recreation Contributes $13.6 Billion 

to National Gross Domestic Product

Each year, outdoor recreation and 

tourism, including hunting and fishing, 

contributes about $13.6 billion dollars 

and 205,000 jobs to the economies of 

communities within 50 miles of the 

National Forests and Grasslands. This 

comprises around 40 percent of the 

Forest Service’s contribution to the 

Gross Domestic Product.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-35

resulting in job creation and economic expansion. We will also expand our partnerships and 

volunteer programs to build inclusive support to restore and conserve our resources and improve 

public access and employment opportunities.

Administer Recreation Special Use Authorizations - The FY 2014 President’s Budget provides 

funds for Recreation Special Use Authorizations. With these funds we will prioritize monitoring 

and inspections to focus our limited staffing resources on situations where, if noncompliance 

occurs, it is more likely to have an adverse impact. Additionally, we will align inspection 

priorities with work necessary to process expired authorizations. Special use authorizations are an 

important tool for delivering services on the national forests and grasslands, and we anticipate an 

increase in requests for uses on NFS lands in response to the Ski Area Recreational Opportunity 

Enhancement Act of 2011. This authority is intended to allow ski resorts on NFS land to offer 

recreational activities year round. The year-long recreation season could sustain up to 600 extra 

jobs and could raise up to an additional $40 million for local communities in direct spending, 

annually (projections based on Forest Service National Visitor Use Monitoring data). 

In addition to services provided through ski areas, concessionaires operate 54 percent of the 

developed recreation campsites in the NFS, providing needed visitor services and facility 

maintenance through their permits (INFRA data source, also Special Uses database for 122 ski 

areas). NFS lands host 122 Alpine ski areas, comprising nearly 60 percent of the skiing capacity 

in the U.S. These ski areas provide jobs and economic stimulation to local communities, often as 

a primary local economic driver. 

Special use authorizations enable thousands of private-sector professionals to lead a broad range 

of activities on NFS lands, from whitewater rafting, horseback riding, and big game hunting, to 

youth education trips in the Wilderness, and even scenic jeep tours. For many Americans, these 

activities represent their first introduction to their public lands. Permittees are encouraged to 

adopt practices that reduce their environmental footprint and adapt activities to meet changing 

climatic conditions. 

Manage Heritage Resources - The 2014 President’s Budget provides funding for the stewardship 

of our heritage and cultural resources. These funds provide for the management of at least 50 

percent of our 114 forest and grassland unit programs to standard (114 of the 155 forests and 20 

grasslands have heritage assets or programs). In FY 2012, we implemented a new performance 

measure. The new Heritage Program Managed to Standard is a comprehensive measure that 

allows us to monitor progress toward a sustainable and balanced Heritage Program. Through 

analysis of several indicators, the new measure is designed to increase public use and support 

accurate reporting and needed stewardship activity to protect, evaluate, and inventory the most 

significant heritage assets in a portfolio of over 340,000 cultural sites. 

The FY 2014 President’s Budget provides for investment of Heritage Resource funding into 

initiatives such as Historicorps and Passport in Time. These programs preserve and sustain 

historic places and resources for public benefit through partnerships that foster public 

involvement, engage volunteers, and provide training and education. By implementing the 

Preserve America Executive Order 13287, we further support local communities by rehabilitating 

significant heritage assets linked to community economic development and sustainable 

operational plans, and we provide useful asset evaluations and inventories for agency, Ttribal, and 

public benefit.

Manage Wilderness and Wild and Scenic Rivers - The 2014 President’s Budget provides funding 

for Wilderness and Wild and Scenic Rivers. These funds allow us to bring an additional 58 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-36

wilderness areas to minimum stewardship levels, above those of FY 2012. This work is a part of 

the 10YWSC. It brings the total number of wilderness areas managed to the minimum 

stewardship level to 365, or 90 percent, of the original 406 areas that are part of the 10YWSC. 

This is up substantially from only 44 wildernesses, or 11 percent, managed to this standard in FY 

2005. Wilderness areas established since the start of the 10YWSC have ten years to be managed 

to this level of stewardship. A total of 57 wild and scenic rivers will meet statutory requirements 

under the Wild and Scenic Rivers Program Agenda. We continue to ensure that wilderness and 

wild and scenic rivers values are addressed as part of agency efforts in response to the President’s 

America Great Outdoors Initiative. In addition, we ensure that wilderness and wild and scenic 

river values are recognized for their contributions to addressing climate change and for providing 

recreation, renewal, subsistence, and employment to surrounding communities. 

Past Performance

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 (79 

percent of target accomplished). In FY 2012, we demonstrated improvement toward achieving our target, 

however completing motor vehicle use maps (MVUMs) has taken longer than anticipated due to the need 

for more public involvement and collaboration. Public controversy, appeals, and litigation has delayed 

producing some MVUMs. A number of states within western regions have been particularly contentious, 

namely California, Nevada, Montana, and parts of Colorado and Oregon. Out of 114 units producing 

MVUMs, 91 have completed MVUMs to date. We will continue our efforts to complete all remaining 

MVUMs in FY 2013 and FY 2014. 

Number of Heritage Programs Managed to Standard (119 percent of target accomplished). 

In FY 2011, we established a standard at which the 122 Heritage Resource programs across the individual 

national forests and grasslands should strive to operate. An individual program has to meet seven criteria 

in order to be classified as being “managed to standard.”

In FY 2012, the agency implemented this new and comprehensive measure that allowed us to monitor 

progress toward a sustainable and balanced Heritage Program. Using this new measure, 77 sites were 

managed to standard above a targeted 65 sites. Using the new framework we will continue to monitor the 

accuracy of this measure in order to protect, evaluate, and inventory the most significant heritage assets.

Number of wilderness areas managed to minimum stewardship level (110 percent of target 

accomplished). In FY 2012, the agency managed a total of 307 wilderness areas to a minimum

stewardship level, exceeding the target by 10 percent and the prior year total of 220 areas managed to 

standard. This greater than anticipated gain towards the 10YWSC is attributable to focused national 

support of on-the-ground management and regional strike teams, as well as partnerships leveraged 

through the National Forest Foundation's Wilderness Stewardship Grants program. The most notable 

gains were accomplished in Regions 3 and 6. 

Number of wild and scenic river areas meeting statutory requirements (120 percent of target 

accomplished). In FY 2012, the agency achieved a total of 53 wild and scenic river areas meeting 

statutory requirements. This is an increase from the FY 2011 accomplishment of 42 areas meeting 

standard. This number is consistent with the steady increase we have seen over time in this area of 

programming. 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-37

Program Description

Program Overview

The NFS offers a vast and diverse range of recreational opportunities across the 193 million acres of 

national forests and grasslands. Over the past few years, the national forests and grasslands hosted on 

average nearly 166 million visits per year, with increasingly diverse visitors engaging in activities such as 

camping, picnicking, skiing, snowboarding, hunting, fishing, hiking, driving for pleasure, wildlife 

viewing, scenic driving, and visiting cultural sites and visitor centers. These recreation opportunities 

produce significant social and economic benefits for the Nation including employment in rural and urban 

communities. Population growth and increasingly limited public access to privately-owned land 

contributes to high demand for quality recreation on NFS lands.

The Recreation, Heritage and Wilderness program manages and administers over 21,600 recreation sites, 

over 23,500 recreation special use authorizations, 25 major visitor centers, 22 National Historic 

Landmarks, over 345,000 heritage assets, 136 national scenic byways, 439 designated wilderness areas, 

and 122 wild and scenic rivers. The program is delivered through the following activities:

Manage Recreation Operations - This activity funds the operation of developed sites, such as 

campgrounds, day-use areas, boat ramps, solid waste disposal facilities, and visitor centers; 

general forest areas, including landscape corridors for national trails and scenic byways, snow 

play areas, lakes, streams, and roads; interpretive and educational services; and dispersed 

recreation activities such as hiking, camping, hunting, fishing, and wildlife and scenic viewing. 

This activity also funds sustainable recreation and tourism planning, visitor use management, 

cleaning facilities and sites; providing safety and security measures for visitors and employees; 

conducting prescribed inspections; managing partnerships and volunteers; and providing 

interpretive or educational programs, presentations, and products to visitors. 

Administer Recreation Special Use Authorization - This activity funds processing new requests 

for recreation special use permits and administering existing authorizations, including permits for 

downhill ski areas, campground management, organization camps, and outfitting and guiding, 

resorts and marinas, recreation events, and recreation residences. This activity funds responses, 

analyses, and decisions to proponents and applicants who request the use of NFS lands to provide 

recreation opportunities and benefits to forest visitors. Activities also include providing 

inspection, oversight, and monitoring of authorizations issued to ensure compliance with the 

terms and conditions of the authorization. Special use permits make it possible for the public to 

enjoy many recreational opportunities which we would not otherwise be able to provide.

Manage Heritage Resources - This activity supports the protection of significant heritage assets 

and contributes interpretive, educational, site stewardship, and scientific and technical 

information to governmental entities, the public, and tribes. Agency efforts include heritage asset 

rehabilitation, both to reduce deferred maintenance and to provide enhanced opportunities for 

community economic development and tourism. Funded activities include identifying, evaluating, 

protecting, monitoring, and preserving heritage resources, sites and areas; and promoting heritage 

values through interpretation, Passport in Time projects, presentations, and other public 

information and outreach efforts. 

Manage Wilderness and Wild and Scenic Rivers - This activity funds the protection and 

management of designated wilderness and wild and scenic rivers. Funded activities include 

evaluating and recommending areas and rivers worthy of addition to the National Wilderness 

Preservation System and the National Wild and Scenic Rivers System. Funded activities also 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-38

include managing visitor use and impacts, education and outreach, inventory and monitoring, 

information management, protecting wilderness character for designated wilderness, and 

protecting free-flowing conditions for wild and scenic rivers through collaborative public, private, 

and interagency management. 

Allocation and Integration 

Funds are allocated to the regions based on program capability, core operations, and national priorities. 

The allocation process considers past performance and future needs regarding developed recreation site 

use; special use permit processing and administration; heritage resources; and management of wilderness 

areas and wild and scenic rivers.

Recreation and wilderness programs achieve multiple management objectives by integrating with other 

land and resource programs. Examples include joining resources with Capital Improvement and 

Maintenance programs to implement travel management; coordinating with other programs to address 

interpretation and education needs that connect the American public to nature; identifying and pursuing 

acquisition of needed access with and through the Lands programs; coordinating with the Integrated 

Resource Restoration program to complete resource tasks in wilderness areas such as invasive species 

management, air quality monitoring, and prescribed burning; and utilizing Research and Development 

programs to address the effects of climate change on wilderness area attributes. 

Partnerships

The public’s use and enjoyment of resources on national forests 

and grasslands is enhanced through a variety of partnerships, 

including volunteers and non-governmental organizations such as 

outfitting and guiding, ski areas, and campground concessionaires. 

Maintaining long-standing partners is essential to addressing and 

delivering upon public demands for recreation opportunities. This 

program consistently involves the highest number of volunteers 

within the agency. 

Volunteers contribute significantly to assisting the agency in managing heritage resources, providing 

interpretive services, maintaining trails, and managing youth programs and campgrounds. In addition, we 

work with partners at the national level, such as the National Forest Foundation, American Rivers, and the 

River Management Society, to recruit wilderness and wild and scenic river volunteers and with the WILD 

Foundation on international skill exchanges. In FY 2012 more than 106,000 volunteers contributed 

service valued at $93 million, representing a 6 percent increase above FY 2011 levels. We also 

collaborate with the Departments of Transportation, Commerce, and the Interior; States and communities; 

and other recreation providers to improve programs, provide access, and to support social and economic 

benefits derived from federally managed lands. 

Supporting 5,000 Outfitters and 

Guides on NFS Lands

Many outfitters and guides are small 

businesses that provide jobs and 

income and help create tourismoriented identities for the local areas in 

which they operate. These permittees 

provide access to public lands which 

many people would not otherwise have.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-39

Grazing Management

Budget Line Item Grazing Management

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Grazing Management

Annual Appropriations $55,356 $55,695 $35,663 -$20,032 -35.97%

Grazing Management Total 55,356 55,695 35,663 -20,032 -35.97%

Annual Appropriations FTEs 419 419 342 -77 -18.38%

Total Full-Time Equivalents (FTEs) 419 419 342 -77 -18.38%

Grazing Management

Manage Grazing Allotments 0 24,603 19,508 -5,095 -20.71%

Prepare Grazing Allotment NEPA 0 31,092 16,155 -14,937 -48.04%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Grazing Management

Allotment acres administered to 100% of Forest Plan 

standards 33,113,679 27,132,200 29,845,420 30,396,997 29,845,420 27,000,000

Number of grazing allotments with signed decision 

notices 248 194 250 111 125 50

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $35,663,000 for Grazing Management, a program decrease of 

$20,032,000 from the FY 2013 Annualized CR. The Budget contains $283,000 for pay costs which 

includes $46,000 for annualization of the fiscal year 2013 pay raise and $237,000 for the anticipated fiscal 

year 2014 pay raise. The pay costs increase would enable the program to cover its increased staff costs 

without reducing the resources available for program delivery.

Funding the Grazing Management Program supports two primary activities: administering livestock 

grazing use on approximately 90 million acres of National Forest System (NFS) lands and approximately 

10 million acres of private land within grazing allotments; and completing National Environmental Policy 

Act (NEPA) analysis on grazing allotments in accordance with the NEPA schedule established under the 

provisions of the Rescissions Act of 1995 (P.L. 104-19, section 504), along with the subsequent 

implementation of management practices derived from NEPA. In FY 2014 the administration of existing 

permits will be emphasized. Administration of existing permits will focus on a basic stewardship level to 

ensure grazing will be sustained at the appropriate levels. Implementation of newly developed 

management practices aimed at restoration and/or rehabilitation of rangelands will continue at a reduced 

level, extending the timeframe for gaining overall improvement in sustainability and proper functioning 

of these lands.

We propose to assess an administrative fee of $1.00 per Head Month based on annual authorized Head 

Months to offset administrative costs associated with administering grazing permits on NFS lands. Based 
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on the total Head Months of use, the Forest Service could generate approximately $5 million in 

administrative fees that could be used to offset costs associated with grazing permit administration.

Benefits from the FY 2014 program of work will include: a sustainable supply of forage for livestock; 

economic opportunities for rural communities; sustaining grazing management practices to support 

ecosystem restoration efforts; and working landscapes associated with open space and habitat 

connectivity across NFS and other Federal, State, Tribal, and private lands. Opportunities to coordinate 

sustainable landscape management on grazing lands will be at reduced levels.

Specific priorities within each activity include: 

Manage Grazing Allotments - The FY 2014 President’s Budget includes administration of 

27,000,000 acres of grazing allotments to 100 percent of Forest Plan standards, a decrease of 

2,845,420 acres from the FY 2013 target. This measure reflects the level of permit administration 

relative to implementing all grazing management direction prescribed in land management plans, 

project level NEPA decisions, grazing permits or agreements, and other relevant documents.

Administering allotments to standards assures that management decisions identified during the 

NEPA process are implemented, achieve desired outcomes, or are adjusted if initial actions are 

not effective. Although all grazing allotments are administered, priority is placed on 

administering allotments with known critical resource issues, such as management of habitat for 

endangered species.

Prepare Grazing Allotment NEPA - The FY 2014 President’s Budget provides funding to 

complete grazing NEPA analysis and decisions for 50 grazing allotments, a reduction of 75 from 

the target of 125 allotments for FY 2013. The planned accomplishment level reflects an accurate 

capacity assessment based on a number of factors including a lower fund request reflecting 

national efforts to reduce federal budgets, an anticipated increase in NEPA analysis unit costs due 

to many controversial and complex allotments, and prioritized allocation of funds towards 

restoration activities. As a result of the anticipated cost increases and lower fund request, greater 

emphasis is now being placed on administering the grazing to a basic stewardship level.

Effective NEPA analysis and decisions ensure that livestock grazing strategies are designed to 

provide for the restoration and long-term sustainability of rangeland vegetation and dependent 

resources while continuing to provide essential goods and ecosystem services. 

Past Performance

Allotment acres administrated to 100 percent of forest plan standards (102 percent of target 

accomplished). In FY 2012 the agency administered 30,396,997 acres to 100 percent of Forest Plan 

Standard. This measure was designed so that we would know how close we are to having all allotment 

plans fully implemented and monitored with the objective of meeting all the forest plan standards, which 

are developed in part through a public involvement process. By meeting the forest plan standards, we 

ensure that grazing is managed to sustain healthy rangelands and the associated quality and quantity of 

other resources such as water associated with rangelands.

Number of grazing allotments with signed decision notices (44 percent of target accomplished). In FY 

2012, the agency completed NEPA analysis for 111 allotments. Several factors led to the shortfall in 

NEPA accomplishments, including increased complexity of analysis, increased workload associated with 

litigation, increased costs for comprehensive resource condition and trend data to support decisions, and 

the lack of completed assessments necessary to support the record for making management decisions. 
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National Forest System 5-41

NEPA allotment planning and management is a dynamic ongoing process that will continue in the future. 

The NEPA national summary of allotment schedules will be published at least every three years to 

incorporate a new three-year planning period and to maintain a long term schedule. FY 2011 was the first 

year of a new three-year cycle. At the end of the FY 2013, a new national summary of allotment 

schedules will be published. The reduced rate of completion of NEPA will necessitate extending the 

scheduling timeframe for all needed NEPA, as provided for under the Rescissions Act.

Program Description

Program Overview

Proper control and management of grazing use was one of the core reasons for the establishment of a 

Forest Reserve system that eventually became the National Forest System (NFS). The development and 

implementation of proper grazing practices has been a significant part of the overall management of the 

Forest Service from the very beginning of the Agency. Restoration of historic adverse practices has been 

an ongoing key focal point of Grazing Management. The Grazing Management program manages the 

diverse rangeland resources on approximately 90 million acres of NFS lands. The program seeks to 

restore and/or rehabilitate historically depleted rangelands to maintain a sustainable supply of forage for 

livestock, to maintain open space and habitat connectivity by linking NFS grazing authorizations to 

privately owned lands managed for agricultural production, and by helping sustain the rural based 

ranching and farming lifestyle. Each year livestock grazing on NFS lands contributes approximately 

19,500 jobs and almost $900 million to the Nation’s economy.

Properly managed rangelands use benefits ecosystems that provide for a secure food source as well as 

ecosystem restoration that provides wildlife habitat and other natural resources benefits. This program’s 

activities include environmental planning through compliance with NEPA for the use of grazing 

allotments and grazing permit administration. Through the Grazing Management program, national 

forests and grasslands make sure that they meet the management standards for grazing established in their 

land management plans and the allotment specific NEPA based decision that maintains ecosystem 

sustainability. By administering grazing permits in compliance with these standards, the agency ensures 

that grazing on NFS lands provide for secure food source while being managed to facilitate ecosystem 

restoration and maintenance at both the allotment and landscape scale, and that water resources associated 

with grazing allotments are managed for sustained quality and quantity. 

This program is delivered through the following activities:

Manage Grazing Allotments - This activity provides for implementation of NEPA sufficient 

management plans along with the proper administration and monitoring of grazing permits and 

activities. This includes issuance of grazing permits, processing permit transfers, preparation and 

processing of bills for collection, and the development of annual operating instructions.

Compliance monitoring determines if the terms and conditions of the grazing authorization are 

being implemented by the grazing permittee. Implementation monitoring determines whether the 

evaluated acres meet, do not meet, or are moving towards resource objectives identified in the 

land management plan or other appropriate decision document, and allows managers to determine 

whether additional monitoring or adjustments in management are required.

Prepare Grazing Allotment NEPA - Involves all elements of NEPA compliance pertaining to 

decisions authorizing grazing on an allotment, including the resolution of appeals and litigation 

associated with these decisions. This activity includes managing public involvement in the 

decision process; coordinating with Federal, State, Tribal, and local governments; development of 

alternatives; analysis of environmental effects; and the preparation of NEPA documents. The 
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agency strives to incorporate adaptive management into grazing NEPA decisions. Adaptive 

management strategies are designed to maximize management flexibility for the grazing 

permittee with a concurrent increase in accountability for success in meeting desired resource 

condition on the allotments and across the larger landscape. It also allows maximum flexibility 

for the agency to gain ecosystem improvement by properly changing timing and use to fit ever 

changing weather and climate conditions.

Allocation and Integration

Funds are allocated to the field based on the number of term grazing permits, the number of acres in 

active allotments, the amount of scheduled NEPA work, and the number of grazing allotments for which 

the agency made NEPA decisions during the previous three fiscal years. The agency may make additional 

adjustments to reflect regional capability.

The Grazing Management program is closely integrated with the proposed Integrated Resource 

Restoration program. The Integrated Resource Restoration program provides the funding for the 

necessary assessments for rangeland vegetation monitoring necessary to determine the health of rangeland 

ecosystems, as well as to determine whether implemented grazing management actions are achieving 

desired resource conditions. Data gathered through these monitoring efforts is the foundation for 

preparing grazing NEPA analyses and making subsequent decisions for allotment management, as well as 

determining where management adaptations are necessary. 

Partnerships

The agency supplements our capability to accomplish grazing permit administration through a variety of 

partnerships. Grazing permittees may be certified to conduct utilization monitoring, and may provide 

documentation demonstrating compliance with livestock distribution and other management 

requirements. Special interest groups also enter into agreements with the agency to conduct 

implementation monitoring, often in coordination with the grazing permittee.
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Minerals and Geology Management

Budget Line Item Minerals and Geology Management

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Minerals and Geology Management

Annual Appropriations $83,426 $83,937 $70,970 -$12,967 -15.45%

Minerals and Geology Management Total 83,426 83,937 70,970 -12,967 -15.45%

Annual Appropriations FTEs 529 529 494 -35 -6.62%

Total Full-Time Equivalents (FTEs) 529 529 494 -35 -6.62%

Minerals and Geology Management

Administer Minerals Operations 29,425 29,973 25,322 -4,651 -15.52%

Process Mineral Applications 21,504 21,835 18,451 -3,384 -15.50%

Manage Geologic Resources & Hazards 6,471 6,595 5,572 -1,023 -15.51%

AML Safety Risk Mitigated 7,817 7,907 6,683 -1,224 -15.48%

Manage Environmental Compliance 1,980 2,034 1,718 -316 -15.54%

Manage Environmental Restoration 16,229 15,593 13,224 -2,369 -15.19%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Minerals and Geology Management

Number of mineral operations administered 15,472 12,441 12,000 9,985 12,339 10,000

Number of mineral applications processed 12,366 8,350 8,350 6,953 8,276 7,000

Number of leasable energy minerals actions processed. 0 0 0 0 0 240

Number of AML safety risk features mitigated to "no 

further action" 725 418 517 374 557 430

Number of administrative units where audits were 

conducted 20 26 22 22 24 20

Number of contaminated sites mitigated 119 73 50 51 57 40

Number of geologic hazards managed 279 276 276 282 240 190

Number of geologic resources managed 566 633 600 642 550 565

FY 2014 Program Changes 

The FY 2014 President’s Budget proposes $70,970,000 for Minerals and Geology Management, a 

program decrease of $12,967,000 from the FY 2013 Annualized CR. The Budget contains $408,000 for 

pay costs which includes $66,000 for annualization of the fiscal year 2013 pay raise and $342,000 for the 

anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its 

increased staff costs without reducing the resources available for program delivery.

Priority will be given to programs with statutory requirements. The program will emphasize 

environmental review of proposed operations, including processing oil and gas drilling applications and 

related infrastructure needs. Other priorities will include inspection and monitoring of ongoing mineral 
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operations, providing professional expertise to ensure watershed health and public safety, and managing 

geologic hazards and important geologic resources. 

Specific priorities within each activity will include:

Administer Mineral Operations - The FY 2014 President’s Budget proposal funds the 

administration of an estimated 10,000 active mineral operations. The program will emphasize 

meeting minimum administration levels to ensure compliance with operating plan requirements 

and specific environmental standards for the protection of resources.

Process Mineral Applications - The FY 2014 President’s Budget proposal funds processing an 

estimated 7,000 mineral applications and plans. The actual number of applications received may 

be as high as 12,000 and varies significantly due to market influences and variable demand for 

mineral resources from National Forest System (NFS) lands. The energy component of this 

activity will continue to focus on increasing opportunities to develop oil and gas, coal, and 

geothermal resources from National Forest System lands, in support of the Energy Policy Act of 

2005. The pilot offices, authorized under the Energy Policy Act, will continue to help the agency 

efficiently process energy permit applications, particularly with respect to eliminating the backlog 

of surface use plan of operations relative to applications for permits to drill. 

Manage Geologic Hazards - The FY 2014 President’s Budget proposal funds the identification 

and management of an estimated 190 geologic hazards. Identifying and managing geologic 

hazards provides for the safety of the public by protecting infrastructure, soil, and groundwater. 

Abandoned Mine Land (AML) - Safety Risk Features Mitigated - The FY 2014 President’s 

Budget proposal funds the mitigation of an estimated 430 abandoned mine sites. The AML 

program specifically focuses on mitigating safety risk features and related activities associated 

with abandoned mines that are likely to cause serious injury or death in high use areas and highpriority watersheds. 

Manage Environmental Compliance - The FY 2014 President’s Budget proposal funds 20 

environmental compliance audits, assuring that employee and public health and safety are 

protected through agency compliance with environmental laws and regulations. 

Manage Environmental Restoration - The FY 2014 President’s Budget proposal funds restoration 

activities on 40 known hazardous material sites on NFS lands. Cleanup of contaminated sites is 

critical for the long-term protection of surface and groundwater quality, and contributes to overall 

public and ecological health.

A performance measure called Number of leasable energy minerals actions processed will replace the 

previously reported performance measure called Number of New Applications for Permits to Drill (APDs) 

processed within prescribed timeframes. The proposed measure better reflects energy activity on NFS 

lands and can be efficiently and accurately tracked by the agency. The target for FY 2014 is 240 leasable 

energy minerals action process.

Past Performance

Number of Mineral Operations Administered (83 percent of target accomplished). In FY 2012, the 

agency administered 9,985 mineral operations to standard. Mineral operations include activities for 

locatable and salable minerals, non-energy leasable minerals activities on acquired lands, and approved 

oil, gas, and geothermal operations. Administering an operation includes all previously approved 
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proposals or authorizations through other means, such as a mineral material permit, acceptance of a 

Notice of Intent, an approved Plan of Operation, or prospecting permits. The shortfall in the number of 

operations administered was primarily due to fewer than expected approved operations (tied to 

applications processed), which was influenced by market prices and scarce resources.

Number of Mineral Applications Processed (83 percent of target accomplished). In FY 2012, the agency 

processed 6,953 mineral applications. The shortfall in our anticipated FY 2012 accomplishment for 

mineral applications processed was due, in part, to court decisions which require full notice, comment and 

appeal opportunities for actions that were once typically categorically excluded and added new permitting 

requirements. Proposals or plans for locatable minerals are often the result of walk-in traffic. These 

proposals are usually not planned, but instead are brought in by a proponent and are subject to the 

availability of specialists and other resources. Some proposals are not processed until the following year. 

Analyses are often completed during the summer months when the lands are accessible, which is also the 

season most prone to wildfires. Furthermore, conflicting programmed work and unpredictable safety 

issues (such as fire) may take precedence for available staff and other resources. 

Number of Geologic Hazards Manage (102 percent of target accomplished). In FY 2012, the agency took 

management action on 282 identified geologic hazards. Diligence in identifying, assessing, and managing 

hazards is imperative for safety and health reasons. Reduced budget emphasis on geologic hazards would

reduce management actions and increase risk to human health and safety, as well as risking damage to 

infrastructure.

Number of Geologic Resources Managed (107 percent of target accomplished). In FY 2012, the agency 

took management action on 642 geologic resources, including paleontological sites, caves, and other 

specially managed geologic features. The larger than expected accomplishment was due, in part, to the 

fact that many of these actions were simple and of short duration, allowing additional geologic resources 

to be addressed. Sustained funding is necessary for maintaining conservation and interpretation of special 

and unique features, including paleontological resources and caves, for purposes of ecological 

sustainability, education, scientific discovery, and public enjoyment of public lands. 

Number of Administrative Units where Audits were Conducted (100 percent of target accomplished). In 

FY 2012, the agency completed 22 external environmental compliance audits of our facilities, meeting the 

agency target for the year.

Number of Abandoned Mine Land Safety Risk Features Mitigated: (72 percent of target accomplished). 

In FY 2012, the agency mitigated 374 hazardous mine features including open adits (horizontal mine 

openings) and shafts (vertical mine openings) at abandoned mines resulting in a safer environment for 

visitors and employees on NFS lands. The shortfall in accomplishment was due in part to delays in 

completing NEPA analysis and awarding closure contracts.

Number of Contaminated Sites Mitigated (102 percent of target accomplished). In FY 2012, the agency 

mitigated 51 contaminated hazardous material sites. The increased accomplishment is due primarily to the 

identification of previously unknown contaminated sites located within ongoing cleanup of project areas 

that were able to be added cost effectively to various projects’ scopes of work, unanticipated cleanups 

such as oil spills, marijuana farms, and methamphetamine labs. Additionally, partnerships and responsible 

party settlements contributed to our ability to accomplish more work on the ground. 
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Program Description

Program Overview

The Minerals and Geology Management (MGM) program provides significant contributions to meeting 

the Nation’s energy and mineral needs while providing jobs and protecting NFS watersheds and 

resources. The MGM program also provides the technical foundation and direction for management of 

geologic hazards and management and the protection of geologic resources. Additionally, the MGM 

program mitigates the effects of abandoned mines and other contaminated sites on NFS lands and 

conducts environmental compliance audits to assure our operations are in agreement with environmental 

laws and requirements to protect human health and safety and the environment.

Minerals and Energy on NFS lands

Energy and mineral production from NFS lands contributes almost $8 billion annually to the Nation’s 

economy. In addition to receipts from lease rentals, royalties, bonus bids, and mineral material sales 

returned to the Treasury, States, and counties, mineral and energy development on NFS lands supports on 

average approximately 56,000 jobs each year, often in areas or communities where employment 

opportunities are limited. Of the total receipts received through energy and minerals production on NFS 

lands, 75 percent or 50 percent (depending on whether production is from Acquired or Public Domain 

lands) are returned to the Treasury. The other 25 percent or 50 percent (again, depending on land status) is 

returned to the States or counties where production occurred.

Barren Fork Coal Mine Portal Safety Closures, Daniel Boone National Forest, Kentucky

BEFORE AFTER

These pictures of the Barren Fork Coal Mine provide an example of a permanent closure constructed at the opening of an 

abandoned coal mine to improve public safety, protect bat habitat and minimize vandalism to historic structures. This 

Kentucky coal mine was in operation in the late 1800s to 1930s by the Barren Fork Coal Company. Today, mine 

openings, or portals, associated with this mine are located adjacent to the Sheltowee Trace National Recreation Trail. 

“Extreme explorers” view these abandoned mines as challenging and dangerous adventures. Such hazardous 

environments can become deadly due to toxic gases, low oxygen levels and subsidence or collapses. Safety closures over 

mine portals are completed every year providing a safer environment for visitors and employees on NFS lands. 

 
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Energy and mineral production on NFS lands falls into the following four categories:

Energy exploration and production from federal leases on NFS lands - Over five million acres of

Federal minerals underlying NFS lands are currently leased for oil, gas, coal, and geothermal 

operations. Approximately 25 percent of the Nation’s coal production and an estimated 4,200 

federal oil and gas wells are from NFS lands. In 2011, receipts from annual lease rentals, royalties 

on production, and bonus bids for competitive leases were $629 million, with $447 million from 

coal and $182 million from oil and gas.

Energy exploration and production from non-federal minerals underlying NFS lands - Nonfederal, mostly private, mineral interests are associated with close to 11 million acres of NFS 

lands. In addition to activities associated with federal minerals described above, close to 15,500 

oil and gas wells and a few other types of mineral development operations are associated with 

these private mineral interests on NFS lands. Small business interests conduct the majority of 

these operations. Each oil and gas well can directly contribute to up to 115 jobs through the life of 

the well, with about three additional indirect jobs associated with each direct job.

Solid leasable minerals (non-energy) - Production of solid non-energy leasable minerals on NFS 

lands include phosphate, lead, zinc, and copper and in 2011 generated royalties of $24 million. 

Ongoing exploration projects for similar mineral deposits are occurring across the country. 

Mineral production from NFS Lands - At any given time, the agency administers operations on 

approximately 160,000 mining claims, and manages approximately 2,600 mineral material 

permits and/or sale contracts. Hard rock mines on NFS lands produced resources with an 

estimated value of $1.86 billion. Mineral material sales (e.g., sand and gravel) vary from year to 

year but in FY 2011, 3.9 million short tons were produced. A large portion of the material is 

provided as free use to other government agencies or for in-service use. The portion that was sold 

generates $2.5 million in revenue.

Geologic Resources and Hazards on NFS lands 

Geologic resources include landscapes with unique geologic settings, scientific value, or interpretive 

value; paleontological resources; cave systems; and groundwater resources and associated groundwaterdependent ecosystems. NFS lands have over 1,000 designated special geologic sites and areas, with 

potentially thousands more undesignated sites that provide a variety of benefits to the public. In many 

cases, geologic resources, especially those with statutory protection, such as paleontological resources, 

significant caves, and water, require specialized expertise and strategies for conservation. Geologic 

hazards are geologic conditions or processes, such as floods, landslides, avalanches, earthquakes, 

volcanoes, and naturally occurring hazardous minerals (e.g., asbestos, radon gas) that present a risk or 

have the potential to threaten life, property, or other natural resources. Hundreds of sites, especially those 

with high recreational value and use, require specialized technical assessment, continuous monitoring, 

and/or mitigation to minimize threats to life, health, and infrastructure from geologic hazards

Abandoned Mine Lands, and Environmental Compliance and Protection 

Analysis of available data indicates there may be 27,000 to 39,000 abandoned mines on NFS lands, of 

which 18,000 to 26,000 are abandoned hardrock mines. Of these hardrock mines, 9,000 to 13,000 are past 

producers of valuable minerals, and therefore more likely to require environmental cleanup or safety 

mitigation work. Since 1998, the agency has mitigated more than 4,000 safety hazards and cleaned up 

hazardous substances at more than 450 sites, with more than 100 cleanups in progress. Additionally, the 

agency conducts environmental compliance audits of approximately 20 percent of its administrative units 
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annually. The agency emphasizes training and pollution prevention as a means to both achieve and 

maintain environmental compliance.

The Minerals and Geology Management program is delivered through six activities: 

Administer Mineral Operations - Provides for the inspection, oversight, and monitoring of 

approved mineral operations on NFS lands. Administration ensures compliance with approved 

plans, and with State and Federal environmental laws and regulations, for the protection of public 

health and safety.

Process Mineral Applications - Provides for the review and approval of plans for proposed 

mineral activities, including exploration and development of hardrock minerals under the 

authority of the Mining Act of 1872; coal, oil, gas, and geothermal exploration and production 

under the various mineral and geothermal leasing acts; and contracts for the extraction of mineral 

materials such as sand and gravel, by the public and local, State, and Federal agencies under the 

Materials Act of 1947. 

Mitigate Abandoned Mine Lands (AML) Safety 

Risk Features - Provides for the inventory, 

assessment, and mitigation of abandoned mine 

safety hazards and associated environmental 

damage. This work includes closing 

underground mine openings and vertical shafts; 

re-contouring open pits, trenches, and 

associated roads; and removing or stabilizing 

abandoned buildings, and equipment. Wherever 

feasible, AML work minimizes or mitigates 

adverse effects on dependent wildlife and 

AML-associated cultural and historic resources. 

Manage Geologic Resources and Hazards -

Provides assessments of geologic settings and 

processes for land management planning, 

environmental protection and restoration, and 

cost-effective management of roads, recreation 

sites, and other infrastructure. Program delivery 

activities include inventory and management of geologic resources such as caves and karst areas, 

paleontological resources, groundwater, and ground water-dependent ecosystems for protection, 

study, and appropriate use. Activities also include identification, assessment, and management of 

potential risks to public health and safety from geologic hazards such as landslides, debris flows, 

karst collapse features, and naturally occurring hazardous minerals (e.g., asbestos).

Manage Environmental Compliance - This activity funds audits and our compliance program that 

assesses Forest Service compliance with environmental statutes and trains field personnel on 

compliance and pollution prevention.

Manage Environmental Restoration - This activity provides for the inventory, assessment, 

cleanup, long-term operation and maintenance, and monitoring of sites where there is a release,

or threat of release, of a hazardous substance, pollutant, or contaminant on NFS lands. 

Restoration occurs at both AML and non-AML sites and involves Comprehensive Environmental 

Response Compensation and Liability Act (CERCLA) and non-CERCLA authorities. Cleanup 

Santiago Mine, Arapaho National Forest, Colorado

This example of an abandoned mine land mitigation 

demonstrates how the program addresses the cleanup 

of mine-related wastes and also works to preserve the 

historical values of these sites.
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projects are typically initiated under requirements of CERCLA, the Resource Conservation and 

Recovery Act, or the Clean Water Act. This restoration helps minimize or eliminate threats to 

human health and the environment.

Allocation and Integration

Regional allocation criteria for the Minerals and Geology Management program include projected 

workload in response to new and ongoing mineral exploration, development, production and reclamation 

activities; number of abandoned mines, as well as severity of and probability of human contact to 

abandoned mine hazards; projected need for inventory, interpretation, and protection of geologic 

resources; number of required environmental audits; and number of nationally prioritized environmental 

cleanup projects. Adjustments may be made between regions based on regional capability data to respond 

to new issues or emerging mineral development trends and markets.

Integration with other resource programs is a priority that helps the agency facilitate environmentally 

sound mineral development while maintaining and restoring healthy watersheds. This integration is 

designed to ensure compliance with applicable environmental laws and regulations and to minimize 

impacts on natural resources. Integration with other programs also maximizes the achievement of diverse 

resource objectives that are compatible with program activities, such as interpretation of culturally 

significant sites, restoration of water quality, and protection of threatened and endangered species. 

Partnerships 

The Forest Service works in partnership with the Bureau of Land Management (BLM) to manage the 

Federal minerals on NFS lands. The Secretary of the Interior, through the BLM, has management 

responsibilities for the Federal mineral estate, including Federal minerals that underlie NFS lands. The 

Relief Hill Illegal Dump, Tahoe National Forest, California 

BEFORE AFTER

The Relief Hill Illegal Dump is an example of the type of environmental restoration work that occurs through the MGM 

program. The site not only contained vast amounts of waste, but it was located on steep rocky cliffs containing naturally 

occurring asbestos which complicated the clean-up efforts. Completed in 2012, the cost of the project was split between the State 

of California and the Forest Service with assistance from Nevada County. The project entailed gathering waste; loading it into 

bins and boxes; hauling it up the cliff; and disposing of the debris at a legal disposal site. The site was then closed to further 

dumping by blocking off the access with K-rails topped with chain-link fence. Signs were posted to notify the public that 

dumping is prohibited.
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Forest Service is responsible for the management of surface resources on mineral, oil, and gas projects 

proposed or operating on NFS lands. 

The Forest Service, the BLM, and industry form partnerships through the issuance of various mineral 

leases. Industry provides capital, and expertise, while the agencies provide lands on which to explore and 

develop mineral and energy resources in an environmentally sound manner for the Nation.

The Forest Service is also developing partnerships with geologic and hydrologic organizations to help 

raise awareness of the importance of applying geologic principles to ensure sound and sustainable 

management of geologic hazards and geologic resources on NFS lands. In addition, these partnerships 

will help improve awareness of the role of NFS lands in supplying ground and surface water to meet 

societal needs. Cooperative partnerships with other government agencies and non-profit organizations 

also supplement appropriated funds to inventory and assess geologic resources and restore streams and 

watersheds. 

Agency emphasis within the environmental compliance and protection and AML activities includes cost 

recovery and efficient and effective use of partnerships including, but not limited to, Environmental 

Protection Agency, States, non-profit groups, and Tribes to restore and remediate abandoned mine lands 

and disturbed ecosystems. Costs may be recovered when the potentially responsible party is identified or 

to restoration work. 
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Landownership Management

Budget Line Item Landownership Management

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Landownership Management

Annual Appropriations $85,738 $86,263 $71,131 -$15,132 -17.54%

Landownership Management Total 85,738 86,263 71,131 -15,132 -17.54%

Annual Appropriations FTEs 646 646 590 -56 -8.67%

Total Full-Time Equivalents (FTEs) 646 646 590 -56 -8.67%

Landownership Management

Adjust Land Ownership 12,488 12,319 10,174 -2,145 -17.41%

Protect Land Ownership Title 9,922 9,940 8,199 -1,741 -17.52%

Locate Land Boundaries 31,971 32,498 26,775 -5,723 -17.61%

Administer Energy, Communication and 

Land Use Authorizations 20,359 20,358 16,795 -3,563 -17.50%

Process Land Use Proposals 10,998 11,148 9,188 -1,960 -17.58%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Landownership Management

Acres of land adjustments to conserve the integrity of 

undeveloped lands and habitat quality 26,120 156,081 35,000 26,330 30,000 26,000

Number of land use authorizations administered to 

standard 17,784 17,271 16,050 17,735 14,850 12,500

Number of land use proposals and applications processed 4,341 4,505 4,175 4,339 3,875 3,500

Miles of landownership boundary line 

marked/maintained to standard 4,804 3,823 3,400 3,862 3,170 2,707

FY 2014 Program Changes

The President’s 2014 Budget proposes $71,131,000 for Landownership Management, a reduction of 

$15,132,000 from the FY 2013 Annualized CR. The Budget contains $488,000 for pay costs which 

includes $80,000 for annualization of the fiscal year 2013 pay raise and $408,000 for the anticipated fiscal 

year 2014 pay raise. The pay costs increase would enable the program to cover its increased staff costs 

without reducing the resources available for program delivery.

These funds support land restoration needs by providing critical boundary work on national forests and 

grasslands to support the Administration’s initiative on renewable energy. The Landownership 

Management program lays the foundation for other natural resource management activities, including 

integrated resource restoration and energy siting and production.
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Specific priorities within each activity include:

Adjust Land Ownership - The FY 2014 President’s Budget proposal includes funds to exchange, 

through acquisition or conveyance, approximately 26,000 acres of National Forest System (NFS) 

land. Land adjustments help improve public access, conserve open space where its loss threatens 

the sustainability of the national forests and grasslands, and protect healthy forested lands and 

watersheds. Land adjustments provide multiple resources restoration and conservation benefits, 

including: facilitating protection of ecosystem services, preserving intact watersheds, and natural 

processes to maintain water quantity and quality. Maintaining these ecosystem services requires 

an integrated, landscape-level approach across land ownerships that can be enhanced through 

land adjustments. Land consolidations also reduce future land management costs, respond to 

urban and community needs, reduce ownership fragmentation, make lands better suited for nonforest management purposes available for other uses, and promote conservation. 

Protect Land Ownership Title - The FY 2014 President’s Budget proposal includes funds to 

resolve approximately 2,700 critical land title claims, encroachments, trespass, and other 

unauthorized uses, specifically those that involve litigation, legislation, or are associated with 

tribal land claims. Resolution of these claims secures and protects the interest, rights, title, and 

land and resources of the U.S. and bona fide claimants. We also identify and process critical 

changes in land classifications such as wilderness, roadless, and research natural areas, to protect 

these designated areas. In addition, we anticipate reducing overall costs to resolve title cases by 

improving the processing of title claims through automated data support.

Locate Land Boundaries - The FY 2014 President’s Budget proposal includes funds to mark and 

maintain 2,707 miles of NFS property line as part of priority restoration, watershed protection, 

and other resource management projects. Encroachments and trespass on NFS lands continue to 

grow due to increasing development in the rural landscape and the rapidly expanding Wildland 

Urban Interface. Marking and maintaining property lines helps secure the investments we make in 

natural resource management. Clearly identifying NFS boundaries also provides landownership 

protection, security, and title defense. Leaving property lines unmarked and unmaintained can 

result in expensive and protracted litigation and loss of public lands and public trust. To 

maximize cost efficiencies, we prioritize cooperative and joint land surveys with other agencies 

through challenge cost share and other agreements.

Administer Energy, Communication and Land Use Authorizations and Process Land Use 

Proposals - The FY 2014 President’s Budget proposal includes funds to administer land use 

authorizations and funds to process land use proposals. This request will enable us to process 

approximately 3,500 land use proposals and applications and administer an estimated 12,500 

energy, communications, and land use special use authorizations to standard, with primary focus 

on those authorizations that address critical health and safety issues and to increase energy 

production and transmission. Additionally, priority will be given to reducing the expired 

authorization backlog to meet reductions outlined in regional action plans developed in response 

to Office of Inspector General Audit report 08601-55-SF. 

This program supports critical energy projects involving energy pipelines, geothermal 

transmission and hydropower. Telecommunication infrastructure is a key component of this 

activity. Along with other major energy projects funded through cost recovery, these land use 

projects increase the power grid load capacity for renewable energy, improve energy reliability, 

and access to energy generation, and advance broadband service for thousands of communities 

across the country.
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Administering permits to standard helps us to identify potential liabilities and boundary disputes, 

and their associated administrative costs, before they occur. Actively administering permits to 

standard also enables us to identify and return to the Treasury owed revenue by permit holders. 

Administration to standard of energy permits on NFS lands also directly lowers energy costs paid 

by consumers. We can process approximately 3,500 new applications, focusing on those 

associated with statutory rights and energy-related uses. 

Special use authorizations provide the authority for use of Federal lands for a wide variety of 

purposes. These include rights-of-way for roads, pipelines, communication sites, and electric 

transmission and distribution facilities. Processing and authorizing these uses facilitate the 

development and transmission of affordable, reliable energy; support national security and 

economic development; and promote the public health and safety of populations within, or in 

proximity to, national forests and grasslands throughout the country.

Past Performance

Acres of land adjustments to conserve the integrity of undeveloped lands and habitat quality (75 percent 

of target accomplished). In FY 2012, the agency acquired 26,330 acres. This is under the planned level of 

35,000 acres. As the result of late appropriation’s and fire transfer, some projects were not able to be 

closed before the end of the fiscal year. 

Miles of land ownership boundary line marked/maintained to standard (114 percent of target 

accomplished). In FY 2012, the agency marked and maintained to standard 3,862 miles of NFS boundary 

line, above our target due to more cost effective survey technology, cooperative efforts with adjoining 

landowners. 

Number of land use authorizations administered to standard (111 percent of target accomplished).

In FY 2012, we administered to standard 17,735 out of approximately 45,000 total authorizations for nonrecreation special uses on the NFS, exceeding our target of 16,050 land use authorizations managed to 

standard. Our ability to administer an authorization to a minimal standard is dependent upon the 

availability of resources to review authorization documents and perform necessary inspections to ensure 

uses are conducted in a manner that protects public health and safety and natural resources. This 

performance element does not account for costs necessary to address non-compliance, nor if the uses 

administered are targeted towards critical infrastructure (e.g., uses such as renewable energy 

development, transmission, communication, and transportation) or uses that involve publicly sensitive or 

outstanding resource issues. Therefore, this performance element may not reflect our comprehensive 

workload. 

Program Description

Program Overview 

The Landownership Management program enables us to secure and protect approximately 193 million 

acres of lands and interests within the NFS and ensures that we carry out and return economically 

valuable public services and benefits from those lands. Through this program, we support the public 

interest both as a Federal landowner and as a neighbor and member of local communities across the 

Nation. Landownership management is a critical component to effectively carry out agency and national 

priorities, funding the acquisition of lands to consolidate aquatic and terrestrial habitats and fire buffers, 

legal protection of watersheds that serve as natural reservoirs for water supplies, identification and 

administration of energy corridors, and many other economically and environmentally valuable land uses. 

Legally defensible boundaries and records are essential to implement any type of land management 
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activity, from timber sales to habitat management to exploration for energy or gas production. Without 

the certainty of legally defensible boundaries, Federal investments on NFS lands are often subject to 

expensive and time-consuming legal disputes. 

Some of the uses and activities we facilitate include:

• Purchasing land to protect critical resource areas and to increase public recreation opportunities

• Authorizing powerlines to provide electricity to a community

• Authorizing the use of mountain tops for many types of communications, including emergency 

services

• Authorizing the reconstruction of a recreation residence

• Authorizing use of a pipeline to carry natural gas or oil 

• Ensuring that hydroelectric projects protect riparian areas on a national forest or grassland

• Exchanging and conveying lands to achieve a desired NFS landownership pattern that supports 

forest land and resource goals and objectives 

• Conveying administrative sites to allow us to realign and enhance our asset portfolio

• Surveying national forest boundaries to identify and protect private and public lands 

• Determining the market value of lands purchased, exchanged, or conveyed 

• Authorizing a right-of-way for a road to a private home within a national forest 

• Accepting donations of land to protect archaeological or historical sites 

• Maintaining records of NFS land areas, transactions, status, permitted uses, and easements 

• Securing public road and trail access to existing NFS lands

The program is delivered through the following activities: 

Adjust Land Ownership - This activity supports landscape scale management by consolidating 

ownership patterns, creating more contiguous habitat and managing benefits to the public and 

wildlife. Improved efficiency of land management, through this activity, allows the agency to 

meet public access needs, reduce intermingled ownership, reduce boundary maintenance, ease 

fire protection and law enforcement control, ease road maintenance, and minimize trespass and 

encroachment cases. Land ownership adjustment is carried out principally through exchanges, 

purchases, conveyances, and rights-of-way acquisitions. Case processing involves site analysis, 

title review, legal description verification, and appraisal and deed execution.

Protect Land Ownership Title - This activity funds title defense and resolution activities affecting 

landownership activities related to land title claims, Tribal claims, trespass, encroachments, other 

unauthorized uses, land sales, and grants and selections including work associated with land title 

claim identification, inventory, and investigation. This activity also includes managing the land 

status record system which provides legally defensible boundaries and accurate, complete 

landownership records of NFS lands.

Locate Land Boundaries - This activity provides professional land surveying services, including 

property boundary surveys, locating and marking NFS property lines and administrative boundary 

lines, boundary and property corner maintenance and perpetuation, legal land description 

preparation and review, land title research, expert witness testimony, and geospatial and geodetic 

services, in order to protect the title, land ownership, and use of the public estate. The Forest 

Service has 276,000 miles of property line, of which over 33,000 miles (12 percent) are currently 

marked to Forest Service standards.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-55

Administer Energy, Communication and Land Use Authorizations - This activity allows the 

program to administer approximately 47,200 land use authorizations annually for a wide variety 

of purposes, including rights-of-way for roads, pipelines, communication and navigation sites, 

and electric transmission and distribution facilities. Such permitted uses on NFS lands directly 

support jobs, particularly in rural communities where the agency is a major landowner. The 

program funds inspection, oversight, and monitoring of existing non-recreation Special Use 

authorizations to ensure compliance with the terms and conditions of the authorization while 

ensuring the health and safety of the public; protection of the environment; compliance with 

Federal, State, and local laws and regulations; and protection of the interests of the U.S. 

Process Land Use Proposals - This activity provides for responses, analyses, and decisions 

support for requests to occupy and use NFS lands for non-recreational purposes. Many of these 

land uses include roads, communications sites, hydropower facilities, oil and gas pipelines, 

electric transmission lines, and other energy related uses to facilitate the delivery of reliable 

energy resources and communication links. 

Allocation and Integration 

Funds are allocated to the regions based on regional program capability, core operations support, and 

national priorities. The allocation process considers past performance and future needs regarding property 

line marking and maintenance, acquisition or conveyance of NFS land; special use permit administration 

and management; and title protection. 

The agency marks and maintains NFS property lines and protects forest resources in support of other land 

and resource management priorities. Boundary management resources are allocated directly to areas of 

increasing demand, such as integrated resource restoration, timber sales, energy development, and 

protection of congressionally designated management areas such as wilderness. Not meeting critical land 

and resource management needs can result in trespasses, encroachments, title claims, expensive and 

protracted litigation, and loss of public lands, as well as damage or destruction of special areas, plants, 

fish, and wildlife.

Partnerships 

The agency cooperates with many other Federal agencies, such as the Bureau of Land Management, the 

National Park Service, and the Department of Defense; State agencies; interagency working groups; local 

and Tribal governments; non-Federal exchange parties; and private landowners. The program identifies 

and secures cost-share and partnership opportunities in order to eliminate or reduce redundant efforts, and 

the leverage of funds to secure high-priority resource lands for public access and resource protection.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-56

Law Enforcement Operations

Budget Line Item Law Enforcement Operations

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Law Enforcement Operations

Annual Appropriations $143,829 $144,709 $126,653 -$18,056 -12.48%

Law Enforcement Operations Total 143,829 144,709 126,653 -18,056 -12.48%

Annual Appropriations FTEs 782 782 729 -53 -6.78%

Total Full-Time Equivalents (FTEs) 782 782 729 -53 -6.78%

Law Enforcement Operations

Enforce Laws & Regulations 94,942 95,561 83,591 -11,970 -12.53%

Investigate Crime 48,887 49,148 43,062 -6,086 -12.38%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Law Enforcement Operations

Percent of cases referred for adjudication 6.9% 7.5% 6.8% 7.7% 6.7% 7.3%

Number of documented law enforcement incidents per 

10,000 forest visits 7.1 6.5 7.0 6.5 6.4 6.1

FY 2014 Program Changes

The FY 2014 President’s budget proposes $126,653,000 for Law Enforcement and Investigations (LEI), a 

decrease of $18,056,000 from the FY 2013 Annualized CR. The Budget contains $603,000 for pay costs 

which includes $99,000 for annualization of the fiscal year 2013 pay raise and $504,000 for the 

anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its 

increased staff costs without reducing the resources available for program delivery.

LEI will continue to prioritize response to emergency and life-threatening situations. LEI will also 

continue crime prevention with the National Sherriff’s Association through the use of cooperative law 

enforcement agreements at a reduced level. In support of the National Fire Plan, LEI will continue to 

prioritize arson investigations. LEI will also continue to combat the activities of drug trafficking 

organizations along the Southwest and Northern borders. LEI efforts focusing on California will address 

the cultivation of marijuana on the National Forest System lands. 

Specific priorities within each activity include:

Enforce Law and Regulations – The FY 2014 President’s Budget request of $83,193,000 funds 

uniform patrol presence to protect natural resources, Forest Service employees, and the public 

and respond to safety incidents and violations of law and regulations. 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-57

Investigate Crime – The FY 2014 President’s Budget request of $42,857,000 will fund criminal 

and civil investigations for arson, drug possession, theft and assaults. Drug Trafficking 

Organizations (DTOs) have been identified as the key producer of marijuana on NFS lands. DTO 

activities have been confirmed on 67 national forests in 20 States.

In FY 2014, LEI estimates 7.3 percent of cases will be referred for adjudication and there will be 

approximately 6.1 documented law enforcement incidents per 10,000 forest visits.

Past Performance

In FY 2012, 7.7 percent of cases were referred for 

adjudication compared to a target of 6.8 percent. The 

adjudicated cases target of 6.8 percent was based on the 

projection using the 2010 actual adjudicated cases 

number of 6.9 percent. This number was low compared 

to our 5 year average of 7.8 percent and we likely 

projected a conservative number based on a flat budget. 

There were 6.5 documented law enforcement incidents 

per 10,000 forest visits, compared to a target of 7.0. The 

documented law enforcement incidents for 2012 is 

lower than expected for two primary reasons. First, the exceptional 2012 fire season committed a large 

percentage of LEI field personnel to fire related incidents during the busy summer months. This resulted 

in less time doing normal patrol activities. Second, the hiring of new personnel to replace officers lost due 

to attrition and retirement did not occur until late in the 4th quarter. 

Program Description

Program Overview

The Forest Service LEI program is charged with providing a safe environment for the public, our 

employees and protecting the Nation’s natural resources on approximately 193 million acres of NFS lands 

in 44 states. LEI staff cooperates with Federal, State, and local law enforcement agencies and other Forest 

Service programs in support of this mission. Increasing population growth in the Wildland Urban 

Interface, increasing popularity of NFS lands for motorized recreational use, and illegal occupancy of 

NFS lands cause significant impacts to NFS lands and resources and increase risks to public and 

employee health and safety.

This program performs the following two activities:

Enforce Laws & Regulations – Includes uniformed patrol presence resource protection patrols and 

response to public and employee safety incidents and violations of law and regulations. Common 

incidents on national forests include theft, assault, alcohol and drug use, unauthorized motor vehicle 

use, illegal occupancy, and trespassing. 

Cultivation activities produce large amounts of trash and hazardous materials which are typically left 

on NFS lands. Growers frequently damage soils, cut timber, and clear vegetation to create room for 

their crops creating resources damage and erosion problems, and have assaulted and threatened Forest 

Service employees with violence. To protect NFS resources and visitors, Forest Service law 

enforcement officers carry firearms, defensive equipment, make arrests, execute search warrants, 

complete reports and testify in court. They establish a regular and recurring presence on a vast 

amount of public lands, roads, and recreation sites. The regulations law enforcement officers enforce 

include 36 Code of Federal Regulations Parts 242 & 261. Part 242 of 36 CFR refers specifically to 

Drug Eradication on the Los Padres NF

The Los Padres National Forest successfully 

eradicated 159,575 plants of marijuana and 

made 19 associated arrests during FY 2012. 

The Forest Service Law Enforcement 

organization partnered with Kern, Monterrey, 

Santa Barbara, San Luis Obispo, and Ventura 

counties and other Federal law enforcement 

agencies to combat drug cartel activities on the 

Forest.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-58

subsistence hunting and fishing regulations and is only applicable to Federal land in Alaska. Part 261 

of 36 CFR refers to regulations that apply to all National Forest lands nationwide. The primary focus 

of their jobs is the protection of natural resources, protection of Forest Service employees and the 

protection of visitors.

Investigate Crime – Covers criminal and civil investigations of both internal and external cases such 

as felony arson, drug possession, smuggling and manufacturing, thefts, and assaults. 

Drug Trafficking Organizations (DTOs) have been identified as the key producers of marijuana on 

NFS lands. DTO activities have been confirmed on 67 National Forests in Region 1, 2, 3, 4, 5, 6, 8 

and 9. Of the marijuana grown on Federal public land, 83 percent is on NFS lands. Illegal ground 

importation and trafficking on or near national forest lands of immigrants, drugs, weapons and other 

contraband, and illegal exportation of weapons and illicit cash profits create ongoing and imminent 

threats to the personal safety of employees and the visiting public. Special Agents plan and conduct 

investigations concerning possible violations of criminal and administrative provisions of the Forest 

Service and other statues under the United States Code. These normally plain clothes officers carry 

concealed firearms and other defensive equipment, make arrests, carry out complex criminal 

investigations, present cases for prosecution to U.S. Attorneys, and prepare investigative reports.

Allocation and Integration

Funding allocations support core operations and address priority needs, based on competitive regional 

criteria including number of visitors and acreage of NFS lands. In addition to public safety, priority is 

placed on responding to activity by drug trafficking organizations.

Partnerships

LEI staff cooperate with Federal, State, and local law enforcement agencies and other Forest Service 

programs by building strong relationships with sheriff’s offices, State police agencies, and Federal 

agencies such as the Drug Enforcement Agency; Federal Bureau of Investigation; Alcohol, Tobacco, 

Firearms and Explosives; the Office of the United States Attorney, the Federal Court System; and other 

Federal land management agencies.
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-59

Valles Caldera National Preserve

Budget Line Item Valles Caldera National Preserve

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Valles Caldera National Preserve

Annual Appropriations $3,426 $3,447 0 -$3,447 -100.00%

Valles Caldera National Preserve Total 3,426 3,447 0 -3,447 -100.00%

Annual Appropriations FTEs 1 1 0 -1 -100.00%

Total Full-Time Equivalents (FTEs) 1 1 0 -1 -100.00%

Valles Caldera National Preserve

N/A 0 3,447 0 -3,447 -100.00%

FY 2014 Program Changes

The FY 2014 President’s Budget does not propose a separate funding level for management of the Valles 

Caldera National Preserve. This is a decrease of $3,448,000 from the FY 2013 Annualized CR. This 

program will be maintained in FY 2014 from a variety of budget lines that are directly relevant to the 

work being completed. Funds will support the integrated program management objectives of the Preserve.

This proposal also allows the Valles Caldera Trust (Trust) to maintain Preserve operations, and continue 

progress toward meeting the goal of becoming financially self-sustaining by the end of FY 2015. 

Continued investment in the Preserve allows the agency and the Trust to protect and preserve for future 

generations the scientific, scenic, historical, and natural values of this unique land area. Continued 

investment also allows the Trust to fully implement the aspiration of managing public land in a 

transparent and financially self-sustaining manner.

Past Performance

In FY 2012, the Trust’s goals focused on public access use, restoration, and enhancement of the 

preserve’s rich natural, cultural and historic resources for sustainable use and enjoyment and the financial 

sustainability to support the preservation, enhancement, and operation of the Valles Caldera National 

Preserve. The year-round access offered additional recreation and education programs and activities 

which contributed to an increase in public participation from FY 2011. Public programs included hunting, 

fishing, hiking, van tours, environmental education, along with winter programs, and special events. The 

Trust also offered an ecological and economical livestock program, which contributed revenues towards 

the management of the Preserve’s resources. Total revenue generated from these recreation programs 

totaled $714,537. Appropriated dollars were used for rehabilitation of our road infrastructure, due to the 

post-fire flooding events in FY 2012 after the 2011 Las Conchas Wildfire.

The Valles Caldera National Preserve continues with two major planning efforts. The two environmental 

impact statements (EIS) are the Valles Caldera National Preserve Public Access and Use Plan, along with 

the Valles Caldera National Preserve Landscape Restoration and Management Plan. As a result of the Las 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-60

Conchas Wildfire in 2011, the environmental analyses on both plans were delayed due to the impacts to 

the Preserve. A decision on the Public Access and Use Plan is scheduled for the first quarter of FY 2013, 

and the decision on the Valles Caldera National Preserve Landscape Restoration and Management Plan is 

scheduled for the fourth quarter of FY 2013. 

Program Description

Program Overview

The Valles Caldera Preservation Act of July 25, 2000 (Public Law 106-248) provided for the acquisition 

of the Baca Ranch, located in the Jemez Mountains of New Mexico. The Act designated the Baca Ranch 

as the Valles Caldera National Preserve and provides for the management of the 88,900-acre tract as a 

unit of the National Forest System. The Preserve was established to protect various natural resources 

within its boundaries, and to provide multiple-use and sustained-yield of renewable resources. In 

addition, the Act requires the tract to continue to be managed as an operating ranch.

The Act requires management of the Preserve by the Trust, a government corporation subject to the 

Government Corporation Control Act. A nine-member Board is responsible for the protection and 

development of the Valles Caldera National Preserve. Seven of its members are appointed by the 

President of the United States. In addition, the current Superintendent of nearby Bandelier National 

Monument and the Forest Supervisor of the Santa Fe National Forest also serve on the Board. All Board 

decisions are made at public meetings. In August of 2002, the management authority for the Preserve was 

transferred to the Trust. 

Funding for the Trust contributes to the management of the Valles Caldera National Preserve’s resources 

to protect grasslands, watersheds, and forest vegetation through the practice of sound range, watershed, 

and forest management. The Valles Caldera National Preserve program also supports recreation 

opportunities as well as protecting and interpreting cultural and historic resources.

The Valles Caldera National Preserve program is delivered through the following activities:

Inventory, Monitoring, and Research - This activity includes the inventory, monitoring, and 

research of natural and cultural resources, such as vegetation, animals, soils, geologic formations, 

water resources, archaeological resources, and historic resources. These activities provide 

information for adaptive management of Preserve resources and for preparation of environmental 

documents.

Ecosystem Management - The program emphasis is to restore the resilience and adaptive capacity 

of the Preserve’s forest and grassland systems by thinning forests, managing wildland fires, and 

eradicating or controlling the spread of noxious weeds. The program also promotes increased soil, 

riparian, and wetland resilience and reduced erosion by closing, decommissioning, and 

maintaining roads; rehabilitating the Preserve’s wetlands, geothermal exploration areas, log 

landing sites, aggregate pit source sites, and other historic infrastructure created in support of 

logging, grazing and geo thermal development. This includes re-vegetating and otherwise 

stabilizing stream banks, and restoring historic wetland flows. This also includes the management 

of domestic livestock grazing on the Preserve.

Recreation and Special Use Management - This activity provides for the management of 

recreation and education programs, special use authorizations, and management of volunteers. 

This includes providing interpretive activities; reservation services for activities and special 

events; establishment and management of day-use programs, such as, fishing, elk hunting, guided 
FY 2014 Budget Justification USDA Forest Service

National Forest System 5-61

and unguided hiking, horseback riding, and winter sports; authorizing special uses for commercial 

filming and photography; special events such as mountain bike rides, marathons, celestial and 

solar viewing, and group tours; and uses by Native Americans for religious and cultural purposes.

Infrastructure Management - This activity includes the inventory, evaluation, planning, 

programming, and management actions related to occupancy, maintenance and improvement of 

buildings, water and wastewater systems, communication facilities, roads, trails, signing, and 

ranch infrastructure, such as corrals, fences, and earthen tanks. Evaluation includes determining 

the condition and effectiveness of the facility. Planning includes forecasting the development, 

disposal, and major alterations and renovations necessary to preserve or restore the functionality 

of the facility. This includes the use and daily maintenance of the Valle Grande Staging area, 

which is a self-sustainable contact station, used for visitor contact and information.

Partnerships

The Preserve benefits from monetary as well as non-monetary contributions. Non-monetary contributions 

include time and expertise contributed by our many volunteers. In 2012, the Trust increased volunteer 

hours from 2011 levels by 3,629 hours for a total of 10,848 hours. These volunteers assisted with many of 

the recreation programs, along with wetland restoration projects throughout the year.

Extramural funding refers to money invested in projects (mostly research, inventory, and monitoring) 

conducted on the Preserve by outside agencies and organizations. A continued objective for the Trust is to 

encourage scientific activities on the Preserve. Indicators for science community interest in studying the 

Valles Caldera National Preserve can be gleaned from the number of projects conducted, the amount of 

funding generated to support these projects, and the number of publications and presentations resulting 

from the research. Current (FY 2012) funding from outside (non-VCT) sources came from 46 different 

project sources, and exceeded $5.19 million. While these outside grant funds were not part of the VCT 

budget, they nonetheless contributed to the regional economy through personnel salaries, purchasing of 

equipment and supplies, travel, contracts, and educational stipends – and all of these transactions generate 

tax revenues for the local, State and Federal governments. More importantly, the information gleaned 

from these studies is being used to advise managers on how best to apply manipulative actions on the 

ground including: forest thinning prescriptions, use of fire, distributions of livestock, predator impacts on 

elk populations, fisheries management, and other land management tools.

 
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National Forest System 5-62

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FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-1

6. Capital Improvement and Maintenance 

Appropriation Capital Improvement and Maintenance

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Capital Improvement and Maintenance

Annual Appropriations $394,089 $400,901 $328,783 -$72,118 -17.99%

Capital Improvement and Maintenance 

Total 394,089 400,901 328,783 -72,118 -17.99%

Annual Appropriation FTEs 2,446 2,446 2,247 -199 -8.14%

Total Full-Time Equivalents (FTEs) 2,446 2,446 2,247 -199 -8.14%

Capital Improvement and Maintenance

Facilities 75,664 76,127 93,827 17,700 23.25%

Roads 182,525 183,642 145,304 -38,338 -20.88%

Trails 81,851 82,352 82,531 179 0.22%

Deferred Maintenance and Infrastructure 

Improvement 9,121 9,177 7,121 -2,056 -22.40%

Legacy Roads and Trails 44,928 45,203 0 -45,203 -100.00%

Supplemental, Disaster Relief Appropriations 

Act, 2013 (P.L.113-2) 0 4,400 0 -4,400 -100.00%

Capital Improvement and Maintenance Overview 

The FY 2014 President’s Budget proposes $328,783,000 for Capital Improvement and Maintenance, a 

decrease of $72,118,000 from the FY 2013 Annualized CR. Of this total, $4,400,000 was not part of the 

FY 2013 Annualized CR but was provided as supplemental funding in FY 2013. The Budget contains 

$1,858,000 for pay costs which includes $289,000 for annualization of the fiscal year 2013 pay raise and 

$1,569,000 for the anticipated fiscal year 2014 pay raise. The pay costs increase would enable the 

program to cover its increased staff costs without reducing the resources available for program delivery. 

This proposal shifts activities previously conducted under the Roads program and the Legacy Roads and 

Trails program to the Integrated Resource Restoration program under the National Forest System 

appropriation. Capital Improvement and Maintenance activities help to preserve: high-quality recreation 

opportunities; quality facilities, roads, and trails; and affords the public opportunities to interact with the

natural environment while supporting a wide range of tourism and infrastructure-related jobs.

Infrastructure maintenance and improvement enables the Forest Service to supply goods and services to 

the American public, while helping meet critical resource needs. 

In an effort to manage Forest Service lands in a manner consistent with the America’s Great Outdoors 

Initiative, a portion of the Forest Service roads funding will be used to cost-effectively address the 

transportation system maintenance backlog. The National Forest Road System is an integral part of the 

rural transportation network. It provides escape routes in the event of wildland fire or other emergency 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-2

situations, and emergency access for first responders. The system also supports recreation visitors who 

bolster local economies through expenditures in and around National Forest System (NFS) lands. 

Maintaining this system is necessary to continue to provide this access, to meet Highway Safety Act 

requirements and to protect the quality of water provided by NFS lands to communities. 

Our agency priority is to provide safe and healthful environments for all users that are in compliance with 

all applicable regulations and codes. Funds will be prioritized to provide infrastructure that supports safe 

public, administrative, and recreation uses. Priority for Facilities funding will be placed on repairing and 

improving those facilities, including buildings, water and wastewater systems, dams, and recreation sites, 

that receive public use and are critical to supporting agency mission and operations.
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-3

Facilities

Budget Line Item Facilities

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Facilities

Annual Appropriations $75,664 $76,127 $93,827 $17,700 23.25%

Facilities Total 75,664 76,127 93,827 17,700 23.25%

Annual Appropriations FTEs 453 453 440 -13 -2.87%

Total Full-Time Equivalents (FTEs) 453 453 440 -13 -2.87%

Facilities

Maintain Facilities 62,561 61,738 77,642 15,904 25.76%

Improve Facilities 13,103 14,389 16,185 1,796 12.48%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Facilities

Facilities condition index 85.0% 85.0% 81.0% 84.0% 83.0% 82.0%

Percent of facilities with "Good" or "Fair" condition 

rating 64.4% 62.7% 60.0% 58.0% 63.0% 63.0%

Number of outdoor recreation facilities maintained to 

standard 10,812 11,480 10,000 11,978 10,100 10,000

FA&O facilities maintained to standard 10,911 10,541 10,100 9,717 10,150 10,000

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $93,827,000 for Facilities, an increase of $17,700,000 from the 

FY 2013 Annualized CR. The Budget contains $364,000 for pay costs which includes $57,000 for 

annualization of the fiscal year 2013 pay raise and $307,000 for the anticipated fiscal year 2014 pay raise. 

The pay costs increase would enable the program to cover its increased staff costs without reducing the 

resources available for program delivery.

Program priorities are to support the safety and health of all users of our existing infrastructure and to 

judiciously defer all new construction, including phased projects that include new construction. We will 

place emphasis on facilities that receive public use and are critical to supporting agency operations. These 

facilities include buildings, water and wastewater systems, dams, telecommunication facilities, towers, 

and recreation sites. The table at the end of this section provides a list of major projects costing more than 

$500,000 and is based on receiving approval for the major projects contained in the FY 2013 President’s 

Budget. 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-4

One of our priorities is to emphasize reduction of the agency footprint thru consolidation and elimination 

of underutilized facilities. These opportunities for footprint reduction are identified thru asset 

management planning.

Specific priorities within each activity include:

Maintain Facilities - The FY 2014 President’s Budget funds the maintenance of fire, 

administrative and other facilities (FA&O); along with recreation facilities and sites. Our agency 

priority is to provide safe and healthful environments for all users that are in compliance with all 

applicable regulations and codes. We will concentrate first on facilities that house employees for 

long periods of time, store mission-critical equipment, and provide unique recreation experiences. 

Other priorities the agency will address when possible include reducing deferred maintenance and 

making our facilities more sustainable.

Improve Facilities - The FY 2014 President’s Budget funds the improvement of facilities. Our 

agency priorities include replacing or renovating obsolete facilities and recreation sites that are 

critical to the agency mission, receive the highest 

use by the public and agency personnel, and are in 

the worst physical condition. New building 

construction projects for regional offices, 

supervisor’s offices, district offices, visitor centers, 

and research offices or laboratories where the 

building is 10,000 gross square feet or greater in 

size must be registered and certified using either the 

U.S. Green Building Council’s Leadership in 

Energy and Environmental Design rating system 

(minimum Silver certification), Green Globes 

(minimum Two Green Globes certification, or other 

third-party certification system. All other buildings, 

whether new or major renovations, must be 

designed to incorporate sustainable principles into 

the systems and components appropriate to the 

building type and project scope. This requirement 

applies to buildings on an individual basis, and the most recently issued version of the third-party 

certification system must be used. We encourage construction projects to be designed and 

constructed with domestically harvested wood products ideally locally sourced and from National 

Forest System lands, whenever practicable and feasible.

Past Performance

From 2004 through 2012, the agency reduced its total number of buildings from 41,296 to 40,126 and the 

total square footage of its facilities by nearly 1.4 million square feet. We continue to make significant 

progress in reducing our facilities footprint. 

Number of outdoor recreation facilities maintained to standard (120 percent of target accomplished). In 

FY 2012, we maintained 11,978 recreation sites to standard, or 60 percent of the 21,600 total recreation 

sites. These sites include primarily campgrounds, day-use areas, boat ramps, solid waste disposal 

facilities, and visitor centers. The increase in volunteer hours, use of concessionaires, and the leveraging 

of partnership opportunities contributed to the increase in accomplishments in FY 2012. We also began 

implementing a system-wide recreation visitor safety assessment and action plan identifying areas 

needing possible site revision, relocation, or other associated safety modifications. We proactively 

Innovative Facility Maintenance

Decreased maintenance by using precast 

concrete toilet building with adjoining change 

rooms. 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-5

identify and correct safety hazards at developed recreation sites to ensure we are providing the safest 

possible facilities for the recreating public; otherwise we close a site until we correct all critical safety 

hazards. Over the past few years, the national forests and grasslands hosted on average nearly 166 million 

visits per year. Population growth and increasingly limited public access to privately-owned land 

contributes to high demand for quality recreation on NFS lands.

Number of FA&O facilities maintained to standard (96.2 percent of target accomplished). The agency 

maintained 9,717 out of 15,300 administrative facilities to standard. In FY 2012, maintenance activities 

were focused on the most critical health and safety needs and higher cost maintenance needs. The agency 

focused work on those facilities where employees are housed and facilities that provide for interactions 

with the public. 

Lucerne Campground Reconstruction, Ashley National Forest, Utah

Before Construction After Construction

The Lucerne Campground on the Flaming Gorge National Recreation Area was constructed in the 1960’s. It had 

deteriorated, was not designed for today’s larger vehicle, and the original shelters and tables on the campground were 

not wheelchair accessible. All of the sites in this section of the campground have been reconstructed to meet the 

current accessibility requirements. The newly constructed campground will provide accessibility to all sites and 

upgraded features (electrical hookups, concrete pads, walks, and accessible hydrants, etc.).

Cascade Creek Bunkhouse Renovation, Tongass National Forest, Alaska

Before After

In FY 2012, the agency completely renovated bunkhouse to provide accessibility, replace worn and 

inefficient systems and building components, and gutted interior to the exterior wall and ceiling 

framing. Installed new energy efficient heating system, doors, windows, and added insulation. Also, 

abated asbestos and lead based paint hazards. Provides housing for eight employees in Sitka, Alaska.
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-6

Program Description

Program Overview

The Facilities program supports agency mission activities by administering facilities and sites 

used for recreation, research, and FA&O purposes. FA&O facilities include fire facilities, such as 

airtanker bases, lookouts, airports, heliports, and fire management centers; administrative facilities, such 

as administrative offices (ranger district offices, forest supervisor offices, regional offices, research 

stations, and laboratories), and service and storage buildings; and other facilities, such as 

telecommunication facilities, towers, dams, and recreation visitor centers. This program includes carrying 

out maintenance and capital improvement on approximately 21,600 recreation sites; capital improvement, 

and maintenance costing more than $500,000 on FA&O facilities including approximately 23,100 

research and other administrative buildings. The condition of administrative facilities ranges from poor to 

good, with approximately 41 percent needing major repairs or renovation, approximately 12 percent in 

fair condition; and 47 percent of the facilities in good condition. 

Flexibility to consider a full range of engineering tools is essential to continue to efficiently and costeffectively modernize services the Forest Service provides to the American public, in part by responsibly 

reducing the agency’s facilities footprint. When planning major facility projects, we include both new 

construction and maintenance in our list of major facilities projects based on our facility master plans and 

the most efficient use of taxpayer dollars. The facility staff are demonstrating leadership in environmental 

sustainability and increasing workforce efficiency by providing effective delivery of services to protect 

human safety, providing cost-effective work plans for facilities, modernizing recreational facilities, and 

eliminating excessively high leases. 

The Facilities program consists of two activities. 

The terms “Capital Improvement” and 

“Maintenance” are used as defined by the Federal 

Accounting Standards Advisory Board Accounting 

Standards No. 6 (GPO # 041-001-00462-9):

Maintain Facilities – Maintenance is 

defined as the act of keeping fixed assets 

in acceptable condition. It includes repairs, 

preventive maintenance, and replacement 

of parts and structural components. 

Maintenance projects for recreation 

developed sites, such as campgrounds and 

day-use sites, and FA&O facilities projects 

greater than $500,000 are funded within 

this activity. Maintenance excludes 

operation costs. The maintenance of 

facilities is essential to prevent a potential 

risk to public or employee safety or health, 

compliance with codes, standards and 

regulations, to reduce energy and water 

consumption across the agency, and to create a sustainable network of facilities that meet Forest 

Service needs while reducing their environmental impact.

Improve Facilities – This activity includes capital improvement projects for FA&O and recreation 

sites. Capital improvements include alteration of existing facilities to change function and 

Camping Through Generations

Forest Service campgrounds and other developed recreation 

sites are funded through Capital Improvement and 

Maintenance - Facilities. These sites offer families and 

other visitors low-cost opportunities to camp, swim, fish, 

and enjoy the outdoors. Maintenance at these sites includes 

replacing fixtures in the bathhouses, maintaining campsites 

and picnic shelters to improve visitors’ experiences.
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-7

expansion of facilities to enhance our 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. 

Allocation and Integration

Allocations to the field are based upon the agency’s FA&O master plans and the Recreation Facility 

Analysis five year programs of work that address the agency’s long-term strategic asset management 

objectives and the visitor safety action plan. These objectives include reducing long-term operation and 

maintenance costs, reducing deferred maintenance, disposing of unnecessary assets, and identifying and 

mitigating significant potential threats to employee and public safety. 

Facilities maintenance and improvement activities are also funded by the Deferred Maintenance and 

Infrastructure Improvement budget line item. FA&O facilities are also funded through the Facilities 

Maintenance Assessment funds (see Special Exhibit - Facilities Maintenance Assessment) and the 

Permanent Appropriations Chapter, Operation and Maintenance of Quarters Fund. In addition to 

appropriated funds, annual maintenance and repairs to recreation facilities are also funded through other 

special authorities, including the Timber Sales Pipeline Restoration Fund. Through the use of these funds 

the Forest Service is able to operate and maintain many of its recreation facilities that might otherwise 

have been closed due to increasing costs. 

Partnerships

The agency accomplishes valuable facility work by leveraging funds for completing these activities 

through partnerships. Volunteers, concessionaires, and other partners are engaged to enhance recreation 

experiences and help maintain nearly 70 percent of recreation sites. The agency also co-locates with other 

Federal and nongovernmental agencies to share facilities and thereby lower operation costs.
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-8

FY 2014 Facilities Major Projects List

(dollars in thousands)

Agency-wide Critical Infrastructure Support

Total 

Cost

Recreation Maintenance (Projects Under $500,000) $41,763 

FA&O Maintenance (Projects $250,000 - $499,000) 3,638 

Capital Improvement (Projects Under $500,000) 2,130 

Planning and Design for Future Projects 4,207 

Washington Office (Maintenance and Improvement) 5,782 

Albuquerque Service Center Business Management (Maintenance and Improvement) 7,752 

Project Management and Implementation Support 1,600 

Critical Infrastructure Support Subtotal $25,109

Region/ 

Station/ 

Area State Project Name and Type Unit

Deferred 

Maintenance 

Eliminated

Project 

Cost

National Priority Projects

2 SD

National Grasslands Visitor’s Center 

& Wall Ranger District Office 

Improvement Nebraska $225 $885

5 CA

Photovoltaic Systems Improvements 

on the Inyo Inyo 27 1,411

9 WI

Northern Great Lakes Visitor Center 

(NGLVC) Renewable Energy 

Improvements

ChequamegonNicolet 100 2,433

National Priority Subtotal $4,729 

Regional Priority Projects

1 MT Red Lodge Office Improvement Custer $316 $701

3 AZ

Winslow Air Tanker Base 

Improvements Apache-Sitgraves 647 725

3 AZ

Escudilla Lookout Tower 

Improvements Apache-Sitgraves 600 600

4 WY

Bridger-Teton Administrative 

Facilities Improvements Bridger-Teton 3,000 2,850

5 CA Dorrington Fire Station Improvement Stanislaus 739 1,502

6 WA

Three Rivers Ranger District Fire 

Cache Improvement Colville 580 995

6 WA

Kachess Campground Water System 

Improvement

OkanoganWenatchee 1,540 945

8 GA

Morganton Point Bathhouse and 

Waste Water System Improvement Chattahoochee 129 716

8 LA Catahoula Work Center Improvement Kisatchie 610 1,500

8 VA

Clinch Ranger District Office 

Improvement

George Washington 

& Jefferson 233 2,240

9 MI

Chittenden Nursery Site Conversion 

to Office Improvement Huron-Manistee 779 2,767
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-9

Region/ 

Station/ 

Area State Project Name and Type Unit

Deferred 

Maintenance 

Eliminated

Project 

Cost

10 AK CoLocated Sitka Office Improvement Tongass 474 1,900

Research AZ

Fort Valley Experimental Forest Site 

Improvements RMRS 707 885

Research WI

Forest Products Lab Building 34 

Window Improvement FPL 1,165 1,165

Research WI

Forest Products Lab Building 33 

Window Improvement FPL 1,242 1,242

Research UT

Logan Forestry Sciences Lab 

Improvement RMRS 793 1,129

Regional Priority Subtotal $21,862

Total - National and Regional Facilities Projects Funding $26,591 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-10

Roads

Budget Line Item Roads

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Roads

Annual Appropriations $182,525 $183,642 $145,304 -$38,338 -20.88%

Roads Total 182,525 183,642 145,304 -38,338 -20.88%

Annual Appropriations FTEs 1,162 1,162 1,136 -26 -2.24%

Total Full-Time Equivalents (FTEs) 1,162 1,162 1,136 -26 -2.24%

Roads

New Road Construction 7,264 7,592 6,018 -1,574 -20.73%

Operations & Maintenance 155,242 155,171 122,758 -32,413 -20.89%

Reconstruction of Existing Roads 20,019 20,879 16,528 -4,351 -20.84%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Roads

Miles of high clearance system roads receiving 

maintenance 33,651 22,170 19,063 17,679 17,600 14,000

Miles of passenger car roads receiving maintenance 52,837 37,304 33,358 37,437 35,000 30,000

Miles of road reconstruction and capital improvement 5,352 2,379 1,972 2,512 2,000 2,000

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

provide public access through easement acquisitions or 

land adjustments 106.0% 90.0% 85.0% 20.0% 85.0% 85.0%

FY 2014 Program Changes 

The FY 2014 President’s Budget proposes $145,304,000 for Roads a decrease of $38,338,000 from the 

FY 2013 Annualized CR. The Budget contains $939,000 for pay costs which includes $146,000 for 

annualization of the fiscal year 2013 pay raise and $793,000 for the anticipated fiscal year 2014 pay raise. 

The pay costs increase would enable the program to cover its increased staff costs without reducing the 

resources available for program delivery.

Our focus is on the work related to ensuring public safety and critical access needs. The agency will 

continue to identify a properly sized road system for each National Forest System (NFS) unit. Our 

ultimate goal is management and sustainability of a road system that minimizes adverse environmental 

impacts by assuring roads are in locations only where they are necessary to meet access needs, and can be 

maintained within budget constraints. The agency will continue to use a science-based approach that 

considers the ecological, social, and economic impacts of roads to inform future travel-management 

decisions that move administrative units toward the Minimum Road System. Through Subpart A of the 

Agency’s Travel Management Rule we are reviewing and analyzing the existing road system to determine 

which roads are needed for future administration, use, and protection of the National Forest System.
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-11

For FY 2014, the activities previously accomplished with the Legacy Roads and Trails program will be 

moved to the Integrated Resource Restoration budget line item (BLI). Activities include road 

decommissioning, road and trail repair and maintenance and associated activities, and removal of fish 

passage barriers, especially in areas where Forest Service roads may be contributing to water quality 

problems in streams and water bodies that support threatened, endangered or sensitive species or 

community water sources. Activities also include decommissioning of roads which are no longer needed, 

including unauthorized roads not part of the transportation system. Decommissioning unneeded roads and 

structures eliminates the environmental effects of such roads and helps achieve ecological, terrestrial, and 

aquatic restoration objectives. The work performed on the ground can include removing drainage 

structures, constructing water bars and scarifying and seeding the road bed. Refer to the Integrated 

Resource Restoration section in the National Forest System appropriation for more details.

In FY 2014 for the Roads BLI, specific priorities within each activity include:

Operations and Maintenance - The FY 2014 President’s Budget proposes funding for the 

operations and maintenance of the National Forest Road System (NFRS). The request funds 

maintenance of an estimated 30,000 miles of passenger car roads and 14,000 miles of high 

clearance and closed roads. Currently, there are approximately 65,500 miles of passenger car 

roads, 204,200 miles of roads operated for high clearance vehicle use, and 102,300 miles of 

closed roads, which are kept in storage to provide options for future management activities. 

Operations and maintenance funds maintain the NFRS in its current standard. Priority projects 

include the maintenance necessary to meet Highway Safety Act requirements, emergency access 

for first responders, escape routes in the event of wildland fire or other emergency situations, as 

well as roads identified on a motor vehicle use map. Effective road maintenance ensures that 

roads open for public and administrative travel comply with safety requirements and 

environmental protection laws and are available for critical access needs. We will explore 

innovative technologies that reduce deferred maintenance with cost effective methods. Road 

maintenance activities reduce sediment deposition into streams, and this maintenance is critical to 

protect the quality of water originating on NFS lands that are critical to many communities. 

Properly functioning road drainage makes our roads less susceptible to mass failure, and the 

resulting water quality impacts, due to severe storms.

Reconstruction of Existing Roads - The FY 2014 President’s Budget proposes funding for the 

reconstruction of existing roads. The funds provide for the reconstruction of an estimated 2,000 

miles of existing road, considering all funding sources. Priority reconstruction projects include 

replacement of deficient bridges and stream crossings, recreation site and administrative site 

access needs, and engineering support for road reconstruction needed for vehicle and equipment 

access for timber sale and stewardship contracts. Road reconstruction ensures a transportation 

system that meets applicable safety laws and standards as well as essential public and critical 

access needs.

Road Construction - The FY 2014 President’s Budget proposes funding for road construction. A 

limited amount of funds will only be used to build segments of new roads when needed to support 

critical resource efforts, such as the agency’s bark beetle efforts or to ensure human health and 

safety. 

Past Performance

In FY 2012, we emphasized the safety of our passenger car roads and, as a result, exceeded our 

expectations for both Passenger Car Road Maintenance and Road Improvement. For this same reason, we 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-12

fell short of our target for expected amounts of High Clearance Road Maintenance. Maintaining our 

transportation system is crucial to providing safe access to the NFS lands. In addition, maintained roads 

assist with protecting the environment by reducing erosions that can cause a negative effect on our 

Nation’s drinking water.

FY 2012 Miles Accomplished by Funding Source

Funding Source

Passenger Car 

Road

Maintenance 

(miles)

High Clearance 

Road 

Maintenance 

(miles)

Road 

Decommissioning 

(miles)

Road 

Improvement 

(miles)

Roads 23,937 9,620 352 5972

Other1 13,500 8,059 1,751 1,9153

Total 37,437 17,679 2,103 2,512

Target 33,358 19,063 2,028 1,972

Accomplishment as 

percent of Target 112% 93% 104% 127% 1

Includes Permanent & Trusts Funds, Integrated, and Partnership contributions. 2

Includes one mile of new road construction.

3

Includes 67.3 miles of new road construction, of which 1.9 miles is from Stewardship Contracts and 56.6 miles is from timber 

purchasers.

FY 2012 Structures Accomplished by Funding Source

Funding Source

Bridges 

Disposed or 

Transferred

Bridges 

Repaired

Bridges 

Constructed 

or 

Reconstructed

Stream Crossings 

Mitigated

Roads 8 20 9 41

Other1 13 14 47 234

Total (each) 21 34 56 275 1

Includes Permanent & Trusts Funds, Integrated, and Partnership contributions.

We acquired 102 rights-of-way to enable access to the National Forest System where we do not have 

jurisdiction; this resulted in 84 miles of road and trail easements (123 percent of target). We were able to 

exceed our expectations because some cases planned for completion in the previous year were not 

completed until FY 2012. Additionally, we were able to act on some unexpected opportunities for 

acquiring easements. 

Program Description 

Program Overview

The NFRS is essential for the management, protection, public use and enjoyment of 193 million acres of 

NFS lands. Virtually all agency and public activities on NFS lands require travel over the system, which 

consists of approximately 372,000 miles of roads and 6,200 road bridges. 

The transportation system on each National Forest provides for the protection, utilization, and 

administration of very diverse natural landscapes. The operation and maintenance of these transportation 

systems is complex. Work that supports public safety and resource protection by minimizing erosion and 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-13

fragmentation of habitats are priorities for these program funds, and emphasis will be placed on the safety 

of our passenger car road system.

At the end of FY 2012, approximately 65,500 miles of Forest System roads were open for use by and 

maintained for passenger cars and other State highway legal vehicles (Maintenance Levels 3 – 5), making 

them subject to Highway Safety Act requirements. These roads provide public access for camping, 

recreation, administrative uses, and resource management and development activities. In some cases, 

these roads provide the only escape or access routes for forest users and local residents in the event of 

wildfire or other emergency situations, including access for emergency responders. Approximately 

204,200 miles of road are managed for high clearance vehicles (Maintenance Level 2) and provide access 

primarily for recreational, administrative and resource management and development activities. 

Approximately 102,300 miles of road have been placed in long-term storage for future use (Maintenance 

Level 1) and are not maintained for traffic. 

Following are several of the key uses and associated benefits of a well-maintained NFRS:

• Effective road maintenance is essential to protect the quality of waters provided by NFS lands, 

which provide the drinking water supply for approximately one-fifth of U.S. communities and 

habitat for over 470 fish and 346 crayfish species as well as more than 124 Threatened, 

Endangered and Sensitive Aquatic species. The condition of our roads has a direct effect on our 

ability to provide clean water. Deferring maintenance or not repairing roads after storm events 

allows sediment to enter streams and rivers thereby degrading water quality and jeopardizing the 

safety of users. 

• Recreation visitors contributed an estimated $13.6 billion annually to economies and 

communities within 50 miles of National Forests and Grasslands. Goal A of the President’s 

America’s Great Outdoors Initiative is to, “Increase and improve recreational access and 

opportunities.” The road system is the critical component in maintaining access, and supporting 

local recreation-dependent communities associated with NFS lands. 

• In order to maintain, reconstruct, and construct the NFRS, the Forest Service hires contractors 

that frequently supply good jobs in rural areas. The NFRS provides access to a variety of 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-14

resources such as energy and minerals. In 2011, receipts from annual leases were $629 million, 

with $477 million from coal and $182 million from oil and gas. 

The Forest Service is committed to preventing watershed and habitat degradation associated with offroad vehicle use. Furthermore, we are working to ensure our roads do not prevent the movement of 

aquatic organisms through stream crossings. A designated system of roads, trails, and areas for motor 

vehicle use provides for sustained recreation opportunities for motor vehicle enthusiasts and provides a 

foundation for provision of support facilities such as trailhead parking and information. The pictures 

illustrate an example of improvements to road/stream crossings to protect water resources. Over the past 

ten years, the Forest Service has reduced the total number of road miles by approximately 12,000 miles. 

During that same period, the number of miles of passenger car road available has gone from 

approximately 80,000 to 65,500; a reduction of 18 percent. The Forest Service continues to identify the 

minimum transportation system required to meet the needs of the various users while balancing our 

ability to properly maintain that system. 

The terms “Construction” and “Maintenance” are used as defined by 23 U.S.C. 101. The roads program is 

delivered through the following activities:

Operations and Maintenance - This activity includes the operation and maintenance of existing 

system roads, bridges, and other vehicle access areas such as parking lots. Operations include the 

inventory, classification, and mapping of the transportation system, traffic monitoring, road 

management, and transportation planning (travel management). Transportation planning, formally 

known as travel management helps the agency identify opportunities to reduce the number of 

open roads and determine the appropriate service level for the roads remaining to obtain a 

sustainable transportation system. Maintenance includes actions necessary to preserve or restore a 

road to its original service level and condition to provide acceptable service and achieve its 

expected life. This includes maintenance of the travel ways; roadside vegetation; drainage 

facilities; structures, including bridges; traffic control devices, including signs and gates; and 

engineering support for timber sale contracts that include required road maintenance by the 

timber purchaser. Engineering support costs for timber sales are included in this activity only for 

road work that qualifies as maintenance. Engineering support includes the design, cost estimates, 

contract preparation, and contract administration necessary to assure applicable safety and 

environmental standards are met. 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-15

Reconstruction of Existing System Roads - Reconstruction includes: the renovation and 

restoration of existing roads, bridges, or other vehicle access areas such as parking lots that have 

deteriorated due to the accumulation of deferred maintenance; rights-of-way acquisition; 

changing the function of existing roads to accommodate different users, such as changing a 

logging road to a recreation road; increasing capacity of an existing road such as changing a 

single-lane road or bridge to a two-lane road or bridge; safety improvements that correct or 

improve high hazard locations such as replacement of deficient bridges or culverts; and other 

improvements to meet public and resource management needs. Most of the Forest Service Road 

System was built in the 1960’s and 1970’s and the associated road bridges are reaching their 50 

year design life. Due to age related deterioration, 13.5 percent of road bridges are now 

structurally deficient and are being load restricted or closed at an accelerating rate. 

Reconstruction also includes the engineering support costs for timber sale contracts that include 

timber purchaser provided reconstruction of existing roads that may be in storage. Engineering 

support includes the design, cost estimates, contract preparation, and contract administration 

necessary to assure applicable safety and environmental standards are met. 

New Road Construction - New road construction includes the construction of roads, bridges, and 

vehicle access areas to meet public and resource management needs; reclassifying unauthorized 

roads; and rights-of-way acquisitions. New road construction also includes the engineering 

support costs for timber sale contracts that include new road construction provided by the timber 

purchaser. This activity results in minor addition of miles to the transportation system where none 

previously existed. 

Allocation and Integration

In several of the past years, Congress has provided annual direction on the proportionate amounts of the 

Roads appropriation to be spent for construction and to be spent for maintenance. When funding is 

allocated to the field, the agency uses a formula that reflects this direction. The formula considers land 

area, visitor use, timber volume offered on timber sale and stewardship contracts, and acres treated for 

hazardous fuels. Adjustments may be made between regions based on capability information submitted by 

the regions or to mitigate situations where proposed allocations would create undesirable transition 

effects. 

The NFRS is an integral part of the rural transportation network and is operated and maintained to 

provide safe access for all resource program activities including terrestrial and aquatic ecosystem 

management programs such as Integrated Resource Restoration, Hazardous Fuels, and Recreation, 

Heritage and Wilderness, and Trails. The NFRS supports public enjoyment of NFS lands by providing 

access to recreation sites, trailheads, and special areas. We focus allocations on the implementation of 

completed travel analyses. Coordination across multiple program areas is integral to successfully 

managing the NFRS to ensure the transportation system is adequate to meet those needs. 

Partnerships

The National Forest Roads and Trails Act of 1964 (P.L. 88-657, 16 U.S.C. 535) authorizes cooperative 

construction and maintenance of road systems. Under this authority, the Forest Service enters into 

Cooperative Road Construction and Use Agreements (i.e. Cost Share Agreements) with the owners of 

large tracts of lands intermingled with NFS lands. The Forest Service also enters into Forest Road 

Agreements with public road authorities, such as States and counties, where NFS access, local residential 

access, and local commerce needs coincide. Tens of thousands of miles of NFS roads are included in 

these kinds of agreements.
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-16

Trails

Budget Line Item Trails

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Trails

Annual Appropriations $81,851 $82,352 $82,531 $179 0.22%

Trails Total 81,851 82,352 82,531 179 0.22%

Annual Appropriations FTEs 661 661 661 0 0.00%

Total Full-Time Equivalents (FTEs) 661 661 661 0 0.00%

Trails

Maintain Trails 63,321 62,596 62,864 268 0.43%

Improve Trails 18,530 19,756 19,667 -89 -0.45%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Trails

Miles of system trails maintained 49,576 50,305 46,580 59,274 47,045 48,784

Miles of system trail improved 2,303 1,255 1,162 1,886 1,173 1,403

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $82,531,000 for Trails, an increase of $179,000 from the FY 

2013 Annualized CR. The Budget contains $547,000 for pay costs which includes $85,000 for 

annualization of the fiscal year 2013 pay raise and $462,000 for the anticipated fiscal year 2014 pay raise. 

The pay costs increase would enable the program to cover its increased staff costs without reducing the 

resources available for program delivery. 

The National Forest System (NFS) inventory of 158,400 miles of trails offers a vast range of recreation 

opportunities to the American public, directly supporting the America’s Great Outdoors (AGO) and the 

First Lady’s “Let’s Move” Initiatives. We continue to designate trails for motor-vehicle use consistent 

with the Travel Management Rule and to strengthen partnerships in trail stewardship; particularly those 

that help deliver youth programs. The program continues to focus on management and protection of the 

national scenic and historic trails. 

Specific priorities within each activity include:

Maintain Trails - The FY 2014 President’s Budget proposes funding to maintain and repair 

approximately 48,784 trail miles, including repair and reconstruction of bridges and trails 

damaged by Hurricane Irene, Hurricane Sandy, and other natural disasters. Approximately 20 

percent of this work will be accomplished through the use of volunteers. In FY 2014, the agency 

will address approximately 20 percent of the total trail system miles through a unified program of 

work. We continue to validate and improve our basic trails inventory as well as the collection of 

trail assessment and condition survey data, to ensure that we have sound, accurate information on 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-17

NFS trails. We are also increasing training for reporting trail accomplishments. Trail maintenance 

reduces resource damage and improves safety conditions to provide a safe and a quality 

experience for trail users.

Improve Trails - The FY 2014 President’s Budget includes funding to improve approximately 

1,403 miles of trails in the NFS, investing funds to provide increased connectivity and enhanced 

trail-related access and recreation opportunities. Funds will also improve access to recreational 

rivers, directly addressing an AGO goal. Trail improvement helps ensure a safe and quality 

experience for trail users; protects valuable wildlife, fish, and plant habitat; and protects water 

quality by preventing sedimentation of streams.

Past Performance

Miles of system trails maintained (127 percent of target accomplished). In FY 2012, the agency 

maintained 59,274 miles of system trails, out of a total of over 158,000 miles total. Over the past year, the 

trails program has streamlined its data collection efforts and has increased training for field personnel to 

ensure that data are consistently collected and reported. When trails receive adequate maintenance, we 

can provide a higher quality experience for visitors to the national forest. Trails are accessed by many 

different user groups including hikers, motorized vehicle enthusiasts, and equestrian groups. Maintenance 

priorities are determined at the local level based on funding levels, condition survey results, visitor use 

patterns, and other local needs. Local partnerships and volunteer resources are also a factor in determining 

which trails are maintained in the course of a program year. 

Miles of system trails improved (162 percent of target accomplished). In FY 2012, the agency improved 

1,886 miles of system trails. Trail improvement involves the development of new trails and the alteration 

or expansion of existing trails for recreational use. Trail improvements result in an enhancement or 

expansion of recreational infrastructure on NFS land. For example, on the Continental Divide National 

Scenic Trail, we continue to build new trail to provide expanded and improved access for the public. 

These newly developed and improved trails give visitors a broader opportunity to experience the National 

Forests. In addition, when new trails are constructed, we use the latest safety standards which create a 

safer experience for trail users. 

Program Description

Program Overview

The trails program ensures public safety and backcountry access through the operation, maintenance, 

rehabilitation, and improvement of NFS trails, serving a wide constituency of visitors at a relatively low 

cost. Out of a total of over 158,000 miles of trails, about 32,000 miles of trails are inside designated 

wilderness areas. The NFS trail system accommodates roughly 50 million visitor-days of non-motorized 

and motorized travel such as cross-country skiing, hiking, hunting, fishing, wildlife viewing, horseback 

riding, mountain biking, snowmobiling, and off-highway vehicle use each year. 

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 (Nee Mee Poo) National Historic Trail, Arizona National Scenic 

Trails, Pacific Northwest National Scenic Trail, and portions of an additional 15 other national scenic and 

historic trails. This administration is accomplished in coordination with other Federal public land agencies 

(see the Special Exhibit on National Scenic and Historic Trails for further details.)
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-18

The trails program is delivered through the two following activities. The terms “Capital Improvement” 

and “Maintenance” are used as defined by the Federal Accounting Standards Advisory Board Accounting 

Standards No. 6 (GPO # 041-001-00462-9). The maintenance and improvement of system trails ensures 

trails are accessible, adequately designed, safe, and environmentally responsible as described below:

Maintain Trails - (both annual and deferred maintenance) This activity includes the maintenance 

and operation of system trails and trail bridges. Maintenance activities include the actions 

necessary to preserve or restore a trail to its originally intended condition in order to provide 

acceptable service and achieve the expected trail lifespan. Work includes clearing encroaching 

vegetation and fallen trees and the repair, preventive maintenance, and replacement of trail signs, 

treadways, water drainage, trail bridges, and other trail structures. Trail maintenance also 

provides trail accessibility and promotes ecosystem health by protecting soil, vegetation, and 

water quality. 

Improve Trails - Provides for the planning and design, new construction, alteration and expansion 

of system trails, trail bridges, and trail components, such as barriers, culverts, fencing, and 

wildlife viewing platforms. 

Allocation and Integration 

Funding is allocated based on the existing miles of NFS trails, regional capability, and management of 

National Scenic and Historic Trails. While maintaining a base-level ability to maintain trails in all of the 

national forests and grasslands, a portion of the trails funding creates jobs for youth in rural areas by 

leveraging resources. Priority projects leverage the most non-Federal dollars and create the most jobs. 

Trail maintenance and improvement is also funded by Capital Improvement and Maintenance, Deferred 

Maintenance and Infrastructure Improvement; Integrated Resource Restoration; and Permanent 

Appropriation as well as Legacy Roads and Trails.

Partnerships

The trails program leverages thousands of hours of trail work from volunteers and youth organizations to 

operate, maintain, and construct thousands of miles of trail each year. Trail crews are one of the primary 

means for the Forest Service to employ young adults and partner with local communities and interest 

groups. In FY 2012, over 345,000 hours of service were contributed by volunteers from partnering 

organizations to help achieve targets on national scenic and historical trails. Approximately 3,700 miles of 

trails were maintained and 325 miles were improved by outside partnering organizations. For example, on 

the Pacific Crest Trail there were over 1,000 miles maintained by The Pacific Crest Trail Association and 

other area partners through 74,000 hours of service by their volunteers. 
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-19

STF Trail Storm Proofing—Stanislaus National Forest, California

2012 Project Accomplishment Highlight

CMTL Funds: $215,000 Other Funds (incl. Partner Contributions): $351,165

Work Performed: 3.25 miles trail improved to standard, 343 feet of new trail construction, and 185 miles of trail storm 

proofed and maintained to standard.

Project Purpose/Objective: Cleaning, repairing, and installing trail drainage structures within the affected watersheds 

on system trails. Structures to be repaired or installed included rock water bars, drainage swales, gully crossings, 

shallow stream crossings, trail tread rip rap, rock walls and retainers. 

Expected Benefits: The project will improve trail conditions and reduce safety risks to the public areas with high 

public use. Reduce impacts of existing trail on water quality and riparian and aquatic habitat. Reducing sediment input 

to streams from the trail treads there by restoring necessary hydrologic characteristics. This project will bring existing 

trails into compliance with approved condition objectives.

Partnering Organizations: The forest utilized the California Conservation Corps Backcountry Trails Program and the 

Cal Fire Vallecito Inmate Crew as partners in this project.

Area Before Area After
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-20

Deferred Maintenance and Infrastructure Improvement

Budget Line Item Deferred Maintenance and Infrastructure 

Improvement

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Deferred Maintenance and Infrastructure 

Improvement

Annual Appropriations $9,121 $9,177 $7,121 -$2,056 -22.40%

Deferred Maintenance and Infrastructure 

Improvement Total 9,121 9,177 7,121 -2,056 -22.40%

Annual Appropriations FTEs 10 10 10 0 0.00%

Total Full-Time Equivalents (FTEs) 10 10 10 0 0.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Deferred Maintenance and Infrastructure 

Improvement

Miles of high clearance system roads receiving 

maintenance 0 0 0 0 0 0

Miles of passenger car roads receiving maintenance 75 0 0 1 0 0

Miles of road reconstruction and capital improvement 36 9 0 0 0 0

Number of outdoor recreation facilities maintained to 

standard 0 0 3 0 5 4

FA&O facilities maintained to standard 0 0 7 0 4 8

Miles of trails maintained to standard 18 0 0 181 0 0

Miles of system trail improved to standard 0 0 15 1 0 0

FY 2014 Program Changes 

The FY 2014 President’s Budget proposes $7,121,000 for Deferred Maintenance and Infrastructure 

Improvement, a decrease of $2,056,000 from the FY 2013 Annualized CR. The Budget contains $8,000 

for pay costs which includes $1,000 for annualization of the fiscal year 2013 pay raise and $7,000 for the 

anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its 

increased staff costs without reducing the resources available for program delivery.

Other appropriations, such as Facilities, Roads, and Trails, contribute to the agency’s efforts to reduce the 

deferred maintenance backlog. For FY 2014, we developed a national prioritized list of projects from 

proposals developed by the units. We selected projects to implement that address the most critical health 

and safety infrastructure needs particularly in areas that are heavily used by the public and agency 

employees, such as performing critical maintenance and repairs to dams; correcting health and safety 

deficiencies in buildings, campgrounds, and water and wastewater systems; and renovation of recreation 

structures.
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-21

FY 2014 Deferred Maintenance & Infrastructure Improvement Projects

(dollars in thousands)

Region State Forest Project Name Allocation

1 ID Nez Perce Sewer Systems Repairs $594

1 ID Idaho Panhandle

Coeur d’ Alene Air Tanker Base Environmental 

Repairs 376

2 CO Rio Grande Jumper Lake Dam Repairs and Hazard Analysis 280

3 NM Carson

Canjilon RS & El Rito RS Water System 

Improvements 511

3 AZ Tonto Tonto Recreation Site Decommissioning 350

4

WY,

UT Ashley

Flaming Gorge NRA Critical Water and 

Wastewater System Repairs 900

5 CA Los Padres Los Prietos Water System Replacement 950

8 NC Croatan 

Cedar Point Campground Wastewater System 

Rehabilitation and Energy Conservation 700

9 MI Huron-Manistee Huron Shores Ranger Station Renovations 437

10 AK Tongass Sitka Energy Retrofit 600

Research CA

PSW Research 

Station

Placerville Institute of Forest Genetics Lab 

Facilities and Energy Improvements 498

Research OR

PNW Research 

Station

Corvallis Forestry Sciences Lab HVAC Repairs 

and Energy Upgrades 917

Pay costs $8

Total $7,121

*The projects table states a total of $7,121,000, which includes an increase of $8,000 of pay costs to support the programs in 

aggregate.

Past Performance

In FY 2012, the agency completed the following major projects and eliminated over $5.4 million of 

deferred maintenance.

FY 2012 Deferred Maintenance Major Projects

(dollars in thousands)

Region State Forest Project Name Allocation

1 MT Lolo 

Plains RS Water System Replacement – Phase 2

Reprogrammed $150 to complete FY 2011 

CMFC Red River Water/Wastewater System 

Project $388

1 MT Gallatin

Earthquake Lake Visitor Center Retrofit –

Phase2 955

1 ID Idaho Panhandle Residential-Electrical-Roofing-Siding – Phase 2 476

1 ID Nez Perce Red River Water/Wastewater System 150
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-22

FY 2012 Deferred Maintenance Major Projects

(dollars in thousands)

Region State Forest Project Name Allocation

2 CO

Grand Mesa, 

Uncompahgre, 

Gunnison Crystal Lake Dam Reconstruction – Phase 2 334

2 CO White River Rifle Office Renovation & Addition – Phase 2 1,046

3 AZ Apache-Sitgraves 

Big Lake Campground Utility Infrastructure –

Phase 2 393

3 AZ Coconino

Red Rock Trail System Enhancement and 

Maintenance 573

4 ID Boise

Landmark Historic Ranger Station 

Rehabilitation 747

4 WY Bridger-Teton Critical Water and Wastewater Repairs 759

5 CA Las Padres

Rose Valley Helibase Decommissioning –

Phase 2 937

5 CA Lassen

Hat Creek Work Center Wastewater Upgrade –

Phase 2 352

6 WA

OkanoganWenatchee Wenatchee River RD Fire Building Renovation 1,034

9 WV Monongahela

Big Bend Campground – Water & Wastewater 

System Replacement – Phase 2 977

Total $9,121

Program Description

Program Overview

The Deferred Maintenance and Infrastructure Improvement program provides for maintenance, repair, 

and improvement of the agency’s infrastructure. The agency’s portfolio includes approximately 40,200

buildings, 4,840 drinking water systems, 4,890 wastewater systems, approximately 21,600 recreation 

sites, over 158,000 miles of trails, 6,640 trail bridges, 6,200 road bridges, 372,000 miles of roads, 560 

dams, and additional infrastructure features. These assets currently have a backlog of over $6.03 billion 

dollars in maintenance needs. The amount of deferred maintenance backlog has increased overall, 

especially because the funding for deferred maintenance has decreased. Additional needs are added to the 

inventory each year, which has increased the total amount. In addition, the cost of addressing deferred 

maintenance varies each year (e.g. changes in building material). See the Special Exhibit on Deferred 

Maintenance.
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-23

This program provides for maintenance of recreation developed sites, water-wastewater systems, roads, 

trails, road and trail bridges, fire, administrative, and other facility maintenance projects costing more 

than $500,000 as well as infrastructure capital improvements as described below:

Maintenance - This activity includes repairs, preventive maintenance, and replacement of parts 

and structural components. Maintenance that is not performed as needed or scheduled is referred 

to as deferred maintenance. Deferred maintenance leads to deterioration of performance, 

increased costs to repair, and a decrease in the value of the infrastructure. Deferred maintenance 

complements the Facilities, Roads, Trails, and the Integrated Resource Restoration (IRR)

programs by directing funds specifically toward reducing the backlog of deferred maintenance in 

large part to ensure the safety of the recreating public, agency employees, volunteers, and 

contractors.

Crystal Lake Dam Reconstruction, Grand Mesa, Uncompahgre, Gunnison National Forests, Colorado

Before: North face of dam showing lack of clearing. After: The dam is now safer. It has an operable outlet 

and emergency spillway. It has protection from wind 

erosion with placed riprap and the vegetation clearing 

allows seepage to be more visible to quantify and 

correct.

Before: Gate operator not functional. Before: Outlet not functional. After: New emergency spillway.
FY 2014 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 6-24

Infrastructure Improvement - This activity includes the construction of new infrastructure, 

alteration of existing infrastructure to change its function, and the expansion of existing 

infrastructure to increase capacity. Improvements are often required to maintain public service 

capability or recreational opportunities. Capital improvement projects eliminate deferred 

maintenance and provide mission-critical infrastructure.

Allocation and Integration

Projects that achieve the greatest reduction in the agency’s total deferred maintenance backlog are given 

priority for funding. Starting in FY 2011, funds have been allocated to nationally selected projects that 

address the most critical health and safety infrastructure needs particularly in areas heavily used by the 

public and agency employees. Condition assessment surveys drive management decisions and national 

allocations regarding construction, use, maintenance or decommissioning, and disposal of assets. 

In addition to Deferred Maintenance and Infrastructure Improvement, other programs and authorities are 

available to reduce deferred maintenance, including IRR; Capital Improvement and Maintenance, 

Facilities, Roads, and Trails programs; and Permanent Appropriations including Federal Lands 

Recreation Enhancement Fund, Roads and Trails (10 Percent) Fund, and Operations and Maintenance of 

Quarters. Through the use of these funds, the agency is able to direct additional resources that address the 

significant backlog of deferred maintenance on the agency’s infrastructure.

Partnerships

This program leverages funds through partnerships with non-profit organizations and volunteers.

Additional leveraging is accomplished through concessionaire programs, user maintenance fees, and other 

partner-based work.

Big Lake Utility Lagoon in Arizona

.

Failed Liner before start of project. Lagoon at the beginning of the installation of new Polyolefin 

Liner. Project was completed at the end of FY 2012.

This project restores the sewage treatment plant to full capacity and protects the aquifer. It resolves critical health and 

safety issues and avoids receiving a Notice of Violation from the Arizona Department of Environmental Quality.
FY 2014 Budget Justification USDA Forest Service

Land Acquisition 7-1

7. Land Acquisition

Appropriation Land Acquisition

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Land Acquisition

Annual Appropriations $52,521 $52,842 $57,984 $5,142 9.73%

Land Acquisition Total 52,521 52,842 57,984 5,142 9.73%

Annual Appropriation FTEs 61 61 61 0 0.00%

Total Full-Time Equivalents (FTEs) 61 61 61 0 0.00%

Appropriation Acquisition of Lands for National Forests Special 

Acts

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Acquisition of Lands for National Forests 

Special Acts

Annual Appropriations $953 $959 $912 -$47 -4.90%

Acquisition of Lands for National Forests 

Special Acts Total 953 959 912 -47 -4.90%

Annual Appropriation FTEs 0 0 0 0 0.00%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0.00%

Appropriation Acquisition of Lands to Complete Land 

Exchanges

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Acquisition of Lands to Complete Land 

Exchanges

Annual Appropriations 0 0 $217 $217 0.00%

Acquisition of Lands to Complete Land 

Exchanges Total 0 0 217 217 0.00%

Annual Appropriation FTEs 0 0 0 0 0.00%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0.00%
FY 2014 Budget Justification USDA Forest Service

Land Acquisition 7-2

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Land Acquisition (Appropriation)

Number of acres acquired or donated (Discretionary 

funds) 169,086 20,149 18,374 26,330 25,000 43,378

Number of acres acquired or donated (Mandatory funds) 0 0 0 0 0 11,733

Priority acres acquired or donated that reduce the 

conversion of forests, grasslands, and aquatic and 

riparian ecosystems to incompatible uses in order to 

improve and maintain ecological conditions for federally 

listed and candidate species, species of concern and 

species of interest (Discretionary funds) 125,326 14,075 13,781 20,624 18,750 34,463

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 (Mandatory funds) 0 0 0 0 0 9,016

FY 2014 Program Changes

Land Acquisition

The FY 2014 President’s Budget proposes $57,984,000 in discretionary funding for the Land Acquisition 

budget line item, an increase of $5,142,000 from the FY 2013 Annualized CR. The Budget contains 

$50,000 for pay costs which includes $7,000 for annualization of the fiscal year 2013 pay raise and 

$43,000 for the anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to 

cover its increased staff costs without reducing the resources available for program delivery. An 

additional $34,266,000 of mandatory funding is proposed to be transferred from the Department of the 

Interior (DOI) for a combined total of $92,250,000. Acquisitions also address public demand, as outlined 

in the America’s Great Outdoors (AGO) Initiative. The FY 2014 program targets include new measures 

for acres acquired or donated using mandatory funds and priority acres acquired or donated using 

mandatory funds.

Collaborative Land and Water Conservation Fund (LWCF) Initiative

The request includes $57,015,000 within both the discretionary and mandatory portions to support the 

projects described in this section under the heading “Collaborative Landscape Planning” (CLP). This 

endeavor addresses AGO Action Item 5.2a: Implement an interagency process to invest part of the 

Federal LWCF funds in high-yield conservation projects that address shared ecological goals. USDA and 

the Forest Service, with the DOI and its agencies, identified landscapes where the agencies can 

collaboratively respond to locally supported planning efforts to protect critical ecosystems before 

fragmentation occurs. 

Conserving large-scale landscapes provides multiple resource and economic benefits to the public, 

including cleaner drinking water, recreational opportunities, reduced wildfire risk, protected habitat for atrisk and game species, and jobs generated on and off forests and grasslands. All of these proposed land 

acquisition projects are within National Forest System (NFS) boundaries and congressionally designated 

areas. Acquiring them will reduce expenditures associated with boundary management and fire 

suppression for the Forest Service and surrounding communities and will increase public access to 

Federal land.
FY 2014 Budget Justification USDA Forest Service

Land Acquisition 7-3

Two CLP projects, the Longleaf Pine and Crown of the Continent: Northern Rockies Montana Legacy 

Completion, are proposed for a second round of funding in order to reinforce the Administration’s 

commitment to make significant investments in important landscapes that make a difference in those 

landscapes more rapidly. The California Southwest Desert project is an initial investment in this 

landscape and the Pacific Crest Trail that compliments larger investments by the DOI.

Core Forest Service Acquisitions

The $35,235,000 in discretionary ($21,600,000) and mandatory ($13,635,000) project funding focuses on 

acquiring the highest priority lands within National Forest System boundaries that further specific agency 

goals for forest and grassland restoration, watershed management under the Watershed Condition 

Framework, and public and private access. 

Priority Recreational Access 

The Forest Service will use up to $2.5 million of FY 2014 LWCF funds to acquire parcels that provide 

access to NFS lands whereby access is not currently available or is impeded, and acquire important 

inholdings. Upon receipt of an appropriation, the Forest Service’s Washington Office will coordinate a 

request to Forest Service Regions to nominate potential access and inholding acquisitions for funding. For 

the purposes of this funding, we intend “access” to include both motorized and/or non-motorized. 

The Priority Recreational Access budget line item will invest a portion of FY 2014 LWCF funds to 

provide access to portions of the NFS that were previously considered to have limited or no public access, 

and to acquire inholdings in Wilderness and other lands inside National Forest boundaries. 

Our goal with recreational access, as recommended in the AGO report, is to invest LWCF funds to better 

meet recreation and other management needs. The Forest Service will work with willing landowners to 

secure rights-of-way, easements, or fee simple lands that provide access to areas that are chronically 

difficult to access, or acquire inholdings that consolidate Federal ownership so that the public has 

unbroken spaces in which to hike, hunt, and fish. 

Eligibility

The conditions of eligibility for all parcels at the time of nomination are that the parcel must have a 

willing seller and must have clear title.

Rating Criteria

Projects will be evaluated on the degree to which previously inaccessible lands are made accessible, or 

the importance of the inholding acquisition to protect and enhance habitat, recreation, access, restoration 

and/or viewsheds. This can be quantified in terms of area (acres), a linear measure (e.g. stream frontage), 

and/or costs savings and operational efficiencies for access and inholding purposes achieved by the 

acquisition. The Regional Forester will make final project recommendations for project selection. The 

Deputy Chief of NFS has final approval for selecting projects for funding.

Partnerships

Forest Service Land Acquisition has been a partnership based program for over 30 years. Our work with 

partners on important conservation acquisitions funded by the LWCF is the foundation of several 

longstanding relationships that have protected key strategic lands that allow the Forest Service to provide 

a diversity of benefits to the public. The agency’s priority through our Land Acquisition list is in many 
FY 2014 Budget Justification USDA Forest Service

Land Acquisition 7-4

respects a compendium of years of collaboration and on-going dialogue with partners. Partnerships 

provide more than funding and logistical support for acquisitions. They are essential for communication, 

learning and innovation, helping us be responsive and deliver results. The Land Acquisition program 

relies on partnerships and relationships with local, State, Federal, Tribal, corporate and non-governmental 

organizations, and individuals. These partners often work with us on multiple programs. For instance, 

many of the partners working on the Crown of the Continent Northern Rockies: Montana Legacy 

Completion acquisition in the Flathead and Lolo National Forests were integral to the selection of those 

forests for Collaborative Forest Landscape Restoration funds in 2010. 

Partners working with the Forest Service on projects recommended for FY14 funding include The 

Conservation Fund, The Nature Conservancy, The Trust for Public Land, The Partnership for the National 

Trails System, Charleston County South Carolina, and The Truckee Donner Land Trust.

Acquisition of Lands for National Forests Special Acts; Acquisition of Lands to Complete Land 

Exchanges

The request includes $912,000 for the Acquisition of Lands for National Forests Special Acts and 

$217,000 for Acquisition of Lands to Complete Land Exchanges. These funds acquire lands that protect 

critical watersheds, address flood damaged areas, and protect forested lands and resources.

Past Performance

Number of acres acquired or donated (143 percent of target accomplished). In FY 2012, we acquired 

26,330 acres. The accomplishment is primarily due to projects in the Rocky Mountain and Eastern 

Regions of the agency. The FY 2012 program focused on acquiring the highest priority lands to 

consolidate inholdings and support management needs related to restoration, fire, and watershed 

management. Significant accomplishments include the completion of the “Rocky Fork” acquisition on the 

Cherokee National Forest in Tennessee. This 10,000 acre parcel was the last large forested parcel in the 

region. Completed in partnership with the Conservation Fund, this acquisition now connects the Cherokee 

National Forest and the Pisgah National Forest in North Carolina. The final phase of the Hell Canyon 

National Recreation Area (HCNRA) acquisition was also completed in partnership with The Nature 

Conservancy. This 6,673 acre acquisition consolidated 27 privately owned parcels in the HCNRA that are 

now open to the public for hunting, fishing, and hiking.

Program Description

Program Overview

The Land Acquisition program funds the acquisition and donation of lands, waters, and related interests 

within the NFS to further agency goals for restoration, outdoor recreation and public access, habitat for 

wildlife including threatened and endangered species, and to protect water quality and quantity. Land 

acquisition is best able to further these goals through consolidation and connection of fragmented lands. 

We evaluate potential acquisitions based on how well they will support effective land management and 

improve stewardship functions such as habitat restoration, fuels reduction, and public access, and how 

much they will reduce costs associated with boundary line management and trespass encroachments. 

Land acquisition can reduce management costs by consolidating landownership, avoiding further 

fragmented development within forest boundaries which can exacerbate fire, insect, and disease 

management challenges. Forest Service land acquisitions have broad support by stakeholders at the local 

level and ensure water quality, recreational access, wildlife habitat, and other public benefits, including 

the benefits these acquisitions have on local and regional economies. Land acquisition is one land 
FY 2014 Budget Justification USDA Forest Service

Land Acquisition 7-5

adjustment tool we have to promote the long-term health and sustainability of the national forests and 

grasslands and thereby protect taxpayer investments in National Forest System lands.

The Land Acquisition program plays an important role in restoring the ecosystem function and resilience 

of landscapes in the face of the effects of climate change. These contributions include acquisition of 

watersheds that serve as natural reservoirs for downstream water supply, and the acquisition of vegetated 

lands that sequester carbon. Maintaining these ecosystem services requires an integrated, landscape-level 

approach that is best achieved through strategic land acquisitions. Land acquisitions may provide 

recreational access to key hunting and fishing grounds, directly supporting local gateway economies. 

Land acquisition also directly lowers land management costs by consolidating and connecting large 

landscapes, making restoration efforts more efficient, and it reduces costs associated with boundary line 

management and trespass encroachments.

The program is delivered through the following activities:

Land Acquisition Management - This activity covers expenses to complete land acquisitions and 

donations, including costs associated with employing technical expertise, and due diligence work 

such as title search, appraisals, land acquisition surveys, and legal document preparation.

Acquisition management funds also cover administrative costs associated with exchanges and 

donations when the land acquired through these methods are within an approved project area.

Purchase Land - Funds pay for the cost of purchased lands and land equalization cash payments 

for those exchanges that would otherwise qualify for purchase.

Cash Equalization - This program provides for the payment of cash to equalize a land exchange 

when the value of the Federal land exceeds the value of the non-Federal land (up to 25 percent of 

the Federal land value).

Acquisition of Lands for National Forests, Special Acts - This program provides for the 

acquisition of lands to protect watersheds, minimize soil erosion, and rehabilitate specified 

national forests in Nevada, Utah, and California. 

Acquisition of Lands to Complete Land Exchanges - This program provides for the acquisition of 

lands through land exchanges with funds collected from the exchange or sale of NFS lands with

State, county, or municipal governments, public school authorities, or other non-Federal parties, 

when in the public interest to do so. 

Allocation and Integration 

Core land acquisition projects funded through LWCF are selected using a two-stage process. First, Forest 

Service regions review and rank projects according to the Strategic Land Acquisition Rating System 

(SLARS). Top regional projects are submitted to agency headquarters, where they compete nationally 

against other projects proposed by other Forest Service regions. Criteria tie the selection process to the 

Land and Water Conservation Fund Act and the agency’s Strategic Plan goals and objectives, and are 

used to identify and prioritize acquisitions to maximize public benefit. Congressionally approved project 

funds are allocated to the benefiting regions as soon as all parties are ready to close on the sale of the 

property. Acquisitions may be funded through other means such as Sisk Act funds or revenue raised 

through sales or exchanges. Information about the SLARS and the national criteria are available on the 

Forest Service web site at http://www.fs.fed.us/land/staff/LWCF/index.shtml. The processes used to 

identify and recommend funding for the Priority Recreational Access Parcels and the CLP are described 

elsewhere in this section.
FY 2014 Budget Justification USDA Forest Service

Land Acquisition 7-6

Acquisition management funding is allocated to the regions using criteria based on workload, including 

prior year accomplishments and new current fiscal year appropriations for projects. Cash equalization 

funds are accessed at the time an individual land exchange is ready to close.

Collaborative Landscape Planning

Land Acquisition in FY 2014 builds on efforts started in FY 2013 to strategically invest in 

interagency landscape-scale conservation projects while continuing to meet agency-specific 

programmatic needs. The Department of the Interior and the USDA Forest Service collaborated 

extensively to develop a process to more effectively coordinate land acquisitions with 

government and local community partners to achieve the highest priority shared conservation 

goals. 

The new Collaborative Landscape Planning (CLP) process is designed to: 

• Use LWCF to incentivize collaborative planning for measurable outcomes at the 

landscape scale 

• Invest LWCF resources in the most ecologically important landscapes 

• Invest in projects that have a clear strategy to reach shared goals grounded in sciencebased, and planning, are backed by strong local community support, and will make the 

most efficient use of Federal funds

For FY 2013, DOI and USDA are piloting the CLP process with a combined request of $109 million. 

Approximately $90 million is requested among the three DOI bureaus and the remaining $25 million by 

the Forest Service. The FY 2013 CLP projects have been evaluated by a Technical Advisory Committee 

(TAC) according to merit-based criteria in the following categories: 

• Process - Ensure proposals are built through Federal agency and local stakeholder 

collaboration and make efficient use of Federal funding.

• Outcomes - Ensure Federal resources are targeted to achieve important biological, 

recreational, cultural, and socio-economic outcomes.

• Urgency - Ensure funding is focused on outcomes that may be lost today if no action is 

taken or that are particularly achievable today.

• Contribution to National Priorities - Ensure local proposals are important contributors to 

the highest priority national conservation goals.

Through this rigorous evaluation process, the joint DOI-USDA National Selection Committee selected 

the Northern Rockies and the Florida-Georgia Longleaf Initiative landscapes, as well as an initial 

investment in the Greater Yellowstone landscape as the priorities for pilot funding. 

Investing now in these ecologically important but threatened landscapes will ensure that they remain 

resilient in the face of development pressures and global climate change. Smart investment in strategic 

conservation in these landscapes will prevent further ecosystem decline or collapse.

In the Northern Rockies, the collaborating Federal agencies have been working with NGO partners, local 

community groups such as the Blackfoot Challenge & Rocky Mountain Front Landowner Advisory 

Group, and state and county government officials, to tailor the Federal acquisition program in a way to 
FY 2014 Budget Justification USDA Forest Service

Land Acquisition 7-7

achieve a synergy between private rights, open space, traditional land uses and conservation. This shared 

vision includes maintaining working ranches and forests by acquiring conservation easements as well as 

acquiring lands in fee simple that will provide public access and enjoyment.

The landscape is home to a number of large game species. Antelope, elk, deer, and moose range 

throughout the acquisition area, and can be hunted within some fee ownership acquisitions. The Federal 

acquisition projects will complement the conservation goals of State wildlife action plans as well as other 

conservation plans including Partners in Flight, Endangered Species Recovery Plans, Forest Management 

Plans and agency general management and departmental-level strategic plans.

In the Florida-Georgia Longleaf Initiative landscape, Federal agencies drew from Florida wildlife habitat 

gap analyses, recovery plans, other Florida and Federal natural resource assessments and initiatives, and 

local government and general public input, to develop a plan for land acquisition that targets the most 

critical conservation needs. The endangered red-cockaded woodpecker (RCW) is the keystone species of 

the longleaf pine ecosystem which once encompassed up to 98 million acres of the Southeast, now 

reduced to about 3 million acres, much of it in poor condition. The Forest Service, Fish and Wildlife 

Service, and the State of Florida have collaborated over the last 20 years to dramatically grow the RCW 

populations and promote the recovery of the longleaf pine ecosystem through the RCW Southern Range 

Translocation Cooperative, as well as to protect and expand critical wildlife areas and the Florida 

National Scenic Trail corridor.

The acquisitions funded in this request allow these long-time partners to focus on the most critical needs 

of each agency in support of our shared priority of longleaf pine ecosystem conservation & restoration 

and endangered and threatened species recovery. The lands selected for this proposal are the highest 

priority for each unit to protect critical habitat, improve management, protect private lands from wildfire, 

and leverage the efforts of our conservation partners to secure these tracts for Federal protection. 

In the Greater Yellowstone landscape, the planned acquisitions will contribute to species conservation and 

will secure habitat connectivity for large game species including elk, deer and moose. The network of 

protected lands in this ecosystem supports a robust local tourism economy which draws millions of 

tourists annually for outdoor recreation, hunting and angling. Development of unprotected lands in this 

area is an urgent threat to the landscape’s ecological integrity and to the rural character of the landscape 

that underpins the area’s tourism economy.

The following table includes four projects totaling $57,015,000 that make up the Forest Service’s 

discretionary and mandatory CLP funding recommended by USDA and DOI agencies: Forest Service, 

Fish and Wildlife Service, Bureau of Land Management, and National Park Service.
FY 2014 Budget Justification USDA Forest Service

Land Acquisition 7-8

FY 2014 Land Acquisition Projects

FINAL LWCF FY 2014 PRIORITY ACQUISITION LIST

Funding Request

Acquisition Management* $9,050,000

Priority Rec Access $2,500,000

Cash Equalization $820,000

Priority Order Project Name Forest/Unit State Funding Request

1 CLP: Crown of the Continent 

Northern Rockies-MT Legacy 

Completion

Lolo/Flathead MT $31,000,000

2 Sierra Nevada CheckerboardRoyal GorgeTahoe CA $2,300,000 

3 Washington Cascades-Yakima 

River Watershed

Okanogan-Wenatchee WA $3,000,000 

4 Missouri Ozarks-Current River Mark Twain MO $1,760,000 

5 Miranda Canyon Carson NM $2,170,000

6 CLP: Longleaf Pine Francis Marion SC $5,384,000

Subtotal Discretionary Funding $57,984,000

6 CLP: Longleaf Pine Francis Marion –

remainder of total 

recommended funding

SC $1,316,000

7 Greater Yellowstone Area CaribouTarghee/Bridger TetonID/WY $2,000,000

8 Ophir Valley Phase VI Uncompahgre CO $1,500,000 

9 Tenderfoot Lewis & Clark MT $3,200,000 

10 Disappearing Wildlands of 

Georgia Mountains and Rivers

Chattahoochee-Oconee GA $1,435,000

11 CLP: California Southwest 

Desert

San Bernardino; San 

Jacinto, Santa Rosa NM; 

Pacific Crest NST

CA $10,390,000

12 Great Lakes Northwoods Superior, CheqamegonNicolet, Ottawa, 

Chippewa, Hiawatha

MN,WI,MI 

$1,400,000

13 North Carolina's Threatened 

Treasures

Pisgah, Uwharrie NC $1,250,000

14 Salmon Selway-IDGF Payette, Salmon-Challis ID $800,000

15 Pacific Northwest Streams Mt Hood, Umatilla, 

Rogue River-Siskiyou

OR $1,050,000

16 CLP: National Scenic and 

Historic Trails

Continental Divide NST; 

Pacific Crest NST; 

Appalachian NST

CO;

CA,WA; 

TN,VA,NC 

$8,925,000

($200,000 

CDNST)

($5,625,000 

PCNST)

($3,100,000

ANST)

17 Cube Cove Admiralty Island 

NM/Tongass

AK $1,000,000

Subtotal, Mandatory Funding $34,266,000

Forest Service Projects Total $92,250,000

*Includes pay costs.
FY 2014 Budget Justification USDA Forest Service

Other Appropriations 8-1

8. Other Appropriations

Range Betterment Fund

Appropriation Range Betterment Fund

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Range Betterment Fund

Annual Appropriations $2,569 $3,277 $1,922 -$1,355 -41.35%

Range Betterment Fund Total 2,569 3,277 1,922 -1,355 -41.35%

Annual Appropriation FTEs 8 8 7 -1 -12.50%

Total Full-Time Equivalents (FTEs) 8 8 7 -1 -12.50%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Range Betterment Fund

Number of range structural improvements 403 379 350 350 335 250

FY 2014 Program Changes 

The FY 2014 President’s Budget proposes $1,922,000 for Range Betterment, a decrease of $1,355,000 

from the FY 2013 Annualized CR. The Budget contains $6,000 for pay costs which includes $2,000 for 

annualization of the fiscal year 2013 pay raise and $4,000 for the anticipated fiscal year 2014 pay raise. 

The pay costs increase would enable the program to cover its increased staff costs without reducing the 

resources available for program delivery.

This program emphasizes essential structural and non-structural improvements prescribed in grazing 

allotment National Environmental Policy Act decision documents. Treatment of noxious weed species 

related to permitted livestock use continues to be a significant portion of the non-structural rangeland 

improvement work. Aside from the annual restoration and rehabilitation of rangelands, there is an urgent 

need to address the considerable loss of range improvements over the past two years due to fires. 

Past Performance 

In FY 2012, we constructed or improved a total of 350 structures, which met the target of 350 structures, 

168 using Range Betterment Funds and an additional 182 structures through other programs. The agency 

also accomplished 113,185 acres of rangeland vegetation improvement through the Range Betterment 

Fund appropriation. 

The structures constructed or improved through this program can include but are not limited to fences and 

livestock watering facilities. These structures help manage the movement of animals to provide for proper 

range management and maintain or improve plant health.

The non-structural rangeland improvement activities accomplished through this program primarily 

include noxious weeds and invasive plants treatments. In addition, brush control helps reduce fire risk on 

rangelands by limiting plant densities and/or by changing species composition.
FY 2014 Budget Justification USDA Forest Service

Other Appropriations 8-2

Program Description 

Program Overview

The Federal Land Policy and Management Act of 1976, (43 U.S.C. 1751) P.L. 94-579, as amended by the 

Public Rangelands Improvement Act of 1978 (43 U.S.C. 1751(b)(1) P.L. 95-514, authorizes the Range 

Betterment program. Further, it authorizes the allocation of one-half of grazing receipts from National 

Forest System (NFS) lands in the 16 Western States for rangeland rehabilitation, protection, and 

improvements on the NFS lands from which the receipts were collected. Allocations have historically 

been at one-half of the receipts level. One-half of the receipts level for FY 2012 would be approximately 

$2,550,000.

Allocation and Integration

Funds are allocated proportionately to the regions where receipts are collected. Activities performed to 

improve forage, change vegetative composition, control patterns of use, provide water, stabilize soil and 

water conditions, and provide habitat for livestock and wildlife include, but are not limited to: 

construction of water developments to aid in livestock distribution, building fences to protect sensitive 

resources, and treatment projects to alter soil and vegetation conditions on NFS lands. These activities 

enhance or stabilize vegetative conditions, improve water quality, maintain riparian areas and stream 

banks while conserving threatened or endangered plant and animal species. Funds may also be used to 

treat noxious weeds that are present as a result of permitted livestock grazing. 

Partnerships 

Grazing permittees are significant and important partners in the implementation of rangeland betterment 

projects. Program funds are leveraged with permittees’ matching funds or in-kind contributions to 

enhance livestock management. This partnership also provides a foundation for involving a variety of 

special interest organizations such as cattlemen’s associations, resource conservation organizations, and 

land trusts further enhancing opportunities for rangeland betterment. 
FY 2014 Budget Justification USDA Forest Service

Other Appropriations 8-3

Gifts, Donations, and Bequests for Forest and Rangeland Research

Appropriation Gifts, Donations, and Bequests for Forest and 

Rangeland Research

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Gifts, Donations, and Bequests for Forest 

and Rangeland Research

Annual Appropriations $6 $45 $40 -$5 -11.11%

Gifts, Donations, and Bequests for Forest 

and Rangeland Research Total 6 45 40 -5 -11.11%

Annual Appropriation FTEs 0 0 0 0 0.00%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0.00%

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $40,000 for Gifts, Donations, and Bequest for Research, a

decrease of $5,000 from the FY 2013 Annualized CR. 

Past Performance

In FY 2012, the Forest Service received donations from individuals and businesses for research work 

units and other organizational sub-units to further their research and development programs. The funds 

were used to purchase supplies and equipment and to offset travel to training and seminars.

Program Overview

Program Description

This special account serves for acceptance of gifts, donations, and bequests for deposit that are used to 

establish or operate any forest and rangeland research facility. These gifts or donations can be received 

from outside sources, such as individuals and businesses.
FY 2014 Budget Justification USDA Forest Service

Other Appropriations 8-4

Management of National Forest Lands for Subsistence Uses

Appropriation Management of National Forest Lands for 

Subsistence Uses 

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Management of National Forest Lands for 

Subsistence Uses 

Annual Appropriations $2,573 $2,589 0 -$2,589 -100.00%

Management of National Forest Lands for 

Subsistence Uses Total 2,573 2,589 0 -2,589 -100.00%

Annual Appropriation FTEs 15 15 0 -15 -100.00%

Total Full-Time Equivalents (FTEs) 15 15 0 -15 -100.00%

FY 2014 Program Changes

The FY 2014 President’s Budget does not propose a separate funding level for Management of National 

Forest Lands for Subsistence Uses. This is a decrease of $2,589,000 from the FY 2013 Annualized CR. 

To the extent possible, the Forest Service will continue to meet its responsibilities under the 1980 Alaska 

National Interest Lands Conservation Act (ANILCA). The most critical subsistence management related 

components will be achieved through other National Forest System funds, such as Integrated Resource 

Restoration, Recreation Management, and Law Enforcement Operation funds that complement the 

objectives of the subsistence program. This approach will continue to provide vital employment in 

isolated rural communities where opportunities are severely limited. Local residents are typically hired to 

monitor fish and wildlife populations which are essential for adjusting harvest regulations and keeping 

fish and wildlife populations strong.

Past Performance

Past performance includes activities accomplished using both Management of National Forest Lands for 

Subsistence funds and other NFS funds that complement the objectives of this program. In FY 2012, the 

Forest Service completed 37 management analyses to determine current population levels and appropriate 

harvest levels for fish and wildlife species on to the national forests in Alaska. Together with the 

Department of Interior, the Forest Service also expanded consultation on all facets of the federal 

subsistence program, including annual rulemaking, with all Alaska Tribes and Native Corporations in 

order to comply with presidential and secretarial policy direction and to be respectful of the current and 

historical role of native Alaskans in managing for their customary and traditional subsistence uses.

In addition, the agency oversaw nine salmon stock assessments, one comprehensive assessment for the 

eulachon (a small anadromous fish), and seven population surveys for subsistence-harvested wildlife 

species. Most monitoring was implemented through contracts and agreements, which supported about 45 

local jobs in rural communities with tribal organizations.
FY 2014 Budget Justification USDA Forest Service

Other Appropriations 8-5

Law enforcement personnel spent 3,592 hours conducting fish and wildlife enforcement and education 

activities. This was approximately 40 percent fewer hours than the previous fiscal year. Law enforcement 

investigated 85 fish and wildlife cases (also 40 percent fewer than the previous fiscal year) resulting in 29 

warnings and 36 citations. Based on the priorities of the subsistence program, more subsistence funding 

was focused on other priorities such as greater participation and more support of tribal participation in 

board activities. Unlike previous years, no special emphasis patrols were conducted for subsistence in FY 

2012.

Program Description

Program Overview 

The Alaska National Interest Lands Conservation Act (ANILCA) (16 U.S.C. 3101) provides rural 

Alaskan residents a subsistence priority to harvest fish and wildlife on Federal lands over sport and 

commercial uses. ANILCA authorizes the Secretary of Agriculture to issue regulations relevant to the 

taking of fish and wildlife on public lands in the State of Alaska. The ANILCA envisioned that the State 

of Alaska would manage for this rural priority, as was the case for 10 years. However, the statute was 

found to conflict with the Alaska State Constitution, which prohibits granting subsistence priority to only 

rural residents. As a result, the Federal government assumed responsibility for subsistence management 

on Federal public lands in 1990 and expanded its responsibility to Federally-reserved navigable waters in 

Alaska in 1999.

The Subsistence program is delivered through the following activities:

Regulatory - This activity includes an annual cycle of rule promulgation for harvesting fish and wildlife, 

in-season actions to address immediate conservation issues, and administration of harvest permits to 

manage use. The Alaska Regional Forester serves on the inter-agency Federal Subsistence Board, and is 

delegated to act for the Secretary of Agriculture for all aspects of the Federal interagency program. 

Federal subsistence hunting and fishing regulations must be reviewed annually to ensure a sustained 

supply of wild food resources and that a harvest priority is provided for rural residents on Federal lands. 

Annually, the Forest Service, through the Board, addresses up to 60 proposed changes to existing 

regulations and responds to more than 1,500 requests for harvest permits.

Information Gathering - This activity includes fish and wildlife monitoring necessary for regulatory 

purposes and to ensure the conservation of fish and wildlife. Most monitoring is implemented through 

contracts and agreements, providing local jobs in rural communities with tribal and other local 

organizations. Collection and analysis of critical information is used to substantiate which regulatory 

changes should be implemented, and justification for those which cannot be supported. Monitoring 

information can also lead to emergency actions to curtail harvest in-season, to assure conservation of 

viable populations.

Law enforcement and education - This activity includes enforcement of Federal regulations for the taking 

of fish and wildlife on 22 million acres, approximately 75 waterways and navigable lakes, and areas of 

the Prince William Sound. It also includes education of subsistence users and others to reduce the need 

for enforcement action. Enforcement of Federal subsistence hunting and fishing regulations requires 

protecting the subsistence priority and conserving healthy fish and wildlife populations.

The subsistence program provides vital employment in isolated rural communities where opportunities 

are severely limited. Local residents are hired to monitor fish and wildlife populations which are essential 

for adjusting harvest regulations and keeping fish and wildlife populations strong. 
FY 2014 Budget Justification USDA Forest Service

Other Appropriations 8-6

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FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-1

9. Wildland Fire Management

Appropriation Wildland Fire Management

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Wildland Fire Management

Annual Appropriations $1,974,46

7 $1,971,390 $2,046,669 $75,279 3.82%

Wildland Fire Management Total 1,974,467 1,971,390 2,046,669 75,279 3.82%

Annual Appropriation FTEs 12,094 12,094 11,415 -679 -5.61%

Recovery Act FTEs 0 0 0 0 0.00%

Total Full-Time Equivalents (FTEs) 12,094 12,094 11,415 -679 -5.61%

Wildland Fire Management

Preparedness 1,004,442 1,004,442 1,057,580 53,138 5.29%

Suppression 537,858 534,781 680,488 145,707 27.25%

Hazardous Fuels 317,076 317,076 201,228 -115,848 -36.54%

Research and Development 21,699 21,699 19,795 -1,904 -8.77%

Joint Fire Science Program 7,250 7,250 6,914 -336 -4.63%

Forest Health Management - Federal Lands 15,958 15,958 0 -15,958 -100.00%

Forest Health Management - Cooperative 

Lands 8,353 8,353 0 -8,353 -100.00%

State Fire Assistance 55,475 55,475 69,459 13,984 25.21%

Volunteer Fire Assistance 6,356 6,356 11,205 4,849 76.29%

Wildland Fire Management Overview

The FY 2014 President’s Budget proposes $2,046,669,000 for Wildland Fire Management (WFM), an

increase of $75,280,000 or 3.8 percent from the FY 2013 Annualized CR. The Budget contains 

$9,437,000 for pay costs which includes $1,521,000 for annualization of the fiscal year 2013 pay raise 

and $7,916,000 for the anticipated fiscal year 2014 pay raise. The pay costs increase would enable the 

program to cover its increased staff costs without reducing the resources available for program delivery.

This funding level fully covers the 10-year average for fire suppression and funds preparedness needs. 

The above amounts do not include funds appropriated in the CR for repayment in FY 2013 of 

$400,000,000 borrowed from other appropriations in FY 2012 for fire transfer. Those funds have been 

distributed back to their original appropriations. FY 2012 levels includes $240 million in carryover 

emergency fire suppression funds. In FY 2013 $400 million was received for fire repayment, which is not 

part of the FY 2013 Annualized CR. The FY 2014 Budget includes the consolidation of the Cooperative 

Fire programs to the Wildland Fire Management appropriation and the consolidation of the Forest Health 

Management programs in the State and Private Forestry appropriation. 

This request continues the President’s commitment to a responsible budget for wildfires. Suppression 

funding will come from both the regular Suppression account and the Federal Land Assistance, 

Management and Enhancement Act of 2009 (FLAME) Wildfire Suppression Reserve Fund, which, when 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-2

combined, total $995,488,000. The two-tier system of Suppression and FLAME requires the Secretary of 

Agriculture to authorize expenditure of funds from the FLAME account. This ensures that fire 

management resources are used in a cost-effective manner in high priority areas, such as the Wildland 

Urban Interface (WUI), and that sufficient funds are available to fight fires without diverting funds from 

other critical Forest Service programs and activities.

The WFM program recognizes the importance of integrating fire as a critical natural process in land and 

resource management plans and activities, managing wildfire across landownership boundaries, and 

applying the best available science. The funding will allow the Forest Service to reduce fuels on 685,000

acres of national forest and adjacent lands within the WUI, with Community Wildfire Protection Plans 

identifying areas to be treated. In addition, along with the National Forest System, Forest and Rangeland 

Research, the Department of the Interior, and State and local partners, Cooperative Fire programs manage 

the impacts of wildland fires on communities and the environment.

This request continues to include in Preparedness the costs of aviation assets and cost pools that were 

historically shifted to the Suppression account.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-3

Preparedness

Preparedness

Budget Line Item Preparedness

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Preparedness

Annual Appropriations $1,004,44

2 $1,004,442 $1,057,580 $53,138 5.29%

Preparedness Total 1,004,442 1,004,442 1,057,580 53,138 5.29%

Annual Appropriations FTEs 7,063 7,063 6,749 -314 -4.45%

Total Full-Time Equivalents (FTEs) 7,063 7,063 6,749 -314 -4.45%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Preparedness

Percent change from the 10-year average for the number 

of wildfires controlled during initial attack. 0.8% -0.8% 0.5% -1.2% 0.5% 0.2%

Percent change from the 10-year average for the number 

of human caused wildfires. -15.7% -11.6% -2.0% -21.5% -2.0% -2.0%

FY 2014 Program Changes

The FY 2014 President's Budget proposes $1,057,580,000 for Preparedness, an increase of $53,138,000 

from the FY 2013 Annualized CR. The Budget contains $5,580,000 for pay costs which includes 

$899,000 for annualization of the fiscal year 2013 pay raise and $4,681,000 for the anticipated fiscal year 

2014 pay raise. The pay costs increase would enable the program to cover its increased staff costs without 

reducing the resources available for program delivery. This funding fully reflects the costs of readiness 

resources and program management and includes an additional $50 million to pay for the increased costs 

of modernizing the firefighting airtanker fleet. This is in addition to the $24 million requested in the FY 

2013 budget for a total of $74 million proposed over the last two years to further enhance the agency’s 

capacity to fight wildland fire.

The Preparedness program ensures agency capability to protect life, property, and natural resources while 

assuring an appropriate, risk informed, and effective response to wildfires that is consistent with land and 

resource management objectives. Firefighter and public safety are the primary considerations for all 

operations. 

In FY 2014, the agency will continue to emphasize strategies to increase operational efficiency, including: 

• Predictive services analysis of fire season potential to strategically deploy firefighting resources 

• Risk-informed, performance-based fire suppression strategies 

• Web-based decision support tools 

• Development, enhancement, and integration of technology applications 

• Centralized management of aviation assets, and

• Exclusive use aviation contracts 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-4

Resource Summary FY 2011 to FY 2014

Resource

FY 2011 

Actual

FY 2012

Actual

FY 2013 

Annualized 

CR

FY 2014 

Pres Bud

Firefighters (FFTR) – Total is inclusive of 

categories below 10,480 10,480 10,480 10,480

Type I Interagency Hot Shot Crews 

(twenty person)

67 crews

1,340 FFTR

67 crews

1,340 FFTR 

67 crews

1,340 FFTR 

67 crews

1,340 FFTR 

Other Firefighters 8,420 8,420 8,420 8,420

Smoke Jumpers 320 320 320 320

Prevention Technicians 400 400 400 400

Engines 950 950 951 951

Heavy Equipment – Dozers, Tractor Plow 

Units, Tenders 210 210 210 210

Helicopters1

Type 1 26 34 34 34

Type 2 41 33 33 33

Type 3 52 52 52 52

Airtankers1

Large Airtankers 19 11 Up to 15 Up to 22 

C-27’s2 0 0 Up to 7 Up to 14

Single Engine Airtankers 2 2 Up to 2 Up to 2 1 Only includes agency owned/leased or exclusive use contracted assets. 2 Dependent on final action by the Department of Defense.

For large airtankers, “up to 22” indicates the maximum large airtankers the Forest Service would have 

under the legacy and next generation contracts Not all of these contract line items may be executed, but 

the table shows the potential maximum. C-27’s are not large air tankers but medium air tankers that have 

a different operational mission then the large airtankers. The Forest Service will pay for C-27’s within our 

requested budget by implementing programmatic efficiencies and identifying firefighter resource 

allocation changes that will decrease our costs and maintain or increase our operational 

capability. Programmatic efficiencies include implementation optimized dispatching analysis, 

streamlining of our IT investments through the Wildland Fire IT initiative and a decrease in programmatic 

overhead costs.

Phase II of the National Cohesive Wildland Fire Strategy (Cohesive Strategy) was completed in 2012 and 

builds upon the national strategy through development of regional strategies and comparative risk 

assessments that will take into account local and regional priorities. This science-based framework will 

allow for systematic evaluation of a range of alternative future scenarios and land management options at 

national, regional, and sub-regional scales, building towards the ultimate outcome of using the best 

available data to analyze wildfire risk across the country and help inform management decisions 

regarding allocation of resources to best address this risk. The final Phase III, the National Risk Trade-Off 

Analysis, will develop models that will better inform decision-makers and allow them to understand the 

risks and trade-offs associated with their wildland fire management decisions. 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-5

The Forest Service is committed to the national vision of the Cohesive Strategy that is shared by federal 

and non-federal partners to “Safely and effectively extinguish fire, when needed; use fire where 

allowable; manage our natural resources; and as a Nation, live with wildland fire.” Wildfire response 

decision making is evolving based on risk informed analysis that reduces exposure to wildland firefighters 

while ensuring high value resources are protected. Fires in FY 2012 were managed utilizing the Risk 

Decision Framework to determine when fires were unwanted and unsafe, when aggressive initial attack 

was needed, and when we could safely, effectively, and efficiently use fire to achieve resource objectives 

and limit firefighter exposure. The Risk Decision Framework allows managers to evaluate risk and 

benefit relative to the overall objective of any given wildland fire and reduce the level of uncertainty 

when determining how to respond to a fire. Any suppression strategy that includes a restoration objective 

requires approval by the Regional Forester. A restoration strategy was used in some cases on fires in 

2012, with approval by the Regional Forester. The overarching paradigm for wildfire response is to have 

the right plan, in the right place, at the right time, with the right assets, for the right duration.

.

Past Performance

The agency’s preparedness performance measures identify key program outcome and efficiency measures 

that focus on reducing fire risk. These measures track the agency’s success in reducing the number of 

human-caused wildfires and maintaining our ability to control wildfires effectively. In FY 2012 the 

number of human-caused wildfires was 21.5 percent below the 10-year average. We exceeded the 

targeted reduction. This result is due to the continued success of our outreach and prevention programs. 

This measure does have significant variability over the 10-year period and is also affected by local 

weather. The agency’s initial attack success rate—the percent of fires that were suppressed in less than 

300 acres—was 96.5 percent which is 1.2 percentage points less than the 10-year average, slightly 

underachieving the planned amount. While the Forest Service maintained levels of firefighting assets that 

were comparable to previous years, the conditions of the landscape and severe drought in many areas of 

the country created fire conditions and fire behavior that were more severe than historical averages. As 

such, containment of fires within initial attack efforts was slightly less than anticipated in FY 2012. 

Program Description

Program Overview

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

managed by the Forest Service. In efforts to minimize the negative impacts, while maximizing the utility 

of unplanned fire on the landscape, a fire organization is maintained that has the capability to ensure 

appropriate, risk informed, and effective initial response operations to wildfires. The Preparedness 

program protects NFS, other Federal, State, and private lands from wildfire damage by deploying 

firefighters and other suppression resources to reduce threats to life and values at risk commensurate with 

land management objectives. Key components of the wildland fire response mission delivery are 

readiness capability (expressed via resources and capability) and program leadership necessary to ensure 

safe and effective operations. Mission delivery also includes planning, prevention, detection, information 

and education, training, equipment, advancement of technology, program analysis and reviews, and other 

fire program management activities.

The Preparedness program is a core component of implementing the Cohesive Strategy, developed in FY 

2010, which is a national collaborative effort between wildland fire organizations, land managers, and 

policy making officials representing Federal, State and local governments, Tribal interests, and 

nongovernmental organizations that builds on the successes of the National Fire Plan and other 

foundational documents. Federal, State, local, Tribal and nongovernmental partners completed Phase I in 

2011, which outlines the national strategy to address wildland fire issues across the Nation. Phase II was 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-6

completed in 2012 and developed a risk based framework for evaluating local, regional, and national 

alternatives for wildfire response and preparedness at a mix of different temporal and geographic scales.

These partners identified three key areas that present the greatest challenges and the greatest opportunities 

for making a positive difference in addressing our national wildfire issues:

• Restoring and maintaining fire resilient landscapes 

• Creating fire-adapted communities

• Effectively responding to wildfire 

In order to streamline operations, the Preparedness program pre-positions resources as needed to ensure 

an appropriate, risk informed, and effective wildfire response. The Forest Service is also leveraging 

existing resources by coordinating wildfire response actions across jurisdictions and funding training for 

multiple partners to bolster operational capability and increase effectiveness of collaborator preparedness 

assets. 

Allocation and Integration

Preparedness funds are allocated to regions based on predicted fire activity and anticipated workloads. 

The placement, and associated funding allocations of specific resources considers logistical and 

mobilization efficiencies. The agency’s overall readiness capability and resource geographical placements 

have been established through various fire planning and budgeting analyses. However, as the fire season 

develops and ongoing risk is assessed, national resources are repositioned to ensure timely and effective 

responses. Predictive services and other resources are used to analyze potential seasonal fire activity to 

guide strategic placement of resources.

The Forest Service continues its strategy to deploy, assess, and improve the Fire Program Analysis (FPA) 

system, which was used to support and inform the FY 2014 budget formulation. The FPA was used to 

assess trade-offs between different potential preparedness and suppression scenarios. The development of 

this comprehensive interagency fire planning and budget analysis tool began in 2002. The vision was that 

this tool would replace existing budget planning systems in the five federal fire management agencies. 

The goal was to have a system which could identify the most cost effective fire management program, 

irrespective of jurisdictional boundaries, to facilitate long term strategic planning and budget formulation 

exercises. The FPA system incorporates the highly complex science associated with modeling natural 

resource variables over an immense and highly variable geographic area. In 2008, the Government 

Accountability Office (GAO) reviewed the FPA system and recommended increased transparency 

between the Secretaries of Agriculture and the Interior regarding FPA's role in budget development and 

allocation. The GAO also recommended the agencies develop a strategic operating plan for future FPA 

development efforts, including an evaluation of FPA's ability to meet its original objectives.

As FPA development has progressed, the program has evolved into a decision support tool for national 

level budget formulation and allocation. The FPA is now a set of analytical tools used to help develop and 

justify the wildland fire preparedness budgets of the Forest Service and the Department of the Interior. 

However, the FPA does provide a strategic trade-off analysis tool that allows decision makers to make 

informed national-level wildland fire investment choices. The trade-off analysis is used during the 

development of program priorities and to support budgetary decisions related to wildland fire 

management. Since FY 2012, the FPA has provided both the Forest Service and Department of the 

Interior key outputs for budget formulation. The current FPA outputs provide information suitable for 

national strategic wildland fire management planning. An example of how these analyses inform the 

budget includes outputs such as: given current conditions, a $1.00 reduction in Preparedness funding will 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-7

result in a $1.70 increase in Suppression costs. This type of analysis is extremely valuable in ensuring 

informed national level investment choices.

While the FPA program is considered to be in a steady state, continued research will occur to develop 

new and existing tools, improving both functionality and streamlining the user interface. 

Partnerships

The Preparedness program has numerous partnerships with other Federal agencies and States which 

include protection agreements, collaborative research efforts, and development of an interagency fire 

planning and budgeting analysis system. The agency also collaborates with cooperators, including the 

National Association of State Foresters and the Department of the Interior for training, planning, 

equipment use contracts, and interagency fire coordination centers. In addition the agency has an 

agreement with the Department of Defense (DOD) to provide support in fire suppression through the 

Modular Airborne Firefighting System (MAFFS) program. The DOD provides C-130 aircraft equipped 

with MAFFS units as surge capacity for aerial firefighting when requested by the Forest Service. MAFFS 

are portable fire retardant delivery systems that can be inserted into military C-130 aircraft to convert 

them into large airtankers when needed. The MAFFS program is a 40-year long joint effort between the 

Forest Service and the DOD. The Forest Service owns the MAFFS equipment and supplies the retardant, 

while the DOD provides the C-130 aircraft, pilots, and maintenance and support personnel to fly the 

missions.

The Forest Service both sponsors and participates in interagency training exercises. Municipal, State, and 

other fire, emergency, and medical professionals are actively recruited for incident training drills. The 

experience and education provided to the participants strengthens job performance and communication 

throughout the U.S. emergency response community.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-8

Suppression

Budget Line Item Suppression

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Suppression

Annual Appropriations $537,858 $534,781 $680,488 $145,707 27.25%

Suppression Total 537,858 534,781 680,488 145,707 27.25%

Annual Appropriations FTEs 2,710 2,710 3,010 300 11.07%

Total Full-Time Equivalents (FTEs) 2,710 2,710 3,010 300 11.07%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Suppression

Percent of fires not contained in initial attack that exceed 

a Stratified Cost Index (SCI) 39.7% 20.8% 14.0% 24.0% 18.0% 24.0%

Three-year average percent of fires not contained in 

initial attack that exceed a Stratified Cost Index (SCI) 26.7% 27.5% 24.0% 28.2% 24.0% 26.0%

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $680,488,000 for Suppression; an increase of $145,707,000

from the FY 2013 Annualized CR. The Budget contains $2,488,000 for pay costs which includes 

$401,000 for annualization of the fiscal year 2013 pay raise and $2,087,000 for the anticipated fiscal year 

2014 pay raise. The pay costs increase would enable the program to cover its increased staff costs without 

reducing the resources available for program delivery. 

This funding fully reflects the costs of readiness resources and program management. The request, when 

combined with the FLAME Wildfire Suppression Reserve Fund, fully covers the 10-year average

(adjusted for inflation). The President’s Budget proposes $315,000,000 for funding the FLAME Wildfire 

Suppression Reserve Fund (see the FLAME Wildfire Suppression Reserve Fund Chapter for more 

information). FY 2012 levels includes $240 million in carryover emergency fire suppression funds.

Suppression is an “All Lands” program that funds activities to suppress wildland fires on or threatening 

National Forest System (NFS) lands, other Federal lands, and 20 million acres of non-Federal lands under 

fire protection agreements. Funding for Suppression enables the agency to respond to unplanned wildland 

fire incidents which threaten lives, property, and resources. Wildfires continue to be larger and more 

difficult to suppress due to the effects of a changing climate, persistent drought and hazardous fuels 

conditions, and the increased size and complexity of housing developments adjacent to the Wildland

Urban Interface (WUI). The Forest Service recognizes the costs of WUI suppression activities and will 

continue to aggressively pursue cost-mitigation measures including: 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-9

• Focusing hazardous fuels funding for treatments in the WUI 

• Using risk-informed, performance-based suppression strategies 

• Clarifying roles and responsibilities in the WUI 

• Using appropriate cost-share agreements, and

• Deploying decision support tools

The Forest Service and the Department of the Interior are committed to restoring the resilience and 

diversity of fire-adapted ecosystems on the landscape, consistent with public safety needs. The agencies 

will identify, establish, and maintain necessary governance and risk management protocols that will guide 

program management and incident response with the application of resources to reduce unnecessary risk 

to firefighter safety in the short-term and to the long-term resiliency of fire-adapted ecosystems.

The Forest Service will expand our efforts to manage wildfires to meet land management objectives. We

will make a concerted effort to allow fire to return to the landscape when these fires will improve the 

health of the forest and when risks to safety and communities make it appropriate to do so. As previously 

mentioned, Phase III of the National Cohesive Wildland Fire Strategy (Cohesive Strategy) will develop 

models that will better inform decision-makers and allow them to understand the risks and trade-offs 

associated with wildland fire management decisions.

Past Performance 

The Forest Service suppression performance measure is a program outcome and efficiency measure. To 

help analyze suppression costs the agency uses an efficiency measure that compares actual to expected 

suppression costs via a stratified cost index (SCI). 

The SCI is a set of predictive models based on spatially explicit historical large fire data from 1995-2004. 

This data set provides a baseline for comparison. The SCI determines expected suppression costs for each 

fire utilizing several factors found to influence suppression costs. In real time, the SCI provides a 

comparison of a fire’s expenditures to historical fires with similar characteristics (including fuel type, 

slope, elevation, and total housing value), increasing cost awareness and providing a basis for fire incident 

budgeting. 

The percentage of incidents not contained in initial attack that exceeded the SCI in FY 2012 was 24 

percent—an increase of 3.2 percent over FY 2011. The 2012 fire season was a very active one, and while 

we did not achieve our planned accomplishment of 14 percent, we did perform relatively consistently in 

2012 when compared to 2011. The FY 2012 target was established during the development of the Forest 

Service Strategic Plan in FY 2006, at which time this calculation methodology was very new with little 

historical data. Since then, more historical data sets have been added, as well as fire data from the fire 

seasons since 2006. Based on this additional information, and subsequent refinements to the model, we 

have learned that a target of 14 percent is unattainable and we expect that our performance will 

consistently fall in the 20 to 25 percent range. Our challenge is to consistently drive agency performance 

to the low end of this range. We are refining the methodology used to calculate the SCI as we obtain more 

data and improve computational ability. This will improve the SCI calculation by enabling us to more 

thoroughly analyze how our wildland fire management response decisions affect overall costs.

In fiscal year 2012 we continued to implement risk management and fiscal accountability initiatives to 

help ensure we have an appropriate, risk informed, and effective response to all wildland fires. We also 

continued to refine how large and complex wildfires are managed, focusing on improving risk 

management protocols and striving to increase incident management efficiency. In FY 2012, National 

Incident Management Organization teams actively engaged national Forests and local communities in risk 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-10

assessment and the development of risk-informed decision making. Fire managers used the latest decision 

support tools, emerging technology, and localized knowledge to make decisions and measure the 

probability of success of those decisions to reduce risk while more effectively managing cost. The Forest 

Service will continue these efforts in FY 2014. 

Program Description

Program Overview

The Suppression program is the primary source of funding for wildfire response. Naturally ignited, 

unplanned wildland fires can be managed on NFS lands to help restore and maintain fire resilient 

landscapes to accomplish resource management, ecological restoration, and fuels reduction goals, when it 

is consistent with the revised guidance for the implementation of the Federal wildland fire policy and land 

management plan direction. 

This program provides resources to efficiently suppress wildland fires on or threatening NFS lands and 

other Federal and non-Federal lands under fire protection agreements. The program funds: 

• Firefighter salaries

• Equipment in direct support of a fire incident

• Aviation asset operations

• Incident support functions, and

• Fire management administration

We also provide suppression resources to Department of the Interior incidents on a reciprocal nonreimbursement basis. In addition, the Suppression program funds personnel and resources for the 

following activities: 

Attainment of Resource Benefits - Management of naturally ignited, unplanned wildland fires on 

NFS lands to accomplish resource management, ecological restoration, and fuels reduction goals 

consistent with the revised guidance for the implementation of the Federal wildland fire policy 

and land management plan direction.

Burned Area Emergency Response - Post-fire actions on NFS lands to prevent or minimize 

unacceptable erosion and loss of soil productivity, deterioration of water quality and downstream 

damage, changes to ecosystem function, establishment of non-native invasive species, and 

degradation of cultural and natural resources. 

Severity - Increasing readiness and response capability when predicted or actual burning 

conditions are extraordinary or are deemed imminent. This capability is also used during early or 

extended fire seasons. 

Non-Fire Incident Response - Supports the Department of Homeland Security and the Federal 

Emergency Management Agency through Forest Service participation in the National Response 

Framework and other activities authorized by the Stafford Act (42 U.S.C. 5121, as amended). 

The Forest Service utilizes the Wildland Fire Decision Support System (WFDSS) in managing wildland 

fires. This system is structured to provide access to a suite of decision support tools and document firemanagement decisions and long-term operational plans when needed. Managers use WFDSS to assess 

management options with regard to risk and tactical implementation strategies on wildland fires. 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-11

Allocation and Integration

The Forest Service allocates funds from the Suppression account only for active incident response. Each 

incident is immediately sized up and an incident risk analysis is completed. Fires may go into extended 

attack, but not require a high level management team. If fires escape initial response, and if extended 

attack is sufficiently complex, a Type 1 or Type 2 Incident Management Team is assigned. 

These complex extended attack incidents may be declared eligible for FLAME funding by the Secretary 

of Agriculture. Once the Secretary makes the declaration, funds are moved from the FLAME Reserve 

Fund into the Suppression account. 

Partnerships

The Suppression program is a key component of implementing the Cohesive Strategy. The Cohesive 

Strategy, developed in FY 2010, is a national collaborative effort among wildland fire organizations, land 

managers, and policy making officials representing Federal, State and local governments, Tribal interests, 

and nongovernmental organizations that builds on the successes of the National Fire Plan and other 

foundational documents. Federal, State, local, Tribal and nongovernmental partners completed Phase I in 

FY 2011. 

This new guidance is a broad, national strategy to address wildland fire issues across the Nation. Together 

with our partners, we identified three key areas that present the greatest challenges and the greatest 

opportunities for making a positive difference in addressing our national wildfire issues:

• Restoring and maintaining fire resilient landscapes 

• Creating fire-adapted communities, and

• Effectively responding to wildfire

We maintain strong partnerships with other Federal agencies, States, local government entities, and 

contractors. Mutual-aid response agreements are often at the State level, but may be created at the local 

level. We encourage our wildland firefighters to cross train with State and local forces to be familiar with 

their communications, equipment, and capabilities if and when a complex multi-party response incident 

occurs. These local partnerships are essential to ensure protection of life, property, and resources through 

cost effective and efficient operations.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-12

Hazardous Fuels

Budget Line Item Hazardous Fuels

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Hazardous Fuels

Annual Appropriations $317,076 $317,076 $201,228 -$115,848 -36.54%

Hazardous Fuels Total 317,076 317,076 201,228 -115,848 -36.54%

Annual Appropriations FTEs 2,021 2,021 1,485 -536 -26.52%

Total Full-Time Equivalents (FTEs) 2,021 2,021 1,485 -536 -26.52%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Hazardous Fuels

Number of acres restored and maintained per million 

dollars gross investment. 4,125 3,910 3,000 3,649 2,800 2,600

Acres moved to a better condition class per million 

dollars gross investment. 1,184 1,060 1,039 944 1,002 980

Percent of treated acres identified in Community 

Wildfire Protection Plans or equivalent plans. 44.8% 60.8% 75.0% 93.0% 75.0% 90.0%

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

hazardous fuels treated 1,955,057 1,611,991 1,200,000 1,867,202 1,100,000 685,000

FY 2014 Program Changes

The FY 2014 President’s Budget proposes 

$201,228,000 for Hazardous Fuels, which reflects a 

decrease of $115,848,000 from the FY 2013 

Annualized CR. The Budget contains $1,228,000 for 

pay costs which includes $198,000 for annualization 

of the fiscal year 2013 pay raise and $1,030,000 for 

the anticipated fiscal year 2014 pay raise. The pay 

costs increase would enable the program to cover its 

increased staff costs without reducing the resources 

available for program delivery. The Forest Service is 

continuing to focus on the most strategic acres for 

treatment, which are often the most expensive.

Funds that may have been spent outside the 

Wildland Urban Interface (WUI) in previous years 

will now be combined into IRR to support integrated 

restoration of National Forest System (NFS) lands.

The remaining Hazardous Fuels program funds in 

the Wildland Fire appropriation will focus on the 

Hughes Creek Fuels Reduction 

Salmon Challis National Forest

Between 2009 and 2012, fuels were reduced on 12,000 

acres of conifer forests on the North Fork Ranger District 

in Lemhi County, Idaho. The Hughes Creek Fuels 

Reduction project was a collaborative effort with the 

Lemhi County Forest Restoration Group. Treatments 

included commercial thinning, reduction of ladder fuels, 

hand piling and prescribed fire. During the 2012 

Mustang Fire, fire behavior was reduced to surface fire 

in the treatment areas, allowing fire managers to protect 

homes and keep fire fighters safe.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-13

WUI. The funds shown here, under hazardous fuels, will treat approximately 685,000 acres of the highest 

priority areas in the WUI. WUI treatment cost per acre is more than four times the cost per acre for other 

areas because most of it is done mechanically, by hand crews, or with machinery. There is no economy of 

scale when working on lands adjacent to or in between homes. The target is lower than previous years 

reflecting the cost, time, and protection focus of these treatments.

Projects completed using hazardous fuels funds will focus on: 

• Strategically protecting communities (and associated lives, property, and public infrastructure) 

which are at the highest risk from damaging wildfire 

• Providing a safer environment for wildland firefighting

• Supporting communities that are working to achieve Firewise standards, have identified acres to 

be treated in Community Wildfire Protection Plans (CWPPs) or equivalent plans, and have made 

an investment in implementing local solutions to protect against wildland fire

The agency continues to emphasize the importance of CWPPs or equivalent plans by prioritizing 

hazardous fuels treatments in the WUI that are identified in these plans. In FY 2012 over 90 percent of the 

acres treated in the WUI were identified in such a plan. This trend is expected to continue in FY 2014.

In FY 2014 this budget line item will also support the USDA Wood to Energy Initiative. The Forest 

Service will leverage a small amount of grant funds with USDA Rural Development’s grant and loan 

programs by providing subject matter expertise and technical assistance in the early stages of project 

development, so the proponents can successfully compete for Rural Development’s loans and grants. 

Funding will support the Woody Biomass Utilization Grant Program, State Wood to Energy Teams, 

Biomass Air Quality Improvement, and Development of Financial Instruments for Wood Energy as 

described below:

Woody Biomass Utilization Grant Program - Proposed to be funded at $6 million, an increase of 

$1 million from FY 2013. Funding will focus on providing assistance to pre-construction design 

and permits so the projects can then compete for funds available through programs administered 

by Rural Development or other agencies or for private equity. 

State Wood to Energy Teams - Proposed for funding at $2.5 million from this budget line item 

and $1.25 from Integrated Resource Restoration to provide technical, financial, and 

communication assistance in support of project development.

Biomass Air Quality Improvement - Proposed for funding at $1 million. Improving air quality 

with better combustion technology creates opportunities to expand advanced wood combustion 

energy use. Funding will be used to carry out additional wood stove change out programs in 

partnership with the EPA through a competitive grant process. 

Development of Financial Instruments for Wood Energy - Proposed for funding at $1 million. 

This funding will be used to accomplish a detailed analysis and distribute results through various 

outreach mechanisms. The results could demonstrate viable financial techniques for commercial 

and institutional facilities to convert to wood energy. It would also help public utility 

commissions understand the financial and infrastructure risks posed to their systems from 

wildfire, and the opportunities that wood energy demand present for reducing these risks. This 

funding would also provide seed money to partner with utilities to take advantage of these 

opportunities.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-14

Refer to the special exhibit on Biomass and Bioenergy for further details.

Past Performance

Acres of WUI high-priority hazardous fuels treatment - The Hazardous Fuels program treated 

approximately 1.87 million acres on NFS and adjacent lands in the WUI in FY 2012, exceeding the target 

of 1.2 million acres of WUI high-priority hazardous fuels treated. In addition, over 750,000 acres were 

treated outside of the WUI, resulting in a total program accomplishment of over 2.6 million acres. 

Included in the total Hazardous Fuels program accomplishment are over 130,000 WUI/non-WUI acres 

burned by naturally ignited wildfires, which were shown through field verification to have benefitted 

ecosystems by moving them toward specific desired conditions for forests and grasslands based on land 

management objectives identified in Land and Resource Management Plans or other planning documents. 

Tools used to determine the effects of the fire include satellite imagery or burn severity mapping, as well 

as collection of site-specific data. Naturally ignited fires that benefit ecosystems will continue to be an 

important part of the total Hazardous Fuels program, and the acres treated each year will vary with the 

activity of the fire season.

Percent of treated acres identified in Community Wildfire Protection Plans or equivalent plans - The 

target for “percentage of acres treated in the WUI that have been identified in Community Wildfire 

Protection Plans or equivalent plan” is 75 percent. In FY 2012, 90 percent of the acres treated in the WUI 

were identified in areas covered by a CWPP or equivalent plan. In FY 2012, performance for this measure 

increased significantly from previous years due to an update in the measure definition. When this measure 

was developed, it was worded to ensure that plans that serve a similar purpose and function as a CWPP 

were accounted for, thus the inclusion of the phrase “or equivalent plans.” To ensure the use of these 

equivalent tools is properly accounted for, the definition of “or equivalent plans” in this measure was 

modified to include the Southern Fire Risk Assessment and the Northeast Wildfire Risk Assessment. The 

use of risk assessments in the southern and eastern areas of the Nation and CWPPs in the West to 

prioritize fuel treatments in the WUI should produce the highest quality, most effective projects that enjoy 

the support of the local community.

Biomass Energy

In FY 2012, 20 biomass grant awards from the Woody Biomass Utilization Grant program, totaling 

approximately $3 million, were made to small business and community groups across the country. These 

grants are a component of the Forest Service’s focus on bioenergy and biobased products that will result 

in secure, sustainable renewable energy sources and strong rural economies. Wood energy and biobased 

products are newer products that are part of an integrated wood products industry and need to be 

incorporated synergistically. To that end, three of the grants above are associated with existing wood 

product manufacturers. Since 2005, this program has awarded a total of $38 million to 160 grant 

recipients, including small businesses, non-profits, tribes, and State agencies, across the country. Forest 

Service employees and partners provide technical assistance to grant applicants and assist in the 

administration of the awarded grants.

Program Description 

Program Overview

The Hazardous Fuels program restores forest health and reduces wildfire risks. Hazardous fuels are 

treated using a wide range of tools with the goal of reducing the risk of wildland fire to communities and 

the environment. 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-15

Hazardous fuels reduction is reducing the quantity or changing the arrangement of living and dead 

vegetation in forests, woodlands, shrublands, and grasslands through prescribed burning, mechanical 

treatments, and other methods, to:

• Restore and maintain fire resilient landscapes

• Create fire-adapted communities that protect associated lives, property, and public infrastructure 

which are at the highest risk from damaging wildfire 

• Provide a safer environment for wildland firefighting

These activities restore fire-adapted ecosystems and reduce the intensity, severity, or effects of wildland 

fire to within acceptable ecological parameters that are consistent with land management plan objectives. 

The fuels treatment program focuses on reducing the risks of wildland fire and long-term damage to 

resources and property. 

To measure success and for program evaluation, fuels treatment effectiveness assessment must be 

completed for every wildfire that starts in, or burns into, a fuel treatment. These assessments increase the 

understanding of the effects of hazardous fuels treatments on fire behavior, fire severity, and fire 

suppression effectiveness and help direct program improvements that increase success.

Healthy, resilient landscapes have greater capacity to survive natural disturbances and large scale threats 

to sustainability, especially under changing and uncertain future environmental conditions, such as those 

driven by climate change and increasing human uses. While hazardous fuel projects emit greenhouse 

gases, they also mitigate potentially greater quantities of emissions from uncharacteristic wildfire. 

Prescribed fire is an important fuels management practice that achieves desired ecosystem management 

objectives and manages greenhouse gas emissions in a controlled and measured manner. Hazardous fuels 

treatment, either through prescribed fire or mechanical treatment, requires skilled workers to implement. 

This program also serves as an important source of jobs, especially in rural communities. 

The Hazardous Fuels program is a key component of implementing the National Cohesive Wildland Fire 

Strategy and will contribute to successful outcomes in restoring and maintaining resilient landscapes, 

creating fire adapted communities, and responding to wildfires by funding projects that restore forest 

landscape health and reduce wildfire risks to communities. Hazardous fuels reduction can be the most 

effective way to protect community values, restore forest and grassland health, improve firefighter and 

public safety, and potentially reduce large fire suppression costs.

Biomass

The Hazardous Fuels program funds biomass grants through the Woody Biomass Utilization Grant 

program up to $5 million annually. Since FY 2005, the Hazardous Fuels program has provided funding 

for this successful grants program to help build capacity for biomass utilization in support of fuels 

reduction and restoration. Biomass utilization provides energy from vegetation that is removed for fuels 

management. Using this biomass for energy, instead of just burning it in piles, contributes to rural 

economic vitality, national energy security, and reduces greenhouse gas emissions. 

Allocation and Integration

The Forest Service will continue to use the Hazardous Fuels Prioritization and Allocation System 

(HFPAS) to allocate funds to the field. Additional modifications to HFPAS will be made as better data 

and information become available. We will prioritize funding for communities that have: 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-16

• Identified acres to be treated in CWPPs 

• Made an investment in implementing local solutions to protection against wildland fire

Partnerships

In addition to the integrated efforts within the Forest Service, we use our authorities and the Hazardous 

Fuels program to work with outside partners to address the wildland fire threats on other Federal, State, 

and private lands to: 

• Conduct fuel treatments on adjacent non-Federal lands 

• Partner with local communities in the development of CWPPs

• Coordinate fuel treatment programs with Department of the Interior agencies

• Conduct treatments on NFS lands in cooperation with nongovernmental organizations

Expanded partnerships and collaborative efforts increase treatment efficiencies and allow the agency to 

reduce costs, treat additional areas and reduce the risk to communities. For example, use of the Good 

Neighbor Authority in Colorado and Utah allows these States to conduct hazardous fuels treatments on 

National Forest System land when performing similar activities on adjacent State or private land. 

The budget also funds institutes established in the Southwest Forest Health and Wildfire Prevention Act 

of 2004 (P.L. 108-317) to enhance our capacity to execute practical science-based forest restoration 

treatments that will reduce the risk of severe wildfires and improve the health of dry forest and woodland 

ecosystems in the Interior West.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-17

Research and Development

Budget Line Item Research and Development

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Research and Development

Annual Appropriations $21,699 $21,699 $19,795 -$1,904 -8.77%

Research and Development Total 21,699 21,699 19,795 -1,904 -8.77%

Annual Appropriations FTEs 133 133 108 -25 -18.80%

Total Full-Time Equivalents (FTEs) 133 133 108 -25 -18.80%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Research and Development

Customer satisfaction index score for R&D 75 75 75 79 79 79

FY 2014 Program Changes

The FY 2014 President’s Budget includes $19,795,000 for the National Fire Plan Research and 

Development, a decrease of $1,904,000 from FY 2013 Annualized CR. The Budget contains $89,000 for 

pay costs which includes $14,000 for annualization of the fiscal year 2013 pay raise and $75,000 for the 

anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its 

increased staff costs without reducing the resources available for program delivery.

The proposed budget will prioritize fire research that informs management to reduce the negative impacts 

of wildland fire on human communities and protect the ecological benefits forests supply including clean 

water, recreational opportunities, fish and wildlife habitats, and forest products. Investment priorities will 

focus on partnerships that leverage Forest Service funding.

Past Performance

Research in FY 2012 contributed to fundamental understanding of fire behavior, fire ecology, wildland 

fuels, smoke, and other fire emissions. Fire research results are delivered to fire managers through an 

integrated decision support system (Wildland Fire Decision Support System) for use in real-time decision 

making on wildland fire incidents. These products provide managers with information and decision 

support tools to most efficiently and safely allocate fire suppression and control efforts while protecting 

the ecosystem services forests provide. Local communities and the public use these tools to make fire 

smart decisions that protect life and property. A few key Forest Service Research and Development 

(Forest Service R&D) products delivered are summarized below.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-18

The Forest Service led an innovative effort to synthesize and distill recent scientific research to guide 

revision of land and resource management plans on the national forests of the Sierra Nevada. This 

approach summarized recent advances in scientific understanding to inform landscape-scale management 

strategies to sustain social, economic, and ecological resilience in the Sierra Nevada region, including an 

analysis and design of treatments that reduce the extent of undesirably severe wildfire while avoiding 

impacts to sensitive species.

Forest Service scientists identified the most important 

resources and assets that could be impacted by fire in the 

Rocky Mountain Region. Coupled with estimates of wildfire 

likelihood and intensity, this information was integrated into 

a wildfire risk assessment framework to describe likely firerelated benefits and losses across the landscape. Results from 

the risk analysis are summarized in a geospatial risk 

calculation toolbox that allows decision makers to identify 

areas of greatest risk and cost-effectively implement 

treatments to mitigate that risk.

Program Description

Program Overview

The Forest Service R&D program conducts research to 

support management of fire-affected ecosystems to sustain 

forest health and to reduce the risk of damaging wildland 

fires in the context of changing social and physical 

environments. The Forest Service R&D program is managed 

under a strategic plan that outlines five portfolio areas: 

• Core Fire Science

• Ecological and Environmental Fire Science 

• Social Fire Science

• Integrated Fire and Fuels Management Research 

• Science Application

These investments help fire managers, policy makers, and citizens make: scientifically sound wildfire 

and fuels management decisions; wisely invest fuel and fire expenditures to minimize the negative social, 

economic, and ecological impacts of fire; avoid environmental damage when dealing with fuel and fire 

risk problems; and develop effective community programs to speed the adoption of fire-safe construction 

and landscaping practices. 

This knowledge and technology improves on-the-ground operations by providing better risk assessments 

to support fire season planning and appropriate management response; evaluating the effects of fuel 

treatments restoration activities, and post-fire emergency treatments. 

Forest Service R&D funds support resources needed to maintain a fire research program that is focused 

on the changing needs of users in the fire and land management communities. Forest Service R&D 

programs are coordinated with other research efforts and the Joint Fire Science Program to provide 

complementary efforts that address current and future needs.

Wildfire Prevention Pays Big Dividends

A team of Forest Service scientists and 

Federal, State, and tribal partners analyzed the 

extent to which wildfire prevention efforts 

reduce human-caused wildfires. Research 

showed that for a small investment in 

prevention of half a million dollars per year in 

the early 2000’s, the State of Florida saved 

over $3 million in suppression expenditures 

and avoided over $12 million in losses of 

structures, timber, and economic disruptions. 

These findings are being used to update 

existing wildfire management software used 

by the Bureau of Indian Affairs and other 

agencies.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-19

Allocation and Integration

A Wildland Fire Strategic Program Area (SPA) team and Portfolio teams made up of Washington Office 

staff and research station representatives evaluate and recommend allocations of Forest Service R&D 

funds annually. The Wildland Fire SPA and Portfolio teams enhance integration and collaboration across 

stations on research focused in four major areas: firefighting, rehabilitation and restoration, hazardous 

fuels reduction, and community assistance.

Partnerships

Partnerships with users and other research organizations are a fundamental component of Forest Service 

fire research. These partnerships include Federal agencies, a number of national forests, 90 U.S. colleges 

and universities, 30 nongovernmental organizations, more than 50 State and local governments, industry 

partners, and international organizations.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-20

Joint Fire Science Program

Budget Line Item Joint Fire Science Program

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program

Changes

Joint Fire Science Program

Annual Appropriations $7,250 $7,250 $6,914 -$336 -4.63%

Joint Fire Science Program Total 7,250 7,250 6,914 -336 -4.63%

Annual Appropriations FTEs 17 17 16 -1 -5.88%

Total Full-Time Equivalents (FTEs) 17 17 16 -1 -5.88%

FY 2014 Program Changes

The FY 2014 President’s Budget includes $6,914,000 for the Joint Fire Science Program (JFSP), a 

decrease of $336,000 from the FY 2013 Annualized CR. The Budget contains $13,000 for pay costs 

which includes $2,000 for annualization of the fiscal year 2013 pay raise and $11,000 for the anticipated 

fiscal year 2014 pay raise. The pay costs increase would enable the program to cover its increased staff 

costs without reducing the resources available for program delivery. 

This JFSP funding produces important technical and 

scientific information that is needed to support the large 

national effort concerning hazardous fuels, fire 

management, and fire-related restoration. Forest Service 

Research and Development will continue to work jointly 

with the Department of the Interior in managing the 

program and setting priorities. This funding will allow 

continuation of two of three lines of research as well as 

science delivery, and research on emerging management 

needs.

Past Performance

In FY 2012, the JFSP had 106 active projects, 36 of which 

were completed in FY 2012. In addition, 47 new projects 

were initiated based on proposals funded in FY 2012. To 

accelerate the awareness, understanding, and adoption of 

wildland fire science information by Federal, State, Tribal, 

local, and private stakeholders within ecologically similar 

regions, the JFSP created a national collaborative science 

delivery network comprised of Regional Consortia. The 

Regional Consortia are local experts that help managers get 

connected with other managers, practitioners, and scientists 

working in the different areas of the country. The Regional 

Advances in Suppression Cost Forecasting

Multiple forecasts of Forest Service and the 

Department of the Interior fire fighting 

budgetary needs are produced by Forest Service 

scientist each year to help both agencies meet 

the statutory requirements of the Federal Land 

Assistance, Management and Enhancement 

(FLAME) Act. These forecasts have reduced 

delays in implementing agency activities and 

provide an early alert about upcoming 

firefighting needs.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-21

Consortia provide the best fire information for managers and demonstrate new knowledge in the field. 

There are now fifteen Regional Consortia, including eight established and seven new consortia. 

Forest Service scientists worked with numerous stakeholders including Federal and State agencies, 

regional planning organizations, and air quality regulators to significantly improve the national emissions 

inventory for wildland fire. The inventory now significantly improves overall estimates of fire size, fuel 

loading, fuel consumption, and emissions by utilizing additional data and a new methodology for 

combining and reconciling disparate datasets into a unified data stream. This inventory forms the basis of 

regulatory modeling, policy decisions, State and Federal air quality plans, and reports on global 

greenhouse gasses.

Forest Service scientists and partners interviewed more than 130 people to collect best management 

practices from existing community wildfire protection plans. Community wildfire protection planning has 

been called one of the most successful tools for addressing wildfire fire management in the WUI and 

these best management practices are foundational for at risk communities in developing their plans.

Program Description

Program Overview

JFSP is an interagency fire research and development partnership between the Departments of the Interior 

and Agriculture. JFSP contributes to sound decision-making and project implementation through credible 

research tailored to the needs of fire and fuel managers. Research projects compliment and build on other 

Federal research programs, such as those carried out by the Forest Service, the U.S. Geological Survey, 

and other research partners. Synthesis of research findings and targeted delivery to managers are essential 

components of the program. Land managers use results from JFSP projects to plan and implement fuels 

treatments, support fire management decisions, restore lands affected by fire, and meet regulatory 

requirements. More information can be found at http://www.firescience.gov.

Allocation and Integration

Funding priorities and policies are set by the JFSP governing board with representatives from the 

Department of the Interior and the Forest Service. Proposals are accepted for topics determined annually 

by the governing board. Allocations are determined by the board following a competitive peer review of 

submitted proposals. The reviews are conducted by land managers, technical specialists, and scientists, 

resulting in approximately 20 percent of research proposals receiving funding. 

Partnerships

JFSP is a partnership-based program. The governing board has representatives from the Forest Service 

and five Department of the Interior bureaus. The program office is staffed with personnel from both 

Department of the Interior and the Forest Service. JFSP collaborates with other governmental and nongovernmental entities including more than 90 colleges and universities. In all, JFSP has engaged nearly 

200 organizations in its research.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-22

Forest Health Management - Federal Lands

Budget Line Item Forest Health Management - Federal Lands

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Health Management - Federal Lands

Annual Appropriations $15,958 $15,958 0 -$15,958 -100.00%

Forest Health Management - Federal Lands 

Total 15,958 15,958 0 -15,958 -100.00%

Annual Appropriations FTEs 109 109 0 -109 -100.00%

Total Full-Time Equivalents (FTEs) 109 109 0 -109 -100.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Forest Health Management - Federal Lands

Federal acres treated under NFP - Invasives 5,700 5,714 3,035 2,883 2,068 0

Federal acres treated under NFP - Native pests 39,309 28,688 20,482 21,108 8,316 0

FY 2014 Program Changes

The FY 2014 President’s Budget combines Forest Health Management Federal Lands into one budget 

line item in the State and Private Forestry appropriation. Information about this program is within the 

State and Private Forestry Chapter, Forest Health Management Federal Lands Section.

Past Performance

For more information on Performance Metrics, as illustrated in the table above, see the State and Private 

Forestry Chapter. 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-23

Forest Health Management - Cooperative Lands

Budget Line Item Forest Health Management - Cooperative Lands

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Forest Health Management - Cooperative 

Lands

Annual Appropriations $8,353 $8,353 0 -$8,353 -100.00%

Forest Health Management - Cooperative 

Lands Total 8,353 8,353 0 -8,353 -100.00%

Annual Appropriations FTEs 40 40 0 -40 -100.00%

Total Full-Time Equivalents (FTEs) 40 40 0 -40 -100.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Forest Health Management - Cooperative Lands

Acres treated on cooperative lands under NFP -

Invasives 123,892 131,681 35,392 32,058 35,544 0

Acres treated on cooperative lands under NFP - Native 

pests 5,431 7,607 3,447 3,862 4,295 0

FY 2014 Program Changes

The FY 2014 President’s Budget combines Forest Health Management Cooperative Lands into one 

budget line item in the State and Private Forestry appropriation. Information about this program is within 

the State and Private Forestry Chapter, Forest Health Management Cooperative Lands Section.

Past Performance

For more information on Performance Metrics, as illustrated in the table above, see the State and Private 

Forestry Chapter.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-24

State Fire Assistance

Budget Line Item State Fire Assistance

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

State Fire Assistance

Annual Appropriations $55,475 $55,475 $69,459 $13,984 25.21%

State Fire Assistance Total 55,475 55,475 69,459 13,984 25.21%

Annual Appropriations FTEs 1 1 47 46 4,600.00%

Total Full-Time Equivalents (FTEs) 1 1 47 464,600.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

State Fire Assistance

Communities at risk from wildfire assisted - NFP 

(number) 9,229 10,881 7,500 9,946 8,124 12,180

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $69,459,000 for the State Fire Assistance (SFA), an increase

of $13,984,000 but a net decrease of $16,691,000 from the FY 2013 Annualized CR. The Budget contains 

$39,000 for pay costs which includes $6,000 for annualization of the fiscal year 2013 pay raise and 

$33,000 for the anticipated fiscal year 2014 pay raise. The pay costs increase would enable the program to 

cover its increased staff costs without reducing the resources available for program delivery.

The President’s Budget proposes consolidating the SFA program into one budget line item under the 

Wildland Fire Management (WFM) appropriation to improve program management, reduce 

administrative complexity, and assist with improved performance management. The net amount was 

calculated using the combined totals from FY 2013 as illustrated in the table below. 

State Fire Assistance Consolidated Budget Line Items

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Enacted

FY 2013 

Annualized 

CR Change

FY 2014 

Pres Bud

WFM State Fire Assistance $55,475 $55,475 $13,984 $69,459

S&PF State Fire Assistance 30,488 30,675 (30,675) 0

Total $85,963 $86,150 ($16,691) $69,459

Funds will support 12,180 communities and will continue to be focused on assisting communities with 

hazardous fuel treatments, capacity building, fire prevention education, and preparedness activities to help 

ensure States and local governments continue to reduce fire risk in their communities, and to support 

firefighting capacity within each State. 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-25

Projects are planned, completed, and entered into the performance database by each State and are not 

under the direct control of the Forest Service. However, to help ensure focus on the highest priority 

projects, the agency will continue to issue program direction encouraging the States to focus the funds on 

areas covered by Community Wildfire Protection Plans (CWPPs) or equivalent plans. 

Past Performance

In FY 2012, the SFA program assisted 9,946 communities in a variety of different activities through the 

WFM appropriation, exceeding the target of 7,500. The SFA program also assisted 6,631 communities 

through the S&PF appropriation, exceeding the target of 4,900. A total of 16,577 communities were 

assisted (see table), exceeding the target of 12,400.

State Fire Assistance Performance FY 2012 to FY 2014

Approp. Performance Measure

FY 2012

Target

FY 2012 

Actual

FY 2013 

Target

FY 2014

Target

WFM

Communities at risk from wildfire 

assisted – NFP* 7,500 9,946 8,124 12,180

S&PF Communities assisted 4,900 6,631 5,416 0

Total 12,400 16,577 13,540 12,180

*National Fire Plan.

The SFA program in the WFM appropriation focused on mitigating the risk of wildland fire for 

communities at risk. Assistance was provided in the form of risk assessments and fire management 

planning projects. SFA provided $20,973,584 for hazardous fuels treatments in the WUI, directly treating

256,933 acres of hazardous fuels and leveraging the treatment of another 133,514 acres. Over 4,900 

prevention and education programs were conducted in FY 2012. The program supported $7,492,087 in 

preparedness activities and $4,128,629 in suppression operations in the WFM appropriation. In addition, 

SFA funded the training of 33,300 firefighters and invested $3,378,481 in the purchase, maintenance, and 

rehabilitation of needed firefighting equipment for State agencies in this appropriation.

The SFA program in the S&PF appropriation focused on fire 

danger mitigation and protecting communities at risk. The 

program supported 3,293 prevention and education programs

through the S&PF appropriation. The SFA program also provided 

$2,752,419 to address critical preparedness needs for firefighter 

safety, increase initial attack capability, and training in the S&PF 

appropriation. Additional assistance was provided in the form of 

risk assessments and fire management planning projects 

(elements of fire-adapted communities).

SFA also provided significant support for the Fire-Adapted 

Communities program, which is designed to reduce risks in WUI

areas. In FY 2012, the Fire Adapted Communities program 

leveraged $2.6 million in Federal funding to garner 802 Firewise 

Communities nationwide, $11.4 million in Firewise mitigation 

activities, and over $5 million in donated media through the 

national Fire Adapted Communities Ad Council public awareness 

campaign.

Firewise Communities

Enacting the Firewise defensible space 

principles can help save homes and 

communities. This photograph, taken 

following the Waldo Canyon Fire, shows 

how Firewise principles helped save a 

home in Mountain Shadows, the hardest 

hit part of the community. For more 

information, visit www.firewise.org.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-26

SFA supported national level partnerships and agreements that further elements of Fire Adapted 

Communities, such as: 

• Supporting the development of Ready, Set, Go! programs in over 450 fire departments

• Establishing 600 Ready, Set, Go! program members in 50 States

• Supporting a total of 802 recognized Firewise Communities, and countless other individual 

homeowners and communities who use Firewise principles without seeking recognition

• Expanding partnerships with national organizations that leverage Federal and State funding for 

fire adapted communities, including The Nature Conservancy, International Association of Fire 

Chiefs, National Association of State Forestry, and the National Fire Protection Association

• Initiating an effort to develop training to help volunteer fire departments in the WUI areas 

conduct needed assessments through the National Volunteer Fire Association

• Launching a national Fire Adapted Communities public service announcement campaign and 

establishing a Fire Adapted Communities website (fireadapted.org)

• Supporting post-Waldo Canyon Fire assistance and outreach to the State of Colorado through the 

Colorado Springs Mitigation Assessment, the Colorado Rebuilds Fire Adapted Communities 

media outreach, State-wide mitigation workshops, outreach to the Nation’s insurance companies, 

and development of a fire adapted communities pilot project

Actual accomplishment figures tend to fluctuate from year to year depending on the type and costs of the 

individual projects that the States choose to implement. For example, if some States’ priority projects 

were relatively expensive then they generally accomplished fewer projects and therefore assisted fewer 

overall communities. However, if the States spread the funds across a larger number of communities to 

accomplish priority projects that were less expensive, then the total number of communities assisted was 

greater.

The Forest Service strongly encouraged States to focus their efforts on the objectives of the National 

Cohesive Wildland Fire Management Strategy: Creation of fire-adapted communities, landscape 

restoration, and wildfire response. Projects are planned, completed, and entered into the performance 

database by each State and are not under the direct control of the Forest Service. To help ensure focus on 

the highest priority projects, the agency issues program direction encouraging the States to focus the 

funds on areas covered by CWPPs or equivalent plans. 

Program Description 

Program Overview

The SFA program provides financial assistance via partnership agreements with State Foresters for fire 

management activities focused on mitigation by helping communities become fire-adapted through

completing hazardous fuel treatments around communities, planning and preparing for wildland fire, and 

obtaining equipment to respond to and mitigate fire. The creation of fire-adapted communities is critical 

to reducing the risk and cost of large wildfires. Funding helps Federal, State, and local agencies 

implement a pre-fire strategy and deliver a cohesive suppression response to wildfire. This program 

emphasizes pre-fire planning in the WUI and hazardous fuel mitigation near communities at risk of 

catastrophic wildfire in order to create more fire-adapted communities. SFA fire training programs (part 

of the fire-adapted communities’ effort) build capacity to provide effective initial attack response 

(response to wildfire). Creating fire-adapted communities is an element of the National Cohesive 

Wildland Fire Management Strategy.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-27

These funds also benefit communities by promoting initiatives related to the Forest Service’s FireAdapted Communities effort through: 

• The Firewise program, a national education program which provides information on defensible 

space and community wildfire risk reduction

• Ready, Set, Go! - a national effort delivered through fire departments which teaches Firewise, 

situational awareness during wildfire, and safe evacuation preparedness and implementation

• Development of CWPPs

• Capacity building for volunteer fire departments through targeted training programs

• The Smokey Bear fire prevention program

The Forest Service tracks the number of Communities at Risk. State Foresters report to the Forest Service 

the number of communities in which their efforts have reduced risk (Communities Assisted, see State Fire 

Assistance Performance FY 2012 to FY 2014 table) which was determined to be the best accomplishment 

measure for SFA given the variety of program needs and uses.

Allocation and Integration

SFA funding is distributed to the State Foresters to address critical fire adaptation, preparedness, and 

hazard mitigation needs and to maintain and enhance coordination and communication with Federal 

agencies, as well as supply needed performance data. Funding allocations take into consideration acres of 

non-Federal land, population, level of fire protection, vegetative condition class, and communities at risk,

as identified in each State Forest Action Plan. State Foresters use their State Forest Action Plans to make 

determinations about how best to direct funding to target the highest priority needs in their State. A 

percentage of these funds is also used on a competitive basis for hazard mitigation projects. 

Partnerships

The SFA program is delivered through partnerships with States, local agencies, local communities, and 

other organizations such as Fire Safe Councils. These groups can then participate actively in protecting 

their communities from wildland fire and providing wildland fire response. 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-28

Volunteer Fire Assistance

Budget Line Item Volunteer Fire Assistance

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Volunteer Fire Assistance

Annual Appropriations $6,356 $6,356 $11,205 $4,849 76.29%

Volunteer Fire Assistance Total 6,356 6,356 11,205 4,849 76.29%

Annual Appropriations FTEs 0 0 0 0 0.00%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0.00%

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Volunteer Fire Assistance

Number of Volunteer fire departments assisted - NFP 

(number) 7,941 5,605 4,500 6,120 5,268 8,120

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $11,205,000 for the Volunteer Fire Assistance (VFA) 

program, a budget line item increase of $4,849,000 but a net decrease of $1,861,000 from the FY 2013 

Annualized CR. Because VFA does not fund any full-time equivalent employees, the Budget does not 

contain any pay costs for this program.

The President’s Budget proposes consolidating the VFA program into one budget line item under the 

Wildland Fire Management (WFM) appropriation to increase effectiveness in management and reduce 

administrative complexity. The net amount was calculated using the combined totals from FY 2013 as 

illustrated in the table below. 

Volunteer Fire Assistance Consolidated Budget Line Items

(dollars in thousands)

Approp. Budget Line Item

FY 2012 

Enacted

FY 2013 

Annualized 

CR Change

FY 2014 

Pres Bud

WFM Volunteer Fire Assistance $6,356 $6,356 $4,849 $11,205

S&PF Volunteer Fire Assistance 6,669 6,710 (6,710) 0

Total $13,025 $13,066 ($1,861) $11,205

The program will provide matching financial assistance to 8,120 rural communities of less than 10,000 

people to build and maintain fire suppression capacity. 
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-29

Past Performance 

In FY 2012, the VFA program assisted volunteer fire departments in 6,120 communities through the 

WFM appropriation, exceeding the target of 4,500 volunteer fire departments assisted. In addition, the

VFA program provided VFA funding to 4,080 volunteer fire departments in FY 2012 through the S&PF 

appropriation, exceeding the target of 3,900. This equals 10,200 fire departments assisted, as illustrated in 

the following table. The combined total exceeded the combined target by 1,800. 

Volunteer Fire Assistance Performance FY 2012 to FY 2014

Approp. Performance Measure

FY 2012

Target

FY 2012

Actual

FY 2013 

Target

FY 2014 

Target

WFM Volunteer fire departments assisted – NFP* 4,500 6,120 5,268 8,120

S&PF Volunteer fire departments assisted 3,900 4,080 3,512 0

Total 8,400 10,200 8,780 8,120

*National Fire Plan.

The VFA program supported training of 27,865 firefighters (16,719 through WFM and 11,146 through 

S&PF), the organization or expansion of 87 fire departments (52 through WFM and 35 through S&PF),

and the purchase, rehabilitation, and maintenance of $9,056,774 of equipment ($5,434,064 through WFM 

and $3,622,710 through S&PF). 

The VFA program is managed by the States to provide 

funding to the areas of highest risk and greatest need. 

Therefore, the Forest Service can only estimate projected 

accomplishments based on previous years’ performance. 

The actual number of volunteer fire departments assisted 

tends to fluctuate from year to year depending on the 

types and cost of individual projects the States choose to 

implement. For example, if some State’s priority projects 

were relatively expensive then they accomplished fewer 

projects and therefore assisted fewer overall communities. 

However, if the State spread the funds across a larger 

number of communities to accomplish priority projects 

that were less expensive, then the total number of 

communities assisted is greater. 

The Forest Service strongly encouraged the States to focus their efforts on the objectives of the National 

Cohesive Wildland Fire Management Strategy: Creation of fire-adapted communities, landscape 

restoration, and wildfire response.

Program Description 

Program Overview

Through the VFA program, the Forest Service provides technical and financial assistance to local 

communities—via the States—to protect State and private forestlands threatened by wildfire. The VFA is 

delivered by the State Foresters and supports local fire suppression efforts by providing grants for 

equipment, training programs, and technical assistance in organizing or expanding fire departments. The 

program targets volunteer fire departments that protect communities of less than 10,000 inhabitants from 

wildland fire. Local fire agencies are the first line of defense for initial attack on wildland fires, and 

Volunteer Fire Departments

In FY 2012, the VFA program provided funding to 

help train over 27,000 firefighters that are often the 

first line of defense in meeting expanded protection 

needs for WUI fires. Of the more than 35,000 local 

fire agencies nationwide, 75 percent are volunteer 

run. They provide nearly 80 percent of initial 

attack on wildland fires in the U.S., making them a 

crucial partner in effective national wildland fire 

management. The assistance, such as training 

provided by VFA funding, assisted over 10,000 

communities in FY 2012.
FY 2014 Budget Justification USDA Forest Service

Wildland Fire Management 9-30

therefore play a key role in educating their jurisdictions about fire adaption and the need for mitigation, 

along with meeting expanded fire protection needs within the WUI.

Grants are matched dollar-for-dollar by the recipients to leverage the value of Federal investment. 

Program funding helps Federal, State, and local agencies deliver a uniform and coordinated suppression 

response to wildfire by training, equipping, and organizing volunteer fire departments. Through this 

program, the Forest Service provides support that better enables local communities in rural areas to 

prepare for, mitigate, and respond to natural and human-caused fires prior to them spreading to lands 

managed by other jurisdictions. VFA fire prevention education programs, through building capacity to 

provide effective initial attack response and hazardous fuel reduction projects, are also an integral part of 

the overall WFM program response to the effects of a changing climate. All of these initiatives work 

together to create more fire-adapted communities, an important Forest Service effort that will reduce the 

risk, cost, and impact of wildfires.

Allocation and Integration

Allocation of funds takes into account risk from catastrophic fires to communities in the WUI, the number 

of acres to be protected, and the number of volunteer fire departments serving qualifying communities. 

State Foresters utilize their Forest Action Plans to determine which volunteer fire departments within their 

State should receive priority for VFA funding.

Partnerships

The VFA program directly supports local fire suppression initial attack efforts by providing technical 

assistance grants for training and fire department development. The program supports volunteer fire 

programs throughout the country in rural areas with populations of less than 10,000 people. 

 
FY 2014 Budget Justification USDA Forest Service

FLAME Wildfire Suppression Reserve Fund 10-1

10. FLAME Wildfire Suppression Reserve Fund 

Appropriation FLAME Wildfire Suppression Reserve Fund

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

FLAME Wildfire Suppression Reserve 

Fund

Annual Appropriations $315,381 $317,311 $315,000 -$2,311 -0.73%

FLAME Wildfire Suppression Reserve 

Fund Total 315,381 317,311 315,000 -2,311 -0.73%

Annual Appropriation FTEs 0 0 0 0 0.00%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0.00%

FY 2014 Program Changes

The FY 2014 President’s Budget proposes $315,000,000 for the Federal Land Assistance, Management 

and Enhancement Act of 2009 (FLAME) Wildfire Suppression Reserve Fund, a decrease of $2,311,000

from the FY 2013 Annualized CR. Because FLAME does not fund any full-time equivalent employees, 

the Budget does not contain any pay costs for this program.

Amounts provided through FLAME, together with amounts provided through the Wildland Fire 

Management appropriations account, fully covers the 10-year average costs, adjusted for inflation. 

Past Performance

The Forest Service received authorization and funding in FLAME in FY 2012. The FY 2012 fire season 

was severe and is comparable to those in FY 2006, FY 2002, and FY 2000 in terms of duration and 

intensity. A number of large and complex fires occurred during FY 2012, including historic fires in 

Colorado, Arizona and Idaho, as well as an unusually long fire season in much of the Northwest and 

Northern Rocky Mountains. The Secretary of Agriculture signed two declarations covering 61 fires that 

met the criteria required to be eligible for FLAME funds in FY 2012. 

These “FLAME” fires were complex enough to warrant the assignment of a Type I or Type II Incident 

Management Team – those with the most training and experience in tactical decision making, resource 

assignment and staffing for large, complex wildland fires. These fires were declared eligible for a transfer 

of funds from FLAME to the Suppression account by the Secretary of Agriculture. The FY 2012 FLAME 

fires are listed below by State.

Fires Declared Eligible for FLAME Funding in FY 2012

Name of Incident Type State Name of Incident Type State

Bull Flat (DOI) 1 AZ East End 2 MO

Poco 2 AZ Ash Creek (DOI) 2 MT

Sunflower 1 AZ Bear Trap 2 2 MT

Whitewater-Baldy Complex 1 AZ Chrandal Creek 2 MT

257 2 CA East Sarpy 2 MT
FY 2014 Budget Justification USDA Forest Service

FLAME Wildfire Suppression Reserve Fund 10-2

Fires Declared Eligible for FLAME Funding in FY 2012

Name of Incident Type State Name of Incident Type State

Ash Creek 2 CA Elbow Pass Complex 2 MT

Chips 2 CA Pony 2 MT

Cow Camp 1 CA Southeast Montana Complex (DOI) 2 MT

George 1 CA Gladiator 1 NM

Hill 2 CA Little Bear 2 NM

Mill 2 CA North Schell 2 NM

Ozena 2 CA Egan (DOI) 2 NV

PNF Peak 2 CA White Rock (DOI) 1 NV

SHF Flat 2 CA Bonita Complex 2 OR

SHF Salt Creek 2 CA Long Draw (DOI) 2 OR

SQF Piute Complex 2 CA Miller Homestead (DOI) 2 OR

Hewlett 1 CO Dakota 2 SD

High Park 2 CO Long Horn Complex (DOI) 2 SD

Little Sand 1 CO Myrtle 2 SD

Pine Ridge (DOI) 2 CO White Draw 2 SD

Powell Complex (DOI) 2 CO Lost Lake 1 UT

Springer 2 CO Seeley 2 UT

Sunrise Mine (DOI) 1 CO Shingle 2 UT

Waldo Canyon 2 CO Wolf Den (DOI) 2 UT

Weber (DOI) 2 CO Easter Complex 1 VA

County Line 1 FL Neighbor Mountain (DOI) 2 VA

Box Creek 2 ID Antoine 2 2 WA

Charlotte (DOI) 2 ID Fontenelle 2 WY

Kinyon Road (DOI) 2 ID Guernsey State Park (DOI) 2 WY

Mustang Complex 2 ID Seminoe (DOI) 2 WY

Trinity Ridge 2 ID Squirrel Creek 2 WY

Little Mack Lake 1 MI

Fires originating on Department of the Interior (DOI) lands are included in the table along with those originating on 

Forest Service lands because the Forest Service and the DOI have an interagency agreement to provide suppression 

resources on a reciprocal non-reimbursement basis.

The Forest Service will issue an annual report that describes the obligations and expenditures of amounts 

transferred from FLAME in FY 2012, as required by the FLAME Act. 

Program Description

Program Overview

The FLAME Act of 2009 was authorized in P.L. 111-88, as part of the Department of the Interior, 

Environment, and Related Agencies Appropriations Act, 2010. The FLAME Wildfire Suppression 

Reserve Fund is a separate treasury account and distinct appropriation providing funds to cover fires that 

are sufficiently large and complex or when the Suppression account is expected to be completely 

obligated. It is intended to address the impacts of increasing wildfire suppression costs and their effects 
FY 2014 Budget Justification USDA Forest Service

FLAME Wildfire Suppression Reserve Fund 10-3

on other agency programs. These funds are available to the Secretary of Agriculture to be transferred into 

the Suppression account.

Each fire incident is immediately evaluated for complexity and risk to high valued resources and an 

incident risk analysis is completed. If a fire is deemed to be sufficiently complex to require a Type 1 or 

Type 2 Incident team, the fire may be declared eligible for FLAME funding by the Secretary of 

Agriculture. Once the Secretary makes the declaration, funds are transferred from FLAME to the 

Suppression account. 

FLAME is intended to allow us to respond effectively during highly variable fire seasons. The President’s 

Budget also continues to fund wildland fire management reforms such as the use of strategic and 

operational protocols and improved oversight, as well as the use of a risk management framework that 

ensures that fire management resources are appropriately focused. Through the combination of FLAME 

and these program improvements, the President’s Budget seeks to avoid transfer of funds from other 

Forest Service accounts to Suppression.

In recent years, fires have become larger and more difficult to control due to a variety of factors, 

including: 

• Climate change 

• Persistent drought 

• Accumulation of hazardous fuels 

• More homes near wildlands, expanding the Wildland Urban Interface (WUI) 

As fire seasons have been extended, use of resources (aviation, equipment, and personnel) has increased. 

Over the long-term, research indicates that a changing climate will result in longer fire seasons and larger 

fires (e.g. A.L Westerling, H. G. Hidalgo, D. R. Cayan, and T. W. Swetnam. Warming and Earlier Spring 

Increase Western U.S. Forest Wildfire Activity. Science 18 August 2006). These trends were apparent in 

the 2012 fire season, which was extremely active. Numerous states experienced record-breaking fires and 

many parts of the West had historically long fire seasons. 

Allocation and Integration

This fund is not allocated to the field units. FLAME functions as a transfer account to accommodate those 

large fires which historically have resulted in the greatest expenditure of Suppression funds. 

The protocols and criteria for use of these funds are based on complexity of wildfire incidents. Funds can 

also be made available when the regular Suppression account is almost completely obligated. Both of 

these instances require a declaration to the Secretary who would then request transfer of funds from 

FLAME into the Suppression account. 

The agency is continuing to implement improvements in risk management that will become components 

of the protocols and criteria, including: 

• Performance metrics associated with resource applications and their effectiveness on large fires 

• Fiscal boundaries for suppression expenditures with active oversight and monitoring protocols 

• A resource allocation system/model for risk-informed resource allocation (dispatch) to make 

optimal resource allocation decisions during periods of likely and actual high fire activity
FY 2014 Budget Justification USDA Forest Service

FLAME Wildfire Suppression Reserve Fund 10-4

• A national risk management framework for managing the inherent risks of wildland fires—

including air and ground operations—that classifies fires into risk categories and associates 

mitigation measures commensurate with each category 

Partnerships

The Forest Service works in conjunction with the Department of the Interior Office of Wildland Fire 

Coordination to develop joint protocols for identifying and declaring FLAME-eligible fires to ensure that 

both Department of the Interior and the Forest Service submit the same fires for FLAME declaration by 

their respective Secretaries. 

 
FY 2014 Budget Justification USDA Forest Service

Payments to Communities 11-1

11. Payments to Communities

Appropriation Payments to Communities

 (dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Percent of 

Program 

Changes

Payments to Communities

Annual Appropriations 0 $311,000 $278,000 -$33,000 -10.61%

Payments to Communities Total 0 311,000 278,000 -33,000 -10.61%

Annual Appropriation FTEs 0 0 0 0 0.00%

Total Full-Time Equivalents (FTEs) 0 0 0 0 0.00%

Payments to Communities

Payments to Communities 0 311,000 278,000 -33,000 -10.61%

FY 2013 Program Changes 

The FY 2014 President’s Budget assumes a five-year reauthorization of the Secure Rural Schools (SRS) 

Act starting in FY 2013 with $311 million from mandatory sources. This amount represents the proposal 

and is not the calculated amount under the Annualized CR. The FY 2014 budget proposes funding 

through mandatory appropriations supplemented by funds from the Treasury. The FY 2014 payment 

proposed is for $278 million.

Payments to Communities Proposal – Funding Source

(dollars in thousands)

Funding 

Source

FY 2013 FY 2014 FY 2015 FY 2016 FY 2017

Mandatory $311,000 $278,000 $171,000 $130,000 $106,000

This proposal titled “Payments to Communities” revises the allocation split between the three portions of 

the program from the previous authority emphasizing enhancement of forest ecosystems, restoration and 

improvement of land health, and water quality and the increase of economic activity. 

Title I: The School and Roads portion is reduced over the next five-year reauthorization. It would be 

reduced by 20 percent of the previous authority for the first year (2013), 10 percent in the second year 

(2014), and 25 percent each year thereafter. Starting in year three, (2015), any state that would receive 

less than $10 million in the Payments to Communities payment would no longer be eligible for this 

program. Those states would revert to the 25 percent fund payments. 

Title II: The Economic Investment & Forest Restoration/Protection portion is doubled from the previous 

funding level. This funding is for projects that enhance forest ecosystems, restore and improve land 

health and water quality, and increase economic activity. This portion would be held constant through the 

five-year reauthorization.
FY 2014 Budget Justification USDA Forest Service

Payments to Communities 11-2

Title III: The Fire Assistance portion is reduced by 50 percent from the previous funding level in year 

one (2013). This portion is eliminated starting in the second year (2014). Other existing Forest Service 

programs already fund some of these activities.

Past Performance

Six-hundred fifty-one counties from 41 States and Puerto Rico received $306,077,065 for FY 2012 on 

February 15, 2013. Of these payments, 84.96 percent were for Title 1, 10.44 percent were for Title II and 

4.60 percent were for Title III.

Program Description

The Secure Rural Schools and Community Self-Determination Act of 2000 (SRS Act), P.L. 106-393, was 

enacted to provide for transitional assistance to rural counties affected by the decline in revenue from 

timber harvests on federal lands. The last payment authorized under P.L. 106-393 was for 2006. Section 

601 of Division C of P.L. 110-343 amended and reauthorized the SRS Act (P.L. 106-393) through 2011, 

and P.L. 112-141 reauthorized the program through FY 2012. The SRS Act, as amended, retains the 

original title. The amended SRS Act was similar to P.L. 106-393, although it is structured to phase out 

payments. The amended Act is no longer authorized at the end of FY 2012 with the last payment being 

issued in FY 2013.

If the SRS Act is not reauthorized, States will revert to the Payments to States Act of 1908, as amended 

(16 U.S.C. 500). The Payments to States Act requires, with a few exceptions, that 25 percent of all 

monies received from the national forests and deposited into the National Forest Fund during a fiscal year 

from timber, grazing, special-use permits, power and mineral leases, and admission and user fees be paid 

to the States in which the national forests are located, for public schools and public roads in the county or 

counties in which the national forests are situated.

The Budget reflects a five-year reauthorization, starting in 2013, of the Secure Rural Schools Act with 

funding through mandatory appropriations. This SRS proposal revises the allocation split between the 

three parties portions of the program from the current authority emphasizing enhancement of forest 

ecosystems, restoration, and improvement of land health and water quality and the increase of economic 

activity.

Refer to the Payment to States section under the Permanent Appropriations chapter for more detail on 

other payments. 

 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-1

12. Permanent Appropriations

Permanent Appropriations

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Brush Disposal

New Budget Authority $9,231 $9,300 $9,300 0

Program Level 6,629 8,600 8,600 0

Full-Time Equivalents (FTEs) 57 68 68 0

Hardwood Technology Transfer and Applied Research

New Budget Authority 23 5 50 45

Program Level 37 90 90 0

Full-Time Equivalents (FTEs) 0 0 0 0

Timber Salvage Sales

New Budget Authority 24,717 20,000 19,000 -1,000

Program Level 22,610 21,400 19,300 -2,100

Full-Time Equivalents (FTEs) 216 199 187 -12

Timber Sales Pipeline Restoration

New Budget Authority 5,871 5,200 5,200 0

Program Level 3,573 6,800 6,600 -200

Full-Time Equivalents (FTEs) 32 50 49 -1

Forest Botanical Products

New Budget Authority 1,634 1,500 1,580 80

Program Level 1,569 1,600 1,700 100

Full-Time Equivalents (FTEs) 19 19 20 1

Stewardship Contracting

New Budget Authority 9,712 9,700 9,700 0

Program Level 6,747 11,900 12,300 400

Full-Time Equivalents (FTEs) 0 0 0 0

Recreation Fees, Forest Service

New Budget Authority 66,711 67,850 68,050 200

Program Level 62,024 75,570 75,870 300

Full-Time Equivalents (FTEs) 543 624 626 2

Timber Purchaser Election Road Construction

New Budget Authority 4,000 2,000 2,000 0
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-2

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Program Level 669 2,000 2,000 0

Full-Time Equivalents (FTEs) 0 0 0 0

Operation and Maintenance of Forest Service Quarters

New Budget Authority 7,758 9,000 9,000 0

Program Level 7,394 9,600 9,700 100

Full-Time Equivalents (FTEs) 26 31 31 0

Roads and Trails for States

New Budget Authority 18,686 12,000 18,000 6,000

Program Level 73 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Land Between the Lakes Management

New Budget Authority 4,119 3,800 3,900 100

Program Level 3,861 3,800 3,800 0

Full-Time Equivalents (FTEs) 15 15 15 0

Midewin National Tallgrass Prairie Rental Fee

New Budget Authority 893 800 800 0

Program Level 635 800 800 0

Full-Time Equivalents (FTEs) 0 0 0 0

Midewin National Tallgrass Prairie Restoration

New Budget Authority 0 0 0 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

Quinault Special Management Area

New Budget Authority 1 10 10 0

Program Level 9 10 10 0

Full-Time Equivalents (FTEs) 0 0 0 0

Valles Caldera Fund

New Budget Authority 959 800 800 0

Program Level 660 800 1,000 200

Full-Time Equivalents (FTEs) 0 0 0 0

Restoration of Forest Lands & Improvements

New Budget Authority 62,863 40,000 15,000 -25,000

Program Level 14,065 40,000 40,000 0

Full-Time Equivalents (FTEs) 77 166 166 0

Commercial Filming and Still Photography Land Use 

Fee Retention

New Budget Authority 437 490 490 0

Program Level 385 685 679 -6

Full-Time Equivalents (FTEs) 4 5 5 0
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-3

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Organizational Camps Programs

New Budget Authority 562 600 600 0

Program Level 487 667 669 2

Full-Time Equivalents (FTEs) 6 7 7 0

Cost Recovery (Administration of Rights-of-Way)

New Budget Authority 5,454 8,700 8,700 0

Program Level 5,650 9,210 9,302 92

Full-Time Equivalents (FTEs) 54 76 76 0

Licensee Program Smokey Bear

New Budget Authority 151 100 100 0

Program Level 89 100 100 0

Full-Time Equivalents (FTEs) 0 0 0 0

Licensee Program Woodsy Owl

New Budget Authority 2 4 4 0

Program Level 7 15 15 0

Full-Time Equivalents (FTEs) 0 0 0 0

Forest Service Go Green Program (Conservation) 

New Budget Authority 96 39 34 -5

Program Level 18 42 32 -10

Full-Time Equivalents (FTEs) 0 0 0 0

Conveyance of Administrative Sites 

New Budget Authority 2,688 37,000 18,700 -18,300

Program Level 2,992 18,100 24,400 6,300

Full-Time Equivalents (FTEs) 6 7 7 0

Site-Specific Lands Acts

New Budget Authority 1,950 7,600 3,600 -4,000

Program Level 1,364 9,500 5,800 -3,700

Full-Time Equivalents (FTEs) 4 4 4 0

Payment to States

New Budget Authority 365,444 300,116 348,000 47,884

Program Level 391,707 362,804 348,000 -14,804

Full-Time Equivalents (FTEs) 242 208 0 -208

Permanent Funds New Budget Authority 593,962 536,614 542,618 6,004

Permanent Funds Program Level 533,254 584,093 570,767 -13,326

Permanent Funds Full Time Equivalents (FTEs) 1,301 1,479 1,261 -218
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-4

Brush Disposal

Budget Line Item Brush Disposal

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Brush Disposal

New Budget Authority $9,231 $9,300 $9,300 0

Program Level 6,629 8,600 8,600 0

Full-Time Equivalents (FTEs) 57 68 68 0

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Brush Disposal

Acres of harvest related woody fuels treated 54,522 64,488 70,000 51,852 75,000 73,000

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $8,600,000, for the Brush Disposal fund, the 

same level as FY 2013. Funding will be used to treat an estimated 73,000 acres of woody debris resulting 

from timber harvesting on the national forests. The target is lower than FY 2013 due to increasing costs 

associated with brush disposal. 

Past Performance

In FY 2012, 51,852 acres were treated. This accomplishment represents 74 percent of the planned level of 

70,000 acres. The ability to dispose of unwanted slash and debris disposal generated by commercial 

timber sales depends on availability of the units for treatment, weather and fuel conditions, smoke 

management prescriptions, and geographical location. Brush disposal treatments where prescribed fire is 

the preferred alternative requires optimal environmental conditions to achieve desired objectives and must 

follow strict burning parameters and guidelines. Unusually dry and or extremely wet conditions prevented 

the execution of additional acreage targeted under approved Brush Disposal Plans for execution during 

FY 2012. The disposal of unmerchantable material upon completion of timber harvest not only reduces 

hazards fuel loading but it is necessary for maintaining and improving forest health conditions.

Authorities

The Brush Disposal Act of August 11, 1916, as amended (16 U.S.C. 490). This Act authorizes the 

Secretary of Agriculture to require purchasers of national forest timber to deposit the estimated cost to 

dispose of brush and other debris resulting from their cutting operations.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-5

Program Description

Program Overview

This program provides for the disposal of unmerchantable brush and other debris resulting from timber 

harvest operations. Timber harvest activities create logging slash which, left untreated, can increase the 

risk of fire, impair reforestation, and contribute to the buildup of insect populations. Depending upon the 

amount of logging debris generated, as well as the relative fire hazard created, logging slash can be 

mechanically treated by scattering, chipping, or crushing down by logging equipment and allowed to 

decay. Slash can also be subjected to broadcast burning or collected into piles and burned during nonhazardous weather conditions.

Timber sale operators can perform the required work, or they can request that the agency complete this 

work by depositing funds to cover these costs. Brush disposal funding comes from deposits required of 

timber purchasers, and is used only on timber sale areas. 

Allocation and Integration

The allocation of brush disposal funds responds to each region’s assessment of budget authority required 

to accomplish necessary treatments. These treatments are integrated with hazardous fuel reduction 

treatments outside timber sale areas to achieve optimal progress toward agency forest health and fire 

hazard reduction goals.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-6

Hardwood Technology Transfer and Applied Research 

Hardwood Technology Transfer and Applied Research

Budget Line Item Hardwood Technology Transfer and 

Applied Research 

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Hardwood Technology Transfer and Applied Research 

New Budget Authority $23 $5 $50 $45

Program Level 37 90 90 0

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $90,000 for the Hardwood Technology 

Transfer and Applied Research fund, the same level as FY 2013. Funds will provide for the operation and 

maintenance of the Wood Education and Resource Center (WERC) which includes an office building, 

training annex, rough mill, and wood shop. 

Past Performance

In FY 2012, $23,000 was collected from lessee rent. However, since the departure of the previous lessee 

of the rough mill and wood shop in March 2012, there have been no revenue additions from lessee rent to 

the fund. A prospectus has been released in a search for a new lessee. Annual collections for this fund 

vary for several reasons including escalating monthly payments built into the special use permit, fee 

adjustments due to market and business conditions, and collection challenges due to lessee/permit holder 

business shutdown. 

Authorities

P.L. 106–113, div. B, §1000(a)(3) [Title III, §332], Nov. 29, 1999, 113 Stat. 1535, 1501A–197. Title 16 –

Conservation; Chapter 36 - Forest And Rangeland Renewable Resources Planning, Subchapter II –

Research; Sec. 1650 - Hardwood technology transfer and applied research. This Act provides authority 

for the WERC to conduct technology transfer and development, training, dissemination of information,

and applied research in the management, processing and utilization of the hardwood forest resource. The 

Act authorizes the generation of revenue and funds to be deposited into a special fund in the U.S. 

Treasury, known as the Hardwood Technology Transfer and Applied Research fund, which shall be 

available until expended, without further appropriation, in furtherance of the purposes stated in the Act

including upkeep, management, and operation of the WERC and the payment of salaries and expenses.

Program Description

The Hardwood Technology Transfer and Applied Research fund allows for funds to be collected from 

leasing the wood shop and rough mill under a special use permit and are used to pay for utilities, salaries, 

repairs and maintenance expenses. While the majority of the funds are generated from lessee rent, a 

portion of the funds may be derived from machine/timeshare rentals for start-up wood businesses and 

workshop fees. 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-7

Timber Salvage Sales

Budget Line Item Timber Salvage Sales

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Timber Salvage Sales

New Budget Authority $24,717 $20,000 $19,000 -$1,000

Program Level 22,610 21,400 19,300 -2,100

Full-Time Equivalents (FTEs) 216 199 187 -12

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Timber Salvage Sales

Volume of salvage timber sold (hundred cubic feet 

(CCF)) 634,015 644,319 323,340 567,180 352,727 500,000

Volume of salvage timber sold (million board feet 

(MMBF)) 338 322 162 306 176 250

FY 2014 Program Changes 

The FY 2014 President’s Budget includes a program level of $19,300,000 for the Timber Salvage Sales 

fund, a decrease of $2,100,000 from FY 2013. The funding will be used to analyze, prepare, and offer 

new salvage sales while administering salvage timber sales awarded in the recent past. Salvage sale 

treatments primarily follow recent fire and insect outbreaks in the West. The Forest Service expects to sell 

about 500,000 CCF (250 MMBF) of timber volume in FY 2014. The volume outcome from this 

permanent fund is included in the unified volume sold target displayed under the Integrated Resource 

Restoration budget line item for FY 2013 and FY 2014.

Past Performance

In FY 2012, the agency sold 567,180 CCF (306 MMBF) from Timber Salvage Sales, an attainment of 

over 75 percent more than the planned volume. Setting volume targets for this program can be difficult, as 

unit costs for salvage sales are highly variable, depending on the remaining value of the damaged, 

diseased, or insect-infested trees being removed to reduce the hazards posed to adjacent forest vegetation 

and communities. Salvage sales permit the timely removal of fire damage, insect damaged and diseased 

trees, aiding in developing health and resilience forest stands. In FY 2012, 10 FTEs were reported in the 

Resource Management Timber Receipts Fund, and they are included here because the work is similar, and 

the Resource Management Timber Receipts Fund will become obsolete.

Authorities

The National Forest Management Act of 1976 (16 U.S.C. 472a (h)). This Act authorizes the Secretary of 

Agriculture to require purchasers of salvage timber to make monetary deposits in a designated Treasury 

fund to cover the costs for sale preparation and administration, and the engineering design and 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-8

administration of any needed roads necessary for the harvesting of salvage timber. Funds are available 

until expended.

Program Description

Program Overview

The Timber Salvage Sale program collects revenues from the sale of timber from dead and dying trees to 

prepare and administer future salvage timber sales, including the provision of engineering support. These 

revenues are deposited into the Salvage Sale Fund and are available to immediately respond to timber 

salvage opportunities. The removal of fire-damaged, diseased, and insect-infested timber through timber 

sale contracts is a valuable tool to reduce the potential for catastrophic wildland fires and other hazards 

associated with dead or dying trees. Timely salvage sales also help maximize the recovery of timber 

product value that would otherwise be lost, and through the collection of Knutson-Vandenberg Act funds, 

can provide for restoration of an affected area.

Allocation and Integration

Timber Salvage Sale funds are allocated based upon the amount of cash available in regional salvage 

accounts and the relative need for treatment each fiscal year. In addition to the Salvage Sale Fund, timber 

sales are funded through regular appropriations and other special authorities, including the Timber Sale 

Pipeline Restoration Fund, the Knutson-Vandenberg Fund, and the Stewardship Contracting Fund. All of 

these funds may receive a portion of the revenues received from timber sales. 

Partnerships

Effective implementation of this program requires partnership with local timber industries, as having 

timber infrastructure located close to the national forests facilitates salvage timber sales. Without this 

infrastructure, timber sales may not be economically viable, and no salvage timber volume would be 

harvested.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-9

Timber Sale Pipeline Restoration 

Budget Line Item Timber Sales Pipeline Restoration 

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Timber Sales Pipeline Restoration 

New Budget Authority $5,871 $5,200 $5,200 0

Program Level 3,573 6,800 6,600 -$200

Full-Time Equivalents (FTEs) 32 50 49 -1

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Timber Sales Pipeline Restoration Fund

Volume of pipeline timber prepared (hundred cubic feet 

(CCF)) 556,846 581,055 740,000 441,682 420,500 450,900

Volume of pipeline timber prepared (million board feet 

(MMBF)) 320 290 370 211 210 225

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $6,600,000 for the Timber Sales Pipeline 

Restoration fund, a decrease of $200,000 from FY 2013. Specific program funding within this request is 

as follows:

Timber Sale Pipeline Sale Preparation - The FY 2014 President’s Budget includes funding for the timber 

sales pipeline preparation. About 450,900 CCF (225 MMBF) of timber volume would be added to the 

pipeline of timber sales prepared as a result of this funding. Program levels remain unchanged based on 

projected receipts collected in FY 2013. 

Timber Sale Pipeline Recreation Backlog - The FY 2014 President’s Budget includes funding for the 

backlog of recreation maintenance projects. Emphasis will be placed on repairs to correct health and 

safety deficiencies, reductions in the backlog of deferred maintenance at priority recreation sites as 

identified in forests’ Recreation Facility Analyses, and maintenance of system trails. 

Past Performance

In FY 2012, 441,682 CCF (221 MMBF) in timber pipeline volume was prepared. Outputs associated with 

the recreation backlog projects are combined and reported under the Capital Improvement and 

Maintenance, Facilities and Trails programs.

Authorities

Department of the Interior and Related Agencies Appropriations Act of 1996 (P.L. 104-134, Sec. 101 (c), 

[title III Sec. 327], April 26, 1996, 110 Stat. 1321-206 and 207). The Secretary of Agriculture is 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-10

authorized to collect and deposit revenues from a specific set of timber sales (i.e., sales released under 

P.L. 104-19, [title II, Sec. 2001(k)], July 27, 1995) for the purpose of preparing timber sales and 

addressing the backlog of recreation projects. Revenues from the sale of timber prepared using these 

funds are also deposited into this fund and are available for preparation of additional timber sales and 

recreation backlog projects.

Program Description

Program Overview

The Timber Sales Pipeline Restoration Fund accomplishes a multitude of land and resource management 

objectives, such as improving forest health, restoring wildlife habitat, and providing forest products to 

meet local and national needs. In addition, the fund helps to address health and safety issues in recreation 

facilities and on system trails, benefiting the recreating public by addressing maintenance issues that may 

cause harm or otherwise detract from the outdoor experience. These activities are aligned with the 

agency’s water conservation goals and ensure forest and grasslands are conserved, restored, and made 

more resilient to climate change.

The following programs are included in the Fund:

Timber Sale Pipeline Sale Preparation - Seventy five percent of the Timber Sales Pipeline 

Restoration funds are used for the preparation of future non-salvage timber sales to restore the 

timber sales pipeline volume. This activity provides for the National Environmental Policy Act

analysis to meet long-term forest health and desired condition objectives, determination of the 

volume and value of the trees to be removed, and timber sale layout and design leading to timber 

sales offered in future years. Expenditures may also include the necessary planning and design for 

the associated timber roads.

Recreation Backlog - Twenty-five percent of the Timber Sales Pipeline Restoration funds are 

expended on backlog recreation facility projects and system trails. This activity includes 

maintenance and improvement of recreation sites, system trails, bridges, and trailheads. 

Allocation and Integration

Funding is allocated to the field each year based upon the actual prior year collections from qualifying 

timber sales, with 75 percent of the net receipts collected in each region being returned to the region for 

additional timber sales pipeline preparation work, and the remaining 25 percent for the recreation 

backlog.

In addition to this fund, timber sales are funded through the National Forest System, Integrated Resource 

Restoration (IRR) budget line item as well as the Salvage Sale Fund and the Knutson-Vandenberg Trust 

Fund. Recreation facility and trail projects are also funded through the Capital Improvement and 

Maintenance, Facilities, Trails, and Deferred Maintenance and Infrastructure Improvement budget line 

items, the Legacy Roads and Trails activity in the IRR budget line item, and the Permanent 

Appropriation, Recreation Fees, Forest Service fund. 

Partnerships

Effective implementation of this program requires partnership with local timber industries, as having 

timber infrastructure located close to the national forests facilitates timber sales. Without this 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-11

infrastructure, timber sales might not be economically viable, and no timber volume would be harvested, 

and the needed forest health improvement projects could not occur. 

The agency accomplishes valuable recreation facility and trails work by leveraging funds and in-kind 

contributions through many partnerships. The Forest Service engages volunteers, concessionaires, and 

other partners to enhance recreation experiences and help maintain nearly 70 percent of agency owned 

recreation sites. Trail crews are one of the primary means for the Forest Service to employ young adults 

and partner with local communities and interest groups.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-12

Forest Botanical Products

Budget Line Item Forest Botanical Products

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Forest Botanical Products

New Budget Authority $1,634 $1,500 $1,580 $80

Program Level 1,569 1,600 1,700 100

Full-Time Equivalents (FTEs) 19 19 20 1

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Forest Botanical Products

Sold value of forest botanical products $2,319,435 $1,589,163 $2,300,000 $1,633,714 $2,300,000 $1,700,000

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $1,700,000 for the Forest Botanical 

Products Pilot Program Fund, an increase of $100,000 from FY 2013. The Forest Service continues to use 

these funds to accomplish and further develop important projects and activities designed to ensure the 

viability and sustainability of forest botanical products while responding to the increasing demand for 

culturally important, medicinal, and the wide variety of other botanical products.

While the estimated value of forest botanical products is dependent on market conditions, we expect a 

relatively level demand during the life of the pilot program, which is authorized to collect fees through the 

end of FY 2014.

The 2014 President’s Budget proposes a five-year extension of the authority for Forest Botanical 

Products. This proposal would provide the agency flexibility to maintain, enhance, or restore forest 

ecosystems to desired conditions, while contributing to meeting the Nation’s demand for these goods and 

services.

Past Performance

The total value of agency forest botanical products sold in FY 2012, based on collections, was 

$1,633,714, a slight (2.8 percent or $44,551) increase compared to FY 2011. Accomplishments in this 

area are tied very closely to demand and can be difficult to predict. Historically an increase in demand has 

led to increased competition for often limited forest botanical products. Administration of this program 

permits the sale and harvest of forest botanical products in a sustainable manner.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-13

The term “forest botanical product” refers to any naturally occurring mushrooms, fungi, flowers, seeds, 

roots, bark, leaves, and other vegetation (or portion thereof) that grow on National Forest System lands. 

Providing these products for sale, in a sustainable manner, is important to maintaining local economies. 

For example, during FY 2012, the sold value of mushrooms alone was $392,437, which does not include 

the added economic value that the sale of these mushrooms provided through jobs and revenue sources 

for local gathers; thus, helping to maintain livelihoods and sustain local economies. 

Authorities

Department of the Interior and Related Agencies Appropriations Act, 2000 (16 U.S.C. 528 note) (P.L. 

106-113, div. B, Sec. 1000(a)(3), [Appendix C, title III, Sec. 339], Nov. 29, 1999, 113 Stat. 1535, 1501A199, as amended by P.L. 108-108,[title III, Sec. 335], Nov. 10, 2003, 117 Stat. 1312, and P.L. 111-88, 

[title IV, Sec. 420], Oct. 30, 2009, 123 Stat. 2960). This Act authorizes the Secretary of Agriculture to 

charge and collect fees from persons who harvest forest botanical products to cover at least a portion of 

the fair market value for the harvest of forest botanical products and a portion of the costs the Agency 

incurs in administering the Pilot Program. Funds collected are deposited in a special fund in the Treasury. 

This authority is authorized through September 30, 2014, with the funds collected available for 

expenditure through September 30, 2015. 

Program Description

Program Overview

This pilot authority provides a mechanism for charging and collecting fees from persons who harvest 

forest botanical products. Fees collected are to cover the costs associated with granting, modifying, or 

administering the authorization for harvesting, including the costs for environmental analyses. Work 

activities include inventory, analysis, sustainability determination for harvest levels, permit issuance and 

administration, and monitoring to facilitate the sale and harvest of forest botanical products. The 

objectives of this 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 in a sustainable manner 

that contributes to meeting the Nation’s demand for these goods and services. 

Allocation and Integration

Under this authority, funds collected through FY 2014 are authorized for expenditure through FY 2015, 

on the unit where the funds were collected. The Forest Botanical Products fund supplements the National 

Forest System, Integrated Resource Restoration program for the sale and administration of forest 

botanical products.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-14

Stewardship Contracting

Budget Line Item Stewardship Contracting 

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Stewardship Contracting 

New Budget Authority $9,712 $9,700 $9,700 0

Program Level 6,747 11,900 12,300 $400

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $12,300,000 for the Stewardship 

Contracting fund, an increase of $400,000 from FY 2013. This approach supports the agency’s goal of

creating jobs while restoring forest and watershed health. 

Stewardship Contracting funds become available when the sale of forest products exceeds the cost of the 

service work obtained under an integrated resource contract. The Stewardship Contracting fund is used to

complete resource work, including:

• Improving, maintaining, and restoring forest and rangeland health

• Restoring and maintaining water quality

• Improving fish and wildlife habitat; reestablishing native plant species

• Reducing hazardous fuels that pose risks to communities and ecosystem values

• Decommissioning roads

The 2014 President’s Budget proposes permanent authority for Stewardship Contracting, which expires at 

the end of FY 2013. This proposal would provide the agency flexibility to accomplish collaborative 

restoration work at a landscape scale. 

Past Performance

Key accomplishments in FY 2012 utilizing the Stewardship Contracting fund include: 

• 4,321 acres of forest vegetation established

• 25,763 acres of forest vegetation improved

• 2,356 acres of noxious weed and invasive plant treatments 

• 58,394 acres of Wildland Urban Interface (WUI) hazardous fuels treated

Retained receipts deposited in the Stewardship Contracting fund may be used to accomplish a wide 

variety of activities through the Stewardship Contracting authority. The mix and level of 

accomplishments vary annually. This is due in part to the variability both in the resource work needed in 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-15

the region where the receipts are collected and the cost of those activities. The performance 

accomplishments described above are a subset of the total accomplishments associated with the 

Stewardship Contracting authority. Appropriated funds from a variety of program areas may be used to 

implement projects utilizing Stewardship Contracting authority.

Authorities

Department of the Interior and Related Appropriations Act, 1999 (16 U.S.C. 2104 note) (P.L.105-277, 

div. A, Sec. 101(e), [title III, Sec. 347], Oct. 21, 1998, Stat. 2681-231, amended by Department of the 

Interior and Related Appropriations Act, 2003, P.L. 108-7, div. F, [title III, Sec. 323], Feb. 20, 2003, 117 

Stat. 275). Section 323 of P.L. 108-7 supersedes the original authority granted to the Forest Service in 

section 347 of P.L. 105-277. This Act authorizes the Forest Service to enter into stewardship projects via 

agreement or contract to perform services to achieve land management goals and meet local and rural 

community needs. The ten-year Authorization expires on September 30, 2013.

Program Description

Program Overview 

Stewardship Contracting permits the Forest Service to apply the value of timber or other forest products 

from stewardship contracts as an offset against the costs to accomplish land and resource management 

objectives. If the offset value exceeds the value of the resource improvement treatments, those receipts 

are retained and deposited in the Stewardship Contracting fund and are available until expended for other 

authorized stewardship projects. Stewardship Contracting funds may be used for: 

• Road and trail maintenance or decommissioning to restore or maintain water quality

• Work to improve soil productivity, or other resource values

• Prescribed fires to improve the composition, structure, condition, and health of forest stands or to 

improve wildlife habitat

• Removal of vegetation or other activities to promote healthy forests, reduce fire hazards, or 

achieve other land management objectives

• Restoration and maintenance of watersheds

• Restoration and maintenance of wildlife and fish habitat

• Control of noxious and invasive weeds, and re-establishment of native plant species

Allocation and Integration

Stewardship Contracting retained receipts remain on the unit where the receipts were collected for use on

other authorized stewardship projects. Funds can be used on other units after approval by the regional 

forester in the region where the receipts were collected.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-16

Partnerships

Stewardship contracting allows for national, regional, and local-level partnerships. Significant 

partnerships exist with national organizations, such as the National Wild Turkey Federation. These 

partnerships range from collaboration during stewardship project development to entering into 

stewardship agreements with the Forest Service. These collaborative partnerships have resulted in 

community support for stewardship projects and have helped the agency to move forward with projects 

without litigation costs and delays that often confront traditional timber sales and some hazardous fuel 

reduction projects.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-17

Recreation Fees, Forest Service

Budget Line Item Recreation Fees, Forest Service

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Recreation Fees, Forest Service

New Budget Authority $66,711 $67,850 $68,050 $200

Program Level 62,024 75,570 75,870 300

Full-Time Equivalents (FTEs) 543 624 626 2

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $75,870,000 for the Recreation Fees, Forest 

Service fund, an increase of $300,000 from FY 2013.

Specific priorities within each program include:

Recreation Fees, Forest Service Site Specific - The FY 2014 President’s Budget includes a 

program level of $55,000,000 to conduct annual maintenance and repairs to recreation facilities, 

enhance visitor services such as interpretation and education, and provide for the presence of law 

enforcement and other uniformed employees in recreation areas. We will prioritize reducing 

deferred maintenance at high-priority fee sites and will improve the condition of the facilities 

used by the recreating public.

Recreation Fees, Forest Service Agency Specific - The FY 2014 President’s Budget includes a 

program level of $19,000,000 to continue providing guidance from regional offices, grant money 

for projects at the forest level, and continue to serve as the contracting agency for the National 

Recreation Reservation Service (NRRS) for all federal agencies. 

Recreation Fees, Forest Service Grey Towers National Historic Site Fees - The FY 2014 

President’s Budget includes a program level of $70,000. Specific priorities within each activity 

will use recreation fees to support a) visitor services at Grey Towers National Historic Site that 

include, but are not limited to, interpretive and education programs that perpetuate the 

conservation legacy of Gifford Pinchot and b) conference center programs and activities that 

foster leadership within the natural resource community.

Shasta-Trinity Marina Fees - The FY 2014 President’s Budget includes a program level of 

$1,800,000. Fees collected from the marina special use permits are used for the direct operating 

or capital costs associated with issuance of the permits and provide services, protect resources, 

and meet the needs of the estimated 2.1 million annual visitors to the Shasta-Trinity National 

Recreation Area.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-18

Past Performance

From 2005 to 2011, the Forest Service collected over $400 million in fee revenue, which includes revenue 

retained from outfitter and guide fees. During the same time the Forest Service has expended over $400 

million to maintain and improve recreation sites and services across the Nation.

The recreation fee program has been successful in providing quality recreation facilities and services to 

the American public that recreate on federal lands. National surveys show that most visitors (94 percent) 

are satisfied with their recreation experience and 83 percent are satisfied with the value received for the 

fee paid. The Forest Service receives approximately $65 million annually in recreation fee revenue. This 

includes approximately $12 million from National Recreation Reservation Service (NRRS) fees, $10 

million from certain special use permits, $2 million from interagency pass sales, $21 million for fees such 

as campgrounds and cabin rentals, and $20 million for fees such as picnic areas and day use sites. Ninetyfive percent of the recreation fees collected on a national forest stay at that national forest to be reinvested 

back into recreation sites and services.

Authorities

Federal Lands Recreation Enhancement Act (16 U.S.C. 6806 and 6807) (P.L. 108-447, div. J, [title VIII, 

Sec. 807 and Sec. 808] Dec. 8, 2004, 118 Stat. 3388). This Act provides authority through December 8, 

2014 to implement a fee program for certain recreation sites on Federal lands. Fees collected from users 

of recreation facilities are used to pay for on-the-ground operation, maintenance, and improvements of 

recreation sites and services to maintain and enhance recreation opportunities, visitor experiences, and 

related habitat. Funds are available until expended. The Act directs the creation of Recreation Resource 

Advisory Committees to allow for public involvement in recreation fee programs. The FY 2014 

President’s Budget proposes a one-year extension of Federal Lands Recreation Enhancement Act 

authority.

Section 422, Div. F, Consolidated Appropriations Act, 2008 (P.L. 110-161; 121 Stat. 2159). This Act 

provides authority through September 30, 2014 for the Forest Service to retain permit fees collected for 

marinas on the Shasta-Trinity National Forest under the Term Permit Act and use the retained fees for the

purposes in the Federal Lands Recreation Enhancement Act. These purposes include repair, maintenance 

and facility enhancement, interpretation and visitor services, habitat restoration, and law enforcement. 

The fees may also be used for direct operating or capital costs associated with the issuance of a marina 

permit. The FY 2014 President’s Budget proposes a five-year extension of Shasta-Trinity marina fee 

authority.

Program Description

Program Overview 

At least 80 percent of the recreation fees collected are deposited in the Recreation Fees, Forest Service 

fund and are spent on maintaining and improving the area, site, or projects that directly relate to visitor 

enjoyment, access, and health and safety. Work activities include: annual operation and maintenance, 

interpretation, signage, wildlife habitat restoration, resource preservation, and law enforcement. We 

execute a large amount of work in this program through contracts. 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-19

There are four programs within the Recreation Fees, Forest Service fund:

Recreation Fees, Forest Service Site Specific - We collect approximately $50 million annually to 

maintain and improve facilities and services for which the fees are collected. At least 95 percent 

of the fees collected are deposited in the Recreation Fees, Forest Service fund and are spent on 

the area, site, or projects that directly relate to visitor enjoyment, access, and health and safety. 

Work activities include: annual operation and maintenance, interpretation, signage, wildlife 

habitat restoration, resource preservation, and law enforcement. We execute a large amount of 

work in this program through contracts. The remaining 5 percent goes to the regional offices and

is then given back to the forests as grants. These grants are generally vetted through a Regional 

Recreation Fee Board.

Recreation Fees, Forest Service 

Agency Specific - The Forest 

Service is the contracting agency 

for the National Recreation 

Reservation Service (NRRS), part 

of Recreation.gov, an egovernment initiative. The 

contract is valued at $100 million 

to provide reservations for all 

recreation facilities on public 

lands that allow reservations. One 

task of administering the contract 

is to manage the pass through 

account for the reservation fees 

for all agencies. Over 

$13,000,000 annually is included 

in this program, and as more sites 

come on to the reservation system 

throughout the entire federal 

public lands system, this account 

will continue to grow. This 

program also requires five percent of the recreation fee collections to go towards regional offices 

that provides strategic program oversight, financial management, training, and grants to forests 

for improvements/special projects on the ground.

Recreation Fees, Forest Service Grey Towers National Historic Site Fees - Recreation fees are 

used for annual operations and maintenance of the historic mansion and 102 acre landscape; 

interpretive and education programs and projects that perpetuate the legacy of Gifford Pinchot for 

general public and youth; public programs that foster stewardship of natural resources; safety of 

the visitor and security of the resource; and support for the conference facility that provides 

conservation leadership development programs and enhances the dialogues taking place within 

the natural resource community.

Shasta-Trinity Marina Fees - Fees received from the marina project provide funding needed in the 

Shasta-Trinity National Recreation Area (NRA) to meet critical health and safety standards, 

address portions of the maintenance backlog, provide for many noteworthy, innovative projects 

including high quality interpretive and environmental education programs, installation and 

maintenance of over 300 underwater obstacle markers and 100 safety-related floating directional 

signs, establishment and maintenance of the NRA Boating Safety Program, implementation and 

Bear-Proofing Trash Cans on the 

Cibola National Forest in New Mexico

 BEFORE AFTER

Fee funds were used to purchase and install animal resistant trash 

containers and food lockers in the Red Canyon and Fourth of July 

campgrounds. These upgrades will reduce the chance of bears 

becoming campground nuisances.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-20

administration of NRA Marina Standards, maintaining a floating toilet program, and the 

construction of accessible facilities to provide greater access for persons with disabilities. The 

goal of these projects is to meet the intent of NRA’s which is to showcase recreation 

opportunities in the agency.

Allocation and Integration

Recreation fees supplement discretionary appropriations such as National Forest System – Recreation, 

Heritage and Wilderness; and Capital Improvement and Maintenance – Facilities and Trails budget line 

items. Outputs associated with this program are combined and reported under individual resource 

programs throughout the Forest Service appropriated accounts. A significant benefit from recreation fees 

is that these fees can roll over from one year to the next, so forests can save some money to tackle a costly 

capital improvement project later. 

Because 95 percent of the recreation fee dollars stay at the forest where they were collected, the forest has 

the authority to direct spending to their priorities.

Partnerships

Recreation fees are used to fund volunteer projects and leverage grants and other challenge cost-share 

dollars. These fees provide for the health and safety of visitors to national forest recreation areas and 

restore ecosystem damage caused by recreation use.

The Forest Service has chartered five Recreation 

Resource Advisory Committees (RRACs), which 

include the Southern, Eastern, and Pacific Northwest 

Regions, and the States of California and Colorado. In 

cooperation with the Bureau of Land Management 

(BLM), the agency participates in 12 additional 

RRACs. These committees meet several times a year 

to review proposed changes to the recreation fee 

program. Chartering and sustaining these RRACs 

demonstrates our continued commitment to improving 

our effectiveness and efficiency through increased 

public involvement and cooperation. 

Partnering for Wilderness on the

Ottawa National Forest in Michigan

The Sylvania Wilderness is home to some of the most 

extensive and beautiful old-growth northern hardwood 

forests in North America. Within its boundaries are 34 

named lakes, many of which can be accessed by kayak, 

canoe, or by foot on 40 miles of trail. The Ottawa 

National Forest partnered with a Youth Conservation 

Corps (YCC) to relocate 50 latrines in the Sylvania 

Wilderness.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-21

Timber Purchaser Election Road Construction 

Budget Line Item Timber Purchaser Election Road 

Construction 

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Timber Purchaser Election Road Construction 

New Budget Authority $4,000 $2,000 $2,000 0

Program Level 669 2,000 2,000 0

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $1,000,000 each for the Timber Purchaser 

Election Road Construction and Purchaser Election Vegetative Treatment funds totaling $2,000,000, the 

same level as FY 2013. Program level and accomplishments in FY 2014 will depend upon the number of 

qualifying small businesses purchasing timber sales, and the number of those businesses that do not have 

the capability to perform the required road work under those sales. This program constructs or improves 

specified roads and bridges in order to support the timber harvest operations of small business operators.

Past Performance

In FY 2012, 3.6 miles of high clearance roads were improved and one bridge constructed/reconstructed 

under the Purchaser Election Road Construction Fund in support of the Forest Products program. In 

addition 1,045 acres of vegetative fuels were treated in the non-Wildfire Urban Interface and 138 acres of 

vegetation fuels were treated in the Wildfire Urban Interface to improve forest health.

Authorities

National Forest Management Act of 1976 (16 U.S.C. 472a(i)). The act authorizes the Secretary of 

Agriculture to use any receipts from the sale of timber for the construction of roads required under the 

timber sale contract. 

Department of the Interior and Related Appropriations Act, 1999 (16 U.S.C. 535a (c)) (P.L. 105-277, div. 

A, Sec. 101(e), [title III, Sec. 329], Oct. 21, 1998, 112 Stat. 2681-231, 2681-292). This act authorizes 

small business timber purchasers to elect to pay the Forest Service to construct or reconstruct any 

permanent roads or bridges required by the timber sale. The timber purchaser must be classified as a small 

business operator, and the total estimated reconstruction and construction cost in the timber sale contract 

must exceed $50,000.

Department of the Interior, Environment, and Related Appropriations Act, 2008 (P.L. 110-161, Sec. 6., 

div. F, [title IV, Sec. 423], Dec. 26, 2007, 121 Stat. 2150). The Forest Service shall allocate to the 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-22

Regions of the Forest Service, $15,000,000 from the current balance in the ‘‘timber roads purchaser 

election fund,’’ to remain available until expended. 

Program Overview

Program Descriptions

Timber Purchaser Election Road Construction 

The Purchaser Election Road Construction program supports construction and reconstruction of any 

permanent road or bridge as required under the terms and conditions of a timber sale contract. When a 

small business timber purchaser is awarded a contract, the purchaser may elect to pay the Forest Service 

to construct or reconstruct specified roads in the timber sale contract to a standard necessary to harvest 

and remove timber and other forest products. The agency then uses the Purchaser Election funds to 

contract for the required road work and administer the contract. This program benefits small timber 

contractors who might otherwise be unable to bid on Forest Service timber sales, as well as provides for 

appropriate road improvements preventing soil degradation, stream sedimentation, or other damages 

resulting from poor road construction and maintenance.

Purchaser Election Vegetative Treatment

The Purchaser Election Vegetative Treatment funds support the following actives to improve forest 

health: vegetative treatments in timber stands at high risk of fire due to insect, disease, or drought; road 

work in support of vegetative treatments to support forest health objectives; and maintaining 

infrastructure for the processing of woody fiber in Regions where it is critical to sustaining local 

economies and fulfilling the forest health objectives of the Forest Service.

At the close of FY 2012 approximately $205,000 remains of the $15,000,000 appropriated in 2008. 

Funding from the Purchaser Election Vegetative Treatment appropriations is available until expended. 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-23

Operations and Maintenance of Quarters

Operation and Maintenance of Quarters allows the 

agency to provide adequate housing to employees, 

at often very remote locations, where no other 

options are available.

Operation and Maintenance of Forest Service Quarters

Budget Line Item Operation and Maintenance of Forest 

Service Quarters

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Operation and Maintenance of Forest Service Quarters

New Budget Authority $7,758 $9,000 $9,000 0

Program Level 7,394 9,600 9,700 $100

Full-Time Equivalents (FTEs) 26 31 31 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $9,700,000 for the Operation and 

Maintenance of Forest Service Quarters program, an increase of $100,000 from the FY 2013 Annualized 

CR. These funds maintain employee occupied living quarters in safe and healthy conditions. The program 

will emphasize improvements to water systems and health and safety issues.

Past Performance

Accomplishments under this program are recorded in the 

Capital Improvement and Maintenance - Facilities 

Section.

Authorities

Forest Service Quarters Operation and Maintenance (5 

U.S.C. 5911, Other Provisions). This Act authorizes the 

collection of rental income from employees living in 

government owned or leased residences. Such rents and 

charges are deposited in a special Treasury fund, and 

remain available for obligation until expended, for 

operation and maintenance of quarters.

Program Description

Program Overview 

This program provides for operation, maintenance, and management of employee housing facilities, 

including associated utility systems. Funds may also be used to pay the rental costs for leased quarters, 

including utilities, due to extreme housing shortages in an area. In addition to maintaining safe and 

pleasant housing, work using this fund contributes to the reduction of the agency’s deferred maintenance 

backlog.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-24

This fund covers all types of maintenance of a structure or building, including any government-owned 

property and any appliances integral to the facility. The fund does not cover betterments, additions, 

replacement construction, or new construction.

Allocation and Integration

Rental deposits are pooled and remain on the forest where the deposits are collected. Maintenance costing 

less than $250,000 may be funded using the Facilities Maintenance Assessment funds, if Quarters 

Maintenance funds are not available. Maintenance needs greater than $250,000 in cost may be funded 

using the Capital Improvement and Maintenance - Facilities and Deferred Maintenance and Infrastructure 

Improvement budget line items.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-25

Roads and Trails for States

Budget Line Item Roads and Trails for States

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Roads and Trails for States

New Budget Authority $18,686 $12,000 $18,000 $6,000

Program Level 73 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

The FY 2014 President’s Budget program level is zero. The Forest Service proposes to transfer $12 

million (FY 2013) and $18 million (FY 2014) in unexpended collections under this authority to the 

General Fund of the Treasury. From FY 2008 through FY 2013, Congress directed that funds becoming 

available under the Act of March 4, 1913 be transferred to the Treasury. The agency proposes to continue 

to propose deferral of any payments to this fund. 

Past Performance

In FY 2012, the agency did not have any accomplishments with Road and Trails for States carryover 

funds. No new funds were available in FY 2012.

Authorities

The Act of March 4, 1913, as amended (16 U.S.C. 501). This Act authorizes 10 percent of all National 

Forest Fund receipts received from the national forests during each fiscal year to be expended for the 

construction and maintenance of roads and trails within the national forests in the States from which 

proceeds are derived.

Department of the Interior, Environment, and Related Appropriations Act, 2010 (P.L. 111-88, div. A, title 

III, Oct. 30, 2009, 123 Stat. 2940). This Act directed “That funds becoming available in fiscal year 2010 

under the act of March 4, 1913, (16 U.S.C. 501) shall be transferred to the General Fund of the Treasury 

and shall not be available for transfer or obligation for any other purpose unless the funds are 

appropriated.”

Consolidated Appropriations Act, 2012 (P.L. 112-74, Dec. 2011). This Act directed “That funds 

becoming available in fiscal year 2012 under the act of March 4, 1913, (16 U.S.C. 501) shall be 

transferred to the General Fund of the Treasury and shall not be available for transfer or obligation for any 

other purpose unless the funds are appropriated.”
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-26

Program Description

Program Overview

Under this fund, 10 percent of all National Forest Fund receipts, which is inclusive of both fees and other 

types of revenue, are used by the Forest Service without regard to the State in which the amounts were 

derived, to repair or reconstruct roads, bridges, and trails on National Forest System (NFS) lands. Funds 

are directed towards correcting road and trail deficiencies that adversely affect ecosystems.

Beginning in FY 1999 and continuing in subsequent appropriation acts, the authority was expanded to 

allow the use of funds for the purpose of improving forest health conditions, and repairing or 

reconstructing roads and bridges on NFS lands in the wildland-urban interface where there is an 

abnormally high risk of fire. The program reduces risk to human safety and public health and property, 

and enhances ecological functions, long-term forest productivity, and biological integrity.

FY 2009 was the last year the agency received new Roads and Trails (10 Percent) Funds.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-27

Land Between the Lakes Management 

Budget Line Item Land Between the Lakes Management

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Land Between the Lakes Management

New Budget Authority $4,119 $3,800 $3,900 $100

Program Level 3,861 3,800 3,800 0

Full-Time Equivalents (FTEs) 15 15 15 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $3,800,000 for the Land Between the Lakes 

Management fund, the same level as FY 2013. Funds will be used to support operational costs for 

customer-focused recreation and environmental education programs, as well as capital improvements at 

the facilities where funds are collected. Land Between the Lakes Management fund (LBL) will continue 

to assess, analyze, and implement the highest priorities identified in the LBL Area Plan for integrated 

forest management. The LBL Area will continue to maintain recreation facilities to standard for public 

use, and small infrastructure replacement projects will be completed in several of the developed facilities.

Past Performance

FY 2012 visitation increased by more than 12 percent from FY 2011, with the highest number of 

visitation since FY 2007. LBL has historically covered 30 percent of its costs by receipts through the LBL 

Fund authority. Fee collections were up by over 7 percent in FY 2012. 

Annual Forest Service appropriations continued to be level, which required the use of the LBL 

Management fund to cover routine and inflationary increases to operational costs for the facilities that 

generate revenue. 

Authority

Land Between the Lakes Protection Act of 1998 (16 U.S.C. 460lll-24) (P.L. 105-277, div. A, Sec. 101(e) 

[title V, Sec. 524], Oct. 21, 1998, 112 Stat. 2681-315). This Act establishes the Land Between the Lakes 

Management fund. In accordance with Title V of the Act, responsibility for the LBL National Recreation 

Area in Kentucky and Tennessee transferred from the Tennessee Valley Authority to the Secretary of 

Agriculture.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-28

Program Description

Program Overview

The LBL National Recreation Area provides public recreational opportunities; conserves fish and wildlife 

and their habitat; provides for a diversity of plants and animals; and offers opportunities for hunting, 

fishing, and environmental education. LBL hosts an average of 1.5 million visits annually from people all 

over the Nation and more than 30 foreign countries. LBL continues to demonstrate success with its

camping reservation system, which allows visitors to register for camp sites before arrival.

Section 524 of the Land Between the Lakes Protection Act established a special fund known as the Land 

Between The Lakes Management fund. All amounts received from charges, user fees, and natural 

resource use, including timber and agricultural receipts, are deposited into the fund. Funds are available 

for management of LBL, including payment of salaries and expenses.

Partnerships

LBL’s program of work provides the opportunity to partner with a number of regional and national 

conservation organizations, such as the National Wild Turkey Federation, Quail Unlimited, Rocky 

Mountain Elk Foundation, and Ducks Unlimited. Further, LBL’s volunteers, coordinated through the 

Friends of LBL partnership, log more than 124,000 hours of volunteer time on LBL projects annually.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-29

Midewin National Tallgrass Prairie Rental Fees 

Budget Line Item Midewin National Tallgrass Prairie 

Rental Fees 

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Midewin National Tallgrass Prairie Rental Fees 

New Budget Authority $893 $800 $800 0

Program Level 635 800 800 0

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $800,000 for the Midewin National 

Tallgrass Prairie Rental Fees fund, the same level as FY 2013. Funds restore and manage prairie and 

wetland habitats on the Midewin National Tallgrass Prairie (MNTP). 

Past Performance

In FY 2012, fees from the Midewin National Tallgrass Prairie Rental Fees fund were used to protect and 

maintain 728 acres of water and soil resources.

Authorities

The Illinois Land Conservation Act of 1995 (16 U.S.C. 1609 note) (P.L. 104-106, div. B, [title XXIX, 

sec. 2915 (b), (c)], Feb. 10, 1996, 110 Stat. 601-602). The Secretary of Agriculture is authorized to issue 

agricultural special use authorizations or grazing permits for purposes primarily related to erosion control, 

provision for food and habitat for fish and wildlife, or other resource management activities consistent 

with the purposes of the MNTP.

Program Description

Program Overview

The Illinois Land Conservation Act of 1995 established MNP, to be managed as part of the National 

Forest System. The act authorized the Secretary of Agriculture to issue agricultural special use 

authorizations and grazing permits. After appropriate payments to the State of Illinois and Will County, 

pursuant to the act of May 23, 1908, and section 13 of the act of March 1, 1911 (16 U.S.C. 500), available 

receipts from rental fees may be used to cover the cost of restoration, prairie improvements, and 

administrative activities directly related to those activities.The funds provide for maintenance of native 

plant communities and grassland bird habitat at the prairie. The ability to collect funds from grazing and 

agricultural uses provides a needed resource to the prairie managers to continue to restore ecosystems and 

habitats in order to enhance biodiversity; promote scientific, environmental, and educational research; 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-30

develop best practices for land management; and provide a variety of recreation opportunities which 

would otherwise be foregone.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-31

Midewin National Tallgrass Prairie Restoration

Budget Line Item Midewin National Tallgrass Prairie 

Restoration 

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Midewin National Tallgrass Prairie Restoration 

New Budget Authority 0 0 0 0

Program Level 0 0 0 0

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

No funds are included for this program in the FY 2014 President’s Budget.

Past Performance

To date, salvage opportunities anticipated by the legislation have not materialized. Less than $4,000 has 

been generated by the Midewin National Tallgrass Prairie Restoration fund over the past 10 years. No 

expenditures have been made from this account since its creation in 1995.

Authorities

The Illinois Land Conservation Act of 1995 (16 U.S.C. 1609 note) (P.L. 104-106, div. B, [title XXIX, 

sec. 2915 (d), (e) and (f)], Feb. 10, 1996, 110 Stat. 602). The Secretary of Agriculture is authorized to 

charge reasonable user fees for the admission, occupancy, and use of the Midewin National Tallgrass 

Prairie, and may sell for salvage value any facilities and improvements which have been transferred under 

this Act. The Secretary may use amounts in the fund, in such amounts as are provided in advance in 

Appropriation Acts, for restoration and administration of the Midewin National Tallgrass Prairie.

Program Description

Program Overview

The Illinois Land Conservation Act of 1995 established the MNP to be managed as part of the National 

Forest System. Receipts from grazing fees, agricultural leases for row crops, sales of surplus equipment, 

and the salvage value proceeds from the sale of any facilities and improvements can be used to cover the 

cost of restoration of ecosystems; construction of a visitor center, recreational facilities, trails, and 

administrative office; prairie improvement; and operation and maintenance of the MNP. 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-32

Quinault Special Management Area

Budget Line Item Quinault Special Management Area 

 (dollars in thousands)

 FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Quinault Special Management Area 

New Budget Authority $1 $10 $10 0

Program Level 9 10 10 0

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes 

The FY 2014 President’s Budget includes a program level of $10,000 for the Quinault Special 

Management Area fund, the same level as FY 2013. The Forest annually reviews the current deposits of

the 10 percent of proceeds from the sale of forest products, and requests authority to use those funds for 

work performed on the Quinault Special Management Area.

Authorities

The Act of November 8, 1988 (P.L 100-638) (102 Stat. 3327). This Act establishes the Quinault Special 

Management Area from part of the Olympic National Forest, and it assigns responsibility to the Forest 

Service for managing its natural resources and distributing proceeds from the sale of forest products 

according to provisions of the Act.

The Act provides that 10 percent of the gross proceeds from the sale of forest products on the Quinault 

Special Management Area are transferred to this account and are available for administration of future 

timber sales. 

The Act also provides for the distribution of gross receipts from a special management area to compensate 

the Quinault Indian Tribe and the State of Washington for land that the Forest Service gave back to the 

Tribe. The payment must be used for roads and schools.

Past Performance 

The Forest annually reviews the current deposits to the 10 percent of proceeds fund, and requests 

authority to use those funds for work performed on the Quinault Special Management Area. Over the last 

few years we have requested funds generally in the range of $10,000 to $13,000. In FY 2012 we used 

$9,066 for management of those lands. 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-33

Program Description 

This program and budget line item is unique to the Forest Service for the Quinault Special Management 

Area (QSMA). QSMA is over 5,400 acres, as prescribed by law, which the Olympic National Forest 

manages for the Quinault Indian Nation. Specifically, the lands are defined under Section 2 of this law. 

All receipts from use of this land, including timber sales, firewood, botanicals, special use permits, and 

minerals, are divided into 45 percent for the State of Washington, 45 percent for the Quinault Tribe and 

10 percent back to the Olympic National Forest for management of those lands. Quarterly, the Olympic 

National Forest processes the receipts and sends a letter to the Bureau of Indian Affairs (BIA) and the 

Tribal Chair, documenting the receipts that will be transferred to BIA for disbursement to the Tribe.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-34

Valles Caldera

Budget Line Item Valles Caldera 

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Valles Caldera 

New Budget Authority $959 $800 $800 0

Program Level 660 800 1,000 $200

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes 

The FY 2014 President’s Budget includes a program level of $1,000,000 for the management and 

administration of the Valles Caldera National Preserve (Preserve) by the Valles Caldera Trust (Trust), a 

government corporation. This is an increase of $200,000 from FY 2013. The FY 2014 program level is 

based on receipts taken in by the Trust and available for use in FY 2014. The ability to charge and retain 

receipts provides the mechanism for the Trust to improve access, enhance recreational opportunities, 

upgrade infrastructure, purchase branded products for resale, market programs and activities, along with 

assisting in the management of the Preserve’s facility rentals for the purpose of providing education 

programs. The benefits of these programs are to facilitate the management of the Preserve and to further 

the statutory obligation of the Trust to become financially self-sufficient.

Past Performance 

In FY 2012, the Trust’s focus was on keeping the Preserve opened year round by offering additional 

recreation and education programs and activities which contributed to an increase in public participation 

from FY 2011. Public programs included hunting, fishing, hiking, van tours, environmental education, 

along with winter programs, and special events. In FY 2012 commercial filming provided a major boost 

in the overall revenues for the Preserve. Total revenue generated from these recreation programs totaled 

$714,537.

The Valles Caldera National Preserve continues with two major planning efforts. The two environmental 

impact statements are the Valles Caldera National Preserve Public Access and Use Plan, along with the 

Valles Caldera National Preserve Landscape Restoration and Management Plan. Due to the Las Conchas 

Wildfire in 2011, the analysis on both plans were delayed due to the impacts to the Preserve. Decisions on 

the Public Access and Use Plan and the Valles Caldera National Preserve Landscape Restoration and 

Management Plan are scheduled for FY 2013. 

Authorities

Valles Caldera Preservation Act (16 U.S.C. 698v-4, 698v-6). (P.L. 106-248, [title I, Sec. 106, Sec. 108], 

July 25, 2000, 114 Stat. 603 and 607; as amended by P.L. 109-132, [Sec. 2 (b) – (d)], 119 Stat. 2570). 

This Act authorizes the Valles Caldera Trust to receive and collect funds in support of the management 

and administration of the Preserve. This includes the authority to assess fees for admission to, the use, and 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-35

occupancy of the Preserve. In addition, the Trust may solicit and accept donations of funds, property, 

supplies, or services for the purpose of management of the Preserve.

Program Description

Program Overview 

The Valles Caldera Preservation Act provided for the acquisition of the Baca Ranch located in the Jemez 

Mountains of New Mexico, designated the acquired lands as the Valles Caldera National Preserve, and 

created the Valles Caldera Trust to manage the 88,900 acre tract. The Preserve protects scientific, scenic, 

geologic, watershed, wildlife, historic, heritage, and recreational values and provides for multiple uses 

and the sustained yield of renewable resources. The Preserve is managed by the Trust, a government 

corporation that prepares annual budgets with the goal of achieving a financially self-sustaining operation 

by 2015.

The Act allows for a variety of approaches to generate revenue in support of management of the Preserve 

and to carry out the duties of the Trust. Various funding mechanisms exist from private, public and nonprofit organizations. Options include accepting donations from foundations or the private sector through 

charitable giving; or charging fees for use (e.g., grazing, forest products, filming); and assessing 

admission fees and use fees. All monies received are deposited in the Valles Caldera fund, which is an 

interest bearing account. These receipts are available without further appropriation for the administration, 

preservation, restoration, operation, maintenance, and improvement of the Preserve and its properties.

Partnerships 

The Act requires management of the Preserve by the Trust, a government corporation subject to the 

Government Corporation Control Act. A nine-member Board of Trustees is responsible for the protection 

and development of the Preserve. Seven of its members are appointed by the President of the United 

States. In addition, the current Superintendent of nearby Bandelier National Monument and the Forest 

Supervisor of the Santa Fe National Forest also serve on the Board. All Board decisions are made at 

public meetings. In August of 2002, management authority was transferred to the Trust. 

The Preserve benefits from monetary as well as non-monetary contributions. Non-monetary contributions 

include time and expertise contributed by our many volunteers. In 2012, the Trust increased volunteer 

hours from 2011. These volunteers assisted with many of the recreation programs, along with wetland 

restoration projects, throughout the year. 

Extramural funding refers to money invested in projects; mostly research, inventory, and monitoring; 

conducted on the Preserve by outside agencies and organizations. A continued objective for the Trust is to 

encourage scientific activities on the Preserve. Indicators for science community interest in studying the 

Valles Caldera National Preserve can be gleaned from the number of projects conducted, the amount of 

funding generated to support these projects, and the number of publications and presentations resulting 

from the research. The FY 2012 funding from outside (non-VCT) sources came from 46 different project 

sources, and exceeded $5.19 million. While these outside grant funds were not part of the VCT budget, 

they nonetheless contributed to the regional economy through personnel salaries, purchasing of 

equipment and supplies, travel, contracts, and educational stipends – and all of these transactions generate 

tax revenues for the local, State, and Federal governments. More importantly, the information gleaned 

from these studies is being used to advise managers on how best to apply manipulative actions on the 

ground, including informing forest thinning prescriptions, use of fire, distributions of livestock, predator 

impacts on elk populations, fisheries management, and other land management tools.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-36

Restoration of Forest Lands and Improvements

Budget Line Item Restoration of Forest Lands and 

Improvements

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Restoration of Forest Lands and Improvements

New Budget Authority $62,863 $40,000 $15,000 -$25,000

Program Level 14,065 40,000 40,000 0

Full-Time Equivalents (FTEs) 77 166 166 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $40,000,000 for the Restoration of Forest 

Lands and Improvements fund, the same level as FY 2013. Funds provide for the rehabilitation of forest 

resources or infrastructure that has been damaged due to negligence or contract non-performance of other 

parties. Restoration of Forest Lands and Improvements provides a funding mechanism to quickly bill, 

collect, and obligate funds necessary to restore damages to critical ecosystems and facilities so that repairs 

are not deferred or foregone.

Past Performance

Restoration of Forest Landscape and Improvement funds are used to perform restoration and 

rehabilitation activities or infrastructure repair due to contractor damage, negligence, or non-performance. 

FY 2012 accomplishments included: 

• 354 acres of Wildland Urban Interface high priority hazardous fuels treated

• 404 acres of hazardous fuels treated outside the Wildland Urban Interface to reduce the risk of 

catastrophic wildland fire

• 1,089 acres of forest vegetation established

• 1,130 acres of forest vegetation improved

• 206 acres of noxious weeds/invasive plant treatments

• 117 acres of water or soil resources protected, maintained, or improved to achieve desired 

watershed conditions

• 53 miles of system trail maintained to standard

Accomplishments in the above activities were greater in FY 2012 than in FY 2011 with the exception of 

acres treated outside the wildlife urban interface and acres of forest vegetation established.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-37

Authorities

The Act of June 20, 1958 (16 U.S.C. 579c) (P.L. 85-464, Sec. 7, June 20, 1958, 72 Stat. 217). This Act 

authorizes establishment of a fund for improvement, protection, or rehabilitation of lands under the 

administration of the Forest Service. This fund receives monies from: (a) forfeiture of a bond or deposit 

by a permittee or timber purchaser for failure to complete performance of improvement, protection, or 

rehabilitation work required under the permit or timber sale contract, or (b) the result of a judgment, 

compromise, or settlement of any claim, involving present or potential damage to lands or improvements. 

Funds are available until expended to cover the costs of performing the required work. Any funds 

received in excess of the amount expended in performing the work shall be transferred to miscellaneous 

receipts. 

Program Description 

Program Overview

This authority protects the interests of the Forest Service by allowing the agency to address a variety of 

situations. When work under a permit or timber sale contract is not completed by a permittee or timber 

purchaser, they forfeit their bond or deposit. These funds then transfer to the Restoration of Forest Lands 

and Improvements fund, and the Forest Service performs the work itself.

This authority also protects the interests of the Forest Service from present or potential damage to lands or 

improvements due to the actions of another party. This authority provides the Forest Service with the 

ability to use funds from a judgment, compromise, or claim settlement to address those damages. 

Restoration of Forest Lands and Improvements funds are available until expended. Any monies received 

in excess of the amount expended in performing the appropriate work is transferred to miscellaneous 

receipts. Based on a Comptroller General's Decision (67 Comp. Gen. 276), collections may be used to 

reimburse the Forest Service for any restoration costs paid from Forest Service appropriations before the 

collections were received. 

Allocation and Integration

The proposed FY 2014 program funding level is based on field projections of anticipated work.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-38

Commercial Filming and Still Photography Land Use Fee Retention

Budget Line Item Commercial Filming and Still 

Photography Land Use Fee Retention

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Commercial Filming and Still Photography Land Use 

Fee Retention

New Budget Authority $437 $490 $490 0

Program Level 385 685 679 -$6

Full-Time Equivalents (FTEs) 4 5 5 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $679,000 for Commercial Filming and Still 

Photography Land Use Fee Retention, a decrease of $6,000 from FY 2013.

Past Performance

During FY 2012, the Forest Service collected approximately $437,444 from commercial filming. These 

collections are retained at the national, regional and forest units. These fees are separate from the fees the 

agency collects associated with processing film/photo requests. Units use these collections to respond to 

film/photo requests in a more timely manner and to proactively manage the program. More recently, these 

fees have been used to coordinate inter-regional or inter-forest requests for filming as a means of 

streamlining the authorization process and reducing the number of authorizations necessary for large 

landscape filming requests.

Authorities

The Act of May 26, 2000 (16 U.S.C. 460l-6d) (P. L. 106-206). This Act authorizes retention of fees 

collected for commercial filming and photography land use authorizations and obligation of the monies 

for maintenance of the filming site. Land use fees are based on a schedule to use and occupy NFS land for 

filming/photo activities. This fee is separate from the cost recovery fee to process applications and 

monitor and the authorization for compliance with the commercial filming permit. 

Program Description

Program Overview

Fees retained by the Forest Service in this fund are used to respond to film/photo use requests and to 

initiate management activities that help respond to these requests in an expedited manner. For example, 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-39

forest units use these funds to assess popular film/photo locations in advance of requests and to develop 

and post information on film/photo procedures specific to the unit. Regional and national units use these 

funds to provide management oversight, develop policy, and coordinate inter-regional or inter-forest 

film/photo requests prior to accepting a proposal as a formal application.

Allocation and Integration

In accordance with the Act of May 26, 2000, 90 percent of the fees collected remain at the forest unit 

where the fee is collected. These funds are used for managing the film/photo program and to defer costs 

associated with collecting the fee. The remaining 10 percent is used to provide management oversight, to 

develop policies, and to coordinate inter-regional or inter-forest film/photo requests. Of this 10 percent, 5 

percent is retained at the Washington Office and 5 percent is retained at each Regional Office from where 

the film/photo authorization is contained.

Partnerships

Many forest units work cooperatively with State Film commissions to inform these entities of Forest 

Service film/photo processing procedures. The Forest Service is also engaged in coordination with the 

Department of the Interior (Bureau of Land Management, National Park Service, and U.S. Fish and 

Wildlife Service) effort to develop a national fee schedule applicable to film and photo authorizations.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-40

Organizational Camps Program

Budget Line Item Organizational Camps Program

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Organizational Camps Program

New Budget Authority $562 $600 $600 0

Program Level 487 667 669 $2

Full-Time Equivalents (FTEs) 6 7 7 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $669,000 for the administration of 

Organizational Camps Program, an increase of $2,000 from FY 2013. Funds will be used to monitor 

organizational camp special use authorizations; conduct environmental analysis related to the 

organizational camp special uses program; maintain, recondition, renovate, or improve Federally owned 

facilities covered by organizational camp special use authorizations; complete environmental restoration

projects; administer the special uses program; provide interpretive programs; and conduct other programs 

and projects deemed appropriate by the authorized officer.

Past Performance

During FY 2012 we recovered approximately $562,146 through the organizational camps program, which 

units used for program administration, monitoring special use authorizations, interpretive programs, 

environmental analysis and restoration activities related to organizational camps throughout the National 

Forest System.

Authorities 

National Forest Organizational Camp Fee Improvement Act of 2003 (16 U.S.C. 6231 et seq.) (P.L. 108-

7). This Act defines an organizational camp as a public or semipublic camp developed by a nonprofit or 

government entity to introduce young people or people with disabilities to activities they might not 

otherwise experience and to educate them on natural resource issues. The Act establishes a land use fee 

system for organizational camps located on National Forest System lands and authorizes the Secretary to 

retain and spend these fees without further appropriation. The act also exempts certain ministerial actions 

from the provisions of the National Environmental Policy Act.

Program Description

Program Overview

Organizational camp fees are based on a percentage of the agricultural land value, adjusted downward for 

services provided to disabled individuals and at-risk youth. Fees collected are available until expended for 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-41

program administration, monitoring special use authorizations, interpretive programs, environmental 

analysis and restoration activities, and similar purposes. 

The Forest Service administers approximately 285 permits for organizational camps. Work activities 

include performing oversight, inspection, and monitoring of existing authorizations to ensure compliance 

with the terms and conditions of the authorization

Organizational camps have a three part fee system: 

Land Use Fees - Fees are based on a percentage of the agricultural land value, adjusted downward 

for services provided to disabled individuals and at-risk youth. The land use fee may be offset by 

work performed pursuant to Section 3 of the Federal Timber Contract Payment Modification Act 

(16 U.S.C. 539f). 

Facility Use Fees - If an organizational camp utilizes a Federally owned facility, a fee is assessed 

based on 5 percent of the value of the government owned improvements.

Fees based on other revenue - If permit holders earn revenue from activities other than providing 

youth services, a fee is assessed based on 5 percent of revenue. 

Allocation and Integration

Retained land use fees supplement discretionary 

appropriations from the NFS Recreation, Heritage, and 

Wilderness program and from other budget line items. 

These revenues are an integral part of sustaining the 

agency’s special-use program. Outputs associated with 

these programs are reported as permits administered to 

standard.

Partnerships

Through the organizational camps program the Forest 

Service works with many partner organizations, such as the 

Boy Scouts, Girl Scouts, faith-based and community-based 

groups to provide outdoor recreation programs and services 

for youth. 

Enjoying Camp

Two boys sit by a campfire at an organizational 

camp on a national forest (Forest Service photo).
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-42

Cost Recovery (Administration of Rights-of-Way)

Budget Line Item Cost Recovery (Administration of Rightsof-Way)

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Cost Recovery (Administration of Rights-of-Way)

New Budget Authority $5,454 $8,700 $8,700 0

Program Level 5,650 9,210 9,302 $92

Full-Time Equivalents (FTEs) 54 76 76 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $9,302,000 for the Cost Recovery program 

(also known as Administration of Rights-of-Way), an increase of $92,000 from FY 2013. Funds are used 

to process lands special use proposals and applications in a timely manner, provide customer service, and 

administer authorizations for which we have no other statutory authority to recover or retain funds for the 

use and occupancy of National Forest System (NFS) lands. We will continue to implement the program to 

recover our costs for processing special use applications and monitoring for compliance with the 

authorization. We will review progress to ensure consistent and cost-effective management, improve 

customer service, and reduce the backlog of permit applications. 

The FY 2014 President’s Budget proposes a permanent extension of the authority for Administration of 

Rights-Of-Way and Land Uses. This authority ensures timely customer service, reduces the potential 

liability to the government associated with uses on National Forest System lands under an expired 

authorization, and enables us to accept new applications to expand our support for local and regional 

economies.

In FY 2014, the Forest Service expects to work in cooperation with the Bureau of Land Management

(BLM) to update their interagency flat fee schedule relative to applicable special use applications and 

authorizations. Working cooperatively with the BLM ensures interagency consistency for similar uses and 

works to assess fees that are appropriate.

Past Performance

During FY 2012 the agency recovered approximately $5.5 million in costs involving the processing and 

monitoring of approximately 1,800 new land use authorizations. Cost recovery will help ensure that we 

continue to make progress in administering authorizations. The Forest Service has used our current 

authority to respond to numerous requests for use of NFS land for the purposes of transmitting electric, 

oil/gas, and broadband communication, as well as responding to requests for major modifications to resort 

operations and numerous smaller private or commercial requests. 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-43

In FY 2006, when the cost recovery authority was first implemented, the Forest Service had a backlog of 

over 14,885 expired special use authorizations for uses on National Forest System land. In FY 2012, the 

backlog of expired authorizations had been reduced to approximately 6,020 authorizations, over a 50 

percent reduction.

Authorities

Numerous Federal statutes authorize the Secretary of Agriculture to assess and collect fees from 

applicants for, and holders of special use authorizations. These fees pay for the agency’s administrative 

costs to process applications for, and monitor, such authorizations. These authorities include the 

Independent Offices Appropriations Act of 1952 (P.L. 82-137); Mineral Leasing Act of 1920, as amended 

(P.L. 66-146); and the Federal Land Policy and Management Act of 1976 (P.L. 94-579). In addition, 

specific legislation authorizing the implementation of each program within this account is as follows: 

Special Use Application and Permit Monitoring Fees (Recovery of Costs). P.L. 106-113, Interior 

and Related Agencies Appropriations Act, 2000, Section 331 (113 Stat. 1501A-196 - 197), as 

amended by P.L. 108-447, Consolidated Appropriations Act, 2005, Division E, Section 345 (118 

Stat. 3105), P.L. 109-54, Interior, Environment and Related Agencies Appropriations Act, 2006, 

Section 425 (119 Stat. 555), P.L. 110-161 Consolidated Appropriations Act, 2008 and P.L. 113-6

Consolidated and Further Continuing Appropriations Act, 2013. This Act provides authority 

through September 30, 2013 to implement a pilot program to improve customer service to 

applicants and holders of special land use authorizations and reduce the agency’s backlog of 

expired authorizations. 

Program Description

Programs included in this fund are:

Cost Recovery Lands Major Projects - All recreation and non-recreation (land) uses that require 

more than 50 hours of agency time to process or monitor (uses involving 

construction/reconstruction) are deemed to be “Major Categories” for which the agency collects 

all appropriate administrative costs.

Cost Recovery Lands Minor Projects - Excluding recreation uses, all non-recreation (land) uses 

not subject to exemption or waiver that require less than 50 hours of agency time to process or 

monitor are deemed Minor Categories. These categories use a flat fee schedule established in four 

different tiers, subject to annual indexing.

Disputes - All determinations are subject to dispute, allowing the applicant or holder to confront 

the superior officer of the initial determination as to the validity of the estimated cost recovery 

fee. Disputes must provide a written rationale as to why the estimated fee is in error, provide 

evidence as to why the estimation is in error, and suggest an alternative fee estimation based in 

fact.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-44

Program Overview 

The Forest Service processes over 6,000 authorizations each year for the use and occupancy of NFS 

lands. In FY 2012, we administered nearly 82,000 authorizations for a wide variety of purposes, including 

energy-related uses, broadband and communication facilities and campground management. Processing 

and authorizing these uses is an important component of facilitating the development and transmission of 

affordable, reliable energy and communication services; supporting national security; supporting 

economic development; and promoting the public health and safety of populations within or in proximity 

to national forests throughout the nation. Work activities include: 

• Evaluating applications to use Federal land for other government use, commercial, and private 

requests to assure compliance with applicable laws, regulations, land use management plans, and 

the technical and financial capability of applicants to conduct use on NFS land

• Conducting appropriate environmental, social and economic analyses to requests to use NFS land 

pursuant to the National Environmental Policy Act (NEPA) of 1969

• Developing special use authorizations with appropriate terms and conditions that ensure 

protection of public health and safety and resource protection measures

• Performing oversight and inspection of certain authorization activities associated with 

construction/reconstruction activities

Waivers of cost recovery fees are provided for local, State, or Federal governmental applicants and 

authorizations for recreation uses that require 50 hours or less to process.

Allocation and Integration

Major Categories - For uses not subject to exemption or waiver, the Forest Service estimates 

actual expenses and the works with the applicant or holder to determine if the costs are reasonable 

in accordance with the Federal Land Management and Policy Act of 1976 as amended (FLPMA) 

or is a required actual expense in accordance with the Mineral Leasing Act of 1920 as amended 

(MLA).

Minor Categories - Uses subject to Forest Service cost recovery regulations (not exempt or 

waived) that require less than 50 hours or less of agency time to process or monitor are assessed a 

fee established in accordance with Federal Register.

Partnerships

We cooperate with many other Federal agencies, such as the Department of the Interior agencies: Bureau 

of Land Management, National Park Service, U.S. Fish and Wildlife Service; the Federal Energy 

Regulatory Commission; the Army Corp of Engineers; interagency working groups; State, local, and 

Tribal governments; and partners, such as the Western Utility Group and National Forest Recreation 

Association. Partnership opportunities provide an opportunity to streamline procedures in order to deliver 

consistent and clear direction. Efforts are underway in FY 2013 to assess fee adjustments in conjunction 

with other Federal agency initiatives.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-45

Licensee Program Smokey Bear

Budget Line Item Licensee Program Smokey Bear

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Licensee Program Smokey Bear

New Budget Authority $151 $100 $100 0

Program Level 89 100 100 0

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $100,000 for the Licensee Program Smokey 

Bear, the same level as FY 2013. Funds will support special projects regarding Smokey Bear’s 70th

Birthday preparations, as well as the national fire prevention awards program, and licensing 

agent/contractor services. This program supports national initiatives, local programs, and products that 

help increase public awareness with regard to wildfire prevention. 

Authorities

Fees for the use of the Smokey Bear character by private enterprises are collected under regulations 

formulated by the Secretary of Agriculture. They are available to further the nationwide forest fire 

prevention campaign (16 U.S.C. 580 p-2) (18 U.S.C. 711). 

Program Description

The Smokey Bear program supports national initiatives, programs, and products that help increase public 

awareness in regard to wildfire prevention. The licensing program receives approximately $100,000 

yearly from royalties, of which 35 percent are paid to the licensee contractor for its services. The fire 

prevention specialist manages the licensing contract. Smokey Bear royalties also support the National 

Smokey Bear Award program and the national fire prevention public service campaign. The Chief of the 

Forest Service has discretionary authority to use money from royalties in special projects that support the 

Smokey Bear fire prevention message. In FY 2014, the special projects will include Smokey Bear’s 70th

birthday.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-46

Licensee Program Woodsy Owl

Budget Line Item Licensee Program Woodsy Owl

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Licensee Program Woodsy Owl

New Budget Authority $2 $4 $4 0

Program Level 7 15 15 0

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $15,000 for the Licensee Program Woodsy 

Owl, the same level as FY 2013. Funds support the development of Woodsy Owl educational products 

and the licensing contract. This program supports national initiatives, local programs, and products that 

help increase public awareness about the importance of maintaining environmental quality. 

Authorities

Fees for the use of the Woodsy Owl character by private enterprises are collected under regulations 

formulated by the Secretary of Agriculture. They are available to promote wise use of the environment 

and programs that foster maintenance and improvement of environmental quality (16 U.S.C. 580 p-1) 

(formerly classified as 31 U.S.C. 488a, 488b-3, 488b-6) (18 U.S.C. 711a).

Program Description

The Woodsy Owl program supports national initiatives, programs, and products that help increase public 

awareness of activities and issues related to improvement and maintenance of environmental quality. This 

licensing program is overseen by the national symbols program manager on the Conservation Education 

(CE) staff. The CE 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 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-47

Forest Service Go Green Program (Conservation)

Budget Line Item Forest Service Go Green Program 

(Conservation)

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Forest Service Go Green Program (Conservation)

New Budget Authority $96 $39 $34 -$5

Program Level 18 42 32 -10

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $32,000 for the Forest Service Go Green 

program, a decrease of $10,000 from the FY 2013 Annualized CR.

Past Performance

The funding level in this program depends on the proceeds collected. As information on Go Green is 

more widely shared, funding levels are expected to increase. In only four years, collections for this 

program have grown from $3,701 in the inaugural year of FY 2009 to $93,355 in FY 2012.

Authorities

Treasury and General Government Appropriations Act, 2002. This Act authorizes Federal agencies to 

receive and use revenue resulting from waste prevention and recycling programs. Such revenue shall be 

available until expended for the purpose of waste reduction, prevention, and recycling programs.

Program Description

Program Overview

The Forest Service promoted the implementation of “Go Green” on our units in FY 2009 to help meet the 

agency’s recycling and waste reduction goals. Go Green funds are collected not only from recycling 

simple items such as cans, but also from cleanup efforts on the forests and grasslands. Proceeds are 

collected from wastes such as abandoned vehicles and appliances. Every dollar collected under this 

authority offsets funding from other programs. This funding also enables field units to accomplish cleanup activities they otherwise would not be able to undertake due to lack of funding, which makes this 

funding essential for land management and offsets some of our costs for this work. 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-48

We anticipate the use of this program to increase as units become more aware of it. It is being shared 

through the Sustainable Operations Peer Learning Series. It is also an activity included under the Climate 

Change Scorecard Element 10 and on the Top 10 Collective Actions List endorsed by Leadership in all 

Sustainable Operations Collective Member Units. 

Accountable property is excluded from this program, which includes all capital leases and all owned 

personal property having an acquisition cost of $5,000 or more. Excess property, such as electronics and 

other personal property that is not considered accountable property, follows an initial screening by USDA 

agencies which determines if the property is eligible for donation, to be transferred to another government 

agency, or to be recycled. Other items excluded from the scope of this program are FS/GSA vehicles, 

which also have disposal/excess rules in place.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-49

Conveyance of Administrative Sites

Budget Line Item Conveyance of Administrative Sites

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Conveyance of Administrative Sites

New Budget Authority $2,688 $37,000 $18,700 -$18,300

Program Level 2,992 18,100 24,400 6,300

Full-Time Equivalents (FTEs) 6 7 7 0

FY 2014 Program Changes

The 2014 President’s Budget includes a program level of $24,400,000 for the Conveyance of 

Administrative Sites, an increase of $6,300,000 from FY 2013 as proposed in Table B. Retaining 

proceeds from these conveyances provides the Forest Service with funds for maintenance, rehabilitation, 

and construction for specified projects, while we continue to right-size the agency’s real property 

portfolio.

Past Performance

In FY 2012, the agency collected $2.7 million through the completion of land and facility conveyances. 

These conveyances reduced deferred maintenance by approximately $892,000, as displayed in Table A. 

Outputs associated with this program are combined with and reported under individual resource programs 

in the National Forest System, Land Acquisition, and Capital Improvement and Maintenance chapters.

Authorities

Numerous Federal statutes authorize the Secretary of Agriculture to retain proceeds from the conveyance 

of land and excess structures, and expend these revenues to acquire or develop land or make 

improvements for administrative purposes. Revenues received from the sale of land or structures are 

deposited into the Sisk Act Fund and are available without further appropriation.

Interior and Related Agencies Appropriations Act, 2002, as amended (P.L. 107-63, Section 329) (P.L. 

108-7) (P.L. 108-108) (P.L. 108-447). This Act provided authority through September 30, 2008 to 

implement a pilot program that allowed the agency to retain proceeds from the conveyance of excess 

structures and expend the receipts for building maintenance, rehabilitation, and construction.

Forest Service Facility Realignment and Enhancement Act (FSFREA), Title V of the Department of the 

Interior, Environment, and Related Agencies Appropriations Act, 2006 (P.L. 109-54). This Act provided 

authority through September 30, 2008 to convey unneeded administrative sites and retain the proceeds for 

building maintenance, rehabilitation, and construction provided certain criteria contained in Title V are 

met. In addition, projects initiated under the pilot authority of P.L. 107-63, Section 329 may continue 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-50

under the provisions of the FSFREA. This authority was extended through September 30, 2011 pursuant 

to the Omnibus Appropriations Act, 2009 (P.L. 111-8). 

Consolidated Appropriations Act, 2012 (P.L. 112-74, Title IV, Sec. 421). This Act amends Section 503(f) 

of the Forest Service Facility Realignment and Enhancement Act of 2005 (Title V of the Department of 

the Interior, Environment and Related Agencies Appropriations Act, 2006, P. L. 109-54; 16 U.S.C. 580d 

note), as amended by section 422(1) of Public Law 111-8 (123 Stat. 748), by extending authorization to 

September 30, 2016.

Program Description

Program Overview 

The Administrative Site Conveyances Program provides for the realignment of the agency’s facility 

portfolio by providing an incentive for local managers to liquidate obsolete or underutilized assets and 

reinvest in assets that best support the agency’s mission. This authority provides the opportunity to 

efficiently address current and future needs, reduce annual lease costs, and reduce the deferred 

maintenance backlog. In addition to operational benefits, the program provides substantial economic and 

social benefits. These include providing local communities with an additional tax base and opportunities 

for redevelopment to align with community plans and economic stimulus strategies. 

The Forest Service currently owns approximately 16,000 administrative and research buildings. A large 

number of these facilities do not meet the agency’s needs and are either underutilized or in need of 

maintenance in order to meet current health and safety standards. More than 60 percent of Forest Service 

facilities are more than 30 years old and more than half have exceeded their design life. Without major 

and often costly renovations, these structures frequently fail to meet administrative needs due to 

inadequate space, improper location, high maintenance costs, and failure to meet current health, safety, 

and accessibility codes. Improving asset management allows the agency to fully utilize mission critical 

and mission dependent assets and manage those assets in the right condition and at the right cost. 

Work functions for this program include: notification, analysis, valuation, and realty case processing 

services; facility repairs, preventive maintenance and replacement of parts and structural components; 

construction of new facilities; alteration of existing facilities to change function; and expansion of 

facilities to meet the needs of changing mission critical functions.

Allocation and Integration

Proceeds from FSFREA projects compliment discretionary appropriations in the National Forest System, 

Landownership Management and Capital Improvement and Maintenance, Facilities and Deferred 

Maintenance and Infrastructure Improvement budget line items. The revenues generated from the sale of 

land and facilities play an integral role in enhancing the agency’s land and facility program. Outputs 

associated with this program are combined with and reported under other individual resource programs 

throughout the Forest Service appropriated accounts. The authority for obligation and expenditure of 

these funds is allocated to the regions based on the amounts collected from sales within that region.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-51

Partnerships

The agency participates in partnerships with other Federal agencies through this program, including the 

General Services Administration who maintains a national memorandum of agreement with the Forest 

Service to fulfill the requirements of FSFREA, as well as Tribal governments, local communities, local 

governments, and many private landowners. The program is enhanced by partnership opportunities that 

eliminate or reduce redundant efforts. Examples include leveraging funds to secure high priority resource 

lands for public access and resource protection or co-locating facilities with other Federal agencies and 

non-governmental organizations to lower operational costs.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-52

TABLE A

FY 2012 Final Accomplishments Land and Facility FSREA Conveyance Projects

(dollars in thousands)

FS Reg State

Cong 

Dist Forest Project Name

Year 

Begun

Sale 

Price

Acres 

Conveyed

Deferred 

Maint.

Elimin.

GSF1 

Reduced

2 CO 3 San Juan Lower Mancos 2008 $109 0.2 $50 2,304

3 NM 2 Cibola Baldwin Cabin 2009 110 38.8 265 1,560

4 NV 2 Humboldt Fir Admin 2008 182 0.5 296 6,343

4 NV 2 H-T Mt City Lots 2009 41 2.2 0 0

4 NV 2 H-T Magnolia Res 2009 26 0.1 90 2,292

6 OR 4 Rogue-SIS Powers South 2008 88 1.6 54 7,981

6 OR 4 Siuslaw Hillcrest Admin 2008 500 96.0 24 9,226

9 MO 8 Mark Twain Frederick T Admin Site 2009 50 6.1 73 7,280

10 AK At-Lg Tongass 402 Monestary House 2008 215 0.3 10 1,444

10 AK At-Lg Tongass

501 Sawmill

House 2008 200 0.2 20 1,444

10 AK At-Lg Tongass

Petersburg

Parking lot 2008 76 0.9 10 340

Total, All Forest Service $1,597 147.9 $892 40,214

1. GSF is the abbreviation for gross square footage.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-53

TABLE B

FY 2014 Planned Conveyance Projects

(dollars in thousands)

Reg State

Cong 

Dist Forest Project Name

GSF1

Reduced Acres

Def Mnt 

Reduction

Est Sale 

Value

Proceeds 

for Maint

Proceeds 

for New 

Constr.

Proceeds 

for Bldg. 

Disposal

Planned 

Completion Date

1 MT 1 Bitterroot Stevensville RS 17,036 5.0 $75 $1,000 - $1,000 - 2017

1 MT 1 Bitterroot Sula RS 25,408 36.3 355 1,500 - 1,500 - 2019

1 MT 1 Bitterroot

Rye Creek Admin 

Parcel 0 1.8 0 10 - 10 - 2016

1 ID 1 IPNF Fernan Office 14,874 5.0 89 100 - 100 - 2016

1 ID 1 IPNF Dispatch 4,632 0 108 50 - 50 - 2016

1 ID 1 IPNF Clarkia RS 37,162 5.0 2,605 200 - 200 - 2016

Subtotal Region 1 99,112 53.1 3,232 2,860 0 2,860 0

2 SD 1 Black Hills Deer Valley 0 112.0 28 600 - 600 - TBD

2 SD 1 Black Hills Reder 3,290 83.0 250 800 - 800 - TBD

2 SD 1 Black Hills Pactola 6,031 40.0 175 600 - 600 - TBD

2 CO 2

Arapaho and 

Roosevelt 

Miners Street 

Buildings 5,569 0.3 98 200 200 0 - 2014

2 CO 3 San Juan

Trimble WC - Parcel 1 

- Land only 15.0 0 1,600 - 1,543 - 2014

2 CO 3 San Juan Trimble WC - Parcel 2 2,349 4.7 508 500 - 482 - 2014

2 CO 3 San Juan

Pagosa Dwelling #1 & 

Garage 2,835 0.3 92 500 - 450 - 2014

2 CO 3 San Juan

Pagosa Dwelling #2 & 

Garage 3,160 0.2 86 550 - 500 - 2014

2 CO 3 San Juan

Durango 7th Ave. 

Dwelling & Garage 3,254 0.3 60 550 - 500 - 2014

2 CO 2 White River 

Dillon Valley Horse 

Pasture 0 10.1 0 500 - 500 - 2014

Subtotal Region 2 26,488 265.9 1,297 6,400 200 5,975 0

3 AZ 1 Coconino

Morman Lake Admin 

Site 14,081 40.0 25 3,000 - 3,000 - 2014

3 AZ 1 Coconino Peaks Admin Site 33,730 40.0 75 4,000 - 4,000 - 2015

3 AZ 1 Prescott Prescott NF SO Office 14,520 0.6 281 1,452 - 1,452 - TBD

3 AZ 1 Prescott

Groom Creek Work 

Center 2,640 6.5 191 264 - 264 - TBD

3 AZ 1 Prescott Willow Admin Site 9,690 3.5 32 969 - 969 - TBD
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-54

Reg State

Cong 

Dist Forest Project Name

GSF1

Reduced Acres

Def Mnt 

Reduction

Est Sale 

Value

Proceeds 

for Maint

Proceeds 

for New 

Constr.

Proceeds 

for Bldg. 

Disposal

Planned 

Completion Date

Subtotal Region 3 74,661 90.6 604 9,685 0 9,685 0

4 ID 2 Caribou-Targhee

Canyon Creek 

Administrative Site 0 40.0 - 80 - 80 - TBD

4 ID 2 Caribou-Targhee

Wright's Creek 

Administrative Site 0 40.0 - 40 - 40 - TBD

4 UT 2 Dixie

Central Administrative 

Site 0 5.0 - 35 - 35 - TBD

4 UT 2 Dixie

Widtsoe 

Administrative Site 0 40.0 - 24 - 24 - TBD

4 UT 2 Manti-La Sal La Sal Guard Station 612 40.0 7 200 - 200 - TBD

4 UT 2 Manti-La Sal

Moab Administrative 

Site 2,150 0.8 46 500 - 500 - TBD

4 ID 1 Payette Warren Guard Station 7,830 3.0 1,156 200 - 200 - TBD

4 UT 3 Uinta-Was-Cache SO Cell Tower 0 0 0 120 - 120 - TBD

Subtotal Region 4 10,592 168.8 1,209 1,199 0 1,199 0

6 OR 2 Fremont - Winema

Bly Ranger District -

Work Center Bldgs 5,633 0 182 150 - 150 - 2015

6 WA 6 Olympic Norwood 9,230 10.0 519 200 60 - 60 2015

6 OR 2 Umatilla

Waid Street (Ukiah 

Residence) 1,075 0.1 63 15 15 - - 2014

6 OR 4 Willamette

Upper Blue River 

Compound 36,420 39.0 30 500 250 200 50 2014

Subtotal Region 6 52,358 49.1 794 865 325 350 110

Total, All FS 263,211 627.5 $7,137 $21,009 $525 $20,069 $110

1. GSF is the abbreviation for gross square footage.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-55

TABLE C

Change in Land and Facility Planned Conveyance Projects for FY 2013

(dollars in thousands)

Chng Reg State

Cong 

Dist Forest Project Name

GSF1

Reduced Acres

Def Mnt 

Reduction

Est Sale 

Value

Proceeds 

for Maint

Proceeds 

for New 

Constr.

Proceeds 

for Bldg. 

Disposal

Planned 

Completion Date

The following 15 projects have been added for FY 2013. These are in addition to the projects listed in the FY 2013 Budget Justification.

new 2 CO 5

Pike San 

Isabel

Buena Vista Office & 

Trailer 1,200 0 $56 $101 $101 $0 $0 2013

new 2 CO 5

Pike San 

Isabel Bailey Work Center 5,600 0 79 325 

 

325 0 0 2013

new 2 CO 5

Pike San 

Isabel

Sixth Street House, 

Leadville 3,000 0 33 200 - - - 2013

new 2 CO 2 White River Dowd Junction 14,140 10.0 870 3,000 - 3,000 - 2015

new 2 CO 3 White River Sopris Pasture 0 11.4 0 750 - 750 - 2015

new 2 WY 1 Shoshone Kirwin Warehouse 1,800 0 22 2 - 2 - 2013

new 10 AK At-Lg Chugach

KLWC# 1-Lot 2, USS 

7398 4,588 24.8 23 450 - 450 - TBD

new 10 AK At-Lg Chugach

KLWC# 2- Portion of 

USS 3532 0 16.0 - 250 - 250 - 2013

new 10 AK At-Lg Chugach Seward House- 5th &A 1,368 0.2 15 148 - 148 - 2013

new 10 AK At-Lg Chugach Seward House- 4th & A 1,963 0.2 17 150 - 150 - 2013

new 10 AK At-Lg Tongass Scow Bay Upper Lot 0 1.1 - 29 - 29 18 2013

new 10 AK At-Lg Tongass Mission Lots 0 0.3 - 22 - 22 - 2013

new 10 AK At-Lg Tongass Scow Base Warehouse 4,224 0.4 300 250 - 250 - 2013

new 10 AK At-Lg Tongass Craig Lot 0 0.2 - 22 - 22 - 2013

new 10 AK At-Lg Tongass Harris Building 11,760 - 750 - 750 - TBD

The four projects below, which were listed in the FY 2013 Budget Justification, are no longer available for conveyance.

drop 4 WY At-Lg

BridgerTetonLee Administrative Site, 

PLO 1923 0 40.0 -

$500 to 

3,000 -

$500-

3,000 - TBD

drop 6 WA 8

Mt. BakerSnoqualmieNorth Bend Compound 

(North Parcel) 2,200 2.0 20 250 125 - 125 2013

drop 6 OR 2

Fremont -

Winema

Bly Rd - Work Center 

bldgs 5,633 0 182 150 - 150 - 2013

drop 9 IL 19 Shawnee Eddyville Residence 2,336 40.9 130 20 20 - - TBD
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-56

Site-Specific Lands Act

Budget Line Item Site-Specific Lands Acts

 (dollars in thousands)

 

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Permanent Funds

Site-Specific Lands Acts

New Budget Authority $1,950 $7,600 $3,600 -$4,000

Program Level 1,364 9,500 5,800 -3,700

Full-Time Equivalents (FTEs) 4 4 4 0

FY 2014 Program Changes 

The FY 2014 President’s Budget includes a program level of $5,800,000 for the Site-Specific Lands Acts 

program, a decrease of $3,700,000 from FY 2013. This program is related to site specific acts passed by 

Congress pertaining to the sale of National Forest System land and the use of retained receipts to make 

specific improvements. The proceeds from each of these transactions are in strict accordance with the 

terms and provisions of the authorizing legislation. The collected receipts under these Acts are available 

without further appropriation.

Past Performance 

In FY 2012, the agency collected $1.9 million from the conveyance of National Forest System land and 

facilities directed by Congress, resulting in an overall fund balance of $17 million. Funds were used 

towards Capital Improvement and Maintenance projects and to supplement the Conveyance of 

Administrative Sites program. 

Authorities

The Sisk Act, as amended (16 U.S.C. 484a; P.L. 90-171). This Act authorizes the Secretary of Agriculture 

to retain proceeds from the conveyance of specific land and excess structures, and expend these revenues 

to acquire or develop land or make improvements for administrative purposes. Revenues received from 

the sale of land or structures are deposited into the Sisk Act Fund and are available without further 

appropriation for the purpose(s) specified in the statutes.

Program Description 

Program Overview

This program enables the collection of receipts from the sale of National Forest System land pursuant to 

special Acts passed by Congress. The proceeds are used for specific improvements to lands and facilities 

within the same national forest or State.
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-57

The legislated project may include work functions such as: notification, analysis, valuation, and realty 

case processing services; construction of new facilities; alteration of existing facilities to change function; 

and expansion of facilities to meet the needs of changing mission critical functions. Projects are identified 

annually through the legislative process. As a result, benefits and funds collected vary each year based on 

legislation.

Allocation and Integration

Conveyances under Special Legislation proceeds may compliment discretionary appropriations in the 

National Forest System, Landownership Management and Capital Improvement and Maintenance, 

Facilities and Deferred Maintenance and Infrastructure Improvement budget line items. The revenues 

generated from the sale of land and facilities may contribute to enhancing the agency’s land and facility 

program. Outputs associated with this program are combined with and reported under other individual 

resource programs throughout the Forest Service appropriated accounts. The authority for obligation and 

expenditure of these funds are available without further appropriation.

Partnerships

The level of collaboration and partnerships that occurs through this program depends on the direction 

provided in the site specific act passed by Congress. 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-58

Payment to States

Budget Line Item Payment to States

(dollars in thousands)

FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

FY 2014 vs 

FY 2013

Payment to States Funds

National Forest Fund Payments to States Available, Title I & III

New Budget Authority $109,154 0 $50,850 $50,850

Program Level 66,256 $66,512 50,850 -15,662

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to States Act of 1908 

New Budget Authority 0 64,000 10,000 -54,000

Program Level 10,273 11,240 10,000 -1,240

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to States Supplemental

New Budget Authority 225,000 207,500 197,000 -10,500

Program Level 225,000 207,500 197,000 -10,500

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to Minnesota Counties

New Budget Authority 6,150 6,150 6,150 0

Program Level 6,150 6,150 6,150 0

Full-Time Equivalents (FTEs) 0 0 0 0

Payments to Counties, Bankhead-Jones Farm Tenant Act

New Budget Authority 27,621 20,000 20,000 0

Program Level 23,361 20,000 20,000 0

Full-Time Equivalents (FTEs) 0 0 0 0

Secure Payments for States (SRS), Title II

New Budget Authority -2,481 0 64,000 64,000

Program Level 60,667 48,936 64,000 15,064

Full-Time Equivalents (FTEs) 242 208 0 -208

Secure Payments for States/Repayment per DOT Reauthorization

New Budget Authority 0 2,466 0 -2,466

Program Level 0 2,466 0 -2,466

Full-Time Equivalents (FTEs) 0 0 0 0

Payment to State Funds New Budget Authority $365,444 $300,116 $348,000 $47,884

Payment Funds Program Level $391,707 $362,804 $348,000 -$14,804

Payment to States Funds Full-Time Equivalent (FTEs) 242 208 0 -208

FY 2014 Program Changes 

National Forest Fund Payments to States Available, Title I & III

The FY 2014 President’s Budget reflects a five-year reauthorization, starting in FY 2013, of the Secure 

Rural Schools and Community Self-Determination Act (Secure Rural Schools Act).
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-59

Under the (Secure Rural Schools Act), the Forest Service deposits all receipts to be used for Title I and 

Title III payments into an account from which payments are made. The FY 2014 President’s Budget 

projects $50,850,000 in receipts, a decrease of $15,662,000 from the FY 2013 Annualized CR. 

Payment to States Act of 1908

The FY 2014 President’s Budget proposes $10,000,000 for Payments to States under the Act of 1908 (25 

percent fund), a decrease of $1,240,000 from the FY 2013 Annualized CR. This reflects payments under 

the 1908 Act with the proposed continuation of the Secure Rural Schools Act. Payments under the 25 

percent fund are made one year in arrears based on receipts and credits specified in the authorizing 

legislation. 

Payments to States Supplemental

Under the Secure Rural Schools Act, the Forest Service first uses all forest receipts from the National 

Forest Fund receipt account to fund payments. If those receipts are insufficient, a supplemental 

appropriation is obtained for the amount required. The FY 2014 President’s Budget proposes 

$197,000,000 for supplemental funding to continue the payments, a decrease of $10,500,000 from the FY 

2013 Annualized CR.

Payments to Minnesota Counties

The FY 2014 President’s Budget contains the mandatory Payments to Minnesota Counties of $6,150,000 

as required by the authorizing legislation.

Payment to Counties Bankhead-Jones Farm Tenant Act

The FY 2014 President’s Budget proposes $20,000,000 in Payments to Counties Bankhead-Jones Farm 

Tenant Act based on receipts from activities on the national grasslands and from land utilization projects, 

the same level as the FY 2013 Annualized CR. 

Secure Payments for States (SRS), Title II

The FY 2014 President’s Budget request is $64,000,000 for Secure Payments for States. This is an 

increase of $15,064,000 from the FY 2013 Annualized CR.

Secure Payments for States/Repayment per DOT Reauthorization

The Secure Rural Schools and Community Self-Determination Act as reauthorized in Public Law 110-

343 required an eligible county that received a share of the State payment greater than $100,000 to submit 

its election to allocate its share among titles of the Act not later than September 30 each year. An eligible 

county that failed to make a timely election was considered to have elected to return 15 percent of its 

share of the State payment to the Treasury as required in 16 U.S.C. 7112(d)(3)(A)(ii) as in effect for fiscal 

year (FY) 2011 under Public Law 110-343. For FY 2011 approximately $2,500,000 was returned to the 

Treasury as required by this provision.

Section 100101(b) of Public Law 112-141 makes available to the Forest Service an amount equal to the 

shares of the State payment forfeited by counties that failed to meet the deadline for fiscal year 2011. 

These funds are referred to as recovered funds. The recovered funds must be used to carry out projects 

that further the purposes of Title II of the Act. Specifically, they are to be used to carry out projects that 

protect, restore, and enhance fish and wildlife habitat; improve the maintenance of existing Forest Service 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-60

infrastructure; enhance forest ecosystems; and restore and improve land health and water quality. Project 

objectives include maintenance or obliteration of roads, trails, and infrastructure; improvement of soil 

productivity; improvements in forest ecosystem health; restoration and maintenance of watersheds; 

control of noxious and exotic weeds; and reestablishment of native species. In FY 2013 recovered funds 

are $2,466,000.

Program Overview 

National Forest Fund Payments to States Available, Title I & III

The National Forest Fund Payment to States Available is an account where all receipts that are projected 

to be used for Title I and Title III payments under Secure Rural Schools are deposited. These funds, 

combined with the Payments to States Supplemental, are the source of payments to states under the 

Secure Rural Schools Act.

Payments to States Act of 1908

Payments to States Act of 1908 of May 23, 1908, as amended (16 U.S.C. 500 note), Payment for Receipts 

for Schools and Roads. This Act commonly known as “the 25 percent fund” or “the Act of 1908,” 

authorizes annual payments on a seven-year rolling average basis to States equal to 25 percent of 

revenues from the sale of goods and services by the national forests. States shall use these payments for 

schools and/or roads projects. The Act was amended on October 3, 2008 in P.L. 110-343, Division C, 

Title VI. 

Payments to States Supplemental

Under the Secure Rural Schools Act, the Forest Service first uses all forest receipts from the National 

Forest Fund receipt account to fund SRS payments. If those receipts are insufficient, a supplemental 

appropriation is obtained for the amount required. 

Payments to Minnesota Counties

Thye-Blatnick Act of June 22, 1948, as amended (16 U.S.C. 577g), Payment for Additional Lands 

Acquired in Northern Minnesota. This Act directed the Secretary of Agriculture to acquire resorts, cabins, 

and private lands within the Boundary Waters Canoe Area Wilderness and permanent residents were 

prohibited after 1974. Additionally, in-lieu-of-tax payments were authorized to Cook, Lake, and St. Louis 

Counties for Federal wilderness land from any national forest receipts not otherwise appropriated. At the 

close of each fiscal year, the State of Minnesota is paid three-fourths of 1 percent of the appraised value 

of certain Superior National Forest lands in the counties of St. Louis, Cook, and Lake for distribution to 

those counties. The land value is reappraised every 10 years. New appraisals were done in 2008.

Payments to Counties, Bankhead-Jones Farm Tenant Act

Title III of the Bankhead-Jones Farm Tenant Act of July 22, 1937, as amended (7 U.S.C. 1012). This Act 

pertains primarily to national grasslands and land utilization projects. Annual payments are authorized to 

counties which contain Forest Service lands that were acquired under the Bankhead-Jones Act. Twentyfive 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 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-61

Secure Payments for States (SRS), Title II

The Secure Rural Schools and Community Self-Determination Act of 2000 (16 U.S.C. 500 note) 

originally authorized through FY 2006 as P.L. 106-393, provides choices to counties to either receive a 

guaranteed level of annual payments for roads and schools and other authorized purposes, as well as 

funding for specific resource improvement projects on the national forest where the county is located, or 

to receive payments under the Act of May 23, 1908. The Act was reauthorized through FY 2011 on 

October 3, 2008 in P.L. 110-343, Division C, Title VI. P.L. 112-141 reauthorized the program through 

FY 2012.

Counties that opt to not receive payments under this Act as reauthorized do receive, with few exceptions, 

25 percent of all moneys collected from the national forests and grasslands in which the counties are 

located, under the Act of 1908. These payments benefit public schools and roads in the county or counties 

containing national forests and grasslands. P.L. 110-343 amended the Act of 1908 which, among other 

things, changed the payment formula. Instead of being based on each year’s receipts, payments to the 

States are now based on a rolling seven-year average of receipts (16 U.S.C. 500 note).

Counties electing to receive their share of a State’s “full payment amount” under the Secure Rural 

Schools and Community Self-Determination Act of 2000, as amended by P.L. 110-343, receive payments 

under a formula based on several factors, including acreage of Federal land, previous payments, and per 

capita personal income. 
FY 2014 Budget Justification USDA Forest Service

Permanent Appropriations 12-62

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FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-1

13. Trust Funds

Budget Line Item Trust Funds

 (dollars in thousands)

 FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Trust Funds

Cooperative Work, Knutson-Vandenberg

New Budget Authority $59,446 $60,000 $60,000 0

Program Level 219,681 74,400 70,000 -$4,400

Full-Time Equivalents (FTEs) 477 619 619 0

Cooperative Work, Forest Service

New Budget Authority 36,971 69,400 72,700 3,300

Program Level 38,997 74,000 78,000 4,000

Full-Time Equivalents (FTEs) 234 373 373 0

Reforestation Trust Fund

New Budget Authority 30,000 30,000 30,000 0

Program Level 28,710 30,000 30,000 0

Full-Time Equivalents (FTEs) 183 188 188 0

Land Between the Lakes Trust Fund

New Budget Authority 0 0 0 0

Program Level 13 25 25 0

Full-Time Equivalents (FTEs) 0 0 0 0

Trust Funds New Budget Authority 126,417 159,400 162,700 3,300

Trust Funds Program Level 287,401 178,425 178,025 -400

Trust Funds Full-Time Equivalents (FTEs) 894 1,180 1,180 0

.
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-2

Cooperative Work - Knutson-Vandenberg 

Cooperative Work

Knutson-Vandenberg Fund

 (dollars in thousands)

 FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Trust Funds

Cooperative Work, Knutson-Vandenberg

New Budget Authority $59,446 $60,000 $60,000 0

Program Level 219,681 74,400 70,000 -$4,400

Full-Time Equivalents (FTEs) 477 619 619 0

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Cooperative Work, Knutson-Vandenberg

Acres of forest vegetation established 51,950 45,304 56,000 40,677 53,000 67,600

Acres of forest vegetation improved 23,530 24,932 38,130 29,161 27,000 42,000

Acres of lake habitat restored or enhanced with nonWildlife funds 136 6 240 206 300 206

Miles of stream habitat restored or enhanced 3 2 10 7 20 350

Acres of hazardous fuels treated to reduce risk of 

catastrophic fire 121,226 85,316 30,000 67,079 36,000 30,310

Miles of high clearance system roads improved 0 10 0 2 0 7

Highest priority acres treated annually for noxious weeds 

and invasive plants on NFS lands 12,502 11,268 30,500 9,768 29,800 39,863

Acres of rangeland vegetation improved 2,941 1,077 780 581 1,000 800

Miles of roads decommissioned 24 10 0 29 0 5

Acres of watershed improvement 2,437 6,677 4,750 2,843 7,200 9,200

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

restored or improved with non-Wildlife dollars 102,819 67,103 187,800 93,929 200,000 184,600
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-3

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Cooperative Work, Knutson-Vandenberg - Regional 

Work

Acres of forest vegetation established 10,276 20 2,500 61 2,500 200

Acres of forest vegetation improved 1,513 867 0 504 0 867

Forestlands treated to achieve healthier conditions 14,695 12,943 0 7,610 0 0

Miles of stream habitat restored or enhanced 0 0 0 3 0 5

Volume of timber sold (hundred cubic feet (CCF)) 222,369 178,824 240,000 123,784 240,000 240,000

Miles of landownership boundary line 

marked/maintained to standard 17 0 0 0 0 20

Volume of timber sold (million board feet (MMBF)) 119 89 120 64 120 120

Acres of hazardous fuels treated to reduce risk of 

catastrophic fire 3,495 924 0 116 0 200

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

hazardous fuels treated 1,059 851 0 821 0 700

Highest priority acres treated annually for noxious weeds 

and invasive plants on NFS lands 469 841 0 72 0 100

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

restored or improved with non-Wildlife dollars 0 0 0 454 0 400

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $70,000,000 in the Knutson-Vandenberg 

(K-V) program, a decrease of $4,400,000 from FY 2013. Funds are used to conduct sale area 

improvement work on timber sale areas on the national forests. Funds also are used within timber sale 

areas to implement reforestation following timber harvest as well as other sale area improvements 

approved in the related environmental analyses. The request fully funds the required sale area 

improvement work planned for accomplishment in FY 2014. 

As in FY 2013, $15,000,000 of the K-V program will be used for the K-V Regional Work program. This 

funding will reforest 2,500 acres. This work will also provide for vegetative treatments to meet forest 

health and resource restoration objectives. An estimated outcome from these vegetation treatments is 

240,000 CCF (120 MMBF) of timber volume sold. The volume outcome from this fund is also accounted 

for in the target for timber volume sold displayed in the Integrated Resource Restoration budget line item 

in FY 2013 and FY 2014.

Past Performance

Completion of K-V timber sale area projects is dependent upon the rate at which timber harvest units are 

harvested and accepted as completed. Factors include weather conditions that can slow down the rate of 

timber harvest and decisions made by the timber sale purchaser regarding which units are harvested in a 

given operating season.

In FY 2012, for the K-V Regional Work program, the agency treated 7,610 high priority acres to meet 

forest health objectives. The agency sold approximately 123,780 CCF (64 MMBF) of timber as a result of 

these treatments, or 51 percent of the projected level. Volume outcomes are highly variable depending on 

the treatment necessary to meet forest health objectives.
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-4

Authorities

The Act of June 9, 1930, (16 USC 576b) (P.L. 71-319, Ch. 416, June 9, 1930, 46 Stat. 527, as amended 

by P.L. 94-588, 1976, and P.L. 109-54, [title IV, Sec. 412], Aug. 2, 2005, 119 Stat. 551). The Act, known 

as the Knutson-Vandenberg Act, established a special fund to collect a portion of timber sale receipts to 

pay for reforesting the area from which the timber was cut. The Act was amended in 1976 to allow the 

Forest Service to use these funds for other sale area improvement activities. The FY 2006 Interior 

Appropriations Act amended this authority to allow for the expenditure of unused funds, not needed to 

accomplish work on the sale area, on other areas “...within the Forest Service region in which the timber 

sale occurred.” 

Program Description

Program Overview

The following programs are included in this fund:

Knutson-Vandenberg - This program uses funds derived from timber sale revenues which are 

used for sale area improvement work within the timber sale area. Planned resource project work 

is documented in the sale area improvement plans as determined by the project environmental 

analysis. The first priority for K-V program funds is reforestation of harvested areas. These funds 

can also be used to perform timber stand improvement and protection, and for the improvement 

of other resource values, including wildlife, soil, watershed, range, and recreation.

Knutson-Vandenberg Regional Work - The FY 2006 Interior Appropriations Act expanded the 

authority to allow for the expenditure of unused funds, not needed to accomplish work on the 

timber sale area, on another area “...within the Forest Service region in which the timber sale 

occurred.” Unused collections are generated when actual costs are less than planned costs. This 

authority is used to accomplish watershed restoration; wildlife habitat improvement; control of 

insect, disease, and noxious weeds; community protection activities; and the maintenance of 

forest roads. The work can be performed through the use of contracts, forest product sales, and 

cooperative agreements. If forest product sales are used to accomplish these objectives, K-V 

Regional Work program funds may be utilized for timber sale planning, preparation, 

administration, engineering support, and land line location.

Allocation and Integration

The Knutson-Vandenberg program funding is allocated to the regions based upon cash collected on 

timber sale areas and the planned resource projects identified on approved sale area improvement plans.

The Knutson-Vandenberg Regional Work program funds are allocated based upon cash availability, 

which reflects the unreimbursed emergency wildfire suppression transfers, and where additional funding 

would effectively achieve the purposes of the authority.

Partnerships

The K-V program has contributed to partnerships and productive working relationships with State fish 

and game agencies and organizations such as the Wild Turkey Federation, Quail Unlimited, and the 

Ruffed Grouse Society. These productive relationships and partnerships are critical in the identification 

and planning of some K-V funded projects. 
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-5

Cooperative Work, Other

Budget Line Item Cooperative Work, Other

 (dollars in thousands)

 FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Trust Funds

Cooperative Work, Other

New Budget Authority $36,971 $69,400 $72,700 $3,300

Program Level 38,997 74,000 78,000 4,000

Full-Time Equivalents (FTEs) 234 373 373 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $60,000,000 for the Cooperative Work

Agreement Based program and $18,000,000 for the Cooperative Work, Non-Agreement Based, a 

decrease of $4,000,000 from FY 2013. This level is consistent with anticipated collections from partners 

and cooperators. The collections allow the agency to leverage appropriated funds in order to deliver a 

variety of treatments and services which benefit Forest Service lands and other resource programs. 

Cooperative projects vary in size and scope each year depending on partner interest, objectives, and 

financial resources, and meet both agency and partner needs. Each agreement specifies the type of work 

to be done as well as the funds being donated. 

Past Performance

A variety of work activities is performed each year using funds deposited in advance by partners and 

cooperators, although no targets are set for these highly diverse activities. 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.

Authorities

The Act of June 30, 1914 (16 U.S.C. 498). This act authorizes the acceptance of contributions for 

cooperative work in forest investigations, protection, management, and improvement of the National 

Forest System.

The Granger-Thye Act of April 24, 1950 (16 U.S.C. 572). This act authorizes cooperation with other 

parties to perform work for permittees, agencies, organizations, and persons for the kinds of work that the 

Forest Service is authorized to do on lands of the United States.

The Roads and Trails Act of October 13, 1964 (16 U.S.C. 532-537). This act authorizes the construction 

of roads using cooperative financing from other agencies.
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-6

The Act of June 30, 1978 (16 U.S.C. 1643). This act authorizes the acceptance and use of donated funds 

for research activities.

The Act of October 10, 1978 (7 U.S.C. 2269). This act authorizes agencies within the U.S. Department of 

Agriculture to accept donations for non-research activities.

The Act of June 6, 1968 (16 U.S.C. 693d). This act authorizes cooperation in the operation of the Robert 

S. Kerr Memorial Arboretum and Nature Center.

The Act of July 4, 1968 (16 U.S.C. 471h). This act authorizes cooperation in the operation of the Cradle 

of Forestry.

Title 31, United States Code, section 1321 (31 U.S.C. 1321). Section 1321 of Title 31 of the United States 

Code authorizes Trust Funds.

Program Description

Program Overview

The Cooperative Work Trust Fund Other program is used to collect deposits received from partners and 

cooperators for protecting and improving resources of the National Forest System as authorized by 

cooperative agreements. The deposits are for a wide variety of activities that benefit and support programs 

in Forest and Rangeland Research, on National Forest System lands, and for other agency activities. 

Cooperative Work, Agreement Based - is a direct project-to-customer relationship, typically 

involving long-term liability on the part of the Forest Service to perform work for the contributor. 

For example, special use permits with collection provisions under the Granger-Thye fee offset 

where the Forest Service has a liability to perform work for the permit holder specially tied to the 

permit, however, these should typically be accompanied by a collection agreement.

Cooperative Work, Non-Agreement Based - when the terms of the authorizing instrument, such 

as a permit or sale contract allow for deposits from multiple contributors to be pooled and 

expended for the intended purpose. The majority of these pooled collections are not subject to 

refunds; in accordance with the provisions of the respective authorizing instrument.

Cooperative deposits are received from a vast assortment of local, regional, and national organizations 

and individuals; State and other public agencies; industrial associations; and other private sources. The 

deposits are made under a variety of cooperative instruments that specify the mutual benefits of the work. 

Cooperative deposits leverage appropriated funds to increase effectiveness and complement the objectives 

of Forest Service appropriated resource management programs and cooperative research projects. These 

programs and projects may involve any aspect of forestry and vary widely in scope and duration. Refer to 

the Special Exhibit titled Partnerships (Challenge-Cost Share Program & Accomplishments) for 

additional information on cooperative activities using Challenge Cost Share agreements.

Cooperative road maintenance deposits can be made by commercial users of the National Forest Road 

System in lieu of actually performing their commensurate share of road maintenance. These deposits are 

used in conjunction with the other road maintenance appropriations to provide maintenance of system 

roads by the Forest Service. 

Deposits for administering and protecting non-Federal land within or near the national forests can be 

made by owners of non-Federal lands that are intermingled with, or adjacent to, National Forest System 
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-7

lands. These deposits help landowners manage their lands in accordance with good forest management 

practices and provide for wildfire protection on State and private lands intermingled with Federal 

ownership.
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-8

Reforestation Trust Fund

Budget Line Item Reforestation Trust Fund

 (dollars in thousands)

 FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Trust Funds

Reforestation Trust Fund

New Budget Authority $30,000 $30,000 $30,000 0

Program Level 28,710 30,000 30,000 0

Full-Time Equivalents (FTEs) 183 188 188 0

FY 2010 FY 2011 FY 2012 FY 2012 FY 2013 FY 2014

Actual Actual Target Actual Target Target

Reforestation Trust Fund

Acres of forest vegetation established 91,928 69,795 65,000 108,457 66,810 96,300

Acres of forest vegetation improved 31,548 28,893 32,320 28,078 32,322 27,300

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $30,000,000, the same as FY 2013. Funds 

are used to analyze, prepare, and implement reforestation and forest vegetation improvement projects 

outside timber sale areas on National Forest System lands. The request will fund an estimate of 96,300 

acres of reforestation and 27,300 acres of forest vegetation improvement. The FY 2014 program 

continues to prioritize reforestation treatments arising from unplanned disturbance events such as

wildfires, insects, and diseases. In such places, timely reforestation is required to meet specified land 

management objectives. 

High priority is also given to reforestation treatments on lands where appropriated or Cooperative Work 

Knutson-Vandenberg (CWKV) funds are not available. Financing reforestation in these places ensures 

suitable lands are reforested within five years of harvest, as specified by the National Forest Management 

Act (NFMA).

Past Performance

In FY 2012 the agency accomplished 108,457 acres of reforestation and 28,078 acres of timber stand 

improvement. We accomplished 167 percent of the target for reforestation and accomplished 98 of the 

target for timber stand improvement. A significant component of the reforestation accomplishment in FY 

2012 was certification of natural regeneration without site preparation. The certification process is 

accomplished at lower unit cost than any other reforestation or timber stand improvement activities. This 

allows for implementation of timber stand improvement treatments, such as pre-commercial thinning on 

high priority areas to meet forest health, future stand development, and critical hazardous fuel reductions, 

while exceeding reforestation objectives.
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-9

Authorities

Recreational Boating Safety and Facilities Act of 1980, Title III, as amended (16 U.S.C. 1606a(d)) P.L. 

96-451. 

Program Description

Program Overview

A maximum of $30,000,000 is transferred to the Reforestation Trust Fund by the U.S. Treasury each 

fiscal year to reduce the backlog in reforestation and timber stand improvement work. Reforestation 

activities include site preparation for planting or seeding of the appropriate tree species, site preparation to 

encourage natural regeneration, and certification of acres naturally regenerated without the need of site 

preparation. In addition, as part of the reforestation activity, various treatments are applied to improve 

initial seedling survival rates. Benefits of reforestation include restoration of forest vegetation on areas 

impacted by: wildfire, floods, and hurricanes; increased carbon sequestration capacity; establishment of 

forest vegetation resilient to the effects of climate change; and improved habitat diversity for many 

wildlife species. More detailed information on related activities is presented in the Reforestation Special 

Exhibit. Timber stand improvement activities include release treatments through removal of competing 

vegetation; precommercial thinning to regulate stand density, composition and structure; pruning 

treatments that reduce ladder fuels, reducing the effects of pathogens (ex. white pine blister rust), and 

improving future wood product quality; and fertilization treatments to maintain and improve soil 

productivity and enhance rapid stand development to capture carbon storage capacity. Benefits of timber 

stand improvement include improved forest health and productivity; hazardous fuel reductions; improved 

forest resiliency to the impacts of drought, insects and disease; and diversified wildlife habitat. In 

addition, timber stand improvement generates woody biomass that is available to meet renewable energy 

needs.

Allocation and Integration

Funds are allocated based on reported acres of reforestation or timber stand improvement need, which 

include reforestation needs created by wildfires and other natural events, during the previous three years, 

and prior year accomplishments. Allocation decisions consider the combined accomplishment from the 

Integrated Resource Restoration program and the Reforestation Trust Fund program. These funds are used 

in conjunction with other vegetation management funds to provide an integrated, effective means of 

accomplishing forest vegetation establishment, maintenance, or improvement of forest health conditions 

under a variety of ecological and biological settings. 

Partnerships

Partnerships in reforestation are critical for program accomplishments. Several key reforestation partners 

are American Forests, The National Forest Foundation, the Arbor Day Foundation, the National Garden 

Clubs, Batesville Casket Company, and individual donations under the Plant-A-Tree program. 

Combined, these partners enable the accomplishment of about 20,000 acres of planting during the past 

five years. 
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-10

Land Between the Lakes Trust Fund

Budget Line Item Land Between the Lakes Trust Fund

 (dollars in thousands)

 FY 2012 

Enacted

FY 2013 

Annualized 

CR

FY 2014 

President's 

Budget

Program 

Changes

Trust Funds

Land Between the Lakes Trust Fund

New Budget Authority 0 0 0 0

Program Level $13 $25 $25 0

Full-Time Equivalents (FTEs) 0 0 0 0

FY 2014 Program Changes

The FY 2014 President’s Budget includes a program level of $25,000, the same level as FY 2013. Funds 

provide for public education and regional promotion in cooperation with development districts, chambers 

of commerce, and State and local governments. Land Between The Lakes (LBL) will continue to use 

funds to cover additional anticipated program elements of the Respect the Resource environmental 

education program. LBL is working to increase teacher recruitment, especially newer teachers, by 

showing teachers the programs offered as well as helping them to cultivate skills that can be used in the 

classrooms upon their return to their schools. In anticipation of the upcoming 50th anniversary of LBL in 

June 2013, planning efforts are beginning as an opportunity to promote the LBL Area. 

Past Performance

In FY 2012 the LBL Trust fund continued its support of a successful school grant program for 

environmental education by awarding grants to 29 school groups, and serving more than 2,380 students. 

The Fund continued to support the recycling campaign tied to LBL’s Respect the Resource program, 

utilizing displays and interpretive signage to educate LBL staff and visitors to facilities. The campaign 

also assisted with education about water use and plastics. 

Authority

Land Between the Lakes Protection Act of 1998 (16 U.S.C. 460lll-31) (P.L. 105-277, div. A, Sec. 101(e) 

[title V, Sec. 531], Oct. 21, 1998, 112 Stat. 2681-317). This Act establishes the LBL Trust fund. In 

accordance with Title V of the Act, responsibility for the LBL National Recreation Area transferred from 

the Tennessee Valley Authority (TVA) to the Secretary of Agriculture. 
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-11

Program Description

Program Overview

The LBL Protection Act called for LBL, an area in western Kentucky and Tennessee, to be managed as a 

unit of the National Forest System. Section 531 of the Act established a special interest-bearing fund 

known as the LBL Trust fund, to be available for public education, grants, and internships related to 

recreation, conservation, and multiple-use land management; and regional promotion in cooperation with 

development districts, chambers of commerce, and State and local governments. 

In accordance with the terms described in the Act, beginning September 30, 2000, TVA began depositing 

$1 million annually into the fund for five consecutive years, for a total of $5 million. The Forest Service 

has allowed the principal balance to grow and much of the interest to compound, and LBL has now begun 

to use the interest earned on the fund for the purposes intended by Congress.

Partnerships

LBL’s program of work provides the opportunity to partner with a number of regional and national 

conservation organizations, such as the National Wild Turkey Federation, Quail Unlimited, Rocky 

Mountain Elk Foundation, and Ducks Unlimited. Further, LBL’s volunteers, interns and apprentices, 

coordinated through the Friends of LBL partnership, log more than 124,000 hours of volunteer time on 

LBL projects annually.

 

 
FY 2014 Budget Justification USDA Forest Service

Trust Funds 13-12

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FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-1

14. Special Exhibits

Special Exhibits

Bark Beetle Infestation in the West ...................................................................................................14-2

Biomass and Bioenergy .....................................................................................................................14-5

Chief’s Reserve Fund.........................................................................................................................14-10

Conservation Education.....................................................................................................................14-12

Cost Pool (both Direct and Indirect) Totals.......................................................................................14-15

Deferred Maintenance and Asset Management .................................................................................14-25

Efficiencies and Cost Control Measures............................................................................................14-31

Equal Access to Justice Act ...............................................................................................................14-34

Facilities Maintenance Assessment ...................................................................................................14-38

Fire Transfers.....................................................................................................................................14-43

Knutson-Vandenberg (K-V) Financial Status....................................................................................14-45

National Scenic and Historic Trails...................................................................................................14-46

Office of General Counsel Reimbursement.......................................................................................14-54

Office of Tribal Relations..................................................................................................................14-55

Partnerships........................................................................................................................................14-56

Reforestation......................................................................................................................................14-68

Region, Station and Area Allocations................................................................................................14-72

Research and Development Threat Assessment Centers...................................................................14-84

Service First .......................................................................................................................................14-90

Stewardship Contracting....................................................................................................................14-93

Sustainable Operations.......................................................................................................................14-99

Unobligated Balances ........................................................................................................................14-102

USDA Working Capital Fund and Greenbook Charges....................................................................14-104

Wood Education and Resource Center ..............................................................................................14-118

Working Capital Fund – Forest Service.............................................................................................14-121

Working Capital Fund – Forest Service Fleet Management..............................................................14-122
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-2

Bark Beetle Infestation in the West

Bark Beetle Infestation in the West

Background

This exhibit is not required by Congressional direction but is included to report accomplishments for the 

Bark Beetle Infestation in the West program. 

Overview

Current information indicates that tree mortality caused by western bark beetles has declined significantly 

since 2011.

For the period of 2000-2010, over 43 million acres in the west had trees infested with bark beetles, of 

which nearly 32 million acres are National Forest System (NFS) lands. During the same period the 

infestation was growing at approximately 600,000 acres/year. In 2011, it was estimated that 100,000 

beetle-killed trees fell daily in southern Wyoming and northern Colorado, posing a serious health & safety 

threat to forest visitors, residents & employees7

.

On July 11, 2011, the Forest Service released the five-year Western Bark Beetle Strategy8

, which 

identified how the Forest Service was going to respond to the western bark beetle epidemic in Regions 1-

6. The strategy focuses on the future and the continued need to integrate and prioritize our response 

around three goals: human safety, forest recovery, and long-term forest resiliency. 

Agency Priorities and Actions

The Forest Service cannot treat every forest acre or mile of road that needs attention. Protecting human 

health and safety is the Forest Service priority. The decision to remove trees to mitigate the effects of the 

western bark beetle takes into consideration both the health and safety of the public, as well as that of 

Forest Service employees. Priorities include: treatment near roads, trails and campgrounds that 

experience high public use; treatment in areas adjacent to communities and homes for protection from 

fire; and coordination of larger-scale projects with other governmental agencies and partners that identify 

and communicate risks to public safety and leverage treatments across boundaries. Additional priorities 

include recovery and forest resiliency. Effective recovery improves watershed health, wildlife habitat and 

water quality and creates more resilient forests following infestation, as well as providing benefits above 

and beyond what would be expected if nature was allowed to take its course. Active forest management 

can increase the resiliency of forests not yet infested by bark beetles. Thinning young stands to decrease 

basal area and creating a diversity of age classes over time can mitigate potential catastrophic beetle 

losses. Species and age diversity are key elements of a forest’s resiliency to insects, diseases and wildfire. 

Managing for resiliency can reduce the environmental, health and safety impacts of beetle infestation.

 7

USDA Forest Service 2011 Western Bark Beetle Strategy pg. 4- http://www.fs.fed.us/publications/bark-beetle/bark-beetlestrategy-appendices.pdf

8 USDA Forest Service 2011Western Bark Beetle Strategy - http://www.fs.fed.us/publications/bark-beetle/bark-beetle-strategyappendices.pdf
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-3

Research and Development

The Forest Service is investing in knowledge and management tools needed to guide the above priorities. 

Research efforts will provide better strategies for mitigating tree hazards to people and community 

infrastructure; improve the ability of fuel and fire behavior models to map fire hazards due to bark 

beetles; explore pest management treatments for beetle control; and improve our understanding of the 

effects of increased vegetation diversity, thinning and disturbance agents on the population dynamics of 

various bark beetle species.

Tracking Performance

The Forest Service is tracking activities related to bark beetle recovery using existing performance 

measures. These include hazardous fuels acres treated, road and trail hazard acres mitigated, and 

recreation site hazards mitigated.

• NFS treated 265,647 acres (30,570 public safety; 34,104 reforested; 200,973 improve ecosystem 

resilience) and removed hazard trees along 618 miles of roads and 638 miles of trails. These 

treatments contributed to the Agency’s timber sold target for FY 12.

• The planned treated acres are in line with the accelerated restoration strategy which recognizes a 

20 percent increase in the number of acres being mechanically treated over three years (FY 2012-

2014). 

• In FY 2012, State and Private Forestry funded suppression and prevention projects on State and 

private lands (21,417 acres).

• Regions have invested additional resources in bark beetle strategy. Actual accomplishments 

exceed planned levels.

FY 2012 Funding and Accomplishments

In FY 2012, the Forest Service invested $114 million on bark beetle mitigation activities in Regions 1-6. 

Specific mitigation activities were funded under various programs including Recreation, Roads, Trails, 

Forest Health Management, Hazardous Fuels, Facilities Maintenance, Forest Products, Vegetation and 

Watershed Management, and Salvage Sale Fund. 

Unified FY 2012 Accomplishments

Performance Safety Recovery Resilience Total

Treated area (acres) 30,570 34,104 222,390 287,064

Volume sold (MMBF) 54.4 56.2 202.5 313.1

Bio-energy production (green tons) 49,810 6,195 150,472 206,477

Road maintenance (Miles) 618 0 0 618

Trail maintenance (Miles) 638 0 0 638

In FY 2012, Forest Service Research and Development developed and delivered 36 tools needed to 

reduce, minimize, or eliminate the impact of bark beetles across all landscapes and ownerships.

• A model correlating mountain pine beetle outbreaks with fuel availability and expected fire 

behavior in Colorado lodgepole pine forests
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-4

• A non-toxic, pheromone-based approach to prevent bark beetle attacks and protect whitebark and 

limber pines that is suitable for use in locations such as campgrounds, administrative sites, ski 

areas, and rust-resistant stands used for genetic conservation

• Process-based phenology models analyze eruptive insect population behavior and their response 

to changing climate conditions 

• Models of temperature and forest stand conditions, such as density and species composition, 

impacts on the likelihood of spruce beetle infestation over time

FY 2013 and FY 2014 Funding

The Forest Service will invest $101.5 million in FY 2013 and $101.5 million in FY 2014. In FY 2013, the 

target is to treat 279,279 acres, while in FY 2014 the target is 293,000 acres. This target increase reflects 

greater capacities derived from expanded collaborative restoration partnerships and increased efficiency 

in the agency’s National Environmental Policy Act analyses. The Western Bark Beetle Strategy includes 

reference to a target funding level projected through 2016, assuming appropriations in the out years 

remain equal to the FY 2010 level. Planned and actual expenditures may vary, however, with changes in 

the appropriations. In FY 2013 and FY 2014, specific mitigation activities will be funded by the national 

Integrated Resource Restoration program proposed for FY 2013 and FY 2014. The table below represents 

bark beetle related investments proposed by each region provided a funding level equivalent to FY 2010 

appropriation is maintained.

Bark Beetle Proposed Investments by Regions

(dollars in thousands)

Region FY 2013 & 2014

Estimate

Northern Region (R1) $24,000

Rocky Mountain Region (R2) 33,000

Southwestern Region (R3) 2,800

Intermountain Region (R4) 9,000

Pacific Southwest Region (R5) 18,400

Pacific Northwest Region (R6) 11,900

Research and Development 2,400

Total $101,500

Priority beetle-related work in FY 2013 and FY 2014 will continue to promote human safety, forest 

recovery, and ecological resilience as well as research and development. We will coordinate work with 

our partners, and will continue to maximize appropriated dollars to mitigate negative impacts from these 

unprecedented outbreaks.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-5

Biomass and Bioenergy

Biomass and Bioenergy

Background 

This exhibit is not required by Congressional direction but is included to report accomplishments for the 

Biomass and Bioenergy program. 

Overview

Our Nation’s forests are a strategic asset that can help achieve and enhance U.S. energy security, 

economic opportunity, environmental quality, and global competitiveness by providing raw material for 

the renewable bioenergy and biobased products sector. This sector is a growing source of green jobs in 

the U.S. economy that contributes to energy security and greenhouse gas emissions reduction. Woody 

biomass is a critical renewable resource and, through commercially available technology, can produce 

thermal and electrical energy. With additional research, it could also provide liquid/gaseous bioenergy 

and bioproducts. Biomass removals for energy and biobased products provide numerous benefits 

including improved forest health and productivity as well as economic growth opportunities. Sustainable 

development of a healthy bioenergy/biobased products sector is dependent on rapid research and 

development. 

Creating demand for forest biomass results in new revenue opportunities and also reduces fire risk to 

communities, restores healthy forested landscapes, and can provide new income streams for forest 

landowners. The following table shows Forest Service funding for Biomass and Bioenergy programs by 

budget line item.

Forest Service Funding for Biomass and Bioenergy

(dollars in thousands)

Program Budget Line Item FY 2012

Enacted

FY 2013

Annualized CR

FY 2014

Pres Bud

Biomass Production Forest Products $5,000 $5,000 -

Integrated Resource 

Restoration

- - 3,9001

Bioenergy & Biobased 

Products Research

Research and 

Development

12,950 12,950 12,950

Forest Biomass to Energy Hazardous Fuels - - -

State Wood to Energy 

Teams

Hazardous Fuels 150 - 2,500

Integrated Resource 

Restoration

- - 800

Woody Biomass Utilization

Grant Program

Hazardous Fuels 5,000 5,000 6,0002

Biomass Air Quality 

Improvement

Hazardous Fuels - - 1,000

Development of Financial 

Instruments for Wood 

Energy

Hazardous Fuels - - 1,000

Total $23,100 $22,950 $28,150

1

This includes funding for the national target of 3.1MM green tons of biomass and funding for wood supply assessments. 2

Administered by Regions/Area with support from the Forest Products Laboratory. 

*Shading indicates programs that are part of the USDA Wood to Energy Initiative. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-6

The shaded portion identifies programs that are part of the USDA Wood to Energy Initiative. The other 

participating USDA agencies provide the bulk of the funding for this initiative. Forest Service provides 

primarily subject matter expertise and technical assistance as well as some financial assistance.

FY 2014 Program 

Forest Service biomass and bioenergy programs encourage market development for woody biomass and 

also provide high quality data to inform business decisions. In FY 2014, the planned work has been 

restructured to reflect the USDA Wood to Energy Initiative, but takes into account indications from the 

direction of the next Farm Bill. We will work to develop sustainable management and utilization options, 

systems, and practices to effectively integrate biomass production into forest management activities. The 

following describes the work to be accomplished in each of the items listed in the table above:

• Biomass Production ($3,900,000) 

By expanding our capacity to provide a reliable and predictable source of woody biomass from 

National Forest System lands we help provide the supply of wood to bioenergy projects, along 

with private lands, other Federal and State agencies and tribes 

An example of connecting wood supply from national forests to energy projects is the wood fired 

power plant in Gypsum, Colorado, which uses dead trees from the bark beetle infestation. The 

$8.66 million ten year stewardship contract awarded to West Range Reclamation will remove 

bark beetle infested material from the White River National Forest to decrease wildfire risk. West 

Range Reclamation is also the contract supplier for the Eagle Valley Clean Energy power plant. 

Eagle Valley Clean Energy financed this 11.5 MW plant in part through a USDA Rural Utilities 

Service $40 million guaranteed loan. 

• Bioenergy & Biobased Products Research ($12,950,000) 

We continuously strive to provide more accurate national and regional feedstock availability 

projections; models to assist in bioenergy facility site selection; sustainable management systems, 

options, and practices for forest bioenergy feedstocks; logistics and decision support tools to 

improve treatment, harvest and transport efficiency; integrated models of land use patterns and 

bioenergy markets; and life cycle analysis and assessment tools for forest bioenergy/bioproducts 

supply chains

We will continue the development of wood-based biofuels, chemicals, and products that can 

substitute for petroleum-based materials, including developing biomass deconstruction science 

and technology; conversion technologies for lignocellulosic liquid fuels and drop-in fuels; and 

science and technology for manufacturing chemicals and other co-products from biomass-toenergy conversion

• USDA Wood to Energy Initiative

The USDA Wood to Energy Initiative is an interagency effort with the Rural Utilities Service, 

Rural Housing, Rural Business, and Farm Service Agency (FSA). This cooperative effort 

synergistically facilitates achievement of all the cooperating agencies goals. It accomplishes 

Rural Development’s goal of creating new renewable energy and at the same time creating a 

market for what was “waste wood,” which reduces the cost forest management. The Forest 

Service leverages its small amount of grant funds with Rural Development’s grant and loan 

programs by providing subject matter expertise and technical assistance in the early stages of 

project development, so the proponents can successfully compete for Rural Development’s loans 

and grants. The USDA Wood to Energy Initiative includes the following programs:
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-7

o State Wood to Energy Teams ($3,300,000)

The USDA Wood to Energy Initiative identified state level teams comprised of Federal 

and State agencies, non-profits and private sector experts providing technical, financial, 

and communication assistance in support of project development 

Communities and businesses often need support to reach the decision to convert to wood 

energy. The combination of $2.5 million from Hazardous Fuels and $800,000 from 

Integrated Resource Restoration proposed in FY 2014 will target this type of energy 

development. Cooperative Agreements will provide State, Tribal, and local governments 

with support to develop wood energy projects; through a variety of techniques such as, 

preliminary engineering assessments and workshops on financing, air quality, wood 

sourcing, etc.

o Woody Biomass Utilization Grant Program ($6,000,000)

Grants encourage the use of woody biomass removed from forest restoration activities 

such as wildfire hazardous fuels treatments, insect and disease mitigation, forest 

management due to catastrophic weather events, and/or thinning overstocked stands. 

Woody biomass shall be used in a facility that uses commercially proven technologies to 

produce thermal, electrical, or liquid/gaseous bioenergy. Grant funds will further the 

planning of such facilities by funding the engineering services necessary for final design, 

permitting and cost analysis. Grant amounts are up to $250,000. The program has been 

effective in leveraging other private and public sector financing for the development of 

wood energy projects, up to 100:1. The increase is proposed in anticipation of the 

increased demand as the State Wood to Energy teams are expanded.

o Biomass Air Quality Improvement ($1,000,000)

Wood Energy development is often hampered by existing poor air quality conditions 

resulting from to old woodstove technology. Improving air quality with better 

combustion technology creates opportunities to expand advanced wood combustion 

energy use, which can then result in more acres of forest thinning. In FY 2012, the Forest 

Service worked with the Environmental Protection Agency (EPA) to carry out a wood 

stove replacement program in Seeley Lake, Montana, to demonstrate the effectiveness of 

improved combustion technology. 

EPA has recently reduced the ambient air quality standard for particulate matter, which 

will result in more communities being classified as nonattainment. This funding will be 

used to carry out additional wood stove change out programs in partnership with EPA 

through a competitive grant process.

o Development of Financial Instruments for Wood Energy ($1,000,000)

Multiple opportunities exist to leverage private sector funds to expand the number of 

wood energy projects. Preliminary analysis shows significant opportunities exist to 

reduce risk for utility infrastructure (transmission lines, hydroelectric watersheds) as well 

as opportunities for utilities to reduce financial risk through demand side management. 

This funding would accomplish a detailed analysis and then share the results through 

various outreach mechanisms. The funds will also provide seed money to leverage 

partner funds to demonstrate these opportunities. The results will help validate financial 

tools, such as bundling projects for investors to reduce the risk and make larger, more 

attractive investments, for commercial and institutional facilities to convert to wood 

energy. The analysis results will help state utility regulators understand the financial and 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-8

infrastructure risks posed to their state’s power systems from wildfire, and the 

opportunities that wood energy provides for reducing these risks.

Past Performance 

The Forest Service has a long history of success in encouraging biomass utilization and research on 

bioenergy and biobased products. Since the 1970’s, significant accomplishments have been made in 

harvesting, genetics, silviculture, and conversion processes related to energy. Selected accomplishments 

include:

• Since 2010, Forest Service Research and Development (Forest Service R&D) scientists have 

produced in excess of 100 publications advancing science and technology in biomass production 

and management systems, biofuels and bioproducts, and decision support/policy analysis research

• Forest Service R&D managed a bioenergy and biobased products competitive grants program 

targeted at sustainable practices, improved tech transfer and biofuels conversion technologies. 

Between FY 2007 and FY 2012, 30 projects were funded for approximately $3.878 million, 

leveraging an additional $2.85 million in external partner support. These funds have resulted in 

over 35 peer-reviewed publications, numerous presentations and technology transfer 

opportunities, and several theses and dissertations.

• Forest Service R&D quantified the costs of innovative in-woods chipping equipment for use in 

electricity generation.

• Forest Service R&D developed Biomass Site Assessment Tool (BioSAT, 

http://www.biosat.net/index.html) with various partners. This web-based tool helps rapidly screen 

and optimally site biomass collection or processing centers by zip code for the 33 Eastern United 

States based on a variety of factors including available biomass and transportation networks.

• In FY 2012, State and Private Forestry awarded 20 biomass grant awards totaling almost $4

million to small business and community groups through the Woody Biomass Utilization Grant 

program. If these projects are developed, these grants will leverage over $475 million in private 

investment. These grants are a component of the Forest Services’ focus on bioenergy that will 

result in secure, sustainable renewable energy sources, and strong rural economies. Grant funding 

will help build capacity for woody biomass utilization in support of forest restoration activities. 

Woody biomass shall be used in a bioenergy facility that uses commercially proven technologies 

to produce thermal, electrical, or liquid/gaseous bioenergy. Grant funding will further the 

planning of such facilities by funding the engineering services necessary for final design and cost 

analysis that are critical to obtaining and leveraging funding.

• The Forest Service continues to work with USDA Rural Development (RD) and FSA on the 

USDA Wood to Energy Initiative. In FY 2012, in Phase II, twelve action items were completed 

and preparation of Phase III is underway. The next steps will include a Wood to Energy Summit, 

developing external partnerships, partnerships with other Federal departments and expanded 

engagement within all of the agencies within USDA. In FY 2012, USDA (including the Forest 

Service) invested $25 million in grants and $500 million in guaranteed loans, which leveraged 

over $1 billion in private investment. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-9

Allocation and Integration 

These Forest Service activities assist with providing the quantities of wood needed for bioenergy and 

bioproducts, maintaining and enhancing forest health and productivity, reducing costs, and increasing

efficiency. Biomass utilization helps offset treatment costs, can offset fossil fuel use, and promotes 

sustainable economies. These activities and outcomes can reduce investor risk and significantly contribute 

to U.S. energy security, environmental, and economic goals. With active management, America’s forests 

can sustainably supply woody biomass for fuels and high-value chemicals and continuing to meet U.S. 

energy, environmental, and economic goals. 

Partnerships

Forest Service R&D partners include Federal and State agencies, universities, industry, and 

nongovernmental and international organizations. The selected accomplishments noted above reflect a 

broad partnership base. Forest Service R&D works collaboratively across organizational, political, and 

institutional boundaries to accomplish research and deliver the needed outcomes.

The Forest Service is integrating biomass utilization efforts with other Federal partners (Department of 

the Interior, Department of Energy (DOE), EPA, Department of Defense, Department of Commerce, and 

USDA). The Agency also coordinates with communities, States, and Tribes. The Forest Service is 

working directly with DOE & General Services Administration on new wood energy facilities that will 

pilot both thermal and combined heat wood-to-energy technologies. In addition, USDA and DOE are 

working collaboratively on advanced biofuels. 

Through the USDA Wood to Energy Initiative, the Forest Service is coordinating with other USDA 

agencies. The Forest Service is working with USDA RD (through the Rural Utilities Service, Rural 

Business Service, and Rural Housing agencies) to improve technical services in project financing and 

power development. RD programs are designed to assist in biomass development through guaranteed 

loans, grant programs and project financing. The Forest Service is also working with FSA to help those 

involved in the wood energy sector access FSA programs. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-10

Chief’s Reserve Fund

Chief’s Reserve Fund

Background

This exhibit is required by P.L. 109-54, House Report 109-80, page 151, Administrative Provisions, 

which directed:

The Committee also requests that future budget justification displays on this fund include a 

complete presentation of spending from the fund during the most recent complete fiscal year, 

with a brief explanation why the uses were indeed important, unanticipated, and appropriate.

Overview

The Chief’s Reserve Fund (CRF) is managed by the Chief’s Office to fund emergencies or unforeseen 

events that occur throughout the fiscal year. This reserve fund allows units to respond quickly to 

unplanned urgent work without impacting the planned program of work. 

FY 2014 Program

At the Chief’s discretion, funds from this reserve are available for unplanned and/or emergency 

circumstances. Requests are evaluated against criteria including 1) the urgent nature of the event, 2) 

relevance of proposed use to priorities, 3) other funding source considerations, and 4) risks from being 

unfunded. Requests must be for work or projects exceeding $25,000. Initial fund mixes are determined at 

the beginning of the fiscal year, but may be remixed during the year to meet unanticipated needs. Funds 

are only spent in accordance with the purposes for which they were appropriated. Unused funds are 

distributed to the Regions, Stations, and Northeastern Area as carryover in the following year. 

FY 2012 to FY 2014 Funding

(dollars in thousands)

FY 2012 

Actual

FY 2013 

Annualized CR

FY 2014

Pres Bud

$6,650 $6,650 $6,650

Past Performance

In FY 2012, CRF funds were approved for some unplanned projects. Total program amounts assessed and 

obligated in FY 2012 are illustrated in the table below.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-11

FY 2012 Program Amounts

(dollars in thousands)

FY 2012 Program Approved

Forest & Rangeland Research $295

Forest Health Management-Cooperative Lands 133

Forest Health Management-Federal Lands 199

State Fire Assistance 150

Forest Stewardship 83

Urban & Community Forestry 67

Land Management Planning 266

Inventory & Monitoring 532

Recreation, Heritage, & Wilderness 598

Wildlife & Fisheries Habitat Management 332

Grazing Management 133

Forest Products 598

Minerals & Geology Management 166

Vegetation & Watershed Management 599

Landownership Management 266

Law Enforcement Operations 138

Hazardous Fuels 266

Preparedness 503

Suppression 428

Facilities 399

Roads 266

Trails 166

Infrastructure Improvement 67

Total $6,650

Some projects funded by the Chief’s Reserve Fund in FY 2012 include: 

Winter Storm Repairs ($399,000) 

The CRF provided needed facilities maintenance funding to Region 10, Alaska to assist with recreation 

facility repair due to winter storm damage and also to Region 2, Colorado for repairs to a Gunnison 

National Forest office.

Inventory and Monitoring ($532,000) 

Region 6, Oregon received $150,000 in Inventory and Monitoring funds for an air monitoring program, 

watershed assessment, and climate change monitoring and evaluation; Region 2, Colorado received 

$382,000 for regional restoration projects.

Recreation, Heritage and Wilderness ($578,500)

Several regional projects were assisted with these funds. Region 9 for the Potomac Highland Restoration 

Project; Region 8 for assistance with the annual Rainbow Gathering; Region 6 for their Accessibility 

Package; and Region 2 for the Forest Service Special Places Initiative.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-12

Conservation Education

Conservation Education

Background

This exhibit is not required by Congressional direction, but is included to provide information about this 

multi-funded program.

Overview

The Forest Service connects an average of more than five million people each year with nature and public 

lands through its Conservation Education (CE) programs. CE teaches people about natural resource 

management and gives them tools to make informed decisions and take action to sustain natural and 

cultural resources. CE efforts provide a full range of educational experiences, including awareness and 

knowledge-building, engagement and action-based programs for youth (pre-kindergarten through 12th

grade) and their educators in classroom and non-formal settings. 

CE programs are delivered by a network of land managers, scientists, educators, and interpreters 

representing all branches of the agency, and are supported by extensive partnerships with 

nongovernmental organizations, State, Tribal, and local agencies, and educational institutions. Learning 

experiences include: outdoor recreation and interpretive activities; formal school-based programs that 

adhere to national and local standards of learning; capacity building for educators; and service-learning 

projects. Some of the CE program focus areas include: education about climate change; reconnecting 

children with nature; and preparing youth for jobs in the green economy.

FY 2014 Program

In FY 2014, CE will continue to use the National Guidelines for Excellence as a guide to develop new 

programs and materials, and to evaluate existing agency programs and materials. We will continue 

working through trusted professionals to connect children to nature and provide experiential learning 

opportunities. CE will continue to: 

• Expand the Discover the Forest Campaign to include targeted outreach to the African-American 

community. Activities currently in development include television, radio, outdoor, and Web 

public service advertisements

• Support the agency’s climate change emphasis area, specifically through climate change 

educational materials, distance learning programs and “Green Schools!” activities

• Contribute to the general body of knowledge regarding the field of environmental education by 

finalizing and distributing an updated Environmental Literacy in America report

• Build on the frameworks established at Children’s Forests to continue to expand the Children and 

Nature Initiative, training pediatric health workers to write prescriptions for outdoor experiences 

for their patients

• Foster first hand experiences in nature through innovative uses of technology

• Continue to expand outreach to underserved populations through many other programs

CE will also develop an invasive species information guide for school children, support teacher training 

through the Forest for Every Classroom program, continue to produce and distribute Natural Inquirer and 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-13

Investigator science journals for students, encourage the expanded adoption of the new revised Junior 

Snow Ranger program, continue to support the participation of underserved populations in environmental 

education events such as Environmentors and the Envirothon, and continue our support for large event 

days such as National Public Lands Day.

Past Performance 

In FY 2012, a “Discover the Forest” campaign in Spanish, “Descubre el Bosque,” was started to reach 

Latino communities in urban and rural settings. A new set of Public Service Announcements (PSAs) was 

launched as a result of a private-public partnership with NBC Universal and the AD Council. These assets 

are in addition to the campaign’s current parent-targeted PSAs which encourage families to “un-plug” and 

experience the forest, a place where they can re-connect with each other.

From FY 2008 through FY 2012, the combined English-Spanish campaign Web sites have received a 

total of 4,177,958 visits. And since the initial launch in June 2009, the campaign has received over $97 

million in donated media support.

In FY 2012, over six million people participated in environmental education, recreation, and related 

literacy programs on public lands and waters to increase understanding of the natural world and its 

benefits to society. This includes the “More Kids in the Woods” cost share program, which provided 

opportunities for outdoor learning experiences for an estimated 55,000 children and the Children’s Forest 

program which reached an estimated 230,000 children. Activities included a Natural and Cultural 

Resources Field Camp for tribal high school students that developed a state of the art outdoor education 

program to reconnect students to their natural, physical, and cultural heritage. Each student participated in 

an integrated outdoor and laboratory experience during the course of the academic year, and in an 

intensive week long field camp atmosphere that included the participation of tribal elders.

CE and its partners also fund many other new and ongoing projects, including:

• “A Forest for Every Classroom” Teacher Training Initiative, an intensive teacher training model 

that emphasizes place-based education and service-learning

• The Natural Inquirer journals where scientists share their research with students

• Smokey Bear and Woodsy Owl, America’s conservation icons whose messages continue to 

resonate with youth

• The GreenSchools! program, designed to raise environmental literacy

• The Envirothon, which develops an understanding of the principles and practices of natural 

resource management and ecology in young people through practice dealing with complex 

resource management decisions

• Hands on the Land, a national network of field classrooms that connects students, teachers, and 

parents to their public lands and waterways

Allocation and Integration 

CE is one of the most broadly integrated programs in the agency and operates with an “All Lands” 

approach. The CE program in the national office supports field offices in the implementation of agency 

and Department priorities related to conservation education. At the national forest and 

Region/Station/Area levels, conservation education efforts are funded through leveraged investments of

over a dozen agency programs including: Recreation, Heritage, and Wilderness; Watershed, Fish, 

Wildlife, Air, and Rare Plants; Forest and Rangeland Research; Forest Health Management; Urban and 

Community Forestry; Hazardous Fuels; and Wildfire Prevention. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-14

Partnerships

Partnerships are critical to the success of CE in the Forest Service. More than 2,500 individual 

organizations at the national, State, Tribal and local levels help to ensure that our Conservation Education 

efforts meet local needs through both financial and in-kind contributions that leverage the agency’s 

investment of resources each year. The Forest Service creates and nurtures partnerships nationwide that

provide technical assistance to our vast network of providers across the agency and improve our outreach 

to diverse, underserved, and urban populations.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-15

Cost Pool (both Direct and Indirect) Totals

Cost Pool (both Direct and Indirect) Totals

Background

This exhibit is required by P.L. 107-63, page 39, as follows:

The Forest Service shall fund indirect expenses, that is expenses not directly related to specific 

programs or to the accomplishment of specific work on-the-ground, from any funds available to 

the Forest Service: Provided, That the Forest Service shall implement and adhere to the 

definitions of indirect expenditures established pursuant to Public Law 105–277 on a nationwide 

basis without flexibility for modification by any organizational level except the Washington 

Office, and when changed by the Washington Office, such changes in definition shall be reported 

in budget requests submitted by the Forest Service: Provided further, That the Forest Service shall 

provide in all future budget justifications, planned indirect expenditures in accordance with the 

definitions, summarized and displayed to the Regional, Station, Area, and detached unit office 

level. The justification shall display the estimated source and amount of indirect expenditures, by 

expanded budget line item, of funds in the agency’s annual budget justification. The display shall 

include appropriated funds and the Knutson-Vandenberg, Brush Disposal, Cooperative WorkOther, and Salvage Sale funds. Changes between estimated and actual indirect expenditures shall 

be reported in subsequent budget justifications.

Overview

Cost pool expenses support every Forest Service employee at every level of the agency. Cost pools are a 

financial management tool. The purpose is to allocate funding for items directly related to delivery of 

Forest Service programs that are not directly related to a specific program. Cost pools fund line officers’ 

salaries (e.g. District Rangers) and expenses, administrative support, information technology, human 

resources, computers, telephones, rent, utilities, and other common services.

The Forest Service receives appropriations by program and does not receive a general administration or 

management appropriation. Cost pools are not a source for funding, but are a mechanism to charge 

expenses that cannot reasonably be charged directly to a single program. The cost pools are designed to 

maintain accurate reporting of the true costs by program, by having each program contribute into the cost 

pools an amount based on its share of indirect, support, and common services charges. 

Appropriate application of cost pools allows the Forest Service to accurately reflect the cost of doing 

business in compliance with the federal financial reporting standards articulated by the Federal 

Accounting Standards Advisory Board (FASAB). Accurately reflecting the true cost of doing business 

improves the government's ability to account for public funds, provides information for evaluating agency 

costs, accomplishments, and impacts of accomplishments, and provides a basis to assess agency financial 

systems and controls.

Direct and Indirect Costs

Forest Service definitions of direct and indirect costs are consistent with FASAB Statement #4. The 

agency published the definitions in the FY 2000 Budget Justification. The Department of Agriculture 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-16

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.

Indirect Costs

Indirect costs are costs that are necessary for the operation of the Forest Service as an organization but are 

not traceable to any specific outputs. These include Legislative and Public Communication, Ongoing 

Business Services, and Common Services (cost pools 3, 4, and the indirect portion of cost pool 5).

Cost Pools 

For management and tracking purposes, categories of similar expenses are combined into five cost pools. 

Cost pools 1 and 2 track those expenses defined as direct costs, cost pools 3 and 4 include those expenses 

classified as indirect costs, and cost pool 5 includes both indirect and direct components. 

The terms cost pool 6 and cost pool 7 have been previously used to describe the pooled costs for Office of 

Workers’ Compensation Programs (OWCP) and Unemployment Compensation Insurance (UCI) 

respectively. Please see the section on Other Pooled Costs below for more details.

There is no cost pool 8.

Cost pool 9 collects facilities maintenance assessment funds and assesses Forest Service programs 

separately from pools 1 through 5.

In addition to being a cost allocation mechanism, cost pools also 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 of the organization. A 

description of these pools and their associated costs are listed below. 

Cost Pool 1 - General Management

This cost pool includes salaries, associated employee benefits, and related costs for general line managers 

and officers (including secretarial staff) at the Washington Office (WO), Regions/Stations/Area (R/S/A), 

national forest, and ranger district levels. In addition, union officials, civil rights positions, and safety 

officers are included in Cost Pool 1 to show their direct connection and link to line management. Related 

costs include uniforms, travel, transfer of station, vehicles, cell phones, specialized supplies and 

equipment, and discretionary expenses associated with these positions. Cost Pool 1 consists entirely of 

direct costs. It is based on direct full-time equivalents (FTEs) of total employees within the cost pool.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-17

Cost Pool 2 - Direct Project Approved Activities

This cost pool includes salaries, benefits, and related costs for a limited set of nationally designated crosscutting projects, currently limited to Conservation Education, Tribal Relations, Freedom of Information 

Act, Resource Advisory Council administration, and Grey Towers. Cost Pool 2 consists entirely of direct 

costs. It is based on 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, specialized supplies and 

equipment, and discretionary expenses associated with these positions. Cost Pool 3 consists entirely of

indirect costs. It is based on 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. Cost Pool 4 is consists entirely of indirect costs. It is based on FTEs of total employees 

within the cost pool.

Cost Pool 5 - Common Services

This cost pool generally includes rent, utilities, communications, equipment, supplies, radios, phones, and 

corporate computer related expenses for all employees. Cost Pool 5 consists of both indirect and direct 

pool costs. The distribution of costs in pool 5 is based on FTEs for permanent employees only; the 

division between direct and indirect costs is based on the ratio of direct to indirect employees. For 

example, if the common services for a unit with 100 employees, consisting of 80 direct and 20 indirect, is 

$500,000, then $400,000 of these costs would be direct and $100,000 would be indirect.

Cost Pool 9 - Facilities Maintenance Assessment Fund

This cost pool contains the Facilities Maintenance Assessment Fund. This is a direct cost pool used to 

allocate facilities maintenance work funded by assessing each R/S/A a charge based on gross square foot 

of facilities. These charges are then allocated by BLI using the same basis as Cost Pool 5 in compliance 

with the FY 2006 Appropriations Act and accompanying conference report language. Refer to the 

Facilities Maintenance Assessment Special Exhibit for more information.

Other Pooled Costs

The Office of Workers’ Compensation Programs (OWCP) and Unemployment Compensation Insurance 

(UCI) do not assess Forest Service programs. These are for required payments and unlike cost pools 1-5 

and 9, are charged directly to program and then pooled to make required payments out of a single BLI. 

These pooled costs are used as methods of payment, and are not mechanisms to allocate costs.

Both OWCP and UCI costs are charged directly to the program in which they were incurred. OWCP costs 

are distributed based on the work being performed at the time of the injury and UCI costs are distributed 

based on the work performed while employed. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-18

Cost Allocations 

The Forest Service allocates indirect and direct pool costs among programs through the cost allocation 

process, which assesses each Forest Service budget line item a certain percentage of total cost pool 

expenses. Cost pools are generally allocated using direct labor hours (DLH). DLH are converted to FTEs; 

1 FTE = 2,096 DLHs (the DLH number varies depending on the year). For cost pools 1 to 4, DLHs are 

used for all employees charging to direct costs (all employees includes those holding permanent, 

temporary, intermittent, and other types of positions). 

This approach for Cost Pools 1 to 4 is used because these costs generally reflect the entire organization. 

For Cost Pools 5 and 9, only permanent 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 OWCP and UCI are based on actual past cases. Because of their nature, the FTEs 

associated with supplemental, transfer, and emergency funds are dropped from the cost pools and are not 

used in calculating indirect costs.

The Forest Service uses cost allocation to charge expenses back to a single budget line item. Cost 

allocation is used for expenses that:

• Are indirect (e.g., Cost Pools 3 and 4)

• Simultaneously support multiple programs in a way that cannot be efficiently charged directly to 

a budget line item (BLI) (e.g., Cost Pools 1 and 2) 

• Involve multiple transactions that need to be summarized for payment purposes (e.g., OWCP and 

UCI)

• Are otherwise directed by congressional or administrative action (e.g., Cost Pool 9)

Cost allocation compliance review is performed to determine the consistency in which the field 

organization and the WO headquarters implement cost pool policy and to identify areas for improvement. 

The agency uses the information gathered from the reviews to improve the cost allocation process and 

update cost allocation directions for the following fiscal year.

FY 2014 Program Changes 

The FY 2014 President’s Budget proposes approximately $957 million for Forest Service cost pool 

expenses, a decrease of $40 million from the FY 2013 President’s Budget. In FY 2013, cost pools were 

reduced by $60 million from the FY 2012 cost pool total. This reduction has been achieved through a 

variety of measures to gain efficiencies and control costs. Refer to the Efficiencies and Cost Control 

Measures Special Exhibit for more detail. 

FY 2012 to FY 2014 Cost Pool (1-5) Assessments

(dollars in thousands)

Budget Line Item

FY 2012

Enacted

FY 2013

Annualized CR

FY 2014

Pres Bud

Cost Pool Assessment $1,057,000 $997,000 $957,000

Percent of Total Forest Service Budget 18.7% 16.6% 17.1%
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-19

Forest Service Cost Pool Exhibits

In FY 2014, the Forest Service is estimating that cost pools will be $957 million, representing 17.1 

percent of the FY 2014 President’s Budget. For an estimate of FY 2014 Total Cost Pool 1-5 Assessments 

by Budget Line Item, see Exhibit 1.

In FY 2012, the Forest Service estimated that $1,057,000,000 would be charged to the cost pools, 

representing 18.7 percent of the Enacted Budget. Due to efficiency measures, savings were achieved and 

actual cost pools were $1,028,728,000, representing 18.2 percent of the Enacted Budget. In FY 2013, cost 

pools are estimated to decrease to 16.6 percent of the President’s Budget. For a comparison of FY 2012 

Planned and Actual Cost Pool 1-5 Assessments and FY 2013 Estimated Cost Pool 1-5 Assessments by 

Budget Line Item, see Exhibit 2.

Actual cost pool expenditures decreased from $1,048,896,000 in FY 2011 to $1,028,728,000 in FY 2012. 

For a display of Cost Pool Actuals for FY 2011 and FY 2012 by Pool and Region, see Exhibit 3.

Exhibit 1

Estimate of FY 2014 Total Cost Pool 1-5 Assessments by Budget Line Item 

(dollars in thousands) 

Budget Line Item Amount

Fund Prog 

FY 2014 

President's 

Budget

Estimated 

Total Cost 

Pool 

Assessments 

by BLI

Cost Pool 

Assessments 

as Percent 

of BLI

Assessed 

as 

Percent 

of Total 

Cost 

Pools

Forest and Rangeland Research FRRE $308,650 $45,936 14.9% 4.8%

Total Research $308,650 $45,936 14.9% 4.8%

Forest Health Fed Lands SPFH $58,598 $15,312 26.1% 1.6%

Forest Health Coop Lands SPCH 45,576 2,871 6.3% 0.3%

Forest Stewardship SPST 22,355 1,914 8.6% 0.2%

Forest Legacy LGCY 60,000 957 1.6% 0.1%

Urban and Community Forestry SPUF 25,289 1,914 7.6% 0.2%

International Forestry SPIF 3,639 957 26.3% 0.1%

Total State and Private Forestry $215,457 $23,925 11.1% 2.5%

Integrated Resource Restoration NFRR $752,000 $178,002 23.7% 18.6%

Collaborative Forest Landscape 

Restoration CFLN 39,820 5,742 14.4% 0.6%

Restoration Partnerships 10,000 0.0% 0.0%

Land Management Planning, 

Assessment, and Monitoring

NFPN/ 

NFIM

183,758 45,936 25.0% 4.8%

Recreation, Heritage, and 

Wilderness NFRW 259,000 88,044 34.0% 9.2%

Grazing Management NFRG 35,380 14,355 40.6% 1.5%

Minerals and Geology Management NFMG 70,562 19,140 27.1% 2.0%
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-20

Estimate of FY 2014 Total Cost Pool 1-5 Assessments by Budget Line Item 

(dollars in thousands) 

Budget Line Item Amount

Fund Prog 

FY 2014 

President's 

Budget

Estimated 

Total Cost 

Pool 

Assessments 

by BLI

Cost Pool 

Assessments 

as Percent 

of BLI

Assessed 

as 

Percent 

of Total 

Cost 

Pools

Landownership Management NFLM 70,643 24,882 35.2% 2.6%

Law Enforcement Operations NFLE 126,050 21,054 16.7% 2.2%

Total National Forest System $1,547,213 $397,155 25.7% 41.5%

Preparedness WFPR $1,052,000 $233,508 22.2% 24.4%

Hazardous Fuels WFHF 200,000 72,732 36.4% 7.6%

Suppression WFSU 678,000 58,377 8.6% 6.1%

State Fire Assistance SPCF 69,420 1,914 2.8% 0.2%

Total Wildland Fire $1,999,420 $366,531 18.3% 38.3%

Facilities CMFC $93,463 $25,839 27.6% 2.7%

Roads CMRD 144,364 41,151 28.5% 4.3%

Trails CMTL 81,985 25,839 31.5% 2.7%

Total Capital Improvement & 

Maintenance $319,812 $92,829 29.0% 9.7%

Land Acquisition LALW $57,934 $2,871 5.0% 0.3%

Total Land Acquisition $57,934 $2,871 5.0% 0.3%

Brush Disposal BDBD $8,600 $1,914 22.3% 0.2%

Timber Salvage Sales SSSS 19,300 7,656 39.7% 0.8%

Cooperative Work, KnutsonVandenburg Trust Fund CWKV 55,000 11,484 20.9% 1.2%

Reforestation Trust Fund RTRT 30,000 5,742 19.1% 0.6%

Recreation Fees, Forest Service FDRF 75,870 957 1.3% 0.1%

Total Permanent and Trust 

Funds $188,770 $27,753 14.7% 2.9%

Total Assessed BLI's $4,637,256 $957,000 20.6% 100.0%

TOTAL FOREST SERVICE $5,600,288 $957,000 17.1% 100.0%

Only includes appropriations (BLIs) which will be assessed for cost pools 1-5 in FY 2014. 

In FY 2014, Deferred Maintenance (CMII) will no longer be assessed for cost pools 1-5 and therefore does not appear in the 

above table.

Supplemental, emergency, transfer, or Payments to States funds are not assessed for cost pools 1-5.

Restoration partnerships will not be assessed for cost pools in FY 2014. It will be assessed for cost pools in FY 2015 after 

program and staff years are established.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-21

Exhibit 2

Comparison of FY 2012 Planned and Actual Total Cost Pool Assessments 1-5 and 

FY 2013 Estimated Cost Pool 1-5 Assessments by Budget Line Item 

(dollars in thousands) 

Budget Line Item FY 2012 Planned FY 2012 Actual FY 2013 Estimated

Fund Prog 

FY 2012 

Enacted 

Budget

FY 2012 

Estimated 

Cost Pools

1-5

Estimated 

Cost 

Pools as 

Percent 

of BLI

FY 2012 

Actual 

Cost Pools 

1-5

Actual 

Cost 

Pools as 

a 

Percent 

of BLI

Percent 

of Total 

FS Cost 

Pools

1-5

FY 2013 

Annualized 

CR

FY 2013 

Estimated 

Cost 

Pools

1-5

Cost 

Pools as 

a Percent 

of BLI

Percent 

of Total 

FS Cost 

Pools

1-5

Forest and Rangeland 

Research

FRRE $295,300 $43,701 14.8% $42,532 14.4% 4.1% $297,107 $47,856 16.1% 4.8%

Total Research $295,300 $43,701 14.8% $42,532 14.4% 4.1% $297,107 $47,856 16.1% 4.8%

Forest Health Fed Lands SPFH $47,425 $11,120 23.4% $10,823 22.8% 1.1% $47,715 $15,952 33.4% 1.6%

Forest Health Coop Lands SPCH 39,999 1,110 2.8% 1,080 2.7% 0.1% 40,244 2,991 7.4% 0.3%

State Fire Assistance SPCF 30,488 1,661 5.4% 1,617 5.3% 0.2% 0 0 0.0% 0.0%

Forest Stewardship SPST 28,814 1,931 6.7% 1,879 6.5% 0.2% 28,990 1,994 6.9% 0.2%

Forest Legacy LGCY 53,303 874 1.6% 851 1.6% 0.0% 53,629 997 1.9% 0.1%

Urban and Community 

Forestry

SPUF 31,327 1,499 4.8% 1,459 4.7% 0.1% 31,519 1,994 6.3% 0.2%

Forest Resources 

Information and Analysis

SPIA 4,917 554 11.3% 539 11.0% 0.1% 0 0 0.0% 0.0%

International Forestry SPIF 7,987 725 9.1% 706 8.8% 0.1% 8,036 997 12.4% 0.1%

Total State & Priv Forestry $244,260 $19,474 8.0% $18,954 7.8% 1.8% $210,133 $24,925 11.9% 2.5%

Integrated Resource 

Restoration

NFRR $0 $0 0.0% $0 0.0% 0.0% $126,151 $24,925 19.8% 2.5%

Collaborative Forest 

Landscape Restoration

CFLN 39,936 6,273 15.7% 6,105 15.3% 0.6% 40,180 5,982 14.9% 0.6%

Land Management 

Planning, Assessment, 

and Monitoring

NFPN/ 

NFIM

201,657 46,626 23.1% 45,379 22.5% 4.4% 202,891 47,856 23.6% 4.8%

Recreation, Heritage, and 

Wilderness

NFRW 281,176 97,120 34.5% 94,522 33.6% 9.2% 282,897 91,724 32.4% 9.2%

Wildlife and Fisheries 

Habitat Management

NFWF 140,036 39,629 28.3% 38,569 27.5% 3.7% 115,228 29,910 26.0% 3.0%

Grazing Management NFRG 55,356 15,456 27.9% 15,043 27.2% 1.5% 55,695 14,955 26.9% 1.5%
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-22

Comparison of FY 2012 Planned and Actual Total Cost Pool Assessments 1-5 and 

FY 2013 Estimated Cost Pool 1-5 Assessments by Budget Line Item 

(dollars in thousands) 

Budget Line Item FY 2012 Planned FY 2012 Actual FY 2013 Estimated

Fund Prog 

FY 2012 

Enacted 

Budget

FY 2012 

Estimated 

Cost Pools

1-5

Estimated 

Cost 

Pools as 

Percent 

of BLI

FY 2012 

Actual 

Cost Pools 

1-5

Actual 

Cost 

Pools as 

a 

Percent 

of BLI

Percent 

of Total 

FS Cost 

Pools

1-5

FY 2013 

Annualized 

CR

FY 2013 

Estimated 

Cost 

Pools

1-5

Cost 

Pools as 

a Percent 

of BLI

Percent 

of Total 

FS Cost 

Pools

1-5

Forest Products NFTM 335,511 110,495 32.9% 107,540 32.1% 10.5% 292,779 91,724 31.3% 9.2%

Vegetation and 

Watershed Management

NFVW 184,046 52,264 28.4% 50,866 27.6% 4.9% 142,530 33,898 23.8% 3.4%

Minerals and Geology 

Management

NFMG 83,426 21,218 25.4% 20,651 24.8% 2.0% 83,937 19,940 23.8% 2.0%

Landownership 

Management

NFLM 85,738 27,371 31.9% 26,639 31.1% 2.6% 86,262 25,922 30.1% 2.6%

Law Enforcement 

Operations

NFLE 143,829 20,513 14.3% 19,964 13.9% 1.9% 144,709 21,934 15.2% 2.2%

Total Nat. Forest 

System $1,550,711 $436,965 28.2% $425,278 27.4% 41.3% $1,573,259 $408,770 26.0% 41.0%

Preparedness WFPR $1,004,442 $265,168 26.4% $258,076 25.7% 25.1% $1,004,442 $243,268 24.2% 24.4%

Suppression WFSU 537,858 47,283 8.8% 46,018 8.6% 4.5% 534,781 60,817 11.4% 6.1%

Hazardous Fuels 

Management

WFHF 317,076 88,535 27.9% 86,167 27.2% 8.4% 317,076 75,772 23.9% 7.6%

Forest and Rangeland 

Res.

FRF2 21,699 2,500 11.5% 2,433 11.2% 0.2% 21,699 0 0.0% 0.0%

Forest Health Fed Lands SPS4 15,958 4,617 28.9% 4,493 28.2% 0.4% 0 0 0.0% 0.0%

Forest Health Coop Lands SPS5 8,353 953 11.4% 927 11.1% 0.1% 0 0 0.0% 0.0%

State Fire Assistance SPS2 55,475 0 0.0% 0 0.0% 0.0% 55,475 1,994 3.6% 0.2%

Total Wildland Fire $1,960,861 $409,056 20.9% $398,114 20.3% 38.7% $1,933,473 $381,851 19.7% 38.3%

Facilities CMFC $75,664 $23,907 31.6% $23,268 30.8% 2.3% $76,127 $26,919 35.4% 2.7%

Roads CMRD 182,525 53,743 29.4% 52,305 28.7% 5.1% 183,643 42,871 23.3% 4.3%

Trails CMTL 81,851 25,054 30.6% 24,384 29.8% 2.4% 82,352 26,919 32.7% 2.7%

Legacy Roads and Trails CMLG 44,928 9,676 21.5% 9,417 21.0% 0.9% 32,144 3,988 12.4% 0.4%

Deferred Maintenance CMII 9,121 471 5.2% 458 5.0% 0.0% 9,177 0 0.0% 0.0%

Total Capital Improve & Maint $394,089 $112,851 28.6% $109,832 27.9% 10.7% $383,443 $100,697 26.3% 10.1%
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-23

Comparison of FY 2012 Planned and Actual Total Cost Pool Assessments 1-5 and 

FY 2013 Estimated Cost Pool 1-5 Assessments by Budget Line Item 

(dollars in thousands) 

Budget Line Item FY 2012 Planned FY 2012 Actual FY 2013 Estimated

Fund Prog 

FY 2012 

Enacted 

Budget

FY 2012 

Estimated 

Cost Pools

1-5

Estimated 

Cost 

Pools as 

Percent 

of BLI

FY 2012 

Actual 

Cost Pools 

1-5

Actual 

Cost 

Pools as 

a 

Percent 

of BLI

Percent 

of Total 

FS Cost 

Pools

1-5

FY 2013 

Annualized 

CR

FY 2013 

Estimated 

Cost 

Pools

1-5

Cost 

Pools as 

a Percent 

of BLI

Percent 

of Total 

FS Cost 

Pools

1-5

Land Acquisition LALW $52,521 $1,507 2.9% $1,467 2.8% 0.1% $52,842 $2,991 5.7% 0.3%

Total Land Acquisition $52,521 $1,507 2.9% $1,467 2.8% 0.1% $52,842 $2,991 5.7% 0.3%

Management of NF Lands 

for Subsistence Uses

SMSM $2,573 $692 26.9% $673 26.2% 0.1% 2,589 997 38.5% 0.1%

Total Other Appropriations $2,573 $692 26.9% $673 26.2% 0.1% $2,589 $997 38.5% 0.1%

Brush Disposal BDBD $6,629 $2,031 30.6% $1,977 29.8% 0.2% $8,600 $1,994 23.2% 0.2%

Timber Salvage Sales SSSS 22,610 8,172 36.1% 7,953 35.2% 0.8% 21,400 7,976 37.3% 0.8%

Cooperative Work, 

Knutson-Vandenburg 

Trust Fund

CWKV 209,563 13,996 6.7% 13,622 6.5% 1.3% 59,400 11,964 20.1% 1.2%

Reforestation Trust Fund RTRT 28,710 7,669 26.7% 7,464 26.0% 0.7% 30,000 5,982 19.9% 0.6%

Recreation Fees, Forest 

Service

FDRF 62,024 886 1.4% 862 1.4% 0.1% 75,570 997 1.3% 0.1%

Total Permanent and Trust Funds $329,536 $32,754 9.9% $31,878 9.7% 3.1% $194,970 $28,913 14.8% 2.9%

Total Assessed BLI's $4,829,851 $1,057,000 21.9% $1,028,728 21.3% 100.0% $4,647,816 $997,000 21.5% 100.0%

TOTAL FOREST SERVICE $5,665,617 $1,057,000 18.7% $1,028,728 18.2% 100.0% $6,023,905 $997,000 16.6% 100.0%

Only includes appropriations (BLIs) which were assessed for cost pools 1-5. 

Supplemental, emergency, transfer, or Payments to States funds are not assessed for cost pools 1-5.

Forest Health Federal Lands (SPFH) and Forest Health Cooperative Lands (SPCH) are being incorporated entirely into State and Private Forestry and will therefore be assessed 

for cost pools exclusively under State and Private Forestry in FY 2013.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-24

Exhibit 3

Cost Pool Actuals for FY 2011 and FY 2012 by Pool and Region

(dollars in thousands)

Cost Pool FY 2011 FY 2012

Cost Pool 1 General Management $157,133 $157,819

Cost Pool 2 Direct Project Approved Activities 15,631 13,819

Cost Pool 3 Legislative and Public Communications 37,787 36,455

Cost Pool 4 Ongoing Business Services 380,695 369,149

Cost Pool 5 Common Services 457,650 451,486

TOTAL COST POOL EXPENDITURES $1,048,896 $1,028,728

Region/Station/Area FY 2011 FY 2012

Region 1 Northern $42,814 $41,720

Region 2 Rocky Mountain 38,363 37,859 

Region 3 Southwestern 42,923 42,169 

Region 4 Intermountain 41,814 41,174 

Region 5 Pacific Southwest 65,404 64,067 

Region 6 Pacific Northwest 75,492 76,715 

Region 8 Southern 47,600 47,580 

Region 9 Eastern 38,641 36,325 

Region 10 Alaska 17,977 18,322 

Region 12 International Institute of Tropical Forestry 1,430 1,440 

Region 13 Washington Office-HQ 81,098 117,205 

Region 14 Chief's Reserve 0 0 

Region 15 National Operations 110,419 107,571 

Region 17 Accounting Adjustments 3,475 2,778 

Region 25 Central Business Services 439,924 392,110 

Region 26 Pacific Northwest Research Station 68 227 

Region 42 Northeastern Area 1,454 1,466 

TOTAL COST POOL EXPENDITURES $1,048,896 $1,028,728

National funds are held and allocated at the national level, including FLAME, Law Enforcement, and portions of other funds.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-25

Deferred Maintenance and Asset Management

Deferred Maintenance and Asset Management

Background

This special exhibit is included to address requirements of P.L. 111-88 House Report 111-80 page 132, 

which directed:

The Committee notes that the budget justification indicates a deferred maintenance backlog... 

The Service should continue to update this information in its future budget requests.

Overview

Deferred maintenance is maintenance scheduled to be performed on an asset that was delayed due to a 

backlog of priority work, funding availability, or other reasons. Repairs, replacements, and rehabilitation 

to restore functionality are actions that can be taken to preserve an asset so that it continues to provide 

acceptable service and achieve its expected lifespan. Maintenance excludes activities aimed at expanding 

the capacity of an asset or otherwise upgrading it to service needs different from those originally 

intended.

Over the past decade, the Forest Service has implemented a national effort to collect detailed data on 

infrastructure condition and maintenance and improvement needs. This effort was initiated in response to 

both financial reporting requirements and direction from Congress, but has also shown significant value 

in support of additional agency priorities.

The Forest Service uses condition surveys to estimate deferred maintenance on all major classes of its 

property, plant, and equipment. No deferred maintenance exists for fleet vehicles and computers. 

Deferred maintenance estimates for most assets are based on condition surveys performed on a 5-year 

maximum revolving schedule, with the exception of the Bridges Asset Class which is on a 2-year 

maximum revolving schedule. To date, surveys of all administrative buildings, dams, bridges, roads open 

to passenger cars, and recreation sites have been accomplished. The agency’s deferred maintenance for 

the national forest road system is determined annually from random sample surveys providing an 80 

percent level of confidence. In FY 2012, the sample included 500 roads.

Specific programmatic tools in support of asset management include:

Asset Management Planning

Executive Order 13327 - “Federal Real Property Asset Management” established a framework for 

improved use and management of real property owned, leased, or managed by the Federal Government. 

The agency recognizes the importance of real property resources through increased management attention 

and the establishment of clear goals, objectives, policies, and levels of accountability. The agency expects 

to implement active management of its infrastructure portfolio based upon asset management principles 

established by the Office of Management and Budget.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-26

All facility projects exceeding the General Services Administration prospectus level ($2.79 million) and 

up to $10 million are reviewed by a Forest Service Asset Management Review Board (FS-AMRB). 

Similarly, projects exceeding $10 million are reviewed by both the FS-AMRB and USDA-AMRB.

All projects proposed for Deferred Maintenance and Asset Management funding are reviewed by the FSAMRB. 

We continue to evaluate the road management objective levels for each road in our system through site 

specific project analysis utilizing the Travel Analysis Process. Our goals are to operate and maintain a 

road system that is financially sustainable and consistent with forest land management plan objectives, 

and to align funds to address the critical deferred maintenance. 

Facility Master Planning 

Forest Service field units continue to complete or update their facility master plans which identify fire, 

administrative, research, visitor center, and recreation facilities for decommissioning, retention, alternate 

use, or acquisition. These plans will be used to actively manage the facility inventory and decommission 

unneeded facilities.

For recreation sites, such as campgrounds, the agency is implementing both the results of the Recreation

Facility Analysis (RFA) and Recreation Site Improvement processes as a means to reposition the 

recreation sites program to better meet the current and future needs of recreation visitors. One of the 

primary goals was to reduce the deferred maintenance of recreation sites on each national forest by 20 

percent over the five years that is covered by the RFA program of work for each national forest. As of 

December 31, 2008, all national forests completed an RFA and produced a five-year program of work that 

prioritized recreation site investments based on public needs.

Forest Service Facility Realignment and Enhancement Act

In FY 2006, the Forest Service Facility 

Realignment and Enhancement Act (Title V, 

Appropriations Act, P.L. 109-54) was enacted.

This legislation authorizes the sale of unneeded 

administrative sites and the use of receipts for 

acquisition, maintenance, reconstruction, and 

construction of administrative infrastructure, 

creating incentives to dispose of these unneeded

facilities. To date, activities under this authority, 

including pilot projects authorized under P.L. 107-

63, Section 329 as amended, have generated 

approximately $53 million in revenues and reduced facilities deferred maintenance by over $15.4 million.

In FY 2012, we collected approximately $1.6 million in receipts through the conveyance of real property 

sale authorities. We reduced the Deferred Maintenance Backlog by $892,000, and disposed of 11

properties. The agency plans to initiate the conveyance of an estimated $241 million in land and excess 

administrative facilities, reducing deferred maintenance by an additional $182 million in FY 2014.

Facilities Maintenance Assessment

Beginning in FY 2006, the Department of the Interior, Environment, and Related Agencies 

Appropriations Act of 2006 authorized the agency to assess all funds available to the agency for the 

purpose of performing facilities maintenance on fire, administrative, and other facilities and major visitor 

The Forest Service Facility Realignment 

Enhancement Act Outcomes

(dollars in thousands)

Fiscal Year Receipts

Deferred 

Maintenance 

Reduction

2004-2011 $51,421 $14,526

2012 1,597 892

Total $53,018 $15,418
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-27

centers (Title III, Administrative Provisions, P.L. 109-54). Using a program assessment to fund facility 

maintenance provides an incentive to identify and invest in only those facilities that are needed to 

accomplish the agency’s mission, 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.

The table below displays facilities maintenance cost pool 09 by Budget Line Item (BLI).

FY 2012 Facilities Maintenance (CP 09) Assessment by BLI

(dollars in thousands)

BLI Description BLI

FY 2012 Facilities 

Maintenance 

Assessment

Forest & Rangeland Research FRRE $3,613 

State & Private Forestry 

Forest Legacy Program LGCY 25 

Forest Stewardship SPST 72 

State Fire Assistance SPCF 57 

Forest Health Mgmt - Cooperative Lands* SPCH 49 

Forest Health Mgmt - Federal Lands SPFH 482 

Forest Resource Information and Analysis SPIA 47 

Urban and Community Forestry SPUF 53 

Total State & Private Forestry $785

National Forest System

Collaborative Forest Landscape Restoration CFLN 366 

Land Management Planning NFPN 580 

Grazing Management NFRG 924 

Forest Products NFTM 6,518 

Inventory & Monitoring NFIM 1,886 

Landownership Management NFLM 1,617 

Minerals and Geology Mgmt NFMG 1,202 

Recreation, Heritage & Wilderness NFRW 5,182 

Wildlife and Fisheries Habitat Mgmt NFWF 2,310 

Vegetation and Watershed Mgmt NFVW 2,884 

Subsistence Management - Alaska SMSM 54 

Unit Recreation Enhancement FDDS 39 

Total National Forest System $23,562

Capital Improvement and Maintenance

Facilities CMFC 1,271 

Roads CMRD 3,201 

Trails CMTL 1,215 

Deferred Maintenance CMII 23 

Legacy Road Remediation CMLG 466 

Total Capital Improvement and Maintenance $6,176

Land Acquisition LALW 95 

Wildland Fire Management
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-28

FY 2012 Facilities Maintenance (CP 09) Assessment by BLI

(dollars in thousands)

BLI Description BLI

FY 2012 Facilities 

Maintenance 

Assessment

Preparedness WFPR 13,635 

Hazardous Fuels Reduction WFHF 4,832 

NFP - Forest Health - Federal Lands SPS4 234 

NFP - Forest Health - State Lands SPS5 66 

NFP - Research & Development FRF2 214 

Total Wildland Fire Management $18,981

Permanent Appropriations

Brush Disposal BDBD 109 

Timber Salvage Sales SSSS 515

Total Permanent Appropriations $624

Trust Fund Appropriations

Cooperative Work - KV CWKV 744 

Reforestation Trust Fund RTRT 420 

Total Trust Fund Appropriations $1,164

TOTAL $55,000 

The table below displays deferred maintenance by asset class as reflected in the agency’s financial 

statement.

Asset Class Overall 

Condition

Critical1 Non-critical2 Total

Bridge Varies $34,983 $154,613 $189,596

Building Varies 84,182 1,089,477 1,173,660

Dam Varies 8,32 14,424 22,748

Fence Varies 267,590 362 267,952

Handling Facility Varies 21,797 22 21,819

Heritage Varies 3,257 17,405 20,662

Minor Constructed 

Features

Varies 102,717 102,717

Roads3 Varies 376,097 3,384,872 3,760,969

Trail Varies 5,890 308,288 314,178

Trail Bridge Varies 3,409 6,414 9,823

Wastewater System Varies 16,400 16,902 33,302

Water System Varies 55,962 45,895 101,857

Wildlife, Fish, and TES Varies 4,537 1,969 6,507

Grand Total $882,423 $5,143,363 $6,025,790 1

Critical Deferred Maintenance: Deferred maintenance that results in a serious threat to public health or safety, a natural 

resource, or the ability to carry out the mission of the organization.

Deferred Maintenance by Asset Class

As of September 30, 2012

(dollars in thousands)
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-29

2

Non-critical Deferred Maintenance: Deferred maintenance that results in a potential risk to public or employee safety or 

health, compliance with codes, standards, regulations, and so forth; or needs that address potential adverse consequences to 

natural resources or mission accomplishment.

3

The roads deferred maintenance amount is for passenger-car roads (Levels 3 through 5). Maintenance Level 1 and 2 roads have 

been classified as stewardship assets.

The overall condition of major asset classes range from poor to good depending on the location, age, and 

type of property. The standards for various classes of general property, plant, and equipment, stewardship, 

and heritage assets are as follows:

Roads and Bridges - Conditions within the 

National Forest System road system are measured 

by various standards, including: Federal Highway 

Administration regulations for the Federal 

Highway Safety Act; best management practices 

for the non-point source provisions of the Clean 

Water Act from the Environmental Protection 

Agency and States; road management objectives 

developed through the National Forest 

Management Act forest planning process; and 

Forest Service directives.

Administrative Buildings – Administrative 

facilities are Forest Service buildings on 

designated administrative sites. The condition of administrative facilities ranges from poor to 

good based on the facilities condition index (FCI). FCI is one minus the ratio of repair needs to 

the facility current replacement value. Good or Fair facilities have a FCI of greater than 90

percent.

Dams – The condition of a dam is acceptable 

when the dam meets current design standards 

and does not have any deficiencies that threaten 

the safety of the structure or the public. For 

dams to be rated in acceptable condition, the 

agency needs to restore the dams to the original 

functional purpose, correct unsightly conditions, 

or do work to prevent more costly repairs in the 

future.

Range Structures – The condition assessment for 

range structures (fences and stock handling 

facilities) is based on (1) a determination by 

knowledgeable range specialists or other district 

personnel of whether the structure would perform the originally intended function, and (2) a 

determination through the use of a protocol system to assess conditions based on age. A longstanding range methodology is used to gather this data.

Heritage Assets - Condition surveys are performed annually on a minimum of 20 percent of the 

agencies’ priority heritage assets. Deferred maintenance is considered critical if there is a 

potential health or safety risk, or an imminent threat of loss of significant resource values. 

Heritage assets include archaeological sites that require determinations of National Register of 

Storm Damage

Mt. Hood NF, OR

Humel Lake Dam Upstream Face
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-30

Historic Places status, National Historic Landmarks, and significant historic properties.

Recreation Sites - Quality standards for operating and maintaining recreation sites are established 

as measurable outputs for health and cleanliness, setting, safety and security, responsiveness, and 

the condition of the facility. Recreation sites include developed recreation sites, recreation areas 

within the general forest areas, campgrounds, trailheads, trails, water and wastewater systems, 

interpretive facilities, and visitor centers. These 

components are included in several asset classes of 

the deferred maintenance exhibit.

Trails and Trail Bridges - Conditions within the 

National Forest System trail system are measured 

by various standards, including: Trail National 

Quality Standards, Trail Management Objectives, 

and Forest Service directives. Condition surveys 

are conducted to provide up-to-date information 

about the condition of all physical features and 

provide data to identify deficiencies and corrective measures that need 

to be taken. Deferred maintenance is identified for trails and trail bridges that are in disrepair due 

to lack 

of scheduled maintenance and are in violation of applicable 

safety codes or other regulatory requirements, such as applicable accessibility guidelines or

beyond their designed service life.

Wildlife, Fish, and Threatened and Endangered Species Structures - Conditions are determined by 

field biologists using their professional judgment. The 

deferred maintenance is considered critical if resource 

damage or species endangerment would likely occur if 

maintenance were deferred much longer.

Lottis Campground, Colorado

Lake Creek Trail Bridge
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-31

Efficiencies and Cost Control Measures

Efficiencies and Cost Control Measures

Background

This exhibit is not required by Congressional direction but is included to report on progress and on-going 

activities for gaining efficiencies and implementing cost control measures.

The agency is responsive to the Executive Order 13589 (Promoting Efficient Spending), Office of 

Management and Budget (OMB), and Departmental guidance to promote efficient spending, cut waste, 

improve processes, and control costs in order to operate in a reduced budget environment.

Overview

The Forest Service has aggressively pursued gaining efficiencies and controlling costs to ensure funding 

is directed to on-the-ground land management activities and public services. Our long range agency plan 

seeks to build flexibility in operations and staffing in order to make future shifts in priorities or funding 

easier to implement. We continue to pursue:

• Agency management reform initiatives

• Cost pool reductions

• USDA’s Blueprint for Stronger Services (formerly the Secretary of Agriculture’s 

Strengthening Service Administrative Solutions Project)

• Elimination of redundant processes

• Efficiencies in program operations to increase responsiveness to the unpredictability of the 

cost of doing business

The agency will also continue to invest in maintaining indispensable Information Technology (IT) 

infrastructure, and in other program areas deemed critical.

FY 2013 and FY 2014 Program Changes

Management Reform Initiatives 

Following are examples of Management Reform Initiatives currently pursued by the Forest Service:

Fleet Management - We have reviewed our Fleet Management activities and we are 

implementing a targeted reduction in highway vehicle as well as General Services Administration

(GSA) leased vehicle inventory. We anticipate some savings may be offset by increased costs due 

to the unpredictability of the cost of fuels, fire suppression needs, and natural disasters.

Utility Accounts Cleanup - We are developing the Utility Accounts Management Plan for FY 

2013 to promote the ongoing cleanup of our energy and water utility bills. This includes 

reviewing accounts to identify those that are no longer valid and reviewing billings for 

appropriate charges. We will also identify the top energy consuming facilities and recommend 

energy saving alternatives. The utility bill cleanup effort continues to result in significant cost 

reduction by identifying and eliminating waste.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-32

Travel Budgets - The agency will continue to manage within reduced budgets and travel 

constraints as directed. Use of VTC, virtual meetings, and distance learning continue to result in 

savings allowing funds to be redirected to field work.

Cost Pool Reduction Strategy

The agency is actively implementing strategies for a $100 million reduction in cost pools from the FY 

2011 level. Planned cost pool ceiling reductions for the agency are from $1.057 billion in FY 2012 to 

$997 million in FY 2013 and $957 million in FY 2014. For FY 2013, activities slated for potential cost 

pool savings include: 

• Vehicle fleet management

• Administrative facility lease review

• Energy savings through sustainable operations

• Strategic acquisition management focusing on advisory contracts

• Information Technology improvements

Planned IT efficiencies include a significant reduction in the number of contracts by bundling to larger 

geographic areas, right-sizing employee communication and IT devices, and strategic sourcing and 

department wide purchasing. In FY 2014, the cost pool reduction strategy will continue to address 

reduction in administrative facility leases, materials and supplies, advisory contracts, IT, and operations 

support contracts.

Blueprint for Stronger Services

The agency will continue working together with other USDA agencies to develop strategies around seven 

key business areas to provide efficiencies in FY 2014. The key business areas are Property, Procurement, 

Homeland Security, Civil Rights, Budget and Finance, and Information Technology. The Forest Service 

has been designated a national service center along with the Food Safety and Inspection Service (FSIS) 

and Marketing and Regulatory Programs (MRP). The national service centers are currently consolidated 

national organizations providing services to specific USDA agencies, which will continue to service 

current agencies and clientele, and may also serve as centers of excellence. The project continues to move 

forward to meet the needs of the USDA in FY 2014 and beyond.

Data Center Consolidations

With the conclusion of the multi-year migration of unstructured data and applications from dispersed 

small data centers to a centralized data center hosted in Kansas City, the Forest Service realized cost

avoidance of $15 million due to reduced costs for software, maintenance, security and support. The next 

phase called Data Center Transformation (DCT) will focus on server virtualization, process improvement 

and moving services to more efficient hosting platforms. These initiatives will increase efficiencies, 

decrease footprints, and stabilize FY 2013 funding requirements to previous year levels and position the 

Forest Service to seek out increased service capabilities at lower costs in FY 2014.

Managing Our Workforce

The agency is also closely managing the size of our workforce to meet our mission critical work and 

control costs. We have been aggressive with both administrative consolidations and reorganizations as the 

needs of the agency have changed. These administrative consolidations and reorganizations have occurred 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-33

at all levels of the agency with the goal of finding the most efficient organizations to support land 

management activities on the ground and delivering services to the public. At the same time, we must 

comply with federal laws and regulations.

Leadership throughout the organization continues to assess staffing levels for current and future 

organizational needs. The Forest Service has requested Voluntary Early Retirement Authority (VERA) 

and authority for Voluntary Separation Incentive Payments (VSIP) for FY 2012 through FY 2013 to 

maintain agency flexibility in a declining budget environment. We will continue to utilize part-time, 

temporary, and other employment strategies to meet peak workload demands. The agency is undergoing 

structural changes in some of our national programs to better service the agency and the public. One 

example of these structural changes is the realignment of the Chief Information Technology office which 

includes field-going personnel. Another example is Fire and Aviation Management’s current work to 

evaluate the organizational structure and number of Dispatch Centers. Ongoing work includes interagency 

optimization and consolidation of the southwest and California geographic area dispatch centers 

addressing governance, standardization, and process.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-34

Equal Access to Justice Act

Equal Access to Justice Act

Background

This special exhibit is included to address requirements of House Report 112-151, page 8; Conference 

Report 112-331, page 1046, which directed:

Equal Access to Justice Act (EAJA) Fee Payments - The Committee has learned that the Forest 

Service does not comprehensively track EAJA fee payments, identify the funds used to pay EAJA 

fees, nor routinely make this information publicly available. Accordingly, the Committee directs 

the Forest Service to provide to the House and Senate Committees on Appropriations and make 

publicly available, and with each Agency’s annual budget submission thereafter, the following 

information: detailed reports on the amount of program funds used; the names of the fee 

recipients; the names of the Federal judges; the disposition of the applications (including any 

appeals of action taken on the applications); and the hourly rates of attorneys ad expert witnesses 

states in the applications that was awarded, for all EAJA fee payments awarded as a result of 

litigation against the Forest Service, or their respective employees. The report shall also include 

the information listed above for litigation relating to the Endangered Species Act and the 

amounts, outside of EAJA awards, paid in settlement for all litigation, regardless of the statute 

litigated.

Overview

The Equal Access to Justice Act was enacted in 1980 to provide individuals, small businesses and nonprofit organizations with the means to ensure federal agencies make their decisions transparent and in 

accordance with law. Since 2009, the Forest Service has tracked the payment of both EAJA and other 

attorney’s fees.

FY 2010, FY 2011, and FY 2012 Funding and Reporting

In FY 2012 the Forest Service provided EAJA information to Government Accountability Office (GAO), 

in response to a request, on EAJA case names and docket/court number, the name of the award recipient, 

the amount of program funds used and dates paid. 

The Forest Service provided information on the case name and docket/court number, the name of the 

award recipient, the amount of program funds used and dates paid. The final EAJA report to Congress is 

available on the internet at the following world-wide web address: 

http://www.fs.fed.us/aboutus/budget/requests/7105962_Equal%20Access%20to%20Justice%20Act_Lette

rs%20and%20Report.pdf

The Forest Service does not track and therefore cannot report on the following information:

• the Federal judges making the awards
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-35

• the disposition of the applications for EAJA fees (including any appeals of action taken on 

the applications) and

• the hourly rates of the attorneys and expert witnesses stated in the applications for which an 

award was made

Table 1. Forest Service Equal Access to Justice Act Statistics for FY 2010 and FY 2011

Date Rec Docket, 

Court Case Project Name Vendor Name Date 

Certified Program Amount 

10/20/201

0

2:08-cv01897-JAMJFM, D. E 

Cal

Earth Island 

Institute v. Jerry 

Bird Lassen NF, 

Randy Moore 

Region 5, USFS

Rachel Fazio 10/20/2010 Wildland Fire 

Hazardous Fuels $113,149

Subtotal FY 2010 $113,149

12/21/201

0

CV 1:09-cv00003-JWS, 

D. AK

Tongass 

Conservation 

Society, Sierra 

Club... v. Forrest 

Cole Tongass NF, 

USFS, USDA

Orion North 

Reoffer timber 

sale, Tongass NF

Earthjustice 12/28/2010 Forest Products 53,000

1/13/2011

08-01185-

MHP, D. N 

Cal

California 

Resources Agency 

v. USDA

Inventoried 

Roadless Areas, 

CA NFs

Earthjustice 2/9/2011

Land 

Management 

Planning

250,000

3/10/2011

CV-04-127-

M-DWM, D. 

Mont

Native Ecosystems 

Inc v. Tidwell

Grazing Permits, 

BeaverheadDeerlodge NF

Alliance for the 

Wild Rockies 3/11/2011 Grazing 

Management 85,000

3/11/2011

08-01927 

CW, D. N 

Cal

Citizens for Better 

Forestry v. USDA

National Forest 

Management Act 

Western 

Environmental 

Law Center

3/17/2011

Land 

Management 

Planning

170,047

3/11/2011

08-01927 

CW, D. N 

Cal

Citizens for Better 

Forestry v. USDA

National Forest 

Management Act Earthjustice 3/17/2011

Land 

Management 

Planning

251,312

4/6/2011 10-cv-01514-

JDB

Public Employees 

for Environmental 

Responsibility v. 

USDA, USFS

Public 

Employees for 

Environmental 

Responsibility

4/8/2011 Cost Pools 1,848

4/25/2011 CV 08-43-

M-DWM

Forest Service 

Employees for 

Environmental 

Ethics v. USFS and 

National Marine 

Fisheries Service

Bechtold Law 

Firm PLLC 4/25/2011 Wildland Fire 

Supression 95,000

5/2/2011

CV 07-1043-

JB-ACT, D. 

NM

Wildearth 

Guardians v. USFS, 

New Mexico Cattle 

Growers 

Association

Livestock 

grazing, Gila NF

Wildearth 

Guardians 5/12/2011 Grazing 

Management 27,500

5/25/2011 CV 09-164-

N-EJL, D. ID

The Lands Council 

v. Leslie Weldon 

Region 1, Ranotta 

MaNair Idaho 

Panhandle NF, 

USFS

Bussel 484, 

Idaho Panhandle 

NF

Public Interest 

Defense 6/9/2011 Forest Products 50,064

5/26/2011 5:08-CV00091-TBR

Forest Service 

Employees for 

Environmental 

Ethics v. USFS

Continued 

Maintenance of 

Open Lands, 

Land Between 

Bechtold Law 

Firm PLLC 5/26/2011

Land Between 

the Lakes 

Management 

Fund

29,400
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-36

Date Rec Docket, 

Court Case Project Name Vendor Name Date 

Certified Program Amount 

the Lakes

6/13/2011 09-cv-00160-

DWM

Alliance for the 

Wild Rockies v. 

Paul Bradford 

Kootenai NF

Grizzly 

Vegetation and 

Transportation 

Management 

Project

Public Interest 

Defense 6/16/2011 Timber Salvage 

Sales 28,000

6/20/2011 05-107M 

(DWM)

Rock Creek 

Alliance v. USFS 2001 EIS

Western 

Mining Action 

Proj

6/22/2011

Minerals & 

Geology 

Management

186,500

7/25/2011 08-1067-JCC

Conservation 

Northwest v. Harris 

Sherman and D.R. 

Johnson Lumber 

Co.

EIS Survey and 

Manage 

Mititgation 

Measure 

Standards and 

Guidelines, 2007 

Supplement

Western 

Environmental 

Law Center

7/27/2011 Forest Products 155,555

9/8/2011 CV F 09-392 

LJO

Sequoia 

Forestkeeper v. 

USFS

Special Use 

Permit to Robert 

Sellers and 

Quarter Circle 

Five Ranch

Paul Hastings 

LLP 9/13/2011 Landownership 

Management 74,640

9/8/2011 CV F 09-392 

LJO

Sequoia 

Forestkeeper v. 

USFS

Special Use 

Permit to Robert 

Sellers and 

Quarter Circle 

Five Ranch

Rene Voss 9/13/2011 Landownership 

Management 13,800

Subtotal FY 2011 $1,471,666 

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount 

10/6/2011 10-cv-01514-

JDB

Public Employees 

for Environmental 

Responsibility v. 

USDA, USFS

Public 

Employees for 

Environmental 

Responsibility

10/11/2011 Cost Pools 1,848 

1/23/2012 09-cv-1500-

SU

Hells Canyon 

Preservation 

Council v. USFS

Sled Springs Off 

Highway Vehicle 

Trail System and 

Road 

Management Plan

Hells Canyon 

Preservation 

Council

1/27/2012

Recreation, 

Wilderness, & 

Wild and 

Scenic Rivers

79,874 

1/27/2012 10-cv-6337-

TC

Cascadia 

Wildlands v. USFS Daniel Kruse 1/30/2012 Forest 

Products 56,500 

2/15/2012 2:10-cv02830-WBS

Center for 

Biological 

Diversity v. Mike 

Crawley, USFS

Motor vehcile use 

on Bridgeport 

Ranger District

Center for 

Biological 

Diversity

2/16/2012 Roads 9,000 

3/6/2012 CV 09-107-M

Alliance for the 

Wild Rockies v. 

Leslie Weldon, 

USFS

Rat Creek Salvage

Western 

Environmental 

Law Center

3/6/2012

Integrated 

Resource 

Restoration

53,000 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-37

Date Rec Docket, 

Court Case Project Name Vendor Name Date Certified Program Amount 

5/29/2012 CV 07-39-MDWM

Montana 

Wilderness 

Association v. 

Vicki Christiansen, 

USFS

Earthjustice 6/4/2012

Recreation, 

Wilderness, & 

Wild and 

Scenic Rivers

137,000 

6/14/2012 CV 08-92-

DWM Smith Creek Bechtold Law Firm 6/19/2012

Integrated 

Resource 

Restoration

48,489 

7/5/2012 3:09-CV03048

Wilderness Society 

v. US DOI

West-Wide 

Energy Corridors Earthjustice 7/5/2012 Landownership Management 10,000 

8/8/2012 10-CV-00026

Idaho 

Conservation 

League and The 

Wilderness Society 

v. Frank Guzman 

and USFS

Travel 

Management Plan 

for the SalmoChallis NF

Earthjustice 8/10/2012

Integrated 

Resource 

Restoration

90,000 

8/22/2012 11-VC-830-

RCC

Defenders of 

Wildlife v. USFS Hardshell Project Defenders of 

Wildlife 8/28/2012

Minerals and 

Geology 

Management

10,500 

9/18/2012 09-CV-131 

CW

Sierra Club v. 

USFS

Ogden Ranger 

District's 

Motorized Travel 

Plan

Western 

Wildlife 

Conservancy

9/18/2012

Recreation, 

Wilderness, & 

Wild and 

Scenic Rivers

69,027 

Subtotal FY 2012 $565,237
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-38

Facilities Maintenance Assessment

Facilities Maintenance Assessment

Background 

This exhibit is included to address requirements of P.L. 109-54 Conference Report 109-188 page 125, 

which directed:

There should also be a display which indicates, by national forest, research station and area, the 

funding being allocated for facilities maintenance. The budget justification displays shall indicate, 

for every budget line item, the funding amount being assessed for facilities maintenance. This 

information should be readily visible along with each program description.

Overview

In FY 2006, Congress authorized a multi-program assessment for maintenance of agency-owned 

buildings; 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. 

In FY 2012, the assessment was $55 million; refer to table FY 2012 Facilities Maintenance (CP 09) 

Assessment by Budget Line Item (BLI). FA&O facilities include:

fire facilities, such as air tanker bases, lookouts, airports, 

heliports, and fire management centers; administrative facilities, 

such as administrative offices (ranger district offices, forest 

supervisor offices, regional offices, research stations, and 

laboratories), service centers, storage buildings, and nurseries; 

and other facilities, such as telecommunication facilities, towers, 

dams, and major recreation visitor centers. Maintenance costs 

under $250,000 for these facilities come from funds collected by 

this assessment. Maintenance for FA&O and recreation visitor 

centers greater than $500,000 is funded through the Capital 

Improvement and Maintenance Facilities budget line item and is shown on the Facilities Major Project 

List in that section.

The Forest Service currently maintains approximately 15,300 

administrative buildings; totaling approximately 21.4 million 

square feet. The agency also maintains an inventory of 

approximately 2,300 Forest Service owned, special use permitted, 

and other dams; and numerous other facilities such as 

approximately 4,840 water and 4,890 wastewater systems and 

numerous communication facilities. The current inventory is a 

legacy of former management needs and practices with many 

facilities in disrepair as evidenced by a significant deferred 

maintenance backlog. 

Great Plains Fire Dispatch

Black Hills, SD

Chapman Dam

White River NF, CO
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-39

Using a program assessment to fund facility maintenance provides an incentive to identify and invest in 

only those facilities that are needed to accomplish the agency’s mission, dispose of surplus 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 to represent the cost of conducting 

business operations for land management purposes.

Federal mandates such as the Energy Independence and Security Act of 2007 and Energy Policy Act 

(EPAct) of 2005 in combination with Executive Orders (EO) 13514 and 13423 require energy, water, and 

other environmental impact reductions. Facilities Maintenance Assessment funds are also used to 

accomplish the following:

• Conduct energy and water efficiency evaluations to identify energy and water conservation 

measures per the Energy Independence and Security Act of 2007 and to reduce building energy 

intensity to meet greenhouse gas emission targets per EO 13514

• Conduct assessments of existing buildings and incorporate 

necessary improvements to existing buildings to meet the guiding 

principles per EO 13514 including: increasing energy efficiency; 

reducing greenhouse gas emissions; protecting water resources 

through efficiency, reuse, and stormwater management; eliminate 

waste, recycle and prevent pollution; design, construct, and 

maintain, and operate sustainable buildings

• Install renewable energy sources where economically feasible per 

EPAct 2005

• Install advanced metering systems to measure, verify, and improve 

utility consumption per EPAct 2005

• Decommission or dispose of surplus facilities thereby reducing 

deferred maintenance and square footage requiring maintenance

Assessments and Allocations

The FY 2013 facilities maintenance assessment was based on the final FY 2012 square footage of 

approximately 21.4 million square feet. Assessments are distributed across eligible budget line items 

based on each program’s prior year direct labor hour charges. In FY 2013, each unit (Region, Station, or 

other units) requested assessments totaling $55 million. The assessment varies from a minimum of 

$1.45/sq. ft. up to $5.54/sq. ft., which falls within the limits of four percent of the facility replacement 

value and $7 per square foot. 

In FY 2014, the Forest Service proposes to assess programs up to $55 million. The assessment by region 

and program will be based on the final FY 2013 square footage. Consistent with FY 2013, the assessed 

amount is limited to 4 percent of the facility replacement value and $7 per square foot. We will base 

allocations on each unit’s requested assessment amounts. The following tables display the 2013 initial 

allocations by unit as well as the distribution of the assessment by program for $55 million.

 

Past Performance

Accomplishments related to buildings and similar structures are included under the Capital Improvement 

and Maintenance Facilities Section. In FY 2012, the agency conducted 118 Operation and Maintenance 

Inspections, seven Hazard Assessments, and 40 Safety Inspections on USDA Forest Service owned dams. 

All of these actions improve health and safety conditions for the public and employees. 

Solar Heating System

Montrose, CO
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-40

FY 2012 Facilities Maintenance (CP 09) Assessment by BLI

(dollars in thousands)

BLI Description BLI

FY 2012 Facilities 

Maintenance 

Assessment

Forest & Rangeland Research FRRE $3,613 

State & Private Forestry 

Forest Legacy Program LGCY 25 

Forest Stewardship SPST 72 

State Fire Assistance SPCF 57 

Forest Health Mgmt - Cooperative Lands* SPCH 49 

Forest Health Mgmt - Federal Lands SPFH 482 

Forest Resource Information and Analysis SPIA 47 

Urban and Community Forestry SPUF 53 

Total State & Private Forestry $785

National Forest System

Collaborative Forest Landscape Restoration CFLN 366 

Land Management Planning NFPN 580 

Grazing Management NFRG 924 

Forest Products NFTM 6,518 

Landownership Management NFLM 1,617 

Inventory & Monitoring NFIM 1,886 

Minerals and Geology Mgmt NFMG 1,202 

Recreation, Heritage & Wilderness NFRW 5,182 

Wildlife and Fisheries Habitat Mgmt NFWF 2,310 

Vegetation and Watershed Mgmt NFVW 2,884 

Subsistence Management - Alaska SMSM 54 

Unit Recreation Enhancement FDDS 39 

Total National Forest System $23,562

Capital Improvement and Maintenance

Facilities CMFC 1,271 

Roads CMRD 3,201 

Trails CMTL 1,215 

Deferred Maintenance CMII 23 

Legacy Road Remediation CMLG 466 

Total Capital Improvement and Maintenance $6,176

Land Acquisition LALW 95 

Wildland Fire Management

Preparedness WFPR 13,635 

Hazardous Fuels Reduction WFHF 4,832 

NFP - Forest Health - Federal Lands SPS4 234 

NFP - Forest Health - State Lands SPS5 66 

NFP - Research & Development FRF2 214 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-41

FY 2012 Facilities Maintenance (CP 09) Assessment by BLI

(dollars in thousands)

BLI Description BLI

FY 2012 Facilities 

Maintenance 

Assessment

Total Wildland Fire Management $18,981

Permanent Appropriations

Brush Disposal BDBD 109 

Timber Salvage Sales SSSS 515

Total Permanent Appropriations $624

Trust Fund Appropriations

Cooperative Work - KV CWKV 744 

Reforestation Trust Fund RTRT 420 

Total Trust Fund Appropriations $1,164

TOTAL $55,000 

FY 2014 Facilities Maintenance Initial Assessment and Allocation by Unit

Based on FY13 Continuing Resolution

(dollars in thousands)

Unit Name

Total Gross 

Square Feet (GSF)

as of 11/30/12

Dollars ($)

per

GSF

Total

Initial Assessment & 

Allocation

Northern Region 2,165,192 $2.5241 $5,453

Rocky Mountain Region 1,261,144 2.6851 3,381

Southwestern Region 1,515,175 4.093 6,200

Intermountain Region 1,968,471 2.324 4,571

Pacific Southwest Region 3,633,160 2.370 8,600

Pacific Northwest Region 3,437,891 2.6339 9,053

Southern Region 1,845,765 2.7161 5,000

Eastern Region 2,566,087 2.3421 6,000

Alaska Region 521,726 4.2709 2,229

Region Subtotal 18,914,611 2.6754 avg. 50,487

Forest Products Lab 346,937 $1.69 $588

Int. Inst. Of Tropical Forestry 27,012 $2.33 $63

Rocky Mountain Station 429,649 $1.92 $824

Northern Station 484,133 $1.51 $731

Pacific Northwest Station 268,096 $2.12 $568

Pacific Southwest Station 240,106 $1.47 $353

Southern Research Station 445,189 $1.99 $888

Research Station Subtotal 2,241,122 $1.79 avg. $4,015

San Dimas Tech. Dev. Center 32,495 $5.54 $180

Missoula Tech. Dev. Center 71,715 $1.48 $106

Grey Towers 34,375 $3.34 $115

Wood Education 66,691 $1.45 $97

Other Units Subtotal 205,276 $2.43 avg. $498

TOTAL 21,361,009 $2.57 avg. $55,000
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-42

FY 2014 Facilities Maintenance Assessment by Program

(dollars in thousands)

Program FY 2014 President’s 

Budget Assessment

Forest and Rangeland Research $3,613

State & Private Forestry $785

International Forestry $0

National Forest System

 Land Management Planning 580

 Inventory and Monitoring 1,886

 Recreation, Heritage and Wilderness 5,182

 Wildlife and Fisheries Habitat Management 2,310

 Grazing Management 924

 Forest Products 6,518

 Vegetation and Watershed Management 2,884

 Minerals and Geology Management 1,202

 Landownership Management 1,617

 Law Enforcement 0

 Valles Caldera 0

 Collaborative Forest Landscape Restoration 366

Total National Forest System $23,469

Capital Improvement and Maintenance

 Facilities 1,271

 Roads 3,201

 Trails 1,215

 Legacy Roads and Trails 466

 Deferred Maintenance and Infrastructure Improvement $23

Total Capital Improvement and Maintenance $6,176

Land Acquisition $95

Other Appropriations $54

Fire Operations – Forest Rangeland Research 214

National Fire Plan – Rehabilitation Burned Areas 0

National Fire Plan – Federal Lands 234

National Fire Plan –Cooperative Lands 66

Hazardous Fuels Reduction 4,832

Fire Preparedness 13,635

Wildland Fire Management $18,981

Permanent Appropriations $663

Trust Fund Appropriations $1,164

Total Assessment $55,000
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-43

Fire Transfers

Fire Transfers

Background

This exhibit is not required by Congressional direction but is included to provide an update on the status 

of funds borrowed from other budget line item accounts and transferred to the Wildland Fire Management 

Suppression account for the purpose of emergency fire suppression.

Overview

Fire transfers occur when the agency has exhausted all available fire resources from the Suppression and 

FLAME accounts. Congressional appropriations currently fund the agency at around the 10-year average 

for wildland fire suppression costs. If wildland fire suppression costs exceed the 10-year average, the 

Forest Service must receive a supplemental appropriation or execute fire transfer(s) from other program 

accounts for fire suppression expenditures. 

In FY 2012, the Forest Service executed a $440 million fire transfer strategy which identified specific 

accounts and amounts that would be transferred to the Suppression account for emergency fire 

suppression due to severe burning conditions and increased fire suppression costs. In P.L. 112-175, 

Continuing Appropriations Resolution, 2013, $400 million was appropriated for repayment to 

appropriations accounts from which funds were transferred in FY 2012 for wildland fire suppression. The 

table below represents accounts from which funds were transferred in FY 2012 and which were repaid in 

FY 2013.

Funds Withdrawn for Transfer for Wildland Fire Suppression in FY 2012

(dollars in thousands)

Approp. Budget Line Item

Amount 

Borrowed 

FY 2012

Amount 

Repaid

FY 2013

Outstanding 

Balance for 

Repayment

SPSP State and Private Forestry $5,000 $5,000 $0 

NFNF National Forest System 50,000 50,000 0

CMCM Capital Improvements and Maintenance 30,000 30,000 0

LALW Land Acquisition 20,000 20,000 0

BDBD Brush Disposal 40,000 40,000 0

PEPE Timber Purchaser Election Road Construction 35,000 15,000 20,000

RIRI Restoration of Forest Lands and 

Improvements 80,000 60,000 20,000

SFSF Timber Salvage Sales 20,000 20,000 0

CWKV Knutson-Vandenberg Trust Fund 160,000 160,000 0

Total $440,000 $400,000 $40,000 

In addition, the table below represents accounts from which funds were transferred from FY 2002 through 

FY 2012 and for which funds have not been repaid. From FY 2002 to FY 2012, the Forest Service made 

fire transfers from discretionary, mandatory, and permanent accounts to pay for fire suppression costs six 

times, ranging from $100,000,000 in FY 2007 to $999,000,000 in FY 2002, and totaling approximately 

$2.7 billion. Of that total, $2.3 billion has been repaid. Projects at all levels of the organization were 

deferred or canceled as a result of the transfers.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-44

Funds Withdrawn for Transfer for Wildland Fire Suppression

and Not Repaid from FY 2002 to FY 2012

(dollars in thousands)

Approp. Budget Line Item Amount

Unpaid 

Balance

FRFR Forest & Rangeland Research

Funds: Strategic program areas of Forest & 

Rangeland Research

$32 -

SPSP State and Private Forestry

Funds: Cooperating with and providing 

assistance to States for forest health, 

cooperative forestry, and education. Also 

funds international programs 

3,099 -

NFNF National Forest System

Funds: Management, protection, 

improvement, and utilization of the National 

Forest System

106,167 -

CMCM Capital Improvements and Maintenance

Funds: Construction or improvement of 

roads, trails, and facilities

35,305 -

LALW Land Acquisitions

Funds: Acquisition of land or waters

9,308 -

BDBD Brush Disposal

Receipts collected fund: Fuel reduction 

after timber harvest

64 -

FDFD Federal Lands Recreation Enhancement Fund

Fees collected fund: Recreation operation, 

interpretation, and law enforcement

45 -

PEPE Timber Purchaser Election Road Construction

Funds: Construction or improvement of 

roads in support of timber harvest by small 

business operators

30,090 20,000 

SFSF Timber Salvage Sales

Funds: Analysis, preparation, and offer of 

salvage sales

112 -

RIRI Restoration of Forest Lands and Improvements 20,000 20,000 

WCWC Working Capital Fund

Funds: Replacement and repair of motor 

vehicles, nursery services, enterprise 

services.

86,029 -

CWKV Knutson-Vandenberg Trust Fund

Receipts Collected fund: Reforestation, 

wildlife habitat, and fuels as identified in 

project planning

33,000 33,000 

WFPR Wildland Fire Preparedness 93,786 -

FLEP Forest Land Enhancement Program 40,032 -

Total $457,069 $73,000
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-45

Knutson-Vandenberg (K-V) Financial Status

Knutson-Vandenberg (K-V) Financial Status

Background 

This exhibit is not required by Congressional direction but is included to provide an update on repayment 

status of the Knutson-Vandenberg Fund from previous fire suppression transfers.

Overview

The Forest Service has used 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 agency has historically transferred 

funds available to us through the Knutson-Vandenberg (K-V) Fund (a fund authorized in P.L. 71-319). 

The Fund provides money from timber purchasers to reforest and perform other natural resource 

improvements on their timber sale areas. As provided by section 412 of P.L. 109-54, K-V receipts are

also used for forest restoration work in the region in which the receipts were collected. 

The K-V Act provides that any deposit found to be in excess of the cost of doing the work shall be 

returned to the Treasury, provided there are no outstanding unreimbursed fire suppression transfers. At 

this time there are no excess receipts identified within the K-V fund, therefore the repayment of the 

outstanding transfers is needed for resource work.

In FY 2012, $160 million was withdrawn to fund transfers for Wildland Fire Suppression and was repaid 

in FY 2013. Refer to the Special Exhibit on Fire Transfers for more detail. The table below displays the 

repayment status of the K-V Fund.

Repayments to the Knutson-Vandenberg Fund

(dollars in thousands)

Repayment 

Status FY 2007 FY 2008 FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014

Amount Owed to 

K-V Fund from 

Prior Year $159,000* $159,000 $163,000 $33,000 $33,000 $33,000 $193,000 $33,000

Transfers from

K-V Fund (+) 0 30,000 0 0 0 160,000 0 0

K-V Fund

Repayment (-) 0 26,000 130,000 0 0 0 160,000 0

Balance 

Outstanding $159,000 $163,000 $33,000 $33,000 $33,000 $193,000 $33,000 $33,000

* Transferred from K-V Fund in FY 2006.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-46

National Scenic and Historic Trails

National Scenic and Historic Trails

Background 

This special exhibit is included to address requirements of P.L. 111-88 House Report 111-180 page 132, 

which directed:

The Committee recommendation retains previous base funding for maintenance, construction, 

and operation of the network of national scenic and historic trails but encourages additional 

funding for required work of the newly authorized national trails. Future budget justifications 

should continue to provide specific trail operation, maintenance and construction funding and 

accomplishment data for the national scenic and historic trails. The Forest Service should provide 

full time administrators and prepare the required comprehensive management plans for the newly 

authorized national trails.

Overview

Since the enactment of the National Trails System Act in 1968, the Forest Service has designated trail 

coordinators or administrators for six National Scenic and Historic Trails (NS&HT): Arizona, 

Continental Divide, Florida, Nez Perce (Nee Mee Poo), Pacific Crest, and Pacific Northwest. The Forest 

Service manages portions of 15 additional NS&HTs on National Forest System (NFS) lands, in 

cooperation with the Department of the Interior (DOI), State and county governments, and private 

entities. Funding for administration and management of these trails is included within the Capital 

Improvement and Maintenance - Trails budget line item. Acquisition of trail segments is included within 

the Land Acquisition budget line item. In previous years, the Forest Service has had full administrative 

responsibility for the Appalachian Trail. Currently, the Appalachian Trail is managed in partnership with 

the National Park Service (NPS). Region 8 provides a liaison for trail management and activities and 

accomplishments are a result of collaboration between the NPS and the Forest Service. 

Trail Work on the Continental Divide Trail

Before After
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-47

Appalachian National Scenic Trail (AT)*

This 2,176-mile footpath crosses along the ridgecrests and across the major valleys of the Appalachian 

Mountains from Mt. Katahdin in Maine to Springer Mountain in northern Georgia. The trail traverses 

Maine, New Hampshire, Vermont, Massachusetts, Connecticut, New York, New Jersey, Pennsylvania, 

Maryland, West Virginia, Virginia, Tennessee, North Carolina, and Georgia. The trail is used by day, 

weekend, and other short-term hikers, section-hikers, and through-hikers who hike the entire length of the 

trail in one season. The trail is currently protected along more than 99 percent of its course by Federal or 

State ownership or rights-of-way. *Administratively managed by the National Park Service.

Arizona National Scenic Trail (ANST)

Designated on March 30, 2009, through the Omnibus Public Land Management Act (P.L. 111-11), the 

ANST extends 807 miles across the State of Arizona from the United States-Mexico border to the 

Arizona-Utah border. The national forests through which the trail runs have been working closely with 

the Arizona Trails Association (ATA) in addressing construction needs to fill in gaps on the trail. The 

agency has established a trail Administrator position for the trail and is starting development of a 

comprehensive resource management plan.

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 a 1,300 mile planning corridor 

stretching from Big Cypress National Preserve in the Everglades to Gulf Islands National Seashore in the 

panhandle of Florida. A FY 2012 inventory shows 1,074 miles of certified FNST on the ground, leaving 

just under 300 miles in gaps. The majority of use on the trail consists of day use and weekend 

backpacking, with a small thru-hiking community utilized blazed road walks between gaps to hike the 

FNST from end-to-end. The FNST is the only national scenic trail that gives the public the opportunity to 

experience a wide range of subtropical environments, karst spring and riverine systems, and a beach walk 

on a national seashore. Planning efforts are proposed to connect the FNST to the Florida Keys Overseas 

Heritage Trail and the Appalachian Trail allowing passage from the Florida Keys to Canada on foot.

Nez Perce National Historic Trail (NPNHT)

In 1986, Congress acknowledged the significance of the Nez Perce Conflict of 1877 by establishing the 

1,170 mile NPNHT. The route winds through remote, rugged, and scenic terrain. With the cooperation of 

State Highway Department and County Commissioners in the states of Oregon, Washington, Idaho, 

Wyoming, and Montana, over 1,500 miles of Federal, State, and county roads are designated as the 

NPNHT Auto Tour Route. The route roughly parallels the course travelled by the five Nez Perce bands 

during their historic 1877 odyssey, beginning near Wallowa Lake, Oregon, and ending at Bear Paw 

Mountains south of Chinook, Montana. The route consists of three-season, all-weather roadways ranging 

from high-standard gravel segments to portions of Interstates 15 & 90. Motorcyclists have found the 

excitement of riding along a historic route enjoying the scenic beauty of the area. National designation 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-48

protects the actual historic trail to foot and equestrian travel only. The diversity of this trail lies in the 

details, where low level roads overlay the historic trail, and opportunities for OHV and maintain biking 

exist. Snowmobile use is allowed along the trail when the snow protects our historic resource. 

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 within publicly owned lands 

except for approximately 300 miles where it crosses private lands (easements have been acquired for the 

trail tread). Over the past decade the PCT has become a favorite of thru-hikers and thru-riders (horseback) 

with over 850 permits for thru-travel being issued in 2012.

Pacific Northwest National Scenic Trail (PNNST)

Designated on March 30, 2009, through the Omnibus Public Land Management Act (P.L. 111-11) the 

PNNST consists of approximately 1,200 miles, extending from the Continental Divide in Glacier National 

Park, Montana, to the Pacific Ocean Coast in Olympic National Park, Washington. The PNNST travels 

through three national parks, seven national forests, six Washington State parks, three regions of the 

Washington Department of Natural Resources, land managed by the Idaho Department of Lands, and 

across land managed by a variety of other public and private land owners. A Trail Coordinator started 

work in FY 2011 and is working to assemble an interagency planning team to develop a Comprehensive 

Management Plan to guide future management and development of the PNT.

Other National Scenic and Historic Trails (NSHT)

There are an additional 15 national scenic and historic trails totaling over 6,700 miles for which the Forest 

Service coordinates management with other Federal public land agencies. These trails are: California, 

Camino Real Tejas, Camino Tierra Adentro, De Anza, Ice Age, Iditarod, Lewis and Clark, Mormon 

Pioneer, North Country, Old Spanish, Oregon, Overmountain Victory, Pony Express, Santa Fe, and Trail 

of Tears. 

FY 2012-FY 2014 Allocation by Trail

(dollars in thousands)

FY 2012

Enacted

FY 2013

Annualized CR

FY 2014

Pres Bud

Trails Land Partner

* Total Trails Land Total Trails Land Total Acq. Acq. Acq.

Appalachian $193 $0 $1,712 $193 $193 $0 $193 $193 $0 $193 

Arizona 175 0 534 175 175 0 175 175 0 175 

Continental Divide 2,000 0 550 2,000 2,000 0 2,000 2,000 1,000 3,000 

Florida 1,500 365 0 1,500 1,500 0 1,500 1,500 0 1,500 

Nez Perce 640 0 0 640 640 0 640 640 0 640 

Pacific Crest 2,000 1,574 1615 2,000 2,000 618 2,618 2,000 1,000 3,000 

Pacific Northwest 175 0 578 753 175 0 175 175 0 175 

All-others** 822 0 0 0 822 0 822 822 0 822 

TOTAL $7,505 $1,939 $4,989 $7,261 $7,505 $618 $8,123 $7,505 $2,000 $9,505

* Estimated non-cash and in-kind contributions include other agency funds and non-profit contributions. Estimated contributions 

for FY 2013 and FY 2014 are not known at this time.

** All others includes the following national scenic and historic trails: California, Camino Real Tejas, Camino Tierra Adentro, 

De Anza, Ice Age, Iditarod, Lewis and Clark, Mormon Pioneer, North Country, Old Spanish, Oregon, Overmountain Victory, 

Pony Express, Santa Fe, and Trail of Tears.

PCT includes proposed land acquisition funds for FY 12.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-49

FY 2013 and FY 2014 Program

We will continue to foster and expand partnerships, especially with those partners that involve volunteers 

and youth organizations. We will maintain and operate most trails, trailheads, and campgrounds through 

these efforts. We will also continue to deliver interpretative and educational programs and products. 

Specific activities planned are as follows: 

Appalachian National Scenic Trail (AT)*

Partners: Appalachian Trail Conservancy, Appalachian Mountain Club, National Park Service, and other 

Federal, State, and nongovernmental organizations.

• Green Mountain National Forest: Restore and repair trails, trail bridges, and trailhead parking 

lots damaged by Hurricane Irene 

• White Mountain National Forest: Continue “Trail to Every Classroom” teacher trainings and 

partner with the National Park Service and Appalachian Trail Conservancy to host one teacher 

under the “Teacher to Ranger to Teacher” program 

• Administratively managed by the National Park Service

Arizona National Scenic Trail

Partners: Arizona Trail Association, Tribal governments, and other Federal, State, and nongovernmental

organizations.

• A draft Comprehensive Management Plan is being developed with public scoping expected in 

spring 2013

• A new advisory council is being established for the ANST as part of the comprehensive 

management planning process

• Construction of a 10-mile re-route of the ANST around the Rosemont Mine project is being 

planned

• The Arizona Trail Association is partnering with the Coronado NF to construct and install 

replacement signs along the southern portion of the Arizona NST

• Plans are underway for the construction of a large structure to protect trail users where the trail 

passes under a Union Pacific railroad trestle

• Four miles of the ANST are scheduled for rehabilitation that were damaged by the 2011

Monument fire on the Coronado National Memorial

Continental Divide National Scenic Trail

Partners: Volunteers for Outdoor Colorado, Montana Wilderness Association, National Park Service, 

and other Federal, State, and nongovernmental organizations.

• Develop plans to locate the Trail: 41 miles

• Survey and design trail projects: 43 miles

• Construction projects: 55 miles

• Reconstruction (deferred maintenance): 62 miles

• Plan to work with Volunteers a minimum of 1,962 days.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-50

Florida National Scenic Trail

 

Partners: Florida Trail Association, U.S. Fish and Wildlife Service, and other Federal, State, and 

nongovernmental organizations.

• Develop partnership agreements in support of the Five Year Strategic Plan goals and objectives

• Complete GPS line of FNST making it available on-line for download or through interactive 

partner Web sites

• Creation of new Forest Service-FNST and Florida Trail Association Web sites

Nez Perce National Historic Trail (Nee-Mee-Poo)

Partners: Nez Perce Trail Foundation, National Park Service, U.S. Fish & Wildlife Service, Bureau of 

Land Management, Backcountry Horsemen of America, Tribal governments, and other Federal, State, 

and nongovernmental organizations.

• Continue work on revision of the Trail’s 1990 Comprehensive Management Plan

• Convert four Auto Tour routes to Google Earth

• Continue coordination with two national parks; four regions of the Forest Service including eight 

national forests; U.S. Fish & Wildlife Service; Bureau of Land Management; State parks in 

Oregon, Idaho, Washington, Montana; multiple chapters of Backcountry Horsemen of America; 

Tribal Governments; State and county Governments; and nongovernmental organizations

• Continue development of Web site 

• Continue NPNHT Challenge Cost Share Program to further leverage Federal dollars.

• Complete Auto Tour Brochures number six and eight

• Continue to support the Nez Perce Trail Foundation to develop chapters and additional 

partnership/membership along the Trail

• Develop teaching tools for the public to further emphasize and highlight the significance of the 

NPNHT

Volunteers replacing a NPNHT Trail Marker at the trail head.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-51

Pacific Crest National Scenic Trail (PCT)

Partners: Pacific Crest Trail Association, California Conservation Corps, Student Conservation 

Association, Oregon Equestrian Trails, Backcountry Horsemen of California, Oregon, Washington, and 

other Federal, State, and nongovernmental organizations.

• Forest Plan Revisions and development of PCT management corridor on the OkanoganWenatchee, Sierra, Sequoia, Inyo National Forests, and the Lake Tahoe Basin Management Unit

• Continued support and expansion of traditional skills training for volunteers and agency staff in 

California, Washington, and Oregon including crosscut saws and horse packing

• Continued coordination with 26 National Forests, six National Parks, California State Parks, 

Bureau of Land Management Lands (CA/OR), the Confederated Tribes of Warm Springs and the 

Yakama Nations, three National Monuments and one National Scenic Area, and Manning 

Provincial Park (British Columbia)

• Interagency/partner program review/updates to corridor acquisition needs/strategy and easement 

management. Development of ecological benefits of the collaborative landscape proposal

• Continue priority land acquisition work along the PCT Corridor. Outreach to Priority 1 and 2 

parcels owners for the PCT in California to identify potential willing sellers.

• Coordination with BLM and the Pacific Crest Trail Association on an Optimal Location Review 

of the PCT that includes the southern terminus

• Develop webinar and teaching tools for agency staff and line officers on the PCT management 

considerations and partnerships. Continue Web site development

Pacific Northwest National Scenic Trail 

Partners: Pacific Northwest Trail Association, Tribal governments, and other Federal, State, and 

nongovernmental organizations.

• Continue development of the Comprehensive Management Plan for the trail to provide consistent 

policy and direction for trail development and management

• Continue to increase the involvement of volunteers and the Service-Knowledge-Youth programs 

in the development and maintenance of the trail

• Work with the University of Washington and Western Washington University to increase 

academic study and research on the trail and as part of the Comprehensive Management Plan 

development

• Develop plans for locating 60 miles, constructing 20 miles, reconstructing 42 miles, and 

maintaining 300 miles of trail

Other National Scenic and Historic Trails

Partners: Numerous foundations, trail associations, Tribal governments, and other Federal, State, and 

nongovernmental organizations.

Ice Age Trail – Planning to replace 530 feet of boardwalk and reconstructing a 20 foot span of bridge 

along the trail in the Chequamegon-Nicolet NF.

Lewis and Clark Trail – Maintain and operate the trail, trailheads, interpretive sites, and three 

campgrounds (Lolo National Forest); monitor two historic sites along the trail (Lolo National Forest); 

and provide weed treatment along the trail and at access points.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-52

North Country Trail (NCT) – (Chequamegon-Nicolet National Forest): Continue planning work to 

remove blow down from major wind event and continue to work with engineering staff to determine 

type of design of three bridges along the NCT (Hiawatha National Forest). Replace trail markers on 

Munising Ranger District and replace approximately one mile of boardwalk across sensitive wetland 

areas in Chippewa County.

Trail of Tears – Develop interpretive plan (Touch the Trail) for southern Illinois Trail of Tears 

(Shawnee National Forest). Finalize and post Trail of Tears information to Mark Twain National 

Forest Web site (Mark Twain National Forest).

Camino Real de Tierra Adentro NHT – The Santa Fe National Forest is developing interpretive 

messages and signing, in collaboration with NPS, for La Bajada (considered the most geographically 

challenging section of trail near Santa Fe, New Mexico). Santa Fe National Forest Site Steward 

Program recently added segments of the Camino Real de Tierra Adentro to their archaeological site 

monitoring tasks.

Old Spanish NHT – The Carson and Rio Grande National Forests (Regions 3 & 2) have jointly 

funded a STEP employee to focus on the North Branch of the Old Spanish Trail in Northern New 

Mexico and the San Luis Valley of Colorado. The employee is developing, in partnership with local 

educators and the OST Assoc., education boxes and programs that meet both Colorado and New 

Mexico State competencies for use by local schools. She is also working closely with BLM's 

Comprehensive Management Plan Team to develop the trail's management direction. 

Iditarod National Historic Trail (INHT) – Iditarod Trail to Every Classroom (ITREC!): The Forest 

Service is coordinating iTREC!, a multi-agency sponsored professional teacher training program. 

This highly successful program, now in its second year, currently includes 28 trained and highly 

creative teachers that are reaching over 2,000 K-12 students through effective, sustained place-based 

service learning in schools and communities along the Iditarod National Historic Trail. In addition to 

iTREC!, improvements continue on the Iditarod National Historic Trail including the following:

• Bridge Installation: Installed four bridges capable of accommodating snowmobiles and two 

major hiker/pedestrian bridges

• Trailhead Construction: Completed the construction of one new INHT trailhead, including 

parking, toilet, and interpretive kiosk
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-53

FY 2012 Program Accomplishments

(dollars in thousands)

Location

Volunteers

Hours

In-kind 

Contributions

Non-Cash 

Contributions

Miles of 

Trail 

Maintained

Miles of 

Trail 

Improved

Acres 

Acquired

Major 

Structures 

Constructed 1

Appalachian 82,113 $1,753 $145 1,031 226 0 10

Arizona 14,570 0 0 201 59 0 1

Continental 

Divide

2,953 0 0 881 73 0 1

Florida 56,700 1,211 0 1,077 17 73 4

Nez Perce 75,200 1,606 144 99 1.5 0 12

Pacific Crest 74, 103 1,615 322 1002 57 1,448 26

Pacific 

Northwest 25,570 $0 0 250 108 0 9

Other 12,504 268 429 295 38 0 61

Total 293,713 $6,453 $1,040 4,836 380 1,521 114 1 Major structures include bridges, kiosks, boardwalks, campgrounds, etc.

Other only includes accomplishments reporting from Trail of Tears, Ice Age, North Country, Old Spanish, Iditarod, and Camino 

Tierra Adentro.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-54

Office of General Counsel Reimbursement

Office of General Counsel Reimbursement

Background 

This special exhibit is required by P.L. 110-161, page 121, Administrative Provisions, which 

directed: 

Notwithstanding any other provision of law, any appropriations or funds available to the 

Forest Service not to exceed $500,000 may be used to reimburse the Office of the 

General Counsel (OGC), Department of Agriculture, for travel and related expenses 

incurred as a result of OGC assistance or participation requested by the Forest Service at 

meetings, training sessions, management reviews, land purchase negotiations and similar 

non-litigation related matters. Future budget justifications for both the Forest Service and 

the Department of Agriculture should clearly display the sums previously transferred and 

the requested funding transfers.

Overview

The USDA OGC bills the Forest Service quarterly for non-litigation travel and related costs. The FY 

2012 final billing is $26,393.

FY 2012 to FY 2014 OGC Reimbursements 

(dollars in thousands)

FY 2012 Actual

Reimbursement

FY 2013 Estimated

Reimbursement

FY 2014 Estimated

Reimbursement

$26 $30 $30
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-55

Office of Tribal Relations

Office of Tribal Relations

Background 

This exhibit is not required by Congressional direction, but is included to provide information about this 

program. 

Overview

The Office of Tribal Relations (OTR) provides policy advice and direction in implementing agency 

programs and activities in a manner that honors Indian treaty rights and the inherent sovereignty of 

American Indian and Alaska Native Tribes. In addition, the OTR helps the agency fulfill its legally 

mandated trust responsibility while building, maintaining, and enhancing government-to-government 

relationships with federally recognized Tribal governments and government-to-corporation relationships 

with Alaska Native Corporations. The OTR supports the mission of all agency programs and disciplines 

through both general and issue-specific efforts. 

The OTR has responsibilities that span all of the Deputy areas within the Forest Service. The Forest 

Service manages National Forest System lands and resources for the benefit of the general public, while 

respecting the special trust responsibility of the United States towards the 566 federally recognized 

Tribes. Many National Forest System lands are adjacent to American Indian or Alaska Native lands. In 

some cases, Tribal governments retained rights on what are present-day national forests or grasslands 

when the Tribes relinquished lands to the United States Government. Additionally, State and Private 

Forestry programs provide assistance to non-federal landowners, including Tribal governments; Research

and Development programs include a variety of programs and projects that relate to Tribes; and Forest 

Service Business Operations authorities include responsibilities and processes to work with Tribes. 

The OTR supports and integrates Tribal Relations components of policy analysis and development, 

technical, and administrative assistance, training, and oversight. The program also advises national and 

regional Forest Service leadership in matters pertaining to interactions with Tribes and tribal 

representatives. The OTR also helps develop regulations for and tracks implementation of the Tribal 

Relations components of specific legislation, including the Farm Bill and the Tribal Forest Protection Act. 

Allocation and Integration

The OTR is funded by a direct cost pool (Cost Pool 2), using all of the funds available to the Forest 

Service. Specific projects are funded by the primary purpose of the projects.

Partnerships

The OTR collaborates closely with internal units, Tribal governments, intertribal organizations, other 

Federal and State agencies, and other organizations, using the goals and alignments established in the 

Tribal Relations Program Strategic Plan to:

• Ensure the agency redeems its trust responsibility and protects American Indian and Alaska 

Native reserved rights as they pertain to Forest Service programs, projects, and policies

• Leverage partnerships to maximize mutual success

• Promote integration and utility of the Tribal Relations Program throughout the agency

• Support specific strategic goals and objectives of the Forest Service
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-56

Partnerships

Partnerships

Background 

This exhibit is included to provide information requested in P.L. 110-5 House Report 109-465 page 151, 

P.L. 108-108 House Report 108-195 page 99, and P.L. 108-7 House Report 107-564 page 107. Table B 

provides the detailed challenge cost share information requested in the House Reports.

Overview

Since its inception, the Forest Service has maintained a commitment to working with a variety of 

organizations and interests while fulfilling our motto of ‘caring for the land and serving people’. As such, 

we accomplish much of our work through collaboration with a diversity of partners—leveraging millions 

of annually appropriated dollars into a comprehensive partnership program. Significant investments by 

our agency represent a growing percentage of the Forest Service budget and, with community support, 

provide significant funds we leverage into increased opportunities.

In FY 2012, the Forest Service entered into more than 7,700 grants and agreements with partners, who 

contributed $535 million; when leveraged by the agency’s nearly $779 million, the total value of these 

partnerships was over $1.3 billion. In FY 2012, the total value of grants and agreements surpassed the 

dollars spent on contracts agency wide. The growing value of grants and agreements transactions 

demonstrates the increasing importance of partnerships to the Forest Service. In FY 2012 more than 

106,000 volunteers contributed service valued at $93 million, representing a 6 percent increase above FY 

2011 levels. 

These partnerships are more than just money and resources brought to bear. Partnerships enhance “onthe-ground” accomplishments and create immense value and relationships. Relationships bring people 

together across constituencies—public, private and civic. Relationships also build communities of 

interest, place, and culture. At its core, the Forest Service fulfills its mission by creating and sustaining 

healthy, vibrant relationships across constituencies, 

communities and generations. 

The Forest Service could not realize its mission without 

these relationships, including strategic alliances with its 

congressionally chartered nonprofit partners: the National 

Forest Foundation, National Fish and Wildlife Foundation, 

National Environmental Education Foundation, and 

National Park Foundation. 

The Forest Service employs many creative and innovative 

partnership approaches to accomplish its high-priority 

goals in the areas of water supply and conservation, forest 

health and resiliency, restoration, and youth engagement.

Opportunities for partner engagement in these arenas 

include not only funding support, but significant 

volunteerism and in-kind contributions across the country 

in areas where partner and Forest Service interests 

intersect. Through our comprehensive partnership program, 

Fuel Treatment Santa Fe, NM

This active fuel treatment in the Santa Fe, New 

Mexico watershed is part of a broad partnership 

between the city of Santa Fe and the Forest 

Service to reduce the likelihood of a major fire 

event.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-57

we strive to:

• Strengthen connections with communities through restoration of ecosystems by sharing resources 

and expertise to achieve sustainable solutions to current and future resource challenges

• Empower employees and partners by improving the art of associating with others, capitalizing 

and sharing information and skills, fostering continued learning and deeper connections between 

people and the land

• Create a more effective and efficient organization by expanding achievements through working 

together and securing or leveraging new and existing sources of support

Public-Private Partnerships 

The Forest Service is continuing to engage partners and beneficiaries to address today’s challenges 

through our Public-Private Partnership Strategy. Through the implementation of this strategy, we are 

cultivating alliances with partners who are linked through a mutual dependence on healthy forests. 

Contemporary stewardship partners, such as water utilities, power utilities, municipal governments, and 

state regulatory authorities, are encouraged to share in partnership investments in ecosystem health to 

sustain the benefits they value from healthy landscapes and are increasingly working with the agency in 

new and innovative ways. Our long-standing, traditional partners, like ski areas, recreation service 

providers, and the agency’s network of NGOs, continue their support and are actively engaged as well. 

Additionally, our congressionally established foundations continue to play a critical role in landscapelevel outcomes encouraged by these collaborative approaches. The Public-Private Partnership Strategy 

welcomes everyone in the community—non-profit organizations, businesses, civic groups, individuals, 

local and state governments, and others—to share in the stewardship of our nation’s forests and 

grasslands. 

Several ongoing examples of new and contemporary efforts produced through the Public-Private 

Partnership Strategy include:

Citizens of Flagstaff Vote “Yes” to a Restoration Partnership 

Opportunity with the USDA Forest Service - On November 

6, 2012 residents of Flagstaff, Arizona voted “yes” on 

Proposition 405, a $10 million Forest Health and Water 

Supply Protection bond. This bond is designed to support 

watershed restoration activities on State and Federal lands in 

two of Flagstaff’s key municipal watersheds. The bond, 

which gained 73 percent of Flagstaff voters’ support, will 

help the Forest Service fund environmental review, forest 

thinning treatments, and extensive monitoring in the Rio De 

Flag and Lake Mary watersheds on the Coconino National 

Forest. Such active forest management is considered crucial 

for restoring more natural structure, function, and processes

to the forests in the Southwest. Such actions will ultimately 

protect the area from severe flooding while maintaining its 

drinking water supply. 

Wasatch Watershed Legacy Partnership - Urban growth, 

increased recreation use, effects of a changing climate, and invasive species are threatening the 

watersheds of the Wasatch Front and the Uinta-Wasatch-Cache (UWC) National Forest. Since these 

natural systems are the drinking water source for a half-million Salt Lake City residents and a backyard 

playground for millions more, the UWC believes restoration of these ecosystems is paramount. The UWC 

Steep, Forested Slopes outside Flagstaff

The recently passed Flagstaff Forest Health and 

Water Supply Protection bond will fund fuel 

treatments on these slopes. Without treatment, 

severe wildfire here could lead to significant 

flooding in Flagstaff.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-58

and its partners (Salt Lake City, Salt Lake County, the Utah Department of Forestry, the Cottonwood 

Canyons Foundation, the Salt Lake Climber’s Alliance, and Utah Conservation Corps) are implementing 

restoration projects throughout a 50,000 acre area within these watersheds. Specific projects include the 

restoration and maintenance of over 200 miles of trails, invasive species management throughout the 

Wasatch Front, and fuels reduction on several thousand acres.

California State Biomass Partnership - Through partnership efforts, a new State law, SB1122, has been 

enacted that will require investor-owned utilities (Pacific Gas and Electric, Southern California Edison, 

and San Diego Gas and Electric) to purchase at least 50 megawatts of forest-based biomass from high fire 

danger areas each year. New biomass energy facilities will create markets for over 400,000 bone dry tons 

of forest biomass from 30,000 acres per year of fuel hazard reduction work to be completed over the 

next 10 to 20 years. This expands a critical market for national forest restoration biomass. In addition to 

creating markets for byproducts of forest restoration work, these facilities will provide rural employment 

and economic development opportunities, provide air quality benefits, protect utilities transmission 

infrastructure, protect landscapes and local communities, and result in additional production of renewable 

energy over the life of their contracts.

2012 Forest Service Partnership Examples 

The following examples represent various challenge cost-share relationships between the Forest Service 

and partners, funded and implemented in FY 2012.

State and Private Forestry

Forest Legacy Program, Brushy Mountain-Massachusetts

The Brushy Mountain Forest Legacy Project is an important Forest Service contribution to an important 

multi-state partnership. Permanently conserving Brushy Mountain through acquiring a conservation 

easement is an incredible contribution to the landscape integrity of the Quabbin to Cardigan Partnership, a 

multi-State (Massachusetts and New Hampshire) effort to conserve a 100-mile corridor of working forest 

land. Brushy Mountain is a core focus area for the Partnership. Five million dollars of FLP funds have 

been used to conserve more than 3,400 acres of forest that have historically been an important part of the 

local forest products economy. The conservation easement on the property will ensure public access 

including hunting, fishing and hiking.

Urban Forestry Program, Urban Waters Federal Partnership

Launched in June 2011, the Urban Waters Federal Partnership is an innovative union of thirteen Federal 

agencies that is improving coordination among Federal agencies and collaborating with local communityled revitalization efforts. The Partnership is improving our nation’s water systems and promoting their 

economic, environmental, and social benefits. The partnership includes seven pilot locations and 

additional locations will be added in 2013. The Forest Service is the lead agency for USDA and is 

location lead in three pilot cities; Denver, Baltimore, and Northwest Indiana. The Urban Waters Federal 

Partnership has been identified by the Administration as a model for inter-agency collaboration and 

coordination and is consistent with the White House’s Partnership for Sustainable Communities, which 

revitalizes communities, creates jobs and improves the quality of life in cities and towns across the nation. 

In addition, the Partnership advances the work of the America’s Great Outdoors Initiative.

Biomass Program, Woody Biomass Utilization

The Eagle Valley 11-megawatt power plant is being built in Gypsum, CO with support from a Forest 

Service Woody Biomass utilization grant and Rural Utility Service’s loan guarantee of $40 million. We 

anticipate that several stewardship contracts from the Forest Service, BLM and State land contracts will 

provide significant portions of the fuel for the plant. We anticipate that the existence of the biomass plant 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-59

will provide a market for the two recently re-opened sawmills in the area to sell their harvest residuals and 

some of their manufacturing residuals, thus making them more viable.

Biomass Program, Wood to Energy

USDA agencies, as part of the Wood to Energy Initiative, are in the midst of piloting several states in 

expanding the use of woody biomass. Coordinated efforts in Oregon, Montana, and Alaska are providing 

assistance on technology choices, financing options and social acceptance of wood energy. The Montana 

effort is specifically the result of funds for implementing the National Cohesive Wildland Fire 

Management Strategy. These state efforts are the result of partnerships between BLM, Forest Service, 

state agencies (forestry and energy), Rural Development and collaborative groups.

National Forest System

Rocky Mountain Watershed Protection Partnership

Four major river systems and the water supply of over four million people on the Front Range of 

Colorado and southern Wyoming are under duress from effects of climate change and a history of 

aggressive fire suppression. This partnership, with coordination and support from the National Forest 

Foundation, invests public and private funds in the watershed restoration projects necessary to protect 

these resources. Partner funding and other support for this partnership comes from many sources, such as 

Denver Water, Aurora Water, Colorado Springs Utilities, Vail Resorts, Miller Coors, Coca-Cola, the 

Gates Family Foundation, the Coalition for the Upper South Platte, and the National Forest Foundation. 

One example that highlights this support is Denver Water: the utility is matching $16.5 million in Forest 

Service contributions with its own contribution of $16.5 million, through an average residential ratepayer 

contribution of $27 over five years. All together, partners plan to contribute $19 million to this endeavor 

through 2015, and the Forest Service plans to contribute $21 million.

Collaborative Forest Landscape Restoration Program (CFLRP)

In 2009, the Secretary of Agriculture articulated his vision for America’s Forests, underscoring the 

importance of forest restoration and pursuing collaborative solutions through landscape-scale operations. 

Following these announcements, the bipartisan CFLRP was established, with an aim of fostering 

collaborative, science-based restoration on priority forest landscapes across the United States. Since then, 

a total of 20 projects have been selected for CFLRP funding. The program has leveraged substantial 

partner investment; the Forest Service expects nearly $102 million in partner investment from FY 2012 

through FY 2019. The projects these partner investments help enable are stretched across the country, and 

their goals are diverse and worthwhile: reducing mega-fire risk, improving oak and pine regeneration, 

restoring water channels, and creating jobs. 

Outdoor Nation

In 2012, the US Forest Service signed a Memorandum of Understanding with Outdoor Nation. Outdoor 

Nation is a mobilizing movement to get youth outdoors and active; it engages, empowers, and activates 

young leaders across the country to spearhead on-the-ground projects to develop the next generation of 

natural resource leaders. Launched in 2010, Outdoor Nation is the only national initiative that is engaging 

tens of thousands of Millennials through summits and on-line campaigns. In 2012, the partnership 

reached 30,000 youth through summits across the nation. Sixty six percent of the participants were from 

culturally diverse backgrounds. The partnership leveraged $250,000 of funding for outdoor projects 

designed and led by youth delegates. The Forest Service hosted natural resource career panels at each of 

the eight summits. The Outdoor Nation partnership will continue to provide opportunities to host Outdoor 

Nation Summits on NFS lands and universities across the United States.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-60

Watershed Condition Framework

The Forest Service and its partners recently finished classifying over 15,000 national forest watersheds 

through a nationally consistent, comparable, and science-based approach to help prioritize restoration 

projects. By relying on the resulting product, the Watershed Condition Framework, we were able to 

designate 256 priority watersheds and then develop 205 watershed restoration action plans. Used to guide 

restoration efforts, those action plans rely heavily on partnership engagement; nearly 1,000 partnerships 

will be formed in order to restore streams, improve road conditions, actively manage forest fuels, and 

more. Trout Unlimited, The Nature Conservancy, Rocky Mountain Elk Foundation, the National Forest 

Foundation, and the National Wild Turkey Federation are all expected to play a major role and participate 

in numerous projects, while Federal agencies, local governments, watershed councils, tribes, universities, 

private landowners, and private businesses will also contribute resources. In addition to providing their 

collaborative insights, partners are expected to contribute $94 million over five years toward this 

comprehensive watershed restoration effort.

Research and Development 

Forest Products Laboratory’s Partnership with American Plywood Association

In FY 2012, the Forest Products Laboratory teamed up with American Plywood Association (APA) and 

The Engineered Wood Association to hold architectural design contests in Baltimore, MD and 

Providence, RI. In January 2013, "Carbon Challenge" competitions will challenge architects and other 

home designers to design an urban residential home with the smallest possible carbon footprint. Winning 

designs will serve as models for future residential construction, showcasing the use of wood as a green 

building material and promoting sustainable strategies in building design.

Forest Inventory and Analysis Program (FIA)

In cooperation with State Agencies and Universities, Forest Service R&D implements the annualized 

inventory under the FIA program. The Federal-State partnership is especially valuable. 34 percent of all 

FIA employees are state employees and contractors, while 66 percent are Federal employees. In addition, 

States are significant users of FIA data. For example, the Colorado State Forest Service reports, “The 

statistically sound data produced by FIA will allow us to more fully understand the impacts of our current 

mountain pine beetle infestation. Some impacts including those on productivity, water quality, recreation 

resources, and wildlife habitat are important today and will likely be more important in the future.”

Delivering Critical Science Information to Tribes

Forest Service R&D is also working to strengthen our partnerships with Tribes and intertribal 

organizations. In FY 2012, Forest Service R&D partnered with the Intertribal Timber Council to identify 

priority tribal research needs, and entered into a cooperative project with the Salish-Kootenai Tribal 

College to develop new communication materials that highlight traditional knowledge around fire 

management. By enhancing the agency’s relationships with these groups, the Forest Service will be better 

able to deliver critical science information to these communities, and create opportunities to better 

leverage local and traditional knowledge into our research and development programs.

Congressionally Authorized Foundations

National Forest Foundation

Founded by Congressional charter in 1991, the National Forest Foundation (NFF) engages America in 

community-based and national programs that promote the health and public enjoyment of all 193 million 

acres of national forests and grasslands. The NFF accepts and administers gifts of funds and lands, and 

provides financial and technical support to facilitate community-based conservation benefiting the 

National Forest System (NFS).
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-61

Working through a combination of direct restoration initiatives, award programs, and technical assistance, 

the National Forest Foundation empowers communities in caring for their local forests and watersheds. 

Treasured Landscapes, Unforgettable Experiences

Three years ago, the NFF and the Forest Service embarked on a $100 million national conservation 

campaign know as “Treasured Landscapes, Unforgettable Experiences”. Recognizing the tremendous 

forest restoration needs and increasingly urbanized constituency of the Forest Service, the NFF aims to 

revitalize our forests and strengthen the American people’s connection to their public lands through the 

targeted campaign. Working in special landscapes from Alaska to New Hampshire, this campaign is 

uniting diverse partners and communities to promote the health of their public lands and their own 

enjoyment of them. 

Last fall, the NFF crossed the $62 million mark in its fundraising effort. This summer, the NFF has 

entered the public phase of the campaign by launching a substantial media campaign. Much of the 

“Treasured Landscapes, Unforgettable Experiences” campaign is focused on 14 keystone sites, carefully 

selected based on conservation need, ecological values, and citizen interest.

Tree-Planting and the Carbon Capital Fund

The Carbon Capital Fund (http://www.nationalforests.org/conserve/carbon/carboncapitalfund) was 

developed to educate the public about carbon sequestration, while providing a way to contribute to a 

program that ameliorates the impacts of climate change. Through this pilot program, the NFF invests in 

reforestation projects on national forests that have suffered a natural degradation of forest cover. These 

reforestation projects provide third-party validated and verified carbon offsets for the voluntary market, 

currently solely offered by the NFF. The contributor can choose either non-registered offsets, or, through 

the American Carbon Registry, registered and retired offsets that cannot be traded, sold, or used for 

statutory or regulatory obligations.

In recent years, severe wildfire, insect outbreaks, and other impacts have damaged millions of acres of 

national forests. The NFF is helping to revitalize these landscapes through large-scale tree-planting,

supported primarily through corporate partnerships and individual donations. The Arbor Day Foundation 

and American Forests also collectively contribute more than a million dollars annually for tree planting 

on NFS lands that have been degraded through wildfire, insects and disease, or other natural disturbance. 

The NFF is also developing a watershed stewardship program that will likely focus on restoring 

headwaters on NFS lands. 

Wildfire Recovery Fund

This summer, the NFF established the Wildfire Recovery Fund to allow people across the country to 

support ecological restoration work in areas damaged by catastrophic wildfire. In partnership with the 

Forest Service, the NFF and this Fund will assist in a more rapid and comprehensive response to severe 

wildfire, helping work crews to restore and protect waterways, reduce the chance of mud and debris 

slides, and plant new trees and groundcover lost to fire. 

Granting Programs

Through its granting programs, the NFF has provided conservation awards to more than 400 nonprofit 

organizations to complete more than 1,300 projects over a 10-year period. The NFF and its partners have 

invested more than $103 million of Federal and non-Federal funds in these projects, leveraging the 

Federal award funds at a ratio of nearly 4:1. These granting programs include:
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-62

Matching Awards Program - This is the NFF’s flagship awards program, offering challenge 

grants to non-profits to complete on-the-ground conservation and citizen-based monitoring 

projects that benefit national forests and grasslands. 

Wilderness Stewardship Challenge - This program provides matching grants to nonprofit partners 

to implement wilderness stewardship in National Forest Wilderness Areas.

Ski Conservation Fund & Forest Stewardship Fund - This program supports unique partnerships 

with ski areas, lodges, outfitters, and campground operators. Visitors to these businesses on or 

near NFS lands can make voluntary contributions to support conservation and restoration projects 

on that forest. The NFF awards the collected funds to local nonprofit organizations who 

implement the projects. 

Community Capacity and Land Stewardship Program - Started in 2011, this program provides 

capacity-building support for local collaborative efforts that work toward achieving watershed 

restoration objectives within the geographic focus areas of Oregon, Washington, and Southeast 

Alaska. The NFF has worked with Forest Service and nonprofit partners in the Pacific Northwest 

to create and implement this innovative capacity-building grant program in support of 

collaboratives and community-based organizations throughout the area. 

Conservation Connect

In addition to its grant programs, the NFF supports community-based collaborative groups through 

technical assistance and peer learning to meet the needs of collaborative efforts at various stages of 

growth and capacity, from start-up to sustainable organizations. Conservation Connect: A Learning 

Network for Collaboration (http://www.nationalforests.org/conserve/conservation-connect) seeks to 

broaden and connect the community of people working to collaboratively steward NFS lands, prevent 

repetition of common mistakes and promote successful strategies. Conservation Connect’s primary goal is 

to assist groups of diverse interests in working more efficiently and effectively to achieve long-lasting, 

on-the-ground results for the benefit of our national forests and grasslands. The program fosters 

community-to-agency connections, and helps groups identify common challenges and move to team 

problem-solving. 

Conservation Connect provides access to peer learning sessions, networking opportunities, and an 

extensive online library of tools, best practices and lessons learned regarding collaboration.

Public Engagement and Constituency Building

To help build a growing constituency of supporters, the National Forest Foundation conducts public 

outreach, education, and volunteer activities. The NFF helps people learn about the issues and values 

surrounding our National Forests through publications, the NFF website (www.nationalforests.org), social 

media, a monthly electronic newsletter (tree-mailTM), and hands-on stewardship events.

National Fish and Wildlife Foundation

The Forest Service’s partnership with National Fish and Wildlife Foundation (NFWF) is of high-value 

and one of our largest and longest-standing partnerships. Since the beginning of the partnership in 1988, 

NFWF has undertaken more than 1,229 projects in partnership with the Forest Service and has leveraged 

more than $44.3 million in Forest Service funds with more than $207.2 million in partnership funding for 

targeted, on-the-ground conservation. Foundation grants have been made to more than 125 national 

forests and Research Stations in all nine regions of the Forest Service.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-63

Congress’s FY 2012 appropriation to NFWF, through the Forest Service, was $3 million. These funds 

were matched at least 1:1 with non-Federal funds, and will be allocated to on-the-ground, high-priority 

conservation projects over the next five years. For example, in fiscal year 2009, NFWF leveraged $4.9 

million in Forest Service funds into nearly $24 million for on-the-ground conservation.

Strategic Keystone Initiatives

Starting in 2008, NFWF realigned its grant-making to be more targeted and outcome-based. “Keystone 

Initiatives” were designed to achieve a measurable conservation outcome in a five-to-ten year timeframe.

Specific goals and strategies are identified for each initiative through the development of business plans 

that serve as guides for the types of projects that will be considered for funding by NFWF ($1.65 million 

in FY 2012).

Wildlife and Landscape Scale Habitat Keystone

Addresses conservation needs for mammals, reptiles, amphibians, invertebrates, and native plants. The 

Foundation is currently working with the Forest Service on Sierra Nevada Wet Meadow restoration and 

Northern Rockies Wildlife Corridors (eastern Idaho and western Montana).

Freshwater Fish and Habitat Keystone

Focuses on high-priority species and habitat for freshwater fish and associated aquatic life such as 

mussels, crayfish, and invertebrates. The Foundation is currently working with the Forest Service on 

Eastern Brook Trout (Virginia and West Virginia) and Apache Trout (Arizona).

Bird and Habitat Keystone

Focuses on migratory and resident bird species and their habitat. The Foundation is currently working 

with the Forest Service to promote the conservation of Gunnison Sage Grouse (Colorado and Utah) and a 

wide variety of Southeastern grassland birds such as bobwhite quail and Bachman’s sparrow.

Charter Grant Programs

In FY 2012, $1.35 million in funds were also awarded through targeted Charter Grant Programs that 

include:

Pulling Together Initiative - A unified effort by NFWF, DOI, and USDA to fund and implement 

effective, long-term invasive plant management at the local level ($200,000 in FY 2012).

Bring Back the Natives - Seeks to implement the National Fish Habitat Initiative Action Plan by 

supporting on-the-ground watershed restoration and native fish projects ($600,000 in FY 2012).

Chesapeake Bay Small Watershed Grant Program - Provides grants to organizations and local 

governments working on a community level to protect and improve watersheds in the Chesapeake 

Bay basin ($100,000 in FY 2012).

The Upper Mississippi River Watershed Fund - Supports projects benefiting forest stewardship 

and the restoration of watersheds in the Upper Mississippi River drainage ($200,000 in FY 2012). 

The Great Lakes Watershed Restoration Program - Funds organizations working to protect, 

restore, or enhance the habitat for fish, wildlife, and plants of the Great Lakes watershed

($200,000 in FY 2012).

Native Plant Conservation Initiative - Supports on-the-ground conservation projects that protect, 

enhance, and restore native plant communities on public and private lands ($100,000 in FY

2012).
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-64

Alaska Fund - A partnership with FWS, BLM, and corporate entities to support wildlife focused 

projects in Alaska ($50,000 in FY 2012).

New Initiatives with NFWF

In the last two years, in addition to the congressionally appropriated funds, we have collaborated on a 

number of new initiatives that address strategic Forest Service priorities:

Longleaf Pine Stewardship Fund - Developed in partnership with Forest Service Southeast 

Region, this initiative brings together Federal and corporate partners (Forest Service, NRCS, 

DoD, FWS, and Southern Company) to accelerate the restoration and conservation of the 

historic longleaf pine ecosystem and the implementation of the Range-Wide Conservation Plan 

for Longleaf Pine. In the first year, nearly $2.9 million was available through the fund for onthe-ground restoration projects. Forest Service funds have been committed for a second year of 

competitive funding in FY 2013.

Youth Engagement Initiative - As part of the America’s Great Outdoors (AGO), NFWF, Forest 

Service and BLM have created a new initiative that provides support for youth employment in 

conservation, and conservation education partnerships. Launched in FY 2012, the initiative has 

provided nearly $1 million to projects that benefit NFS lands and Forest Service programs, 

through 21 selected youth employment projects. A second, small-grant program focused on 

conservation education, led by the National Environmental Education Foundation (NEEF), will 

make project awards in early 2013. Currently, additional Forest Service funding has not been 

identified for this initiative in 2013, although BLM and the Bureau of Reclamation continue to 

fund the program.

Re-Wetting of Indian Valley High Meadow in California - NFWF has played a key role in a 

new Public Private Partnership (PPP) with The Coca-Cola Company (TCCC) to restore the 

degraded high-meadow Indian Valley on the Eldorado NF. The project objectives are to restore 

floodplain connectivity, groundwater recharge, and flood attenuation; restore wet meadow 

habitat; and provide a clean and consistent water supply for human use. Through this new 

partnership, more than 80.5 million gallons of water will be replenished each year; a key 

consideration for TCCC’s engagement. Although facilitated at the Forest Service Washington 

Office, project implementation is led by the Forest Service Southwest Region. This pilot 

program establishes an important new PPP for the Forest Service and may lead to other 

partnership projects in the future.

Future Opportunities

A wide range of new partnership opportunities exist and are in some state of discussion, including work 

with the Urban Waters Federal Partnership through the Urban and Community Forestry Program, the 

Impact-Directed Environmental Accounts (IDEA) program, Region-specific initiatives, and potential 

water-focused funding initiatives. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-65

Table A: FY 2012 National Grants and Agreements (G&A) 

Summary by Instrument Type1

(dollars in thousands)

Instrument Type Instrument Description

G&A 

Count

Forest Service 

Contribution

Partner 

Contribution Total Value

Challenge Cost Share 

Agreement

A mutual interest/mutual benefit agreement citing one 

of multiple partnership authorities. 1,066 $49,780 $38,869 $88,649 

Collection Agreement

Partnership instrument used for the acceptance of 

money by the Forest Service from a non-Federal source 

to carry out a mutually beneficial project on NFS lands. 921 14,817 54,874 69,691 

Cooperative Agreement

A legal financial assistance instrument utilized by the 

Forest Service to document a transaction for the public 

good where the Forest Service is substantially involved 

in the performance of the project. 294 37,822 13,773 51,138 

Cooperative Research and 

Development Agreement

A partnership agreement in which the Forest Service 

and other public and private entities pool resources in 

support of scientific research and development for 

mutual interest and benefit of the parties to the 

agreement. 9 0 185 185 

Cost Reimbursable 

Agreement

An agreement used when the primary purpose of the 

agreement is to procure goods and/or services to carry 

out research and teaching activities from authorized 

partners. 124 10,100 357 10,458 

Domestic Grant

A legal financial assistance instrument utilized by the 

Forest Service to document a transaction for the public 

good where the Forest Service is not substantially 

involved with the project. 932 313,601 243,100 556,701 

Cooperative Fire Agreement

An agreement in which the Forest Service works with 

other Federal and State agencies to provide wildland 

fire protection, to perform approved severity activities 

and to respond to states of emergency or disaster under 

FEMA authorities. 249 4,785 3,995 8,780 

Interagency Agreement

Interagency agreements are used when one Federal 

agency is in a position to provide materials, supplies, 

equipment, work or services of any kind that another 

agency needs to accomplish its mission. 1,449 214,743 99,356 314,099 

International Cooperative 

Agreement

Federal Financial Assistance instruments entered into 

between the Forest Service and a foreign recipient 

located, chartered to do business, and operating outside 

of the United States and its territories, regardless of 

whether it is performed domestically or internationally. 

An International Cooperative Agreement would include 

substantial involvement on the part of the Forest 

Service in carrying out the project. 14 1,339 946 2,285 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-66

Instrument Type Instrument Description

G&A 

Count

Forest Service 

Contribution

Partner 

Contribution Total Value

International Grant

Federal Financial Assistance instruments entered into 

between the Forest Service and a foreign recipient 

located, chartered to do business, and operating outside 

of the United States and its territories, regardless of 

whether it is performed domestically or internationally. 

An International Grant would not include substantial 

involvement on the part of the Forest Service in 

carrying out the project. 22 3,166 798 3,964 

International Joint-venture

A mutual interest/mutual benefit agreement entered into 

with a foreign partner for the purposes of conducting 

agricultural research activities and agricultural teaching 

activities. 14 992 414 1,406 

Joint Venture Agreement

A mutual interest/mutual benefit agreement entered into 

for the purposes of conducting agricultural research 

activities and agricultural teaching activities. 457 39,894 14,760 54,653 

Cooperative Law 

Enforcement Agreement

An agreement in which the Forest Service works 

cooperatively with State and local law enforcement 

agencies to enhance enforcement and/or supervision of 

their laws and ordinances on lands within or part of any 

unit of the National Forest System. 469 7,056 0 7,056 

Memorandum of 

Understanding

An MOU is a non-obligating document entered into by 

interested parties to document a framework for 

cooperation. Each party carries out separate activities in 

a mutually beneficial manner and nothing of value 

transfers between parties. 236 0 0 0 

Participating Agreement

A mutual interest/mutual benefit agreement citing one 

of multiple partnership authorities. 1,215 66,718 58,970 125,688 

Cooperative Road 

Agreements

An agreement in which the Forest Service works 

cooperatively with State, county or local public road 

authorities for the cooperative planning, survey, design, 

construction, reconstruction, improvement and 

maintenance of forest roads. 211 10,431 3,857 14,288 

Stewardship Agreement

A partnership agreement with the purpose of achieving 

land management goals on NFS lands that will 

accomplish landscape restoration objectives. 26 3,907 1,459 5,366 

Grand Total 7,708 $779,153 $535,712 $1,314,274 

1. Data are compiled from the Forest Service G&A database. These are either new G&A’s for FY 2012 or G&A’s that had new funding added in FY 2012 via modifications. All 

of these items represent new investments in partnerships that occurred in FY 2012.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-67

Table B: Challenge Cost Share Agreements

Estimated Funds by Budget Line Items1

(dollars in thousands)

Budget Line Item

FY 2010 FY 2011 FY 2012

FS Partner Total FS Partner Total FS Partner Total

CFLRP $0 $0 $0 $1,322 $762 $2,084 $502 $311 $812 

Facilities 3,440 1,206 4,646 620 273 893 96 0 96

Forest and Rangeland Research 2,277 1,433 3,710 4,953 1,883 6,836 1,701 504 2,205

Forest Products 317 38 355 1,038 393 1,431 1,079 681 1,759

Grazing Management 449 180 629 342 28 370 1,109 509 1,618

Inventory and Monitoring 5,688 2,252 7,940 5,025 1,735 6,760 5,030 1,441 6,470

Job Corps 1,485 893 2,378 1,559 1,734 3,293 160 120 279

Minerals and Geology Mgt. 1,173 734 1,907 289 50 339 489 276 765

Other 341 485 826 662 332 994 5,171 3,786 8,957

Rec. Wild. Heritage Mgt. 4,605 6,972 11,577 5,483 8,888 14,371 5,463 6,251 11,714

Roads 1,191 1,910 3,101 950 1,678 2,628 658 811 1,469

State and Private Forestry 1,805 806 2,611 4,085 4,128 8,213 9,257 9,636 18,893

Trails 7,244 5,462 12,706 6,113 8,045 14,158 6,350 5,896 12,246

Vegetation and Watershed Mgt. 4,421 2,563 6,984 1,858 1,996 3,854 3,362 1,561 4,923

Wildland Fire Mgt. 2,434 973 3,407 2,709 1,397 4,106 1,472 556 2,028

Wildlife and Fish Habitat Mgt. 7,052 7,783 14,835 7,046 5,090 12,136 7,884 6,532 14,416

TOTALS $43,922 $33,690 $77,612 $44,054 $38,412 $82,466 $49,780 $38,869 $88,649 

1. Several budget line item program areas showed marked increases in Fiscal Year 2012 compared to Fiscal Year 2011 for challenge cost share agreements. For Fiscal Year 

2012, more detailed information was internally collected on the description of project categories. Due to this change in the data collection methodology, the Fiscal Year 2012 

presentation resulted in an increase, or decrease, in the reporting of funding of several BLIs compared to previous years. For Fiscal Year 2012 data, some of the challenge cost 

share agreements associated with the Environment Education/Interpretation category were grouped into the Recreation, Wilderness, and Heritage Management BLI. 

Subsequently, the total amount of challenge cost share agreements in Fiscal Year 2012 for State and Private Forestry is less and the total amount for Recreation, Wilderness, and 

Heritage Management is more. Additionally, the increase in State and Private Forestry challenge cost share agreements for Fiscal Year 2012 is due, in part, to an increase in the 

number of forest health issues associated with invasive species, disease and fire resulting in more funded projects in the Forest Health category. For Fiscal Year 2012 compilation 

of data, a number of challenge cost share agreements were aggregated into the “Other” BLI and these included Planning, Policy Analysis, Lands Management, Training and 

Business Administration/Operations. In previous years, some of these categories were aggregated under a different budget line item which explains why the “other” BLI is higher 

in Fiscal Year 2012.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-68

Reforestation

Reforestation

Background 

This exhibit is included to address requirements of P.L. 109-54 House Report 109-80 page 138, which

directed:

The Committee expects the Forest Service to provide clear presentations of reforestation needs 

and accomplishments in future budget justification, including the specific use and distribution of 

the mandatory funding from the Reforestation Fund, as well as partner efforts, such as the 

American Forest initiative.

Overview

The Forest and Rangeland Renewable Resources Planning Act of 1974 (RPA) (P.L. 93-378), as amended 

by the National Forest Management Act of 1976 (NFMA) Section 3(d) 1, directs that all forested lands in 

the National Forest System (NFS) be maintained in appropriate forest cover with species of trees, degree 

of stocking, rate of growth, and conditions of stand designated to secure the maximum benefits of 

multiple use sustained yield management in accordance to land management plans. It further requires the 

Secretary of Agriculture to identify and report to the Congress, at the time of submission of the 

President’s Budget together with the annual report provided under section 8 (c) of the Act, the amount 

and location, by national forest and State and by productivity class, where applicable, of needs to reforest 

areas that have been cut-over or otherwise denuded or deforested.

The Forest Service reforestation program has four major goals:

• Maintain all forest lands within the National Forest System in appropriate forest cover 

• Improve the quality and yield of new timber stands

• Promptly achieve desired stocking levels in a cost-efficient manner

• Develop and demonstrate successful reforestation methods and techniques and encourage their 

use by private landowners.

Prompt reforestation is desirable to prevent soil erosion and protect water quality in streams and lakes. 

Through species and seed source selection, reforestation may increase the resilience of forest vegetation 

communities to the effects of global climate change and provide effective long-term carbon sequestration. 

Reforestation benefits wildlife and fish species and improves scenic quality and recreational experience. 

There are a variety of activities associated with the reforestation program, including planting, seeding and 

site preparation. Site preparation may be done to prepare the site for planting, for seeding, or to facilitate 

natural regeneration. Forest and stand level management objectives may be jeopardized without 

appropriate reforestation treatments. 

Reforestation work is time-sensitive. Without timely reforestation efforts, undesirable species may 

dominate forest vegetation communities, making establishment of desired tree species difficult. Once 

undesirable species become established, decades may pass before sufficient numbers of desired tree 

seedlings occupy the site and the opportunity to facilitate adaptation to the effects of climate variability or 

other stressors may be lost. Delays increase the cost of reforestation work by necessitating expensive site 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-69

preparation, reduce timber yields, and may adversely affect meeting other resource objectives. In 

addition, these areas may be less resilient to wildfire and increase risk to adjacent communities. 

Program Plans and Accomplishments 

The agency’s reforestation capacity is dependent on several program areas, as well as numerous 

partnerships and cooperative agreements. Reforestation needs generated through timber harvest activities 

are generally met through funds collected under the Knutson-Vandenberg (K-V) Act authority. 

Reforestation needs for areas outside timber sale areas are primarily funded by the proposed Integrated 

Resource Restoration budget line item (BLI) and the Reforestation Trust Fund. Corporate partners and 

civic groups also contribute to the agency’s capacity for reforestation through partnerships and matching 

fund agreements.

In FY 2012, the agency reforested a total of 217,451 acres. Of this total, the agency accomplished 

119,334 acres through certification of natural regeneration of sites not requiring preparation. At the start 

of FY 2013, the agency has identified 1,044,571 acres of NFS lands that can benefit from reforestation. 

The identified acres are the result of completed silviculture diagnosis and prescriptions. The on-going 

assessment of areas impacted by wildfire in prior years significantly added to this figure.

The agency’s total reforestation target for FY 2013 is 220,200 acres, which will be funded from multiple 

sources. This includes approximately 74,300 acres of reforestation funded from the proposed Integrated 

Resource Restoration BLI, a target similar to what we have previously accomplished through Emergency 

Supplemental Funds for fire restoration and the Rehabilitation and Restoration program. The agency will 

reforest an additional 121,000 acres utilizing the Reforestation Trust Fund and K-V Trust funds, and 

8,000 acres will be accomplished through partnerships. Actual accomplishments may vary significantly, 

depending on the type of treatment necessary to meet restoration objectives and the cost of that treatment.

The agency has developed and is implementing a strategy to increase nursery production to meet 

projected reforestation needs generated by past wildfire activity. As increased seedling production comes 

on line, additional reforestation through planting of seedlings will be feasible. It takes one to two years 

and sometimes longer for the nurseries to produce the planting stock necessary to meet the demands of 

the regional programs. 

The graph below shows reforestation needs and accomplishments for FY 2000 through FY 2012. Since 

FY 2000, reforestation needs have accumulated largely due to large wildfires affecting national forests in 

the West and insect epidemics in the East. From FY 2000 through FY 2012, reforestation addressed about 

24 percent of the reforestation needs nationally. However, since FY 2008 the agency has been building 

nursery stock production and reforestation capability. Funds provided through emergency supplemental 

appropriations have been instrumental in facilitating this increase in capacity. Reforestation capacity and 

the projected accomplishments for FY 2013 continue to reflect increases associated with these 

supplemental funds.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-70

Trends in Reforestation to FYs 2000 -2012

1/This graph displays the current reforestation needs as of the end of FY 2011. The increase from FY 2010 to FY 2011 is a result 

of additions to needs resulting from field analysis of wildfire events during FY 2010 and 2011. 

2/The percent accomplishment is calculated by dividing the current year’s accomplishment by the prior fiscal year need. 

The graph of reforestation needs below shows the relative significance of various contributing factors on 

reforestion. The majority of the new reforestation areas are the result of wildfires, particularly in the 

western regions. These areas are identified based on the opportunity for re-establishing desired vegetation 

through sequenced silviculture prescriptions. This includes artificial regeneration either by planting or 

seeding as well as certification of natural regeneration when there is sufficient seed producing trees on the 

site. In order to assure that successful regeneration is taking place, reforestation areas are scheduled for 

periodic stocking surveys. The increase in reforestation need created by wildfires reported in FY 2011 

compared with the number of acres affected by fires is the result of continued assessments of fires in prior 

years and the development of detailed silviculture prescriptions and the planned treatments needed to reestablish forest vegetation.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-71

Causal Agent for Reforestation Needs

FY 2000-2012
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-72

Region, Station and Area Allocations 

Region, Station and Area Allocations

Background 

This exhibit is not required by Congressional direction but is included to provide historical information on 

allocations of appropriations at the Fund and Budget Line Item levels to Forest Service Regions, Stations 

and Areas.

Overview

The Office of Management and Budget apportions all funds available to the Forest Service prior to 

obligation or disbursement. Once funds are apportioned to the Forest Service at the fund level, they are 

allocated throughout the agency to Budget Line Items in the Regions, Stations, and Areas.

The Forest Service operates through nine geographical regions, seven research stations, the Northeastern 

Area - State and Private Forestry, the Albuquerque Service Center in Albuquerque, New Mexico, and the 

national headquarters in Washington, D.C. Allocations are determined by balancing the priorities of 

Congress, the Administration, agency leadership, and Region/Station/Area capabilities. They act as 

agency administrative divisions of apportionments and are used to monitor financial status and prevent 

deficiency.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-73

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $2 $0 $0 $42 $58 $63

State & Private Forestry

Forest Health Management - Federal Lands $2,885 $3,136 $2,015 $2,729 $2,614 $1,331

State Fire Assistance 1,886 1,702 1,297 3,077 2,416 1,954

Forest Health Management - Cooperative Lands 496 835 435 684 1,123 1,623

Volunteer Fire Assistance 446 425 425 776 741 740

Forest Stewardship 618 1,165 700 1,138 2,388 1,240

Forest Legacy Program 8,872 9,873 9,709 2,736 4,291 1,789

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 705 778 748 1,646 2,093 1,745

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 $15,906 $17,913 $15,329 $12,785 $15,666 $10,423

National Forest System

Collaborative Forest Landscape Restoration $0 $45 $6,503 $0 $4,438 $4,149

Land Management Planning 2,718 2,725 2,314 3,190 3,447 2,518

Inventory and Monitoring 11,235 11,044 11,278 9,656 9,763 9,076

Recreation, Heritage, and Wilderness 16,585 16,232 15,578 26,731 25,721 25,757

Wildlife and Fisheries Habitat Management 10,660 10,441 0 8,925 8,683 9,289

Grazing Management 5,337 5,210 6,216 7,821 7,735 8,946

Forest Products 30,849 30,875 0 24,809 24,777 25,707

Vegetation and Watershed Management 19,394 18,765 0 14,319 13,577 13,494

Minerals and Geology Management 9,885 9,219 9,232 9,385 8,741 8,539

Landownership Management 6,789 6,435 6,167 7,686 7,220 6,705

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Integrated Resource Restoration 0 0 58,698 0 0 0

Total National Forest System $113,452 $110,990 $115,986 $112,521 $114,102 $114,180

Wildland Fire Management

Fire Preparedness $57,166 $56,173 $58,941 $29,842 $29,237 $30,919

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 24,896 22,510 17,325 30,236 30,354 27,327

Rehabilitation and Restoration (NFP) 1,443 1,679 0 409 491 0

Fire Research and Development (NFP) 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 3,060 2,913 1,993 3,500 3,333 1,919

Forest Health Management -- Cooperative Lands (NFP) 971 2,082 1,590 897 1,560 1,164

State Fire Assistance (NFP) 1,738 4,946 722 2,512 6,331 1,422

Volunteer Fire Assistance (NFP) 707 706 500 840 839 593

Collaborative Forest Landscape Restoration 2,029 7,059 0 1,446 114 0

Total Wildland Fire Management $92,010 $98,067 $81,070 $69,682 $72,258 $63,345

Use of Prior Year Funds $0 $0 $0 $0 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $0 $0 $0

Capital Improvement & Maintenance

Facilities $5,845 $6,541 $3,324 $13,800 $13,568 $6,238

Roads 19,395 16,098 15,289 25,768 22,841 19,081

Trails 11,448 12,555 11,415 9,600 9,668 8,734

Infrastructure Improvement 804 219 1,869 838 652 1,337

Legacy Roads and Trails 12,149 5,158 0 4,187 3,699 3,644

Total Capital Improvement & Maintenance $49,641 $40,572 $31,897 $54,193 $50,428 $39,035

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $831 $1,359 $831 $272 $699 $541

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $831 $1,359 $831 $272 $699 $541

Range Betterment Fund $271 $270 $0 $513 $505 $0

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

Management of NF Lands for Subsistence Uses $0 $0 $0 $0 $0 $0

TOTAL Forest Service (DISCRETIONARY) $272,114 $269,172 $245,113 $250,008 $253,717 $227,587

Permanent Working Funds $20,351 $14,918 $14,383 $19,602 $15,019 $16,432

Trust Funds $11,745 $10,960 $13,377 $12,693 $13,197 $13,689

TOTAL ALL FUNDS $304,210 $295,050 $272,872 $282,303 $281,933 $257,708

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Region 1 - Northern Region Region 2 - Rocky Mountain Region

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-74

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $0 $7 $0 $0 $7 $0

State & Private Forestry

Forest Health Management - Federal Lands $1,286 $1,574 $1,384 $2,310 $2,241 $1,410

State Fire Assistance 929 692 589 917 1,110 602

Forest Health Management - Cooperative Lands 384 450 272 234 1,171 1,309

Volunteer Fire Assistance 186 178 177 144 138 137

Forest Stewardship 532 672 719 322 385 454

Forest Legacy Program 1,021 134 147 2,441 96 4,092

Community Forest & Open Space Conservation 0 0 0 0 0

Urban and Community Forestry 618 975 692 563 677 642

Economic Action Program 0 0 0 200 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 $4,954 $4,676 $3,980 $7,131 $5,818 $8,646

National Forest System

Collaborative Forest Landscape Restoration $0 $5,913 $6,243 $0 $0 $190

Land Management Planning 4,072 4,472 4,100 2,056 2,016 1,395

Inventory and Monitoring 9,903 9,603 9,248 12,929 12,506 12,021

Recreation, Heritage, and Wilderness 23,402 23,301 23,820 26,501 26,375 26,554

Wildlife and Fisheries Habitat Management 9,524 9,222 0 11,085 10,293 0

Grazing Management 8,567 8,669 10,016 9,515 9,233 10,493

Forest Products 11,044 11,117 0 13,362 12,826 0

Vegetation and Watershed Management 13,204 12,945 0 17,616 16,889 0

Minerals and Geology Management 8,318 6,922 7,019 11,676 11,433 10,908

Landownership Management 5,595 5,215 4,975 8,337 7,731 7,036

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Integrated Resource Restoration 0 0 37,818 0 0 41,127

Total National Forest System $93,628 $97,379 $103,239 $113,077 $109,301 $109,724

Wildland Fire Management

Fire Preparedness $60,823 $59,755 $62,949 $55,328 $56,475 $61,144

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 42,144 38,707 30,066 23,249 25,335 21,059

Rehabilitation and Restoration (NFP) 1,143 948 0 2,444 2,915 0

Fire Research and Development (NFP) 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 446 982 719 2,897 2,466 1,829

Forest Health Management -- Cooperative Lands (NFP) 1,348 600 324 827 901 218

State Fire Assistance (NFP) 1,358 3,365 342 1,612 1,980 355

Volunteer Fire Assistance (NFP) 576 574 406 310 309 219

Collaborative Forest Landscape Restoration 2,392 81 0 0 94 0

Total Wildland Fire Management $110,229 $105,011 $94,806 $86,667 $90,476 $84,825

Use of Prior Year Funds $0 $0 $0 $0 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $0 $0 $0

Capital Improvement & Maintenance

Facilities $9,081 $9,479 $5,093 $11,285 $12,183 $4,995

Roads 21,472 16,463 14,623 19,055 15,705 15,722

Trails 4,008 4,291 4,037 8,921 9,108 8,236

Infrastructure Improvement 711 697 919 811 917 1,456

Legacy Roads and Trails 7,090 3,446 0 10,122 4,168 0

Total Capital Improvement & Maintenance $42,362 $34,377 $24,672 $50,193 $42,081 $30,408

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $207 $488 $298 $592 $771 $747

Acquisition of Lands for National Forests, Special Acts 0 0 0 63 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $207 $488 $298 $655 $771 $747

Range Betterment Fund $671 $639 $0 $749 $759 $0

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

Management of NF Lands for Subsistence Uses $0 $0 $0 $0 $0 $0

TOTAL Forest Service (DISCRETIONARY) $252,052 $242,578 $226,996 $258,472 $249,213 $234,350

Permanent Working Funds $14,086 $13,419 $12,114 $41,492 $37,817 $39,462

Trust Funds $3,810 $2,751 $3,636 $5,913 $5,393 $5,307

TOTAL ALL FUNDS $269,948 $258,747 $242,747 $305,877 $292,422 $279,118

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Region 3 - Southwestern Region Region 4 - Intermountain Region

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-75

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $0 $0 $0 $150 $108 $151

State & Private Forestry

Forest Health Management - Federal Lands $2,622 $2,259 $1,178 $3,535 $3,400 $2,358

State Fire Assistance 2,473 1,844 1,487 2,713 4,704 4,181

Forest Health Management - Cooperative Lands 1,167 2,559 2,562 1,102 2,118 2,413

Volunteer Fire Assistance 374 357 356 230 220 219

Forest Stewardship 707 1,626 1,053 997 1,313 820

Forest Legacy Program 4,881 378 9,854 5,127 116 165

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 2,317 2,576 2,379 1,731 1,086 791

Economic Action Program 3,000 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 $17,541 $11,598 $18,869 $15,435 $12,957 $10,947

National Forest System

Collaborative Forest Landscape Restoration $0 $416 $1,639 $0 $2,880 $3,395

Land Management Planning 2,736 3,142 2,625 4,828 4,904 4,476

Inventory and Monitoring 13,102 12,860 13,459 13,932 13,676 12,708

Recreation, Heritage, and Wilderness 31,120 29,173 29,238 26,897 26,592 27,634

Wildlife and Fisheries Habitat Management 13,635 13,492 14,325 17,303 17,553 17,671

Grazing Management 3,209 3,103 3,779 3,971 3,741 4,578

Forest Products 34,948 34,544 35,516 59,165 58,717 59,421

Vegetation and Watershed Management 18,398 17,217 17,725 22,779 22,324 23,501

Minerals and Geology Management 6,672 6,422 6,891 5,533 5,102 4,929

Landownership Management 10,438 9,732 8,677 9,019 8,558 7,702

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Integrated Resource Restoration 0 0 0 0 0 0

Total National Forest System $134,259 $130,101 $133,874 $163,427 $164,049 $166,015

Wildland Fire Management

Fire Preparedness $205,755 $207,244 $234,499 $78,827 $78,385 $85,291

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 58,074 57,114 50,099 35,538 33,365 32,551

Rehabilitation and Restoration (NFP) 2,548 2,745 0 1,251 1,109 0

Fire Research and Development (NFP) 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 2,897 2,057 1,430 3,589 3,675 2,787

Forest Health Management -- Cooperative Lands (NFP) 955 2,056 1,330 2,054 1,862 1,386

State Fire Assistance (NFP) 11,899 9,055 6,280 2,299 5,402 972

Volunteer Fire Assistance (NFP) 973 971 687 707 706 500

Collaborative Forest Landscape Restoration 830 108 0 2,132 326 0

Total Wildland Fire Management $283,930 $281,350 $294,326 $126,396 $124,830 $123,488

Use of Prior Year Funds $0 $0 $0 $0 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $0 $0 $0

Capital Improvement & Maintenance

Facilities $13,642 $13,796 $5,724 $14,552 $11,841 $9,121

Roads 24,696 18,791 16,482 33,286 25,803 22,832

Trails 7,835 8,439 7,336 7,680 8,856 7,839

Infrastructure Improvement 1,029 2,126 1,224 1,261 935 1,011

Legacy Roads and Trails 10,086 7,063 6,780 19,510 8,728 8,740

Total Capital Improvement & Maintenance $57,288 $50,216 $37,547 $76,290 $56,163 $49,543

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $704 $1,177 $1,168 $438 $843 $767

Acquisition of Lands for National Forests, Special Acts 987 0 0 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $1,691 $1,177 $1,168 $438 $843 $767

Range Betterment Fund $159 $156 $0 $225 $221 $0

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

Management of NF Lands for Subsistence Uses $0 $0 $0 $0 $0 $0

TOTAL Forest Service (DISCRETIONARY) $494,869 $474,599 $485,784 $382,360 $359,171 $350,910

Permanent Working Funds $48,751 $36,088 $42,539 $54,427 $42,546 $36,402

Trust Funds $25,903 $24,432 $22,126 $31,644 $32,946 $28,406

TOTAL ALL FUNDS $569,523 $535,119 $550,449 $468,431 $434,663 $415,719

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Region 5 - Pacific Southwest Region Region 6 - Pacific Northwest Region

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-76

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $112 $136 $123 $0 $9 $1

State & Private Forestry

Forest Health Management - Federal Lands $8,855 $10,973 $8,487 $18 $16 $18

State Fire Assistance 9,194 7,423 5,982 76 76 75

Forest Health Management - Cooperative Lands 13,749 16,784 7,127 0 0 0

Volunteer Fire Assistance 1,928 1,839 1,837 0 0 0

Forest Stewardship 6,655 8,325 6,221 0 0 0

Forest Legacy Program 18,858 10,699 12,834 0 0 0

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 5,817 7,422 5,542 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 $65,057 $63,466 $48,030 $93 $92 $93

National Forest System

Collaborative Forest Landscape Restoration $0 $1,279 $1,529 $0 $0 $392

Land Management Planning 3,802 3,880 3,413 2,246 2,111 1,689

Inventory and Monitoring 10,704 10,653 10,014 12,175 10,881 10,218

Recreation, Heritage, and Wilderness 30,855 29,605 29,716 24,561 24,064 23,769

Wildlife and Fisheries Habitat Management 17,596 17,658 17,985 14,627 14,757 15,452

Grazing Management 534 574 603 527 570 600

Forest Products 31,941 31,464 32,002 34,542 35,954 36,997

Vegetation and Watershed Management 15,305 14,478 14,286 14,662 15,986 16,571

Minerals and Geology Management 4,454 4,291 4,649 6,009 6,659 6,543

Landownership Management 9,964 9,489 8,410 9,411 9,137 8,517

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Integrated Resource Restoration 0 0 0 0 0 0

Total National Forest System $125,155 $123,370 $122,606 $118,761 $120,119 $120,747

Wildland Fire Management

Fire Preparedness $34,573 $34,267 $36,316 $22,967 $22,416 $23,333

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 41,374 41,868 41,967 11,130 12,933 13,430

Rehabilitation and Restoration (NFP) 347 497 0 573 496 0

Fire Research and Development (NFP) 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 1,000 7 134 0 0 2

Forest Health Management -- Cooperative Lands (NFP) 818 868 191 0 0 0

State Fire Assistance (NFP) 13,464 15,394 10,731 0 0 0

Volunteer Fire Assistance (NFP) 2,250 2,245 1,589 0 0 0

Collaborative Forest Landscape Restoration 1,171 176 0 0 175 0

Total Wildland Fire Management $94,997 $95,323 $90,928 $34,670 $36,020 $36,765

Use of Prior Year Funds $0 $0 $0 $0 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $0 $0 $0

Capital Improvement & Maintenance

Facilities $17,326 $16,908 $10,183 $11,251 $13,149 $5,780

Roads 25,746 19,809 17,997 20,672 16,088 14,569

Trails 8,586 8,747 8,377 7,188 7,337 7,043

Infrastructure Improvement 1,065 1,754 32 926 104 918

Legacy Roads and Trails 11,757 5,311 4,803 10,224 4,115 3,787

Total Capital Improvement & Maintenance $64,479 $52,529 $41,392 $50,262 $40,793 $32,097

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $1,172 $1,439 $1,227 $1,594 $1,680 $1,575

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $1,172 $1,439 $1,227 $1,594 $1,680 $1,575

Range Betterment Fund $0 $1 $0 $0 $0 $0

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

Management of NF Lands for Subsistence Uses $0 $0 $0 $0 $0 $0

TOTAL Forest Service (DISCRETIONARY) $350,970 $336,265 $304,305 $205,381 $198,713 $191,279

Permanent Working Funds $27,775 $25,350 $26,097 $23,642 $19,551 $20,820

Trust Funds $35,226 $38,756 $38,653 $25,028 $19,845 $17,730

TOTAL ALL FUNDS $413,971 $400,370 $369,056 $254,051 $238,109 $229,829

Region 9 - Eastern Region

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Region 8 - Southern Regions

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-77

Region, Station, and Area Allocations FY 2010 to FY 2012

Region 10 - Alaska Region

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $30 $50 $33 $19,361 $24,231 $21,001

State & Private Forestry

Forest Health Management - Federal Lands $1,260 $1,085 $962 $0 $0 $0

State Fire Assistance 916 744 644 0 0 0

Forest Health Management - Cooperative Lands 734 700 334 0 0 0

Volunteer Fire Assistance 154 147 147 0 0 0

Forest Stewardship 515 914 666 0 0 0

Forest Legacy Program 745 69 67 0 0 0

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 250 248 245 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 $4,574 $3,907 $3,065 $0 $0 $0

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $188 $0 $0 $0

Land Management Planning 926 926 580 0 0 0

Inventory and Monitoring 7,150 7,017 6,665 0 0 0

Recreation, Heritage, and Wilderness 10,790 10,518 10,349 0 0 0

Wildlife and Fisheries Habitat Management 10,298 9,688 10,051 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 17,567 17,333 17,542 0 0 0

Vegetation and Watershed Management 4,621 4,598 4,908 0 0 0

Minerals and Geology Management 3,649 3,423 3,417 0 0 0

Landownership Management 4,729 4,450 4,314 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Integrated Resource Restoration 0 0 0 0 0 0

Total National Forest System $59,730 $57,953 $58,015 $0 $0 $0

Wildland Fire Management

Fire Preparedness $2,949 $2,910 $2,859 $0 $0 $0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 1,017 1,089 1,051 5,000 3,826 3,826

Rehabilitation and Restoration (NFP) 6 4 0 0 0 0

Fire Research and Development (NFP) 0 0 0 703 703 616

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 161 1,722 1,467 0 0 0

Forest Health Management -- Cooperative Lands (NFP) 1,161 331 474 0 0 0

State Fire Assistance (NFP) 416 1,460 407 0 0 0

Volunteer Fire Assistance (NFP) 309 308 218 0 0 0

Collaborative Forest Landscape Restoration 0 90 0 0 0 0

Total Wildland Fire Management $6,020 $7,914 $6,476 $5,703 $4,529 $4,442

Use of Prior Year Funds $0 $0 $0 $0 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $0 $0 $0

Capital Improvement & Maintenance

Facilities $8,718 $10,002 $5,100 $785 $50 $351

Roads 10,538 8,019 7,609 0 0 0

Trails 4,717 4,759 4,690 0 0 0

Infrastructure Improvement 604 475 11 0 0 0

Legacy Roads and Trails 3,034 680 668 0 0 0

Total Capital Improvement & Maintenance $27,611 $23,936 $18,078 $785 $50 $351

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $72 $106 $292 $0 $0 $0

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $72 $106 $292 $0 $0 $0

Range Betterment Fund $0 $0 $0 $0 $0 $0

Gifts, Donations, and Bequests for Research $0 $0 $20 $0 $0

Management of NF Lands for Subsistence Uses $2,116 $2,212 $2,252 $0 $0 $0

TOTAL Forest Service (DISCRETIONARY) $100,151 $96,078 $88,212 $25,869 $28,810 $25,794

Permanent Working Funds $8,451 $7,225 $7,198 $0 $0 $0

Trust Funds $2,715 $2,119 $6,722 $470 $351 $418

TOTAL ALL FUNDS $111,317 $105,422 $102,132 $26,339 $29,161 $26,212

Forest Products Lab

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-78

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $41,563 $43,075 $40,500 $58,191 $57,188 $54,484

State & Private Forestry

Forest Health Management - Federal Lands $217 $285 $140 $80 $206 $1,049

State Fire Assistance 2 0 0 0 0 251

Forest Health Management - Cooperative Lands 2 131 115 152 152 217

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 213 204 188 0 0 341

Forest Legacy Program 0 0 0 0 95 136

Community Forest & Open Space Conservation 0 0 0

Urban and Community Forestry 2 0 0 235 175 201

Economic Action Program 0 0 0 0 0 0

Forest Resources Information and Analysis 1 1,035 1,026 0 1,235 1,145

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $437 $1,655 $1,469 $467 $1,863 $3,340

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $0 $0 $0 $0

Land Management Planning 0 0 0 0 0 0

Inventory and Monitoring 0 0 3 0 190 0

Recreation, Heritage, and Wilderness 29 29 29 26 456 26

Wildlife and Fisheries Habitat Management 0 0 2 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 1 0 0 0

Vegetation and Watershed Management 42 0 45 0 460 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

Integrated Resource Restoration 0 0 0 0 0 0

Total National Forest System $71 $29 $80 $26 $1,106 $26

Wildland Fire Management

Fire Preparedness $2,155 $1,245 $1,240 $0 $0 $0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 1,600 1,505 1,118 70 60 48

Rehabilitation and Restoration (NFP) 0 0 0 0 0 0

Fire Research and Development (NFP) 7,695 7,545 7,161 3,387 3,452 2,895

Joint Fire Sciences 0 263 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 0 150 173 0 0 1

Forest Health Management -- Cooperative Lands (NFP) 0 0 2 0 65 36

State Fire Assistance (NFP) 0 0 0 0 0 0

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Collaborative Forest Landscape Restoration 0 0 0 0 0 0

Total Wildland Fire Management $11,450 $10,708 $9,694 $3,457 $3,577 $2,980

Use of Prior Year Funds $0 $0 $0 $0 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $0 $0 $0

Capital Improvement & Maintenance

Facilities $1,771 $3,596 $1,239 $1,409 $579 $0

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 0 0 0 0 0 0

Legacy Roads and Trails 0 0 4 0 0 0

Total Capital Improvement & Maintenance $1,771 $3,596 $1,243 $1,409 $579 $0

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $0 $0 $0 $0 $0 $0

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $0 $0 $0 $0 $0 $0

Range Betterment Fund $0 $0 $0 $0 $0 $0

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

Management of NF Lands for Subsistence Uses $0 $0 $0 $0 $0 $0

TOTAL Forest Service (DISCRETIONARY) $55,292 $59,063 $52,986 $63,550 $64,313 $60,830

Permanent Working Funds $100 $100 $100 $10 $15 $10

Trust Funds $800 $184 $800 $500 $367 $300

TOTAL ALL FUNDS $56,192 $59,347 $53,886 $64,060 $64,695 $61,140

Rocky Mountain Research Station Northern Research Station

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-79

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $42,444 $42,249 $40,258 $20,645 $20,830 $19,674

State & Private Forestry

Forest Health Management - Federal Lands $630 $0 $24 $39 $161 $121

State Fire Assistance 264 0 0 16 0 0

Forest Health Management - Cooperative Lands 469 400 404 4 0 1

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 313 0 0 19 0 0

Forest Legacy Program 60 0 0 4 0 0

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 237 0 0 15 0 0

Economic Action Program 0 0 0 0 0 0

Forest Resources Information and Analysis 0 1,005 975 0 0 0

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $1,973 $1,405 $1,403 $97 $161 $122

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $0 $0 $0 $0

Land Management Planning 0 0 0 0 0 0

Inventory and Monitoring 600 600 609 0 0 600

Recreation, Heritage, and Wilderness 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management 0 0 0 0 28 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 1 0 0 0

Vegetation and Watershed Management 200 200 2 480 480 7

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

Integrated Resource Restoration 0 0 0 0 0

Total National Forest System $800 $800 $612 $480 $508 $607

Wildland Fire Management

Fire Preparedness $0 $0 $0 $0 $0 $0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 370 340 268 70 60 48

Rehabilitation and Restoration (NFP) 0 0 0 0 0 0

Fire Research and Development (NFP) 3,865 4,061 3,699 2,955 2,985 2,591

Joint Fire Sciences 0 1,111 0 0 469 0

Forest Health Management -- Federal Lands (NFP) 400 400 401 0 75 2

Forest Health Management -- Cooperative Lands (NFP) 0 20 1 0 0 77

State Fire Assistance (NFP) -9 0 0 0 0 0

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Collaborative Forest Landscape Restoration 0 0 0 0 0 0

Total Wildland Fire Management $4,626 $5,932 $4,369 $3,025 $3,589 $2,718

Use of Prior Year Funds $0 $0 $0 $0 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $0 $0 $0

Capital Improvement & Maintenance

Facilities $5,086 $5,469 $1 $1,460 $580 $501

Roads 3 0 1 0 200 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 0 0 0 0 850 0

Legacy Roads and Trails 0 0 0 0 0 0

Total Capital Improvement & Maintenance $5,089 $5,469 $2 $1,460 $1,630 $501

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $0 $0 $0 $0 $0 $0

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $0 $0 $0 $0 $0 $0

Range Betterment Fund $0 $0 $0 $0 $0 $0

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

Management of NF Lands for Subsistence Uses $0 $0 $0 $0 $0 $0

TOTAL Forest Service (DISCRETIONARY) $54,933 $55,855 $46,644 $25,707 $26,718 $23,622

Permanent Working Funds $20 $35 $35 $2,671 $2,705 $1,670

Trust Funds $305 $288 $300 $2,043 $618 $1,053

TOTAL ALL FUNDS $55,258 $56,178 $46,979 $30,421 $30,041 $26,345

Pacific Northwest Research Station Pacific Southwest Research Station

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-80

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $52,248 $52,354 $48,242 $2,924 $3,878 $3,457

State & Private Forestry

Forest Health Management - Federal Lands $60 $80 $0 $25 $39 $29

State Fire Assistance 15 0 0 458 338 300

Forest Health Management - Cooperative Lands 610 570 586 187 196 182

Volunteer Fire Assistance 0 0 0 60 57 57

Forest Stewardship 437 423 6 274 347 463

Forest Legacy Program 10 10 40 1,580 87 87

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 72 58 0 428 477 404

Economic Action Program 0 0 0 0 0 0

Forest Resources Information and Analysis 4,878 1,372 1,217 0 0 6

International Forestry 0 0 0 0 0 0

Total State & Private Forestry $6,082 $2,513 $1,849 $3,012 $1,541 $1,529

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $0 $0 $0 $1

Land Management Planning 0 0 0 0 48 13

Inventory and Monitoring 600 600 10 0 0 0

Recreation, Heritage, and Wilderness 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management 0 0 2 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 200 200 7 0 25 32

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

Integrated Resource Restoration 0 0 0 0 0

Total National Forest System $800 $800 $19 $0 $73 $46

Wildland Fire Management

Fire Preparedness $0 $0 $0 $0 $0 $0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 270 240 198 0 0 0

Rehabilitation and Restoration (NFP) 0 0 0 0 0 0

Fire Research and Development (NFP) 2,527 2,527 2,195 0 0 0

Joint Fire Sciences 0 422 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 400 400 405 0 0 0

Forest Health Management -- Cooperative Lands (NFP) 14 60 61 0 0 0

State Fire Assistance (NFP) 14 0 0 109 145 106

Volunteer Fire Assistance (NFP) 0 0 0 78 78 55

Collaborative Forest Landscape Restoration 0 0 0 0 0 0

Total Wildland Fire Management $3,225 $3,649 $2,859 $187 $224 $161

Use of Prior Year Funds $0 $0 $0 $0 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $0 $0 $0

Capital Improvement & Maintenance

Facilities $1,696 $2,414 $2,071 $519 $50 $22

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 0 0 0 0 0 0

Legacy Roads and Trails 0 0 0 0 0 0

Total Capital Improvement & Maintenance $1,696 $2,414 $2,071 $519 $50 $22

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $0 $0 $0 $0 $0 $0

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $0 $0 $0 $0 $0 $0

Range Betterment Fund $0 $0 $0 $0 $0 $0

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

Management of NF Lands for Subsistence Uses $0 $0 $0 $0 $0 $0

TOTAL Forest Service (DISCRETIONARY) $64,051 $61,730 $55,040 $6,642 $5,765 $5,215

Permanent Working Funds $3 $8 $8 $0 $0 $0

Trust Funds $2,010 $1,503 $1,515 $120 $73 $0

TOTAL ALL FUNDS $66,064 $63,241 $56,563 $6,762 $5,838 $5,215

Southern Research Station International Institute of Tropical Forestry

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-81

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $114 $31 $0 $33,144 $30,285 $30,427

State & Private Forestry

Forest Health Management - Federal Lands $11,534 $12,513 $10,015 $5,299 $4,378 $4,800

State Fire Assistance 8,686 6,707 5,535 904 754 756

Forest Health Management - Cooperative Lands 14,224 17,964 13,178 1,100 1,069 571

Volunteer Fire Assistance 2,702 2,578 2,574 0 0 0

Forest Stewardship 9,200 9,803 8,101 1,101 1,011 863

Forest Legacy Program 27,247 24,967 12,248 527 396 455

Community Forest & Open Space Conservation 0 0 0 0 0 0

Urban and Community Forestry 8,504 10,395 8,440 831 713 757

Economic Action Program 1,800 0 0 0 0 0

Forest Resources Information and Analysis 0 0 0 100 266 385

International Forestry 2 0 0 527 511 509

Total State & Private Forestry $83,898 $84,927 $60,091 $10,389 $9,097 $9,094

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $0 $0 $0 $2,519

Land Management Planning 20 0 0 6,088 4,989 4,801

Inventory and Monitoring 68 0 0 19,117 16,102 15,520

Recreation, Heritage, and Wilderness 154 1 0 41,819 41,251 38,618

Wildlife and Fisheries Habitat Management 63 0 0 17,401 15,821 16,495

Grazing Management 27 0 0 7,590 6,998 6,232

Forest Products 168 0 0 48,698 46,452 45,835

Vegetation and Watershed Management 80 0 0 22,215 20,795 22,446

Minerals and Geology Management 31 0 0 9,166 8,661 8,931

Landownership Management 41 0 0 12,156 11,251 11,351

Law Enforcement Operations 51 0 0 15,604 14,518 14,661

Valles Caldera National Preserve 0 0 0 0 0 0

Integrated Resource Restoration 0 0 0 0 0 0

Total National Forest System $704 $1 $0 $199,853 $186,840 $187,409

Wildland Fire Management

Fire Preparedness $35 $15 $0 $29,106 $35,735 $112,482

Fire Operations -- Suppression 0 0 0 117,120 103,164 11,176

Hazardous Fuels 155 105 105 41,492 39,754 36,066

Rehabilitation and Restoration (NFP) 2 0 0 619 416 0

Fire Research and Development (NFP) 8 0 0 2,104 1,809 1,795

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 9 4 4 1,221 1,593 1,861

Forest Health Management -- Cooperative Lands (NFP) 4 81 81 389 391 357

State Fire Assistance (NFP) 9,141 11,144 7,484 15 47 0

Volunteer Fire Assistance (NFP) 2,250 2,246 1,589 0 0 0

Collaborative Forest Landscape Restoration 0 0 0 0 1,226 0

Total Wildland Fire Management $11,604 $13,595 $9,263 $192,066 $184,134 $163,737

Use of Prior Year Funds $0 $0 $0 $0 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $0 $0 $0

Capital Improvement & Maintenance

Facilities $37 $0 $0 $9,636 $8,464 $9,894

Roads 83 0 0 23,816 22,144 21,569

Trails 45 0 0 10,592 9,452 9,569

Infrastructure Improvement 1 0 0 238 253 186

Legacy Roads and Trails 6 0 0 1,364 1,778 3,953

Total Capital Improvement & Maintenance $172 $0 $0 $45,646 $42,090 $45,171

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $4 $0 $0 $1,344 $548 $623

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total Land Acquisition $4 $0 $0 $1,344 $548 $623

Range Betterment Fund $0 $0 $0 $0 $0 $0

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

Management of NF Lands for Subsistence Uses $0 $0 $0 $390 $255 $236

TOTAL Forest Service (DISCRETIONARY) $96,498 $98,553 $69,354 $482,833 $453,249 $436,697

Permanent Working Funds $37 $1 $11 $7,788 $4,625 $4,651

Trust Funds $41 $0 $0 $11,215 $8,769 $8,580

TOTAL ALL FUNDS $96,576 $98,554 $69,365 $501,836 $466,643 $449,928

Northeastern Area - State & Private Forestry Albuquerque Service Center 

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-82

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12 FY10 FY11 FY12

Forest and Rangeland Research $21,253 $23,568 $24,474 $19,788 $8,573 $12,412

State & Private Forestry

Forest Health Management - Federal Lands $6,506 $6,861 $6,876 $7,393 $4,917 $5,228

State Fire Assistance 2,513 3,037 3,060 4,108 811 3,775

Forest Health Management - Cooperative Lands 1,762 1,483 2,193 11,514 1,116 6,477

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 2,574 2,767 3,200 3,756 1,206 3,780

Forest Legacy Program 1,349 1,385 1,401 502 297 281

Community Forest & Open Space Conservation 0 0 0 500 1,000 1,997

Urban and Community Forestry 1,905 1,930 1,943 4,502 2,436 6,798

Economic Action Program 0 0 0 0 0 0

Forest Resources Information and Analysis 35 50 70 21 62 93

International Forestry 9,177 8,501 7,354 113 480 124

Total State & Private Forestry $25,821 $26,013 $26,096 $32,409 $12,325 $28,552

National Forest System

Collaborative Forest Landscape Restoration $0 $0 $496 $0 $0 $12,692

Land Management Planning 8,116 11,066 10,259 5,119 1,308 1,753

Inventory and Monitoring 45,397 47,942 46,625 3,935 3,781 3,668

Recreation, Heritage, and Wilderness 15,997 19,459 19,763 9,649 8,851 10,324

Wildlife and Fisheries Habitat Management 7,924 8,520 9,149 3,974 4,104 4,663

Grazing Management 2,039 2,245 2,090 1,577 1,658 1,804

Forest Products 19,312 21,274 24,790 10,318 10,715 15,258

Vegetation and Watershed Management 17,343 18,601 23,526 7,102 6,802 8,199

Minerals and Geology Management 10,470 10,595 10,603 1,992 2,093 1,764

Landownership Management 8,838 9,805 9,681 2,602 2,740 2,203

Law Enforcement Operations 8,076 8,270 8,223 121,316 121,465 120,945

Valles Caldera National Preserve 0 0 0 3,500 3,432 3,427

Integrated Resource Restoration 0 0 0 0 0 0

Total National Forest System $143,446 $157,778 $165,206 $171,083 $166,949 $186,700

Wildland Fire Management

Fire Preparedness $78,767 $83,328 $260,070 $16,706 $6,466 $34,398

Fire Operations -- Suppression 184,182 206,733 15,746 696,203 685,614 271,319

Hazardous Fuels 14,672 19,192 15,997 8,929 11,247 8,673

Rehabilitation and Restoration (NFP) 96 93 0 720 85 0

Fire Research and Development (NFP) 255 303 293 419 484 454

Joint Fire Sciences 0 0 0 5,000 5,719 7,250

Forest Health Management -- Federal Lands (NFP) 219 374 440 954 558 389

Forest Health Management -- Cooperative Lands (NFP) 65 82 78 1,925 447 982

State Fire Assistance (NFP) 133 116 152 26,548 5,486 26,502

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Collaborative Forest Landscape Restoration 0 239 0 0 290 0

Total Wildland Fire Management $278,389 $310,461 $292,777 $757,403 $716,396 $349,967

Use of Prior Year Funds $0 $0 $0 -$75,000 $0 $0

FLAME Wildfire Suppression Reserve Fund $0 $0 $0 $413,000 $290,418 $315,381

Capital Improvement & Maintenance

Facilities $3,833 $4,454 $4,388 $3,278 $1,879 $1,638

Roads 6,942 8,183 7,765 5,048 5,050 8,987

Trails 2,848 3,231 3,209 1,912 1,937 1,366

Infrastructure Improvement 104 118 105 749 57 51

Legacy Roads and Trails 223 386 882 249 375 801

Total Capital Improvement & Maintenance $13,951 $16,373 $16,349 $11,236 $9,299 $12,843

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $476 $102 $223 $55,815 $23,723 $44,228

Acquisition of Lands for National Forests, Special Acts 0 0 0 0 1,048 953

Acquisition of Lands to Complete Land Exchanges 0 0 0 250 0 227

Total Land Acquisition $476 $102 $223 $56,065 $24,771 $45,408

Range Betterment Fund $0 $0 $0 $1,012 $0 $2,569

Gifts, Donations, and Bequests for Research $0 $0 $0 $30 $50 $45

Management of NF Lands for Subsistence Uses $0 $47 $42 $77 $63 $43

TOTAL Forest Service (DISCRETIONARY) $483,337 $534,341 $525,168 $1,387,103 $1,228,843 $953,920

Permanent Working Funds $15,858 $2,063 $2,049 $4,593 $4,594 $25,683

Trust Funds $1,877 $2,437 $1,783 $2,275 $2,018 $7,760

TOTAL ALL FUNDS $501,072 $538,841 $529,000 $1,393,972 $1,235,455 $987,363

National Headquarters in Washington, DC (WO) National

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.

National funds are held and allocated at the national level, including FLAME, Law Enforcement, and portions of other funds.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-83

Region, Station, and Area Allocations FY 2010 to FY 2012

FY10 FY11 FY12

Forest and Rangeland Research $312,012 $306,637 $295,300

State & Private Forestry

Forest Health Management - Federal Lands $57,282 $56,737 $47,425

State Fire Assistance 39,147 32,358 30,488

Forest Health Management - Cooperative Lands 48,573 48,821 39,999

Volunteer Fire Assistance 7,000 6,680 6,669

Forest Stewardship 29,369 32,548 28,814

Forest Legacy Program 75,960 52,894 53,303

Community Forest & Open Space Conservation 500 1,000 1,997

Urban and Community Forestry 30,377 32,040 31,327

Economic Action Program 5,000 0 0

Forest Resources Information and Analysis 5,035 5,026 4,917

International Forestry 9,818 9,492 7,987

Total State & Private Forestry $308,061 $277,596 $252,926

National Forest System

Collaborative Forest Landscape Restoration $0 $14,970 $39,936

Land Management Planning 45,917 45,033 39,936

Inventory and Monitoring 170,502 167,219 161,721

Recreation, Heritage, and Wilderness 285,117 281,627 281,176

Wildlife and Fisheries Habitat Management 143,014 140,260 140,036

Grazing Management 50,714 49,738 55,356

Forest Products 336,722 336,049 335,511

Vegetation and Watershed Management 187,960 184,341 184,046

Minerals and Geology Management 87,240 83,560 83,426

Landownership Management 95,605 91,765 85,738

Law Enforcement Operations 145,047 144,254 143,829

Valles Caldera National Preserve 3,500 3,432 3,426

Integrated Resource Restoration 0 0 0

Total National Forest System $1,551,339 $1,542,248 $1,554,137

Wildland Fire Management

Fire Preparedness $675,000 $673,650 $1,004,442

Fire Operations -- Suppression 997,505 995,511 537,858

Hazardous Fuels 340,286 339,604 317,076

Rehabilitation and Restoration (NFP) 11,600 11,477 0

Fire Research and Development (NFP) 23,917 23,869 21,699

Joint Fire Sciences 8,000 7,984 7,250

Forest Health Management -- Federal Lands (NFP) 20,752 20,710 15,958

Forest Health Management -- Cooperative Lands (NFP) 11,428 11,405 8,353

State Fire Assistance (NFP) 71,250 64,870 55,475

Volunteer Fire Assistance (NFP) 9,000 8,982 6,356

Collaborative Forest Landscape Restoration 10,000 9,980 0

Total Wildland Fire Management $2,178,738 $2,168,042 $1,974,467

Use of Prior Year Funds -$75,000 $0 $0

FLAME Wildfire Suppression Reserve Fund $413,000 $290,418 $315,381

Capital Improvement & Maintenance

Facilities $135,010 $135,000 $75,664

Roads 236,521 195,195 182,525

Trails 85,381 88,381 81,851

Infrastructure Improvement 9,141 9,158 9,121

Legacy Roads and Trails 90,000 44,910 44,928

Total Capital Improvement & Maintenance $556,053 $472,644 $394,089

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund $63,522 $32,934 $52,521

Acquisition of Lands for National Forests, Special Acts 1,050 1,048 953

Acquisition of Lands to Complete Land Exchanges 250 0 0

Total Land Acquisition $64,822 $33,982 $53,474

Range Betterment Fund $3,600 $2,552 $2,569

Gifts, Donations, and Bequests for Research $50 $50 $6

Management of NF Lands for Subsistence Uses $2,583 $2,577 $2,573

TOTAL Forest Service (DISCRETIONARY) $5,315,257 $5,096,746 $4,844,922

Permanent Working Funds $289,658 $226,080 $249,665

Trust Funds $176,333 $167,007 $172,155

TOTAL ALL FUNDS $5,781,249 $5,489,833 $5,266,742

FOREST SERVICE TOTAL

Includes direct program + cost pool funding allocated to 

Regions, Stations, Areas, ASC and the 

National Headquarters in Washington, DC

FY 2010 to FY 2012

(dollars in thousands)

Totals do not include Payments to States.

Permanent & Trust Fund amounts represent allocations for current year operations, not total receipts.

Wildland Fire Management, Fire Operations - Suppression includes $240 million in carryover emergency fire suppression funds.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-84

Research and Development Threat Assessment Centers

Research and Development Threat Assessment Centers

Background 

This exhibit is included to address requirements of P.L. 109-54 House Report 109-80 page 129, which 

directed:

The Committee expects to see detailed work plans, including costs and staffing, for the new

Western Wildland Environmental Threat Assessment Center in Oregon and the Eastern Forest 

Environmental Threat Assessment Center in North Carolina, before funding from any 

appropriation for these new centers is distributed in fiscal year 2006. The Committee also directs 

the Forest Service to include explicit funding amounts for these two centers in future budget 

requests, regardless of the accounts involved. The Committee notes that these centers should, as 

provided in the Healthy Forest Restoration Act, focus primarily on hardwood forests and the 

threats from insects and disease which could destroy thousands of valuable acres of timberland 

and alter landscapes throughout surrounding areas. The centers should rely on emerging remote 

sensing technology and geospatial modeling. 

Overview

The Eastern Forest and Western Wildland Environmental Threat Assessment Centers (EFETAC and 

WWETAC, Centers, or Eastern and Western Center) are national leaders in developing knowledge and 

tools to protect and sustain the Nation’s forests and rangelands. The Centers partner with government 

agencies, universities, and nongovernmental organizations to improve the collective national capacity to 

predict, detect, and assess threats to forests and wildlands. The mission of the Centers requires them to be 

responsive to emerging issues and high-priority policy initiatives such as invasive species, climate 

change, carbon sequestration, fuels management, and wildland fire risk. The work of the Centers is 

essential to ensuring that resource managers and stakeholders are equipped with the latest information and 

state-of-the-art technology.

EFETAC and WFETAC Appropriations Only

(dollars in thousands)

Budget Line Item

FY 2012

Enacted

FY 2013

Annualized CR

FY 2014

Pres Bud

Forest & Rangeland Research $1,600 $1,600 $1,600

State & Private Forestry 1,600 1,600 1,600

Hazardous Fuels 400 400 400

National Forest System 1,600 1,600 1,600

Total USFS Funding $5,200 $5,200 $5,200

The Eastern Forest Environmental Threat Assessment Center 

EFETAC is engaged in multiple projects at the forefront of technology development, application, and 

transfer in forest threat detection and assessment. We are employing satellite imagery to systematically 

monitor forest conditions across the United States and characterize changes across broad landscapes. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-85

Researchers are using new protocols to develop indicators of landscape change and providing land 

managers and policy makers with new tools for strategic planning. Additionally, Center scientists and 

partners are addressing emerging issues and collaborating to create tools and resources related to forest 

ecosystems, water quality, biodiversity, and wildfires—all within a context of assessing effects of 

changing climate, increasing human populations, and dynamic socioeconomic constraints.

FY 2012 - FY 2014 EFETAC Budget 

(dollars in thousands)

Expenditures

FY 2012

Actual

FY 2013

Annualized CR

FY 2014

Pres Bud

Personnel $2,864 $2,859 $2,870 

Partnerships, Technology Acquisitions,

and Grants & Agreements 1,490 1,358 1,347

Equipment & Supplies 92 92 92

Communications 58 58 58

Travel 108 108 108

Rent & Utilities 275 275 275

Indirect Costs 439 455 455

Other 9 9 9

Total $5,335 $5,214 $5,214 

FY 2012 EFETAC Past Performance

The Eastern Center focused on synthesizing forest threats research, collaborating with multiple internal 

and external partners, and developing and sharing useful tools and technology in a timely and userfriendly manner. Public and private land managers used Center products to detect, assess, and respond to 

current and emerging threats throughout the eastern United States. The Center’s cost-effective products 

and tools were web-based and accessed, at no charge, by public and private individuals, organizations, 

and agencies. On-site, virtual, and on-demand training was also available to help users benefit from tools’ 

features. Several FY 2012 products expanded networks within and outside the Forest Service, broadened 

awareness of the Center’s role in threat assessment, and provided land managers and decision makers 

with useful tools to streamline detection of and response to forest health issues.

• Forest resource managers responded favorably to the Center’s unveiling of ForWarn, the research 

and development component of the Forest Service National Early Warning System. Developed with 

the Western Center and other Federal and university partners, ForWarn’s web-based national maps, 

generated from National Aeronautics and Space Administration (NASA) satellite imagery, helped 

land managers detect, identify, and respond to known and unexpected forest disturbances. From 

lingering midwestern droughts and southern spring tornadoes to western wildfires and northeastern 

fall webworm outbreaks, ForWarn provided resource managers with a useful tool that monitors nearreal time forest changes.

• The Eastern Center collaborated with the Western Center to advance the Template for Assessing 

Climate Change Impacts and Management Options (TACCIMO). TACCIMO helped land managers 

access and interpret current climate change science into practical forest planning and management. 

The Southern and Pacific Northwest Regions, National Wilderness Centers, North Carolina State 

Forest Service, and U.S. Fish and Wildlife Service land managers and planners explored customizable 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-86

maps and reports to assess climate change impacts and determine management options for specific 

circumstances. TACCIMO’s time- and cost-saving tools put science at the fingertips of resource 

managers developing strategies for sustaining forest resources.

Additional Eastern Center efforts created opportunities for diverse audiences to integrate and benefit from 

cutting-edge science: 

• Regional strategy committees used Center knowledge and assessment tools to advance a National 

Cohesive Wildland Fire Management Strategy, designed to reduce human and ecological losses from 

catastrophic wildfire

• National and international decision-makers referenced the Center’s innovative alien forest insect 

research to guide border control efforts and rapid response measures

• Forest managers incorporated Center water quantity and quality research to effectively manage water 

resources, for aquatic life and human use, facing global climate change impacts

• Congressional staffers and Federal, State, and private agencies and organizations used collaborative 

Eastern Center research to monitor forest health trends and influence short- and long-term 

management of critical forest resources

FY 2013 EFETAC Program will:

• Advance ForWarn’s utility with local, regional, and national users internal and external to the Forest 

Service and continue to enhance and develop web-based tools, resources, outreach, training, and 

partnerships

• Continue to lead and provide scientific support to the interagency National Cohesive Wildland Fire 

Management Strategy

• Expand collaborative application opportunities with the TACCIMO throughout Forest Service regions

• Release a comprehensive database that aids in the prediction, prevention, and proactive management of 

invasive plants

• Expand research that slows the spread of invasive forest pest species, especially through human-assisted 

pathways

• Enhance and increase communications and technology transfer emphases, which include developing and 

hosting training and educational workshops and informational sessions that introduce forest managers and 

partners to Center technologies; expanding Web site presence with continually updated content and 

interactive features; and providing relevant research, tools, and activities information to diverse internal and 

external audiences to increase awareness

• Release an updated version of the Forecasts of Climate-Associated Shifts in Tree Species 

(ForeCASTS) project, used to predict and map the location and quality of habitat for several 

hundred North American forest tree species

• Actively engage the Threat Assessment Centers’ Technical User Group (TUG) through group and 

individual discussion opportunities to explore expanding the Centers’ audiences and strengthening relevant 

research and technology transfer activities

• Continue collaborating and initiating key efforts to expand the web-based Climate Change Resource Center 

(CCRC) that provides credible, science-based, and relevant information and tools concerning climate 

change and ecosystem management options

• Investigate and coordinate additional opportunities to share forest science with diverse school-aged 

children through the North Carolina Museum of Natural Sciences partnership

• Continue to initiate communication with the WWETAC, increase collaborative tool development, 

and explore ways to jointly share information to regional and national audiences
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-87

FY 2014 EFETAC Work Plan will:

• Continue to target ForWarn’s application to multiple user groups and develop and refine web-based tools, 

products, and training opportunities

• Expand the Centers role in providing analytical support to public and private landowners and fire 

management officials at multiple scales. This work will continue efforts begun as part of the National 

Cohesive Wildland Fire Management Strategy by promoting the use of advanced tools and information 

across all lands and within all jurisdictions.

• Continue to enhance and integrate the TACCIMO throughout the eastern and western U.S.

• Explore additional domestic and international applications for the Water Supply Stress Index to evaluate 

effects of climate change on water resources, carbon sequestration, and changes in biodiversity

• Increase communications and technology transfer activities and partnerships to broaden the Center’s 

audience and research influence

• Continue to lead efforts and support national forest health monitoring activities and related programs and 

assessments

• Initiate and advance research in areas including wildland fire modeling, threat interaction mapping, 

hazardous fuels treatment decision support systems, broad-scale vegetation monitoring, hydrologic 

modeling, best management practices, pest risk assessment, and climate change

• Expand communication with the WWETAC and engage in mutually beneficial sharing opportunities, 

including with TUG

The Western Wildland Environmental Threat Assessment Center 

The WWETAC provides early detection and prediction of the potential effects of multiple, interacting 

threats and stresses. This center hosts workshops and conferences to identify and synthesize current 

knowledge regarding threat assessment and improve predictive modeling. WWETAC has initiated 

collaborative agreements with universities, government (Federal and local) partners, and 

nongovernmental organizations to advance the application of remote sensing and geospatial technologies, 

develop assessment tools, and make scientific knowledge more accessible to analysts and managers. 

FY 2012 - FY2014 WFETAC Budget 

(dollars in thousands)

Expenditures

FY 2012

Enacted

FY 2013

Annualized CR

FY 2014 

Pres Bud

Personnel $620 $670 $658 

Partnerships, Technology Acquisitions,

 and Grants & Agreements 1,082 1,020 1,020 

Equipment & Supplies 20 20 20 

Communications 155 160 160 

Travel 32 32 32 

Rent & Utilities 76 78 85 

Indirect Costs 415 420 425 

Total $2,400 $2,400 $2,400 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-88

FY 2012 WWETAC Past Performance

The Western Center focused on synthesizing and modeling environmental threats and analyzed societal 

vulnerabilities that adversely impacted resource management. Center researchers collaborated extensively 

with internal and external partners, demonstrated useful tools and technology, and provided guidelines to 

collaborators and general users. Public and private land managers used the syntheses and models, 

problem-solving sessions with partners and customers, and demonstration and training sessions to 

improve on-the-ground resource enhancing guidelines and activities. 

• The Center conducted several assessments at the landscape level that estimated terrestrial carbon 

storage including fire risk, fuel treatments, comparative living and non-living disturbances, and post 

bark beetle epidemics. By understanding the effects of concurrent, multiple (vs. single) stressors on 

tree mortality, forest fuel loading, and wildfire behavior, researchers developed better short, medium, 

and long-term management strategies for the Nation’s forested lands.

• Sociological analyses identified private landowner vulnerabilities and developed approaches to 

provide incentives to landowners who mitigated climate change and reduced wildfire impacts.

Coupled with research focused on increased Wildland Urban Interface development, Western Center

scientists advanced understanding of fire transmission pathways among landownership and use on 

National Forests. 

• The Western Center created a new tool that helped land managers assess wildfire risk to fish habitat 

and prioritize culvert replacement on Forest Service backcountry roads. The tool was applied to three 

National Forests in Oregon and can be rapidly parameterized (e.g., within three months) for additional 

forests nationally. 

• WWETAC completed and delivered a dynamic vegetation model specifically parameterized for 

California that provided estimates for current and future (+80 years) regional vegetation change to 

assist the Forest plan revision

• The Center demonstrated a Landscape Designer Tool that minimizes cost and area treated to 

maximize preservation of high value resources (including the Wildland Urban Interface). The tool 

showed partners and land managers the location, distribution, and exponential effectiveness of large 

diameter pine protection by increasing the area treated. 

FY 2013 WWETAC Program will: 

• Continue to develop assessment tools with the EFETAC, NASA, and Region 6 to identify source 

of disturbances and test potential for quantitative level of disturbance (focusing on bark beetle, 

wood borer, and root disease focus) using MODIS satellite imagery

• Continue to work with the EFETAC on populating TACCIMO, a climate change bibliographic 

reference system, with abstracts and publications for Forest Service Region 3

• Provide social science expertise in analysis of associative and emergent properties of private 

landowner behaviors with EFETAC

• Improve understanding of vegetation succession and probabilities for subsequent re-burn after 

large wildfires, which are more intense and frequent than in the past

• Investigate the potential for using remote sensing to better predict short- and long-term effects on 

successional sequences and rates

• Continue to develop a prioritization tool for invasive plants in the intermountain areas; add such 

an approach for west of the Cascades in Washington and Oregon
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-89

• Continue providing Forest-level carbon and water pools and fluxes to managers as requested 

using a dynamic vegetation model responsive to climate change scenarios

• Continue to develop regional and topical users groups of WWETAC information and assessment 

tools; and develop listserves by topic for disseminating information

• Increase use of online communication to transmit information to land managers and resource 

specialists

• Conduct a survey of research and information needs of western forest managers and resource 

specialists

• Establish good communication and research coordination with the western U.S. Geological 

Survey (USGS)

• Continue open, competitive, funding opportunity that focuses on environmental threats identified 

by forest managers and resource specialists, for the purpose of evaluating and recommending 

adaptive management strategies, and encouraging research and regional cooperation across the 

western U.S.

FY 2014 WWETAC Workplan will: 

• Continue to develop assessment tools with the EFETAC, NASA, and Region 6 to identify source 

of disturbances and test potential for quantitative level of disturbance (focusing on drought stress) 

using MODIS satellite imagery

• Continue to review literature to understand and develop assessment tools to demonstrate fuel 

accumulation, understory succession, and fuel treatment effectiveness and longevity in western 

forest and woodland ecosystems; develop a better understanding and tools to link fuel treatment 

with restoration objectives

• Continue to develop an understanding of vegetation succession and probabilities for subsequent 

re-burn with large wildfires, which are more intense and frequent than in the past

• Continue to develop regional and topical users groups of WWETAC information and assessment 

tools; develop listserves by topic for disseminating information

• Continue to develop a prioritization tool for invasives plants, using case studies in California

• Incorporate the framework developed for pathogens and insects by function into dynamic 

vegetation model

• Identify cooperators to improve hydrologic modeling capabilities in the non-forested 

intermountain and forested mountainous terrain of the West for incorporation into dynamic 

vegetation modeling

• Continue research coordination with the western Climate Science Centers (USGS), the western

Research Stations, and Regions

• Increase use of online communication to transmit information to land managers and resource 

specialists; identify new audiences for the Center’s products
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-90

Service First

Service First

Background

This exhibit is not required by Congressional direction but is included to report accomplishments for the 

Service First program.

Overview

Service First (SF) is a partnership authority for the Forest Service, the Bureau of Land Management 

(BLM), the National Park Service (NPS), and the U.S. Fish and Wildlife Service (FWS), (P.L. 106-291 as 

amended in 109-54, Title IV, Section 428). The Consolidated Appropriations Act, 2012 (P.L. 112-74, 

Section 422) extended Service First authority indefinitely changing the authority from a pilot program to 

a permanent authority. 

The Forest Service continues to strengthen partnerships with the BLM, NPS, and FWS to attain the three 

Service First goals of improving natural and cultural resource stewardship, enhancing customer service, 

and increasing operational efficiency. The four agencies provide national leadership, direction, and 

counsel on implementing the authorities and promoting the principles of Service First through the Service 

First Leadership Team (SFLT). The SFLT’s goals include enhancing each agency’s ability to meet its 

mission, increasing collective capacity to manage Federal resources on a landscape basis, overcoming 

institutional barriers that hinder interagency programs and initiatives, and improving constituent and 

customer service and resource management through streamlined processes, increased efficiencies, and use 

of emerging technologies.

Service First does not have a budget line item in the Forest Service but instead is funded from the 

program most appropriate, based on activity, within the National Forest System appropriation. 

FY 2014 Service First Goals 

For FY 2014, the SFLT has set the direction of developing a Service First advisory group comprised of 

representatives from the field of each of the four agencies. This group will, amongst other things, be 

tasked with determining field-based needs for Service First. This group will be comprised of two 

individuals from each agency. The purpose of the group is to help formulate each agency’s needs for 

Service First – specifically, what the field needs to make SF implementation successful – and to serve as a 

conduit for information sharing between the field and SF in Washington. The advisory group will serve as 

an extension of the SFLT. Among the goals of the advisory group are: 

• Develop a charter for the Service First Advisory Body

• Develop guidance for contracting actions conducted on behalf of another agency under SF

• Develop guidance about how to structure agreements between agencies under SF

• Continue to develop tools to make SF easier for field staff to use (such as an intranet website to 

share information, simple how-to's for common practices)

Service First will continue to focus on opportunities for co-location of agency facilities where feasible 

and appropriate. Co-location better facilitates interagency communication and results in integration of 

natural resource management across the landscape. It is one method for increasing coordination across 

resource programs that include conserving water, hazardous fuels reduction, landscape scale species 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-91

conservation, sustaining our rural communities, nurturing youth through education and connections to the 

outdoors, and recreation management including off-highway vehicle (OHV) and trail management. 

Service First will also continue to make advances in finding and creating solutions to information 

technology functionality between the four agencies while maintaining the appropriate levels of network 

security. Recent advances in technology will allow certain web enabled programs to be shared between 

agencies, and will enable access to each other’s intranet sites and general sharing of information to 

facilitate accomplishment of each agency’s mission. Joint access to more complex databases including 

Geographic Information Systems (GIS), invasive weed inventories, and other natural resource data will 

result in more seamless customer service and improved operational efficiency for shared employees and 

co-located offices. 

Service First will continue to strengthen the network of practitioners in the field. We will continue 

development of standard operating procedures, tools for routine uses of Service First, and outreach and 

education about how to best use the Service First authority. 

FY 2012 Accomplishments

We accomplished numerous successes in FY 2012 in addition to the continued support of Service First 

implementation in the field, including:

National Master Agreement - The National Master Agreement was finalized and posted to the 

Service First website (http://www.fs.fed.us/servicefirst/docs/master-ia-agreement-02-22-

2012.pdf). This agreement serves as the terms and conditions for all future Service First 

agreements where funds are exchanged between the Service First agencies. This both eliminates 

repetitive workload and standardizes Service First agreements.

Financial Offset Plan - The Financial Offset Plan was finalized and posted to the Service First 

website (http://www.fs.fed.us/servicefirst/tb-admin-financial.shtml#offset-plans). This tool was 

developed to facilitate situations where activities are taking place “in the spirit of Service First,” 

however no funds are exchanged between agencies. This simple tool helps organize in-kind 

contributions to common projects and documents the contributions from each agency involved.

Uses of Service First Poster - A poster about the uses of Service First was submitted to the 

Environmental Systems Research Institute (ESRI) conference and posted to the Service First 

website (http://www.fs.fed.us/servicefirst/docs/poster-esri-conference-07-26-2012.pdf). This 

poster captures the best information about where and how the Service First authority is being 

used across the nation and helps convey the message of how extensively Service First is being 

used.

Service First 101 Webinar - A webinar titled “Service First 101” was developed and presented 

(May 15, 2012) as an introduction to Service First 

(http://nationalforestfoundation.adobeconnect.com/p8n9i4ux4pc/). Intended as a simple 

overview/introduction to Service First, this webinar reached over 100 participants on the day of 

the presentation. Shortly after this presentation, this webinar was posted for others to access and 

continues to be viewed by people interested in learning more about Service First.

National Online Workshop - A two day national online workshop was developed and presented in 

July covering topics such as fire, GIS, natural resources, and administration 

(http://www.fs.fed.us/servicefirst/events.shtml). This workshop explored many aspects of Service 

First implementation in the field and created a dialogue for questions, concerns, and successes. It 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-92

is estimated that the workshop reached between 1,000 and 1,300 people in 28 states over the two 

day period. Only six people traveled in order to accomplish the workshop resulting in a huge cost 

savings to all four Service First agencies.

Updated Service First Website - As a result of the uses of the Service First poster (see above) and 

the national online workshop, an extensive effort was initiated to update the existing information 

about the use of Service First. The information was used to develop and update the website 

(http://www.fs.fed.us/servicefirst/sf-loc.shtml) with information about activities, contacts, and 

locations.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-93

Stewardship Contracting

Stewardship Contracting

Background 

This special exhibit is included to address requirements of P.L. 105-277 Appropriation Act 1999, General 

Provision Section 347 (g) which directed:

The Forest Service shall report annually to the Committee on Appropriations of the House of 

Representatives and Committee on Appropriations of the Senate on—

• the status of development, execution, and administration of contracts under subsection 

(a);

• the specific accomplishments that have resulted; and

• the role of local communities in development of contract plans.

Overview

Stewardship contracts and agreements are used to manage natural resources by implementing ecosystem 

restoration projects. Stewardship contracts support new and emerging markets for utilization of wood 

removed through restoration activities (including use of woody biomass for energy), in addition to 

sustaining more traditional markets. Requests for proposals use best value criteria that emphasize criteria 

other than price, including use of local workforce and creation of jobs. This focus is intended to create 

green jobs and promote a diverse forest products industry to support sustainable communities and the 

forest contractor infrastructure needed to perform critical restoration work. Stewardship Contracting helps 

the Forest Service achieve land and natural resource management goals while promoting closer publicprivate working relationships by using the value of forest products to offset the cost of services.

The Stewardship Authority 

The Stewardship Contracting authority authorizes the Forest Service, via agreement or contract, to enter 

into stewardship projects to perform services to achieve land management goals and meet local and rural 

community needs. The authority is found under the Department of the Interior and Related 

Appropriations Act, 1999 (16 USC 2104 note) (P.L. 105-277, div. A, Sec. 101(e), [title III, Sec. 347], 

Oct. 21, 1998, Stat. 2681-231, amended by Department of the Interior and Related Appropriations Act, 

2003 (P.L. 108-7, div. F, [title III, Sec. 323], Feb. 20, 2003, 117 Stat. 275). Section 323 of P.L. 108-7 

supersedes the original authority granted to the Forest Service in section 347 of P.L. 105-277. The 10-

year authorization expires on September 30, 2013.

Stewardship Contracting permits the Forest Service to apply the value of timber or other forest products 

from stewardship sales as an offset against the costs to accomplish land and resource management 

objectives. If the offset value exceeds the value of the resource improvement treatments, those receipts 

are retained and deposited in the Stewardship Contracting fund and are available, until expended, for 

other authorized stewardship projects. Stewardship contracts are awarded on a best-value basis and may 

be up to 10 years in duration. Stewardship Contracting funds may be used for: 

• Road and trail maintenance or obliteration to restore or maintain water quality

• Work to improve soil productivity, habitat for wildlife and fisheries, or other resource values
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-94

• Prescribed fires to improve the composition, structure, condition, and health of timber stands or 

improve wildlife habitat

• Removal of vegetation or other activities to promote healthy forests, reduce fire hazards, or 

achieve other land management objectives

• Watershed restoration and maintenance

• Restoration and maintenance of wildlife and fisheries habitat

• Control of noxious and invasive weeds, and re-establishment of native plant species

The Status of Development, Execution, and Administration of Stewardship Contracts or 

Agreements

In FY 2012, the agency continued to inform employees, partner organizations, and contractors about the 

use of Stewardship Contracting through informational brochures, local field trips, and on-line training 

opportunities. This ensures a common understanding of Stewardship Contracting and facilitates its use in 

attaining land management goals while meeting local and rural community needs. 

Introductory Brochure

This brochure, developed during FY 2009 to provide a basic understanding of Stewardship Contracting, 

describes Stewardship Contracting concepts and benefits, how stewardship contracts are used, what is 

unique about them, and more. This color tri-fold brochure is available at Forest Service offices and the 

following Web site: 

http://www.fs.fed.us/fstoday/091106/03.0About_Us/stewardship_brochure.pdf

Training

Various self-paced computer-based tutorials continue to be updated and are available at the following 

Stewardship Contracting Web site: 

http://www.fs.fed.us/forestmanagement/stewardship/training/index.shtml

Collaborative Forest Landscape Restoration (CFLR)

Ten projects across the country were selected for CFLR funding beginning in FY 2010. Ten additional 

projects were selected in FY 2012. Stewardship Contracting is expected to be the primary instrument for 

implementing these projects - e.g. the Colorado Front Range Landscape Restoration project is currently 

implemented through a 10-year stewardship contract. Please refer to the National Forest System section 

for more details.

Specific Accomplishments 

The total use of Stewardship Contracting increased in FY 2012 as compared to FY 2011. There was a 

dramatic increase in the stream habitat restored or enhanced and the acres of invasive species treated 

through stewardship contracts and agreements. Stewardship Contracting has proved to be a valuable tool 

in many locations to implement restoration activities and meet multiple land management objectives 

including hazardous fuels reduction, wildlife habitat improvement, forest health improvement, and 

nonnative invasive plant species control. Table 1 below shows specific actual accomplishments during 

FYs 2010-2012. Table 2 below shows the acres awarded, number of contract or agreements awarded, and 

volume awarded during the FYs 2003-2012.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-95

Table 1. Actual Stewardship Contracting 

Accomplishments (FY 2010 – 2012)

Accomplishment FY 2010

Actual

FY 2011

Actual

FY 20129

Actual

Acres of forest vegetation established 434 4,374 4,321

Acres of forest vegetation improved 29,445 32,694 25,763

Acres of noxious weeds/invasive

plant treatments 732 1,604 2.356 

Acres of wildlife habitat restored or 

improved 77,305 135,816 142,648 

Miles of stream habitat restored or 

enhanced 50 91 203 

Miles of roads decommissioned

0 44 48 

Miles of high clearance system roads 

improved 137 85 52 

Miles of passenger car system roads 

improved 39 47 43 

Volume of timber sold (hundred 

cubic feet (CCF)) 1,133,837 962,486 1,314,118 

Volume of timber sold (million 

board feet (MMBF)) 567 481 672

Green tons of biomass made 

available for energy production

735,007 477,921 577,590 

Acres of stewardship 

contracts/agreements awarded 152,834 100,577 134,257 

Acres of hazardous fuels treated to 

reduce the risk of catastrophic fires

123,261 103,522 93,804 

Acres of wildland-urban interface 

(WUI) high-priority hazardous fuels 

treated

65,751 61,608 58,394 

Number of stewardship 

contracts/agreements contributing to 

watersheds in fully functioning 

condition 59 13 9 

 9 The accomplishments listed here reflect the agency’s unified accomplishments under the stewardship contracting authority. 

Unified accomplishments may credit (count) multiple activities on a given acre. In contrast, the “acres of stewardship 

contracts/agreements awarded” performance measure represents an actual “footprint.” 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-96

Table 2. Acres Awarded, Number of Contract or Agreements 

Awarded, and Volume Awarded FYs 2003-2012

FY Acres 

Awarded

# of Contracts 

& Agreements

Volume 

Awarded (ccf)

2003 11,696 35 69,547

2004 43,187 53 102,143

2005 34,491 43 196,079

2006 60,344 91 471,996

2007 77,676 110 655,072

2008 65,890 130 678,328

2009 88,304 141 743,417

2010 152,834 232 1,133,837

2011 100,577 208 962,486

2012 134,257 226 1,314,118 

In many cases, multiple land management objectives are met through a single treatment activity. For 

example, a hazardous fuel reduction treatment can also improve wildlife habitat. These accomplishments 

not only result in ecosystem benefits, but also forest products for manufacturing and energy production, 

and the creation of jobs contributing to sustainable communities.

Local Communities 

Collaboration with local communities is a key component of successful Stewardship Contracting. 

Collaborative efforts start early and continue throughout project planning, implementation, and 

monitoring. Collaboration during the development of Stewardship Contracting projects results in a sense 

of ownership in the project by the community, a better understanding by communities of natural resource 

issues, and increased public support. Collaboration also means the Forest Service can tailor stewardship 

offerings that address local issues, needs, and capabilities. 

We have contracted with the Pinchot Institute for Conservation to conduct a programmatic multiparty 

monitoring process through FY 2012. In prior years, the Pinchot Institute found that Stewardship 

Contracting was maturing, and support has grown significantly. One of the major benefits identified is 

that Stewardship Contracting offers increased opportunities to frame a set of collaboratively defined 

desired future conditions. Participants increasingly welcome the use of stewardship agreements as a way 

to involve more stakeholders, increase learning opportunities, and positively influence forest management 

planning. The results of the FY 2012 programmatic monitoring efforts by the Pinchot Institute will be 

available in late winter or early spring 2013. When available, the entire report will be online at: 

http://www.fs.fed.us/forestmanagement/stewardship/reports/index.shtml
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-97

Stewardship Contracting Success Stories

Here are a few examples of successful implementation of stewardship contracts and agreements. 

Arizona

The Southwestern Region expanded its partnership with the National Wild Turkey Federation (NWTF) by 

signing a Supplemental Partnership Agreement tiered to their Master Stewardship Agreement to restore 

portions of the Pinaleño Mountains on the Coronado National Forest. The unique approach bundles 

elements of treatment preparation with the actual harvest and mechanical treatments prescribed for the 

Pinaleño project. The San Carlos Apache Tribe is also an important partner in this project. Through a 

separate grant, the agency has been training timber cruisers from San Carlos Forestry. NWTF will in turn 

utilize this resource to prepare Pinaleño treatment units. The NWTF will then advertise and award 

subcontracts to implement the restoration treatments. The commercial products, sold to the NWTF at the 

appraised fair market value, would then be sold and taken to the San Carlos Apache mill for primary 

processing. The San Carlos mill is a separate enterprise from the Tribe’s Forestry Division. This is an 

example of how a partnership can assist in critical forest restoration involving some unique complexities, 

limited Forest Service resources, in a very remote portion of the NFS. 

Colorado

The Front Range Long Term Stewardship Contract on the Arapaho-Roosevelt and Pike and San Isabel 

National Forests is a multi-year Integrated Resource Service Contract with a 10-year term to treat a 

minimum of 4,000 acres per year for a total of more than 40,000 acres. The contract was awarded in 

2009.

The goals of this contract are to:

• Reduce potential for catastrophic wildfire by reducing hazardous fuels and canopy continuity

• Provide a long term, steady supply of low value forest products to promote utilization of low 

value products and biomass

• Provide for diverse wildlife habitats and recreational opportunities

• Reduce the potential for loss of ecological and monetary values on public and private lands

• Reduce the risk of insect and disease infestations

• Promote sustainable, diverse forest conditions

• Promote aspen regeneration to increase species diversity and reduce future fuel hazard

• Restore watersheds by reducing the risk of erosion and sediment delivery to area streams which 

will protect short-and long-term municipal water quality

The contractor is now successfully utilizing much of the biomass and low value products removed from 

the project area while reducing the hazardous fuels. Products from the contract have been sent to at least 

ten different mills and plants in North Central Colorado and the Front Range. The primary collaborator on 

this project is the Front Range Fuels Treatment Partnership (FRFTP), composed of 32 different entities, 

including conservation groups, State and local governments, local community leaders, academic and 

scientific community, user groups, and industry leaders. FRFTP was initiated following the record fire 

season of 2002 and was formed to reduce wildland fire risks through sustained fuel treatments along the 

Colorado Front Range. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-98

Montana

The Flathead NF has been actively using the stewardship authority since the pilot authority. Since 2001,

the Flathead has awarded 18 stewardship contracts trading $4.2 million in goods for services and treating 

over 9,000 acres. In addition, the Forest generated over $2 million in retained receipts, which it used to 

fund over 35 separate stewardship service contracts and stewardship agreements. This allowed the Forest 

Service to accomplish a significant amount of site specific restoration work including fish habitat 

improvement, watershed restoration, invasive plant treatments, and fuels reduction.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-99

Sustainable Operations

Sustainable Operations

Background 

This exhibit is not required by Congressional direction but is included to report on progress and plans for 

Sustainable Operations initiatives.

The Forest Service has refocused its efforts in alignment with sustainability and efficiency mandates 

including the Energy Policy Act of 2005, the Energy Independence and Security Act of 2007, and a series 

of Executive Orders (EO) including EO 13423 (Strengthening Federal Environmental, Energy, and 

Transportation Management) and EO 13514 (Federal Leadership In Environmental, Energy, And 

Economic Performance). Sustainable business operations also directly support agency cost pool reduction 

goals for FY 2013 and FY 2014.

Overview

In order to fulfill the Forest Service’s obligation to present and 

future generations, the agency is reducing its environmental 

footprint by making its own operations more sustainable. Our land 

stewardship mission is being strategically integrated with practices 

that reduce our consumption and overall resource use. The direct 

relationship between healthy forests and our faucet water, our 

heating systems, our clean air, our modes of transportation, and 

many other goods and services has never been more apparent.

Several laws, regulations, and executive orders have established 

targets for reducing our agency environmental footprint. We also 

have a growing number of initiatives in place to integrate best 

practices, build capacity in the agency and community, and save 

money and resources by implementing efficiencies in the areas of 

energy, water, fleet and transportation, waste prevention and 

recycling, green purchasing and sustainable leadership.

Success Stories and Current Initiatives

In FY 2012, the Forest Service focused on integrating efforts in Business Operations, the Climate Change 

Advisor’s Office, Research and Development, and the National Forest System to provide training for 

sustainable operations and prioritize actions to reduce the agency’s environmental footprint. We also 

focused on reducing energy consumption and installing advanced meters in high intensity use buildings. 

A few examples of progress in the areas of energy conservation, fleet and transportation, water 

conservation, and green purchasing are detailed below.

• The agency supports a chartered group of sustainability champions across the nation—the 

Sustainable Operations Collective—that uses the latest technology and ideas to reduce the 

agency’s environmental footprint. The Collective hosts peer-to-peer learning sessions, maintains 

a national sustainable operations website with tools and information, conducts a Ranger 

Exchange program to promote District-level awareness and actions, and continues to pilot 

multiple field-level projects. The Collective was recognized with a Chief’s Award in FY 2012.

Renewable Energy

Wind and solar energy at Rowan Bay 

facility on Kuiu Island on the Tongass 

National Forest
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-100

• The agency is leading by example to innovatively reduce greenhouse gas (GHG) emissions in the 

Greater Yellowstone Area Ecosystem. Ten land management units across USDA and the 

Department of the Interior have set specific actions to reduce GHG emissions by a minimum of 

20 percent by 2020. 

• Each year, the Sustainable Operations Summit brings together hundreds of employees to share 

best practices, new technologies, and successes. The 2012 Sustainable Operations Summit saved 

the Agency approximately $800,000 in travel costs and over $150,000 in conference facilities 

costs and avoided 350 metric tons of CO2 equivalents in business air travel, ground travel, and 

meeting site electricity and natural gas. The Summit continues to break new ground and serve as 

an example for other federal agencies.

• The Forest Service forged a partnership with the Department of Energy, National Renewable 

Energy Lab to design and implement training for National Energy Managers.

• The Forest Service is developing a partnership with the General Services Administration (GSA)

to increase the momentum for greening fleet and facilities. An innovative effort of this 

partnership is an analysis of our supply chain including support from GSA to partner with 

vendors to reduce waste and supply green products.

FY 2013 Sustainable Operations Program Plans

In FY 2013 the agency will focus on the following priorities for sustainable operations:

• Continue to build momentum for combined implementation of activities to address the Top Ten 

Actions for Cost and Consumption Reduction letter signed December 21, 2011 by Regional 

Foresters in Regions 1, 2, 3, 4, 5, 6 and 10 and the Station Director of the Rocky Mountain 

Research Station (RMRS) for a projected savings of $11 to $33 million

• Build on a CIO/Sustainable Operations partnership to further agency energy and cost reduction 

opportunities through technology

• Develop national plans to integrate efforts and eliminate duplication across staff areas to reduce 

energy and water consumption and costs by focusing on coordinating specific national and fieldlevel actions with policy updates including a continuous improvement framework

• Develop a bottom up approach to inventory greenhouse gases for operations starting with the 

field (i.e., District or Forest) level and feeding up through the regional and national levels 

• Provide a transition strategy to institutionalize sustainable operations efforts throughout the 

agency

• Consult and coordinate with Engineering, Acquisitions, and the Climate Change Advisor to the 

Chief to implement Forest Service Climate Change Scorecard activities nationwide

• Identify improved methodologies to estimate and track water consumption for both facilities and 

on-site agricultural based activities

• Develop a utility consumption database available to field-based employees and managers

• Expand pilot projects for propane fueling stations, fleet life cycle analyses, and renewable energy 

use

• Promote consistent and transparent sustainable operations communications through internal 

website, existing agency-wide newsletters, and monthly webinars to connect national Green 

Teams with tools and support networks

• Re-structure Adopt-a-School efforts to leverage partners with Conservation Education and ensure 

outcomes align with sustainable operations program goals
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-101

FY 2014 Sustainable Operations Program Plans

In FY 2014 the agency will focus on the following priorities for sustainable operations:

• Develop national plans to integrate efforts and eliminate duplication across staff areas to reduce 

solid waste and increase green purchasing and recycling by focusing on coordinating specific 

national and field-level actions with policy updates and including a continuous improvement 

framework

• Direct national work in Sustainable Operations around findings of GHG reporting

• Continue to implement national plans to reduce energy and water consumption and costs across 

the agency

• Continue to support availability of reliable utility consumption data to field-level employees and 

managers

• Expand fleet management plans to reduce the environmental footprint of the agency’s fleet
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-102

Unobligated Balances

Unobligated Balances

Background 

This exhibit is not required by Congressional direction but is included to provide an update on the status 

of Forest Service unobligated balances.

Overview

The following table contains the Forest Service unobligated balances from all prior year appropriated 

funds (regular and emergency) carried forward into FY 2013. The table does not include the unobligated 

balances from offsetting collections such as reimbursable or advanced collections. The appropriation 

totals lines are actual amounts and the program distributions are estimates. 

FY 2012 Forest Service - Unobligated Balances, End of Year

(dollars in thousands)

Forest Service Appropriation FY 2012

Budget Line Item/Programs Unobligated 

Balances

Forest and Rangeland Research

Research and Development $14,279 

NFP Research Activities 813 

Joint Fire Science 4,563 

Total Forest and Rangeland Research $19,655 

State and Private Forestry

Forest Health - Federal Lands $4,356 

Forest Health - Coop Lands 2,713 

State Fire Assistance 3,135 

Volunteer Fire Assistance 839 

Forest Stewardship 2,075 

Urban and Community Forestry 1,513 

Economic Action Programs 122 

Forest Res Info & Analysis 313 

International Forestry 396 

NFP Forest Health - Federal Lands 1,684 

NFP Forest Health - Coop Lands 806 

NFP State Fire Assistance 1,821 

NFP Volunteer Fire Assistance 820 

Total State and Private Forestry $20,593 

S&P Land and Water Conservation Fund

S&P Land and Water Conservation Fund $2,483 

Total S&P Land and Water Conservation Fund $2,483 

National Forest System

Land Management Planning $1,986 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-103

FY 2012 Forest Service - Unobligated Balances, End of Year

(dollars in thousands)

Forest Service Appropriation FY 2012

Budget Line Item/Programs Unobligated 

Balances

Inventory & Monitoring 10,778 

Recreation, Heritage, and Wilderness 4,155 

Wildlife and Fisheries Habitat Management 2,971 

Grazing Management 2,278 

Rehabilitation and Restoration 362 

Forest Products 11,691 

Vegetation and Watershed Management 3,931 

Minerals and Geology Management 3,134 

Landownership Management 2,540 

Law Enforcement Operations 5,156 

Valles Caldera National Preserve 657 

Collaborative Forest Landscape Restoration 14,302 

Total National Forest System $63,941 

Wildland Fire Management

Preparedness $21,690 

Suppression 113,087

Hazardous Fuels Management 22,814 

Collaborative Forest Landscape Restoration 156 

Total Wildland Fire Management $157,747

FLAME Fund

Total FLAME Fund $0 

Capital Improvement and Maintenance

Facilities Capital Improvement/Maintenance $12,191 

Roads Capital Improvement/Maintenance 6,741 

Trails Capital Improvement/Maintenance 1,853 

Legacy Roads 1,948 

Deferred Maintenance 1,550 

Total Capital Improvement and Maintenance $24,283

Land Acquisition - Land and Water Conservation Fund

Land Acquisition $5,614 

Total Land Acquisition/L&WCF $5,614

Other Appropriations

Range Betterment Fund $862 

Gifts, Donations, and Bequests for Research 126 

Subsistence Management (R10) 294 

Total Other Appropriations $1,282 

GRAND TOTAL $295,598
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-104

USDA Working Capital Fund and Greenbook Charges

USDA Working Capital Fund and Greenbook Charges

Background

This exhibit is included to provide a three-year display of total costs paid by the Forest Service for these 

centrally administered programs.

Overview

The Forest Service, as an organizational entity of the Department of Agriculture (USDA), is provided 

administrative services managed centrally on behalf of the Department. These centrally administered 

programs are broken into two activities, the Working Capital Fund and Greenbook. 

It is important to note that cost estimates for actual usage programs have changed in the last three fiscal 

years in response to demand for services on the part of the Forest Service. The Forest Service estimates 

for the activities assessed on a 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 U.S.C. 2235. The WCF is a financing mechanism currently supporting 17 activity 

centers across five department level organizations. These centers provide services to all USDA agencies, 

including the Forest Service, and a large number of non-USDA entities. Customers reimburse activity 

centers for the cost of services provided.

WCF supported activities do not receive appropriated funds and are not subsidized from other funding 

sources. All costs are recovered through reimbursements from serviced customers. The estimated 

reimbursement from customers represents their projected share of costs to deliver service. Under terms of 

the general provisions in annual appropriations to USDA, agency administrators must authorize the 

billing of their agency for services they receive. The Chief of the Forest Service, or his duly appointed 

representative, must sign an agreement at the beginning of the fiscal year authorizing billing for services 

provided and supplying the appropriate accounting data.

The Forest Service acts as one of the overseers in the review of cost estimates for the National Finance 

Center (NFC) through its participation in the WCF Executive Committee, a body comprised of 

representatives from various USDA agencies. The Executive Committee is charged with making budget 

recommendations and advising the Department’s Chief Financial Officer as to the financial effectiveness 

of the WCF. The Forest Service actively works with the Department’s Chief Financial Officer to review 

activities included in the Greenbook and the basis for any costs attributed to the Forest Service. 

On the following page is a table displaying Forest Service assessments for USDA WCF services. On 

subsequent pages is a table describing WCF services provided by the USDA.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-105

FY 2012 to FY 2014 Working Capital Fund Assessments for the Forest Service

(dollars in thousands)

FY 2012 

Actuals

FY 2013 

Estimates

FY 2014 

Estimates

Core Service

Central Excess Property Operation $91 $108 $120 

Central Mail Unit 437 207 370 

Computer Services Unit 57 61 57 

Consolidated Forms and Publications Dist. Center 601 621 628 

Comptroller Operation Division 12,192 11,816 18,606 

Creative Media and Broadcast Center 0 386 0 

Enterprise Network Services 3,815 4,341 3,880 

Financial Systems 38,137 35,174 38,665 

Integrated Procurement System 9,133 8,485 10,355 

Internal Control Support Services 199 343 177 

National Information Technology Center 3,366 0 0 

Network Services 689 0 0 

Office of the Executive Secretariat 842 734 639 

Procurement Operation Division 0 60 60 

Telecommunication Customer Services Center 135 136 196 

Total Core Services $69,694 $62,471 $73,753 

USDA Agency Specific Services

Central Mail Unit $33 $24 $18 

Consolidated Forms and Publication Dist. Center 135 192 103 

Copier and Duplicating Services 458 502 461 

Creative Media and Broadcast Center 403 624 640 

International Technology Services 0 0 0 

Central Supply Store 129 0 0 

National Finance Center 9,940 8,677 9,442 

National Information Technology Center 13,269 13,502 18,981 

Total USDA Agency Specific Services $24,367 $23,521 $29,645 

TOTAL WCF ASSESSMENTS $94,061 $85,993 $103,397 

Total reimbursable request is within the appropriation language request under Administrative Provisions of up to $82 million.

*New line of business in FY 2013.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-106

WCF ACTIVITIES

Cost Recovery Methodologies

Activity Description Cost Distribution

National Finance 

Center Agency Specific

Provides: 

• Payroll/personnel services to USDA/nonUSDA agencies

• Applications support to Office of Personnel 

Management

• Record keeper/other services to support the 

Thrift Savings Plan

• Support services for USDA accounting 

applications 

• PKI licenses/support

Beginning in FY 2005, services 

provided by NFC have been

negotiated between NFC and 

serviced agencies. The nature, 

volume, and cost of services 

serve as the basis for 

Memoranda of Understanding 

between the parties.

National Finance 

Center Government 

Employee Services

Provides:

• Payroll/personnel services to USDA/nonUSDA agencies 

• Applications support to Office of Personnel 

Management 

• Record keeper/other services to support the 

Thrift Savings Plan 

• Support services for USDA accounting 

applications 

• PKI licenses/support

Beginning in FY 2005, services 

provided by NFC have been

negotiated between NFC and 

serviced agencies. The nature, 

volume, and cost of services 

serve as the basis for 

Memoranda of Understanding 

between the parties.

Financial Systems Operates/maintains the following systems:

• Financial Management Modernization 

Initiative (FMMI - core accounting) 

• Real property 

• Corporate integrated administrative 

payments 

• Other systems as necessary to support 

program agency missions and fulfill 

USDA’s fiduciary responsibilities to 

taxpayers

Financial/Adm. Pmts: Costs 

recovered based on agency 

share of FMMI workload 

(measured in general journal 

records) 

Real Property: Costs recovered 

basis on agency shares of 

USDA-owned and 

GSA/commercially-leased 

property

Comptroller Operations 

Services

Provides

• Core accounting/reporting services 

• Agency-specific services 

• Operates a corporate controller organization 

that integrates accountability and systems 

across USDA

Agencies are billed monthly at 

1/12th their estimated annual 

charges
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-107

WCF ACTIVITIES

Cost Recovery Methodologies

Activity Description Cost Distribution

Internal Control 

Support Services

Internal Control Support Services (ICSS) 

promotes and supports the USDA's internal 

control program by assisting USDA agencies in 

their internal control compliance efforts. As part 

of its services, ICSS plans and manages the 

Department's annual assessment of internal 

control over financial reporting, promotes best 

practices across the Department to gain 

consistencies related to internal control for 

financial processes, administrative processes 

and information technology. ICSS also provides 

training programs, group presentations and 

other support services in order to improve the 

Department's internal control program and to 

increase the Department's awareness of 

emerging events and current trends related to 

internal control.

Cost is distributed based on 

agency’s FTE percentages.

Creative Media and 

Broadcast Center

The Broadcast Media and Technology Center 

(BMTC) provides a wide array of video 

production and teleconferencing (both audio and 

video) services. The Visual Communication 

Center offers a variety of planning, fabrication, 

and development services for graphic 

productions, exhibits, and visitor center needs. 

The Center also provides web page graphic 

design services.

Agency percentage shares are 

based on the most recently 

completed fiscal year billings 

for services. Actual costs reflect 

use of the service and are based 

on needed labor hours, 

contractual costs, and/or direct 

materials needed for the 

delivery of a product to the 

requesting agency

NITC - IT Services Provides mainframe computer operations and 

application development and support services to 

support agency programs. NITC also provides

IT consulting services and training, and data 

warehouse support for FMMI.

Agency percentages are based

on estimates of services to be 

provided to users during the 

current fiscal year. Actual costs 

are based on the cost of services 

provided to requesting agencies 

under terms of interagency 

agreements.

National Telecom 

Services

Provides centralized telecommunications 

support services nationwide for the USDA; 

manages and provide internet access to USDA 

agencies and data connections between agencies 

(USDA Intranet); assists agencies in using 

telecommunication services in a cost-effective 

manner.

Agencies’ percentage shares 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.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-108

WCF ACTIVITIES

Cost Recovery Methodologies

Activity Description Cost Distribution

Telecom Customer 

Services Center (TSCS)

Manages and maintains the USDA’s voice 

telephone services in the Washington, DC 

metropolitan area 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 Washington, DC metropolitan 

area and voice mail services.

Agency percentage shares 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 percentage share is 

based on FY 2003 FTEs for the 

USDA facilities serviced by the 

Departmental LAN and e-mail 

usage.

Computer Services 

Network Support

Provides LAN, desktop, application, and web 

development support and maintenance to the 

Office of the Secretary (OSEC).

Basic services for OSEC are 

paid by the Office of the Chief 

Information Officer 

(appropriate). The cost for the 

support services to the Under 

and Assistant Secretaries are 

distributed among agencies 

based on estimated fiscal year 

nationwide FTEs.

Central Supply Stores Provides required office supplies to the Office 

of the Secretary and USDA agencies in the 

Washington, DC metropolitan area; provides 

nation-wide supply support to the meat and 

poultry inspectors for the Food Safety 

Inspection Service.

Agency percentage shares are 

based on actual use of store 

services in the most recently 

completed fiscal year. Actual 

costs are recovered on the basis 

of the acquisition cost of 

supplies procured by agencies, 

plus an overhead charge.

Central Forms and 

Pubs - Transport Costs

Provides acquisition (printing), warehouse, and 

worldwide distribution of administrative forms 

and publications for all USDA agencies and 

non-USDA agencies; provides warehouse 

distribution of agency programs and 

publications for all USDA agencies and for 

other participating government agencies.

Based on the most recently 

completed fiscal year.

Copier and Duplicating 

Services

Provides centralized copier facilities and 

equipment for employees in Washington DC, 

buildings 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.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-109

WCF ACTIVITIES

Cost Recovery Methodologies

Activity Description Cost Distribution

Mail Prep and Courier 

Services

Provides custom mailing services to USDA 

agencies.

0.0399 cents/piece for each 

piece of mail stuffed. 

Miscellaneous Services: Flat 

fee of $10.00 for courier 

deliveries in the local metro 

area. $0.30/mile for chauffeur 

services (plus overtime for 

drivers)

Procurement Systems 

Operations

Develops, implements, and maintains a suite of 

corporate acquisition software tools, 

streamlining processes, and providing 

procurement support to USDA agencies; 

develops, implements, and maintains an 

interface with the USDA corporate financial 

system.

Cost is distributed based on 

actual agency use of the IAS 

and SmartPay systems. 

Customers are billed monthly 

1/12 of their estimated annual 

share of costs.

Mail Distribution 

Services

Central Mail: Central processing of incoming, 

outgoing, and interoffice mail; special handling 

services for priority items in the DC area; doorto-door pickup and delivery service of routine 

and special mailings in the DC downtown 

buildings complex.

Central Mail/Door-to-Door: 

Agency shares are based on 

mail count samples taken by the 

Mail Unit.

Consolidated Forms 

and Public Distribution 

Center

Provides acquisition (printing), warehouse, and 

worldwide distribution of administrative forms 

and publications for all USDA agencies; 

provides warehouse distribution of agency 

programs and publications for all USDA 

agencies and for other participating government

agencies.

Agency shares are based on 

costs of requisitions processed 

for AD and SF forms during the 

most recently completed fiscal 

year. 

Agency shares for agency 

forms are based on square 

footage of space for storage of 

agency forms at the warehouse. 

Central Excess 

Property Operations

Provides customer service and disposition for 

all excess property for USDA and other Federal

agencies in the Washington, DC metropolitan 

area under the concept of a Cooperative 

Administrative Support Unit (CASU); provides 

property rehabilitation services in an effort to 

promote utilization of serviceable excess and 

rehabilitated property in lieu of purchasing new 

property.

Agency shares are based on FY 

2005 FTEs for the Washington, 

DC metropolitan area.

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 2014 Budget Justification USDA Forest Service

Special Exhibits 14-110

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, transit subsidy, postage, 

unemployment, and workers compensation based on actual costs incurred by individual agencies.

Outside Assessments - Costs such as OPM Federal employment, FirstGov, and GSA blue pages 

are distributed to executive departments for reimbursement. The Department has no discretion as 

to the cost of the program. 

Departmental Reimbursable Programs

These costs provide funding for department-wide initiatives authorized by the Office of the Secretary. 

Costs for these programs cannot be recovered on a usage basis and are generally distributed using an FTE 

methodology.

FY 2012 to FY 2014 Forest Service Greenbook Costs

(dollars in thousands)

FY 2012 

Actual

FY 2013 

Annualized 

CR

FY 2014 

Pres Bud

Central Cost Distribution Programs

GSA Space - Agency $38,463,429 $39,842,040 $37,849,900 

DHS GSA Building Security - Agency specific 2,954,665 3,100,000 3,255,000 

U.S. Postal Service Mail - Agency specific 290,000 290,000 290,000 

Unemployment Compensation 51,210,348 52,300,000 52,300,000 

Workers Compensation 32,074,943 32,619,933 32,619,933 

National Archives Records System 622,781 485,426 461,155 

Flexible Spending Accounts FSAFEDS - Agency 

Specific 370,579 370,721 352,185 

OPM Federal Employee Svcs and Admin Law Judges 179,948 177,961 169,063 

Government-wide Council Activities 163,036 176,185 167,376 

E-GOV Initiatives 3,083,010 3,065,765 3,155,462 

Total Central Cost Programs $129,412,739 $132,428,031 $130,620,074 

Departmental Reimbursable Programs

Intertribal Technical Assistance Network $657,951 $612,054 $581,451 

Faith-Based Initiatives & Neighborhood Partnerships 134,551 123,948 117,751 

Advisory Committee Liaison Services 101,057 92,138 87,531 

Hispanic Serving Institutions National Program 

(Formerly HACU) 677,361 631,431 599,859 

1890 USDA Initiative 1,015,877 931,110 884,555 

USDA 1994 Program (Formerly AIHEC) 266,470 248,229 235,818 

USDA Human Resources Transformation (Includes 

Diversity Council) (Renamed in FY 2012) 555,640 516,170 490,362 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-111

FY 2012 to FY 2014 Forest Service Greenbook Costs

(dollars in thousands)

FY 2012 

Actual

FY 2013 

Annualized 

CR

FY 2014 

Pres Bud

Virtual University 701,705 654,149 621,442 

Peoples Garden & Visitors Center 345,425 309,368 293,900 

Honor Awards 26,318 24,389 23,170 

TARGET Center 311,540 290,325 275,809 

Sign Language Interpreter Services 130,845 129,499 123,024 

Emergency Operations Center 790,200 734,999 698,249 

Continuity of Operations Planning 611,566 609,715 579,229 

Medical Services 17,701 20,998 19,948 

Personnel and Document Security 439,037 383,864 364,671 

Federal Biobased Products Preferred Procurement 

Program (Formerly Biobased Markets Program) 117,444 109,582 104,103 

Radiation Safety 100,358 107,200 101,840 

Facility Infrastructure Review and Assessment 

(New in FY 2012) 46,338 142,323 135,207 

Retirement Processor Web Application 177,318 180,075 171,071 

Preauthorized Funding 1,217,210 1,236,135 1,174,328 

E-GOV Initiatives HSPD12 2,105,445 2,138,180 2,031,271 

E-GOV Initiatives - Content Management 213,434 213,434 202,762 

FEMA Emergency Preparedness 347,053 347,053 329,700 

Consolidated Federal Funds Report 15,840 30,811 29,270 

GSA HSPD12 Lincpass Maintenance 1,201,099 1,045,339 993,072 

Transit Subsidy 1,305,867 1,279,750 1,215,763 

Total Reimbursable Programs $13,630,650 $13,142,268 $12,485,156 

TOTAL GREENBOOK $143,043,389 $145,570,299 $143,105,230 

Expected increase in transit subsidy due to new legislation in 2013.

Greenbook Activities

Central Cost Distribution Programs

Activity Description Cost Distribution

General Service 

Administration (GSA) 

Space - Agency

Provides for the payment of rental to GSA for 

agency space, which is paid from agency funds. 

User percentages are based on 

occupied agency space which is 

not covered by the departmental 

SLUC Appropriation.

DHS GSA Building 

Security - Agency

Provides for the payment of security to DHS for 

non-appropriated funded agency security, which 

is paid from agency funds.

User Cost Estimates are based 

on security not covered in the 

central (departmental) 

appropriation for security.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-112

Greenbook Activities

Central Cost Distribution Programs

Activity Description Cost Distribution

U.S. Postal Service 

Mail

Provides reimbursement to the U.S. Postal 

Service (USPS) for mailing services provided to 

USDA agencies. 

User percentages are based on 

prior year usage. Adjustments 

are made prior to the end of the 

fiscal year based on direct 

accountability, i.e., metered 

costs, sampling, and anticipated 

increases in postal rates.

Unemployment 

Compensation

Provides reimbursement to the Department of 

Labor (DOL) unemployment trust fund for 

payment made to unemployed former USDA 

employees.

User percentages are based on 

reconciled agency charges for 

the previous fiscal year.

Worker’s 

Compensation Program

Provides reimbursement to DOL unemployment 

trust fund for payment made to unemployed 

former USDA employees.

Distribution is based on 

reconciled agency cases and 

dollars.

National Archives 

Records System

Effective in FY 2001, the National Archives 

became a fee-for-service records center. Each 

agency is assessed for costs associated with 

records in storage plus an additional amount for 

those departmental staff offices that store 

agency records as a part of their function.

Distribution is based on each 

agency’s volume of records 

stored, plus a percentage of 

department-wide records stored 

based on nation-wide FTEs.

Flexible Spending 

Accounts FSAFEDS -

Agency

The National Defense Authorization ACT, 

Public Law 108-136, signed November 24, 

2003, requires all Executive Branch agencies 

that participate in the Flexible Spending 

Accounts for Federal Employees Program 

(FSAFEDS) to cover administrative fees on 

behalf of their employees.

The agency cost shares are 

based on the participation level 

of their employees. Agencies 

are billed for the operating costs 

by OPM and contract 

administration by a commercial 

vendor.

OPM Federal 

Employment and 

Administrative Law 

Judges Service

This program reimburses OPM for Federal 

Employment Services and information provided 

to USDA agencies.

Distribution is based on FY 

2003 nation-wide FTEs of each 

agency.

Government-wide 

Council Activities

Reimburses GSA for projects of the Chief 

Financial Officers Council, Chief Information 

Officers Council, and Procurement Executive 

Council.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-113

Greenbook Activities

Central Cost Distribution Programs

Activity Description Cost Distribution

Intertribal Technical 

Assistance Network

Program addresses the unique challenges faced 

by American Indian and Alaskan Native tribal 

governments, communities and individuals in 

effectively utilizing USDA programs and 

services. These challenges require intensive 

technical assistance and program access 

improvement through in an intertribal 

coordinated network and coordination with the 

Department of Interior, Bureau of Indian 

Affairs, which also has jurisdiction and 

authority over Indian lands. Information on all 

USDA programs will be covered by the 

technical assistance efforts of staff within the 

Network. Program efforts will also focus on 

promoting the Department’s strategic goals 

within Indian Country, including Tribal 

consultation responsibilities, in accordance with 

government-to-government and trust 

responsibilities of USDA.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings for each 

USDA agency.

Faith Based Initiatives 

and Neighborhood 

Partnerships

Provides for department level oversight of the 

USDA implementation efforts in the faith-based 

and neighborhood outreach areas and to support 

the White House Office of Faith-Based and 

Community Initiatives regional outreach 

conferences. This office was established at the 

U.S. Department of Agriculture by executive 

order on December 12, 2002.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings for each 

USDA agency.

Advisory Committee 

Liaison Services

The Office of the Secretary provides guidance 

and direction to USDA agencies on Advisory 

Committees and Boards. Costs to support this 

function and screening/selection of members are 

reimbursed from agencies to the Office of the 

Secretary.

Costs are distributed on the 

basis of the number of advisory 

committees in each agency.

Hispanic Serving 

Institutions National 

Program 

Fosters educational excellence in the Hispanic 

community and promotes Hispanic participation 

in fulfilling the USDA mission.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency.

1890 USDA Initiative Supports initiatives on Historically Black 

Colleges and Universities and the 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.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-114

Greenbook Activities

Central Cost Distribution Programs

Activity Description Cost Distribution

USDA 1994 Program Promotes, fosters, and encourages implementing 

programs for improving post-secondary and 

higher education opportunities for American 

Indians, and establishing information centers for 

post-secondary and higher education 

institutions.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency.

USDA Human 

Resources 

Transformation 

Program (Includes 

Diversity Council)

Establishes policy, coordinates and evaluates 

the USDA agencies’ efforts to carryout diversity 

programs. Creates a culture of change within the 

USDA’s agencies that ensures its place as a 

model employer within the Federal government 

in terms of equal opportunity without barriers to 

achievement of diversity and inclusivity. Builds 

diversity awareness through formal training, 

participation in diversity programs, special 

observance events, participation in employee 

forums at listening sessions, and national 

employment conferences. Tracks progress of 

USDA agencies towards diversity goals, 

awareness, and best practices.

Distribution is based on the 

current year’s nationwide FTE 

employment ceilings for each 

USDA agency.

Virtual University The Virtual University program will provide 

Department employees with a central 

educational facility. The facility will focus on 

providing employees with training for today’s 

workplace responsibilities and developmental 

programs to ensure a cadre of highly-skilled 

future leaders. 

Distribution is based on current 

fiscal year nationwide FTE 

employment in each agency.

Peoples Garden and 

Visitors Center

Supports the People’s Garden and serves as a 

showcase for USDA programs and initiatives.

Distribution is based on current 

fiscal year nationwide FTE 

employment in each agency.

TARGET Center Supports the Department's workforce diversity 

and Federal Workforce 2001 policies. Provides 

information on technologies to ensure equal 

access to electronic equipment and automated 

systems essential to today's jobs for people with 

visual, hearing, speech, mobility, or dexterity 

impairments.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings for each 

USDA agency.

Drug Testing Program -

Agency Specific

This program is mandated by 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, postaccident, volunteer, and applicant testing.

Distribution is based on agency 

actual expenses.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-115

Greenbook Activities

Central Cost Distribution Programs

Activity Description Cost Distribution

Sign Language 

Interpreter Services

Provides interpretive services for Departmental 

programs and USDA agencies. During fiscal 

years 2010 and prior, the DC Metro Area Sign 

Language Services were handled through 

agency level agreements. Beginning in fiscal

year 2011, DC Metro Area Sign Language 

Services will be included in the Departmental 

Reimbursable Program and a Metro Area FTE 

cost recovery basis will be used. The intent of 

this change is to ensure that all employees have 

access to services.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings for each 

USDA agency. Agency-specific 

services will be billed directly 

to serviced agencies.

Emergency Operations 

Center

Operates a secure emergency operations center 

on a 24/7 basis. The center provides critical 

communications and coordination systems.

Distribution is based on current 

fiscal year nationwide FTE 

employment in each agency.

Continuity of 

Operations Planning

(COOP)

Provides for USDA COOP activities including 

awareness training, exercises, and COOP plan 

reviews.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency.

Medical Services Provides preventative health measures such as 

flu shots, health screening, nutritional 

principles, and fitness awareness that lead to a 

higher quality workforce environment for 

employees and contractors in the National 

Capital Region (Headquarters complex, the 

George Washington Carver Center, and the 

Patriot Plaza offices.)

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency

Personnel and 

Document Security

Responsible for ensuring the proper protection 

of classified national security information 

through the adjudicative process of personnel 

clearances and the proper handling, storage, and 

transmission of classified information.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency.

Federal Biobased 

Products Preferred 

Procurement Program 

(Formerly Biobased 

Markets Program)

Supports the USDA-wide implementation of 

Bio-PreferredSM procurement requirements as 

additional biobased items are designated for 

preferred procurement. Supports the 

development of USDA procurement reporting 

tools and provides information resources and 

training to the USDA procurement community, 

as well as to other Federal agencies, for the 

purchase of biobased products and the inclusion 

of biobased components in contracts.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-116

Greenbook Activities

Central Cost Distribution Programs

Activity Description Cost Distribution

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 oversight.

Distribution is based on usage 

of radioactive materials by 

agency personnel.

Facility and 

Infrastructure Review 

and Assessment

Provides risk-based security assessments with 

countermeasure recommendations for all critical 

infrastructure within USDA agencies.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency.

Retirement Processor 

Web Application 

(Formerly Self Service 

Dashboard (SSD) and 

Retirement Processor 

Web Application)

Serves as an e-authenticated single sign-on 

portal for several USDA human resources 

systems and contains a historical database that 

together with the Retirement Processor Web 

application enables employees to run various 

retirement calculation scenarios.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency.

Preauthorized Funding Provides a funding mechanism for reimbursable 

activities involving other Federal Departments 

and the USDA that arise during the current 

fiscal year.

Distribution is based on the 

current year nationwide FTE 

employment ceilings for each 

USDA agency.

E-Gov 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

percent of agency FTEs and 50

percent of the agency IT 

development, modernization, 

and enhancement (DME) 

spending.

E-Gov Initiatives 

HSPD12

Supports the implementation of the Homeland 

Security Presidential Directive 12 (the Common 

Identification Standard for Federal Employees 

and Contractors).

Distribution is based on 100

percent of agency FTEs. In FY 

2006 the cost Distribution was 

based on a 50/50 blend of 

nationwide FTEs and agency IT 

DME investment budgets 

submitted as part of the Exhibit 

53 submission to OCIO.

E-Gov Initiatives -

Content Management 

Services

Content Management Services comprise a suite 

of three related modules that utilize and rely 

upon the core components of the USDA’s 

corporate document management infrastructure: 

Stellent, Oracle, and WebSphere. The Content 

Analysis Module (CAM) is designed to analyze 

and display content such as public comments 

regarding an issue or proposal.

Distribution is based on 50 

percent of agency FTEs and 50

percent of the agency IT DME 

spending.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-117

Greenbook Activities

Central Cost Distribution Programs

Activity Description Cost Distribution

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.

Consolidated Federal 

Funds Report

Supports the Federal Assistance Awards Data 

System (FAADS) and the Consolidated Federal 

Funds Report (CFFR) and the Federal Audit 

Clearinghouse. The Census Bureau collects the 

information and prepares the report as executive 

agent for the Office of Management and 

Budget.

User percentages are based on 

each agency’s share of Federal 

fund grants for the Department 

and Federal Audit 

Clearinghouse records.

USDA HSPD12 

LincPass Maintenance

Mandates the establishment of a new standard 

for credentialing Federal government employees 

and contractors.

Distribution is based on current 

fiscal year nationwide FTE 

employment ceilings in each 

agency.

Transit Subsidy In accordance with Executive Order 13150, the

USDA is providing all qualifying employees 

nationwide a direct transit subsidy in order to 

reduce Federal employees’ contribution to 

traffic congestion and air pollution and to 

expand their commuting alternative.

Distribution is based on each 

agency’s percentage of the 

actual costs for each quarter.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-118

Wood Education and Resource Center

Wood Education and Resource Center

Background

This exhibit is not required by Congressional Direction, but is included to provide information about this 

program.

Overview

The Wood Education and Resource Center (WERC) was started in 1999 when legislation was enacted 

authorizing the Forest Service to assume operation of the former Robert C. Byrd Hardwood Technology 

Center (RCBHTC) in Princeton, West Virginia. Under Forest Service management, WERC focuses on 

primary and secondary wood processing and woody biomass utilization using multidisciplinary 

approaches within the 35 States of the eastern hardwood region. WERC activities include: 

• Maintaining and expanding a competitive hardwood industry that provides jobs and markets for 

local community needs

• Increasing communication, cooperation, and collaborative problem solving within the forest 

products industry

• Supporting woody biomass utilization for energy

• Advancing market development and utilization of trees affected by insects, diseases, and weather 

events

• Supporting appropriate green building initiatives and carbon storage in wood products

WERC programs help maintain and improve wood industry productivity and competitiveness in a 

sustainable manner. Viable wood products markets enable sustainable forest management on private, 

State, and Federal lands. WERC staff includes a Biomass Coordinator position to provide leadership for 

woody biomass-to-energy efforts across the State & Private Forestry’s Northeastern Area. WERC’s 

biomass coordination efforts have resulted in a partnership with several engineering consultants that 

provide preliminary assessments of energy system conversions. These are completed for schools, 

hospitals, office, and business facilities.

The primary authority used in carrying out WERC activities is the Cooperative Forestry Assistance Act. 

WERC is funded from a number of budget line items including Forest Health Management-Cooperative 

Lands, State Fire Assistance, Forest Stewardship, Urban and Community Forestry, and Hazardous Fuels. 

FY 2014 Program Changes 

The FY 2014 budget request includes $960,000 for WERC, the same as the FY 2012 and FY 2013 

requests. Funds will provide priority services and support to the eastern hardwood forest region, 

particularly the wood industry. At this level of funding, WERC anticipates that few new competitive 

grants will be issued. Salaries for support activities will be approximately $730,000, leaving $230,000 for 

operating and other expenses. WERC staff will conduct existing grant monitoring and provide technical 

assistance, training, and information transfer specifically focused on meeting the market and utilization 

needs identified in the National Association of State Foresters’ (NASF) 2012 Forest Markets Report and 

items identified in the State Forest Action Plans from the Northeastern and Southern states. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-119

FY 2011 – FY 2014 WERC Allocations

(dollars in thousands)

Program

FY 2011 

Allocation

FY 2012 

Allocation

FY 2013

Annualized CR

FY 2014

Pres Bud

WERC $960 $960 $960 $960

In FY 2014, WERC will host or sponsor workshops and training for owners and managers of wood 

products businesses. In addition, WERC will provide technical assistance to the lessee of the WERC mill 

and shop in order to maintain a successful business operation that more fully utilizes the facilities and 

enhances employment opportunities to local residents. 

The Forest Service will provide technical expertise to industry, States, and other partners on market 

development; wood processing; utilization of damaged trees from insects, diseases, and weather events; 

green building; and implementation of a woody biomass strategy. 

FY 2012 Accomplishments

In FY 2012, WERC continued its outreach 

efforts to industry and communities by 

providing over 50 industry-related 

workshop/training sessions/webinars/webcasts. 

Topics included: woodworking skill standards, 

urban wood utilization, mass customization and 

marketing, firewood, and small sawmilling 

techniques. Four webcasts were conducted to 

specifically address needs of the urban forestry 

community pertaining to market development 

and utilization of trees affected by insect and 

disease issues. 

WERC allocated $870,000 to eight new or 

existing grants and agreements, of which two were woody utilization biomass grants (these funds were 

largely provided by the Forest Service Washington Office in addition to the regular WERC budget). 

These agreements focused on maintaining or expanding the economic competitiveness and sustainability 

of wood products manufacturing businesses, ultimately leading to job creation as well as improved forest 

health and stewardship. Several of these projects focused on sustainable uses of woody biomass. WERC’s 

Wood Energy Technical Assistance Team has prepared more than 120 prefeasibility studies for facility 

owners throughout its service territory, generating significant project savings for facilities that converted 

to wood energy. These projects have resulted in a more productive and sustainable wood products 

industry in the Eastern U.S.

In addition, numerous preliminary assessments pertaining to the potential conversion of boiler systems to 

woody biomass systems have been completed through WERC’s Woody Biomass Technical Assistance 

Team. Of notable accomplishment was the assistance the team provided to the Missouri Fuels-ForSchools Program.

WERC’s Woody Biomass 

Technical Support Team

WERC, in cooperation with several engineering firms, 

has developed a team approach to provide preliminary 

assessments and technical assistance to facility owners 

and managers considering the use of woody biomass as 

an energy and power source. 

Since 2009, benefits have included over $4.5 million in 

annual operating savings, over $5.2 million in capital 

cost savings, and annual net CO2 offset of over 35.5 

metric tons. Additional details about the program can be 

viewed at http://na.fs.fed.us/werc/biomass/index.shtm.
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-120

Allocation and Partnerships

WERC accomplishes its mission through several venues including:

• Workshops and trainings held at WERC, on the web, and at other remote locations 

• Biomass energy technical support through energy engineer consultants conducting prefeasibility 

evaluations of facilities considering conversion to woody biomass for heat and power 

• A website clearing house for information 

• Technical assistance and support regarding utilization and market development for trees damaged 

from insects, diseases, and weather events; and regional operations in a cluster model at the 

Princeton WERC (research, technical transfer, and private industry partnerships on-site) 

Training programs focus on industry 

competitiveness, survivability, and sustainability 

issues. This focused effort will assist the wood 

industry in facing today’s critical challenges 

especially in the areas of job preservation and 

creation.

WERC maintains and fosters partnerships with 

organizations, universities, non-profits, and forprofit organizations. WERC has invested over $12 

million in over 200 projects in 26 states since 2005, 

in cooperation with the wood and forest industries. 

Project details and results can be viewed by visiting 

http://spfnic.fs.fed.us/werc/p_search.cfm.

Meeting the Need of Skilled Workers in a Global 

Market

A partnership consisting of various industry trade 

associations and businesses, academia and WERC was 

formed to address the industry’s needs for a highlytrained and competitive workforce. The partnership, 

called the Woodwork Career Alliance (WCA), 

developed national woodwork manufacturing skill 

standards for over 50 tools and machines and over 150 

operations. These unified standards serve as a 

comprehensive, industry-accepted compilation of 

operational procedures for use in measuring performance 

of and results produced by woodworking professionals. 

The program includes a voluntary assessment by an 

approved evaluator and documentation in a WCA 

passport. For additional details, go to 

http://woodworkcareer.org/. 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-121

Working Capital Fund – Forest Service

Working Capital Fund – Forest Service

Background

This exhibit is not required by Congressional direction but is included to report expenses necessary for the 

Working Capital Fund. 

Overview

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

• Enterprise Services, which are teams accomplishing projects that improve customer service and 

reduce costs

• The Forest Service Nursery Program operates facilities for the production of tree seedling and 

native shrubs to meet the needs of planting programs. The Forest Service has six Nursery and two 

Seedlings groups that use the Working Capital funding process to support growing seedlings and 

other forest vegetation for sale to Forest Service Units, other Federal agencies, and outside 

entities.

o Maintain, restore, or rehabilitate native ecosystems that are self-sustaining, resistant to 

invasion by non-native invasive species and/or provide habitat for a broad range of 

species including, threatened, endanger and rare species

o Cooperate with other Federal agencies, Tribal, State, and local governments, academic 

institutions, and the private sector to increase the knowledge and availability of native 

plant materials, including developing sources of genetically appropriate plant materials

o Promote the study, planning, and implementation of actions, which will maintain, restore, 

and rehabilitate native ecosystems on National Forest System lands and other lands 

administered by the Forest Service and in the United States 

The table below displays the volume of business for major WCF activities. 

Volume of Business for Major WCF Activities 

(dollars in thousands)

Type FY 2012 FY 2013 FY 2014

Actual Annualize CR Pres Bud

Equipment - Fleet $174,993 $189,630 $184,586

Equipment - Aircraft 6,764 8,005 8,756

Nursery 12,111 14,111 16,111

Enterprise Services 43,048 44,000 44,000

Total $236,916 $255,746 $253,453
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-122

Working Capital Fund – Forest Service Fleet Management

Working Capital Fund – Forest Service Fleet Management

Background 

This exhibit is not required by Congressional direction but is included to report expenses necessary for the 

Working Capital Fund - Fleet Management. 

Overview

The Forest Service uses a WCF to procure and operate 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. WCF rates are determined so that 

WCF recovers operating and replacement costs within a certain time period. WCF supports Equipment 

Leasing Services, an entity that owns and rents vehicles and other fleet equipment.

Program Priorities

In FY 2007, a fleet feasibility study recommended increasing the percentage of agency-owned fleet. A 

later (FY 2011) fleet business process re-engineering study supported the 2007 recommendation. The 

Forest Service currently owns approximately 90 percent of its motor vehicles, and rents about 10 percent 

from the General Services Administration and commercial vendors. The goal of the agency is to retain 

and operate a total number of vehicles to provide the most cost effective and fuel efficient mix to meet the 

needs of the agency. WCF expenditures will remain fairly constant over time, as the majority of fleet 

reductions will occur through the reduction of leased vehicles (which are not part of WCF).

Vehicle Allocation Methodology and Procurement Practices

As part of the annual vehicle replacement process, the Forest Service units conduct assessments of fleet 

operations that analyze vehicle effectiveness, cost-to-serve, life cycle cost, vehicle pooling, and operating 

costs. Concurrently, vehicles with utilization that falls below agency standards (minimum annual mileage 

or days of use) are placed in motorpools, transferred to other units or outplaced. On-going fleet needs are 

determined by the Forest Service managers based on transportation and equipment needs to achieve their 

goals within the allotted budget. Alternative fuel vehicles (AFV) are chosen, when available. Often the 

limiting factor in the use of AFVs is the availability of alternative fuel in the geographic area. 

Utilizing national guidelines, the regional and station fleet specialists identify vehicles eligible for 

replacement. The final decision to procure a replacement vehicle is made at the region and station level. 

When a fleet addition or upgrade is required, a formal review and approval procedure is followed and 

documented. 

Program Oversight

To assure that the fleet program provides safe, efficient, and environmentally sound fleet equipment, and 

to ensure the safe, economical, and legal acquisition, operation, maintenance, and disposal of that 

equipment, the Forest Service uses a combination of the following:

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 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-123

vehicles. Dropped vehicles are reassigned to other units in need, who pick up the payments on the 

vehicles.

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 upgrades. Reduction of vehicle upgrades and replacing larger vehicles with smaller vehicles 

could result in significant cost savings, in large part due to associated fuel efficiency savings from 

smaller, more efficient replacement vehicles.

Monitoring - Typically, a region reviews fleet management activities on two to four national 

forests each year, and the national office reviews one to two regions.

Unit line officers, with the concurrence of Forest Supervisors, regularly adjust the fleet size, mix, and 

assignment throughout the year. This helps ensure an optimal fleet and helps to keep the fleet safe, 

effective, cost efficient, and in line with legal requirements.

 
FY 2014 Budget Justification USDA Forest Service

Special Exhibits 14-124

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FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-1

 

15. Forest Service Budget Authorities

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Acquisition of Lands, 

Special Acts, San 

Bernardino National 

Forest Land 

Conveyance and 

Settlement

Provides authority for the conveyance of a small 

parcel of public domain land in the San 

Bernardino National Forest in the State of 

California and changes the authorization for 

collection and retention of receipts first authorized 

under the Sisk Act P.L. 90-171.

NFS P.L. 106-434 16 U.S.C. 

484a

Agriculture Grants and 

Powers Act of 1965

Provides authority to erect buildings and other 

structures on non-Federal land, if long-term lease 

on the land is obtained. Also, provides authority 

to make competitive grants to eligible institutions, 

including special grants and grants for facility 

renovation and refurbishment, to further the 

programs of the Department of Agriculture.

ALL P.L. 89–106; 

P.L. 110–246

7 U.S.C. 450i

Alaska National 

Interest Lands 

Conservation Act of 

1980

This Act authorizes management of Federal lands 

in Alaska for subsistence uses of fish and wildlife, 

providing the opportunity for rural residents to 

continue their subsistence way of life. This Act 

also allows that receipts from oil, gas, timber, 

coal, and other natural resources collected by the 

Departments of Agriculture and the Interior are 

available to prepare, offer, and administer the 

timber sale program on the Tongass National 

Forest. Authorizing up to $5,000,000 in annual 

transfers of receipts to a special fund.

NFS P.L. 96-487 16 U.S.C. 

539d

Anderson-Mansfield 

Reforestation and 

Requires the agency to accelerate and provide a 

continuing basis for the needed reforestation and 

NFS P.L. 81-348 16 U.S.C. 

581j-k
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-2

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Revegetation Act of 

1949

revegetation of national forest lands and other 

lands under Forest Service administration or 

control. This Act authorizes appropriations as 

needed to provide for reasonable continuity of 

reforestation and vegetation programs.

Archaeological 

Resources Protection 

Act of 1979

Authorizes the use of appropriated funds for the 

preservation and protection of historical and 

archaeological resources.

NFS P.L. 96-95 16 U.S.C. 469

Arizona National 

Forest Improvement 

Act of 2000

This Act authorizes the Secretary of Agriculture 

to convey certain administrative sites in national 

forests in the State of Arizona, to convey certain 

land to the City of Sedona, Arizona for a 

wastewater treatment facility, and for other 

purposes.

NFS P.L. 106-458 16 U.S.C. 

484a

Bankhead-Jones Farm 

Tenant Act of 1937

Sections 31 and 32 of this Act authorize and 

direct the Secretary of Agriculture to develop a 

program of land conservation and land utilization, 

in order to assist in controlling soil erosion, 

reforestation, preserving natural resources, and to 

cooperate with Federal, State, territorial, and other 

public agencies in development and 

implementation of plans. This Act also provides 

authority to dispose of, or exchange, land 

acquired for the land utilization and conservation 

program.Section 32 also gives the Secretary of 

Agriculture the authority to regulate the use and 

occupancy of the property acquired by, or 

transferred to, the Secretary under or for the 

purposes of the Bankhead-Jones Act. This Act 

authorizes the transfer of lands acquired under the 

Act to other Federal, State, or Territorial agencies 

NFS P.L. 75-210 7 U.S.C. 110-

111; 7 U.S.C. 

1000-1006
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-3

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

subject to a public reverter provision.

Bankhead-Jones Farm 

Tenant Act, 25 percent 

of revenues to counties

This Act authorizes annual payments on a 

calendar year basis to counties, equal to 25 

percent of net revenues received during the year 

(excluding receipts from the sale of land).

Counties shall use these payments for schools 

and/or roads. This Act pertains primarily to 

national grasslands and land utilization projects.

NFS P.L. 75-210 7 U.S.C. 1012

Bend Pine Nursery 

Land Conveyance Act

This Act authorizes the Secretary of Agriculture 

to sell or exchange all or part of certain 

administrative sites and other NFS land in the 

State of Oregon and use the proceeds derived 

from the sale or exchange for NFS purposes.

NFS P.L. 106-526 16 U.S.C. 

484a; 16 

U.S.C. 480 et 

seq

Black Hills National 

Forest and Rocky 

Mountain Research 

Station Improvement 

Act

This Act authorizes the Secretary of Agriculture 

to sell or exchange all or part of certain 

administrative sites and other land in the Black 

Hills National Forest and use funds derived from 

the sale or exchange to acquire replacement sites 

and to acquire or construct administrative 

improvements in connection with the Black Hills 

National Forest.

NFS P.L. 106-329 16 U.S.C. 

484a

Boise Laboratory 

Replacement Act of 

2000

Authorizes the Secretary of Agriculture to sell or 

exchange the Boise laboratory site (as defined by 

this Act), and use the resultant funds to acquire 

land and facilities to: (1) co-locate the laboratory 

with one of the Boise-area State institutions of 

higher learning; (2) replace other laboratory 

functions; and (3) acquire other land or interests 

in Idaho.

NFS P.L. 90-171; 

P.L. 106-291

16 U.S.C. 

484a
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-4

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Boundary Waters 

Canoe Area 

Wilderness Act of 

1978

Section 18(e) authorizes the construction of 

dispersed recreation sites and trails outside the 

Boundary Waters Canoe Area Wilderness. 

Section 7(d)(3) authorizes funding to acquire land 

and water within the designated wilderness. Also, 

see Thye-Blatnik Act of June 22, 1948, as 

amended (16 U.S.C. 577h), cited in paragraph 3.

NFS P.L. 95-495 16 USC 1132 

note

Brush Disposal Act of 

August 11, 1916

This Act authorizes the Secretary of Agriculture 

to require purchasers of national forest timber to 

deposit the estimated cost to dispose of brush and 

other debris resulting from their cutting 

operations.

NFS P.L. 64-190 16 U.S.C. 490

Burton-Santini Lake 

Tahoe Basin Act of 

December 23, 1980

Authorizes the Secretary of Agriculture, with the 

concurrence of the Tahoe Regional Planning 

Agency, to acquire specified unimproved, 

environmentally sensitive land to be administered 

as part of the United States National Forest 

System or, if unsuitable for administration as 

such, to be transferred to a unit of State or local 

government with specified restrictions. Permits 

the acquisition of specified portions of the Lake 

Tahoe Basin. This authority expires when all 

Clark County, Nevada, land specified in the Act is 

sold by the U.S. Department of the Interior, 

Bureau of Land Management.

NFS P.L. 96-586

Carlson-Foley Act of 

1968

This Act authorizes use of noxious plant control 

funds reimburse States for such activity on 

Federal land.

NFS, SPF P.L. 90–583 43 U.S.C. 

1241-1243
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-5

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Coconino and Tonto 

National Forest Land 

Exchange Act

This Act provides for the exchange of five certain 

parcels of land in the Coconino and Tonto 

National Forests in Arizona, and for other 

purposes.

NFS P.L. 108-190 43 U.S.C. 

1701 et seq.; 

43 U.S.C. 

1716(b); 16 

U.S.C. 484a

Collaborative Forest 

Landscape Restoration 

(CFLR)

The Omnibus Public Land Management Act of 

2009 authorizes the Collaborative Forest 

Landscape Restoration Fund, establishing a 

Treasury fund to be used to pay up to 50 percent 

of the cost of carrying out and monitoring 

ecological restoration treatments on National 

Forest System land. The Act authorizes 

$40,000,000 for each of fiscal years 2009 through 

2019, to remain available until expended. Actual 

appropriated amounts have varied by year.

9/30/2019 NFS P.L. 111-11

Title III

16 U.S.C. 

7301

Colorado Good 

Neighbor Act

The Colorado Good Neighbor Act authority 

(CGNA) 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. 

9/30/2013 P.L. 106-291; 

P.L. 108-447;

P.L. 111-88

Columbia River Gorge 

National Scenic Area 

Act of 1986, land 

acquisition provisions

Sections 9 and 16a of the Act authorizes land 

acquisition within the Columbia River Gorge 

National Scenic Area.

NFS P.L. 99–663 16 U.S.C. 

544g
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-6

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Columbia River Gorge 

National Scenic Area 

Act of November 17 

of 1986, establishment

Establishes the Columbia River Gorge National 

Scenic Area in Washington and Oregon. 

Designates special management and urban areas 

within such scenic area. Directs the Secretary to 

administer the Federal lands within the special 

management areas according to forest and 

multiple-use management regulations applicable 

to the national forests. Authorizes the Secretary to 

make grants to each State for grants and loans for 

economic development in counties which have 

adopted conforming land use ordinances. Directs 

the Secretary to provide technical assistance to 

counties to develop land use ordinances under this 

Act. Allocates timber receipts from special 

management area funds. Directs the Secretary to 

make payments to local governments to 

compensate for lost real property taxes from 

federally acquired lands. 

SPF, NFS P.L. 99-663 16 U.S.C. 544

Commercial Filming The Act of May 26, 2000 authorizes retention of 

fees collected for commercial filming and 

photography land use authorizations and the 

obligation of the monies for the maintenance of 

the filming site. Land use fees are based on a 

schedule to use and occupy NFS land for 

filming/photo activities. This fee is separate from 

the cost recovery fee to process applications and 

monitor and the authorization for compliance with 

the commercial filming permit.

NFS P.L. 106-206 16 U.S.C. 

460l-6d
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-7

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Commercial Spectrum 

Enhancement Act 

(CSEA)

Title II of this Act created the Spectrum 

Relocation Fund (SRF) to provide a centralized 

and streamlined funding mechanism through 

which Federal agencies can recover the costs 

associated with relocating their radio 

communications systems from certain spectrum 

bands, which were authorized to be auctioned for 

commercial purposes.

NFS P.L. 108-494

Community Forest and 

Open Space 

Conservation Program

The 2008 Farm Bill amended the Cooperative 

Forestry Assistance Act of 1978 to establish a 

program to provide federal matching grants to 

help local governments, Tribes, or 

nongovernmental organizations acquire private 

forests that are threatened by conversion to nonforest uses. Properties acquired are working 

forests open to public access. Authorizes

appropriations of such sums as necessary.

SPF P.L. 110-246 16 U.S.C. 

2103d

Community Forest 

Restoration Act

Extends authorization to make funds available for 

use on non-Federal lands under State and Private 

Forestry appropriation.

WFM P.L. 106-393

Community Wood 

Energy Program

Authorizes $5,000,000 in annual appropriations 

for a Community Wood Energy Program through 

FY 2012. Grants of up to $50,000 to State and 

local governments to develop plans for, or to 

acquire or upgrade community wood energy 

systems.

09/30/201310 SPF P.L. 110-246 7 U.S.C. 8113

 10 The authority granted in the Food Conservation and Energy Act of 2008 was extended through Fiscal Year 2013 by the American Taxpayer Relief Act (P.L. 112-240).
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-8

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Comprehensive 

Environmental 

Response, 

Compensation and 

Liability Act of 1980 

(CERCLA)

Forest Service Policy is to use Forest Service 

CERCLA authority and processes to respond at 

sites under Forest Service jurisdiction or control 

where hazardous substances, pollutants, or 

contaminants threaten human health or the 

environment. Many abandoned mine sites are 

CERCLA sites, since heavy metals such as 

arsenic, cadmium, and others that may occur in 

surface water at mine sites are listed as hazardous 

substances. Further, the Forest Service may 

invoke CERCLA at mining sites where 

“pollutants or contaminants” such as sediment, or 

metals such as iron or aluminum which are not 

listed hazardous substances, are impacting the

environment.

NFS P.L. 96-510 42 U.S.C. 

9601

Cooperative 

Firefighting Funds 

Retention

Any money collected from the States for fire 

suppression assistance rendered by the Forest 

Service on non-Federal lands not in the vicinity of 

National Forest System lands shall hereafter be 

used to reimburse the applicable appropriation 

and shall remain available until expended.

SPF P.L. 105-277 16 U.S.C. 

2106b
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-9

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Cooperative Forestry 

Assistance Act of 

1978

Authorizes cooperation and assistance to nonFederal forest landowners and communities in 

rural forest management, urban and community 

forest management, production of timber and 

other forest resources, insect and disease control, 

rural fire prevention and control, forest 

management and planning assistance, and 

technology implementation. Includes 

authorization for many State and Private Forestry 

programs, including the Forest Stewardship 

Program, the Forest Legacy Program, and the 

Urban and Community Forestry Program.

SPF P.L. 95-313 16 U.S.C. 

2101-2114

Cooperative Forestry 

Innovation Partnership 

Projects

Allows the Secretary to competitively allocate up 

to 5% of CFAA funds for innovative education, 

outreach, or technology transfer projects. Funds 

would be available to States, Tribes, local 

governments, land-grant, or private entities with a 

50% cost share.

SPF P.L. 110-246 16 U.S.C. 

2101a and 

continuing

Cooperative Funds Act 

of June 30, 1914, 

Forest Investigations, 

Protection and 

Improvement

This Act authorizes the acceptance of 

contributions for cooperative work in forest 

investigations, protection, management, and 

improvement of the National Forest System.

NFS 16 U.S.C. 498

Cooperative Funds Act 

of June 30, 1914, 

Wildland Fire 

Protection

The Act grants Federal Agencies the authority to 

maintain wildland fire protection organizations 

for the protection of federal lands and for the 

States to assist local fire departments in 

maintaining wildland fire protection resources for 

the protection of State and privately owned lands. 

Structure and dump fire protection, which are the 

responsibility of local fire departments, are 

WFM 16 U.S.C. 498
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-10

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

independent of this agreement.

Cooperative Funds and 

Deposits Act

This Act authorizes the Forest Service and 

cooperator(s) to perform work from which they 

would accrue mutual non-monetary benefit in the 

areas of cooperative pollution abatement; 

cooperative manpower, job training, and 

development programs; development and 

publication of cooperative environmental 

educations and forest history materials; and, 

forestry protection. Authorizes cooperation for 

fire protection for public good and where there is 

mutual benefit, other than monetary 

consideration.

WFM P.L. 94-148; 

P.L. 95-313

16 U.S.C. 

565a1 – a3; 16 

U.S.C. 2101-

2111

Cradle of Forestry The Act of July 4, 1968 authorizes the Secretary 

of Agriculture to cooperate with, and receive the 

cooperation of, public and private agencies and 

organizations and individuals in the development, 

administration, and operation of Cradle of 

Forestry in western North Carolina. The Secretary 

of Agriculture is authorized to accept 

contributions and gifts to further the purposes of 

the Act. The 6,500-acre Cradle of Forestry 

Historic Site in the Pink Beds valley, NC, was 

established by Congress in 1968 and contains the 

first official school for forestry in America..

NFS P.L. 90-398 16 U.S.C. 

471h
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-11

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Department of 

Agriculture Grants and 

Powers Act of 1965

Section 1 authorizes the erection of buildings and 

other structures on non-federal land, with longterm lease and right-to-remove, and authorizes the 

use of appropriations for expenses necessary to 

acquire long-term lease. Provides authority for

long-term leases on non-federal land and building

structures on non-federal land, if a long-term lease 

on the land is obtained.

ALL P.L. 89-106 7 U.S.C. 

2250a

Department of 

Agriculture Organic 

Act of 1944

Section 703 authorizes the erection, alteration, 

and repair of buildings and other improvements 

on Federal land that are necessary to conduct 

authorized work, provided provision is made in 

applicable appropriations.

CIM P.L. 78-425 7 U.S.C. 2250

Department of 

Agriculture Organic 

Act of 1956

This Act authorizes the acquisition of land by 

purchase, exchange, or other means, to carry out 

authorized work, provided that provision is made 

in applicable appropriations. This is one of the 

primary authorities for acquisition of lands with 

Land and Water Conservation Fund moneys.

NFS P.L. 84-979 7 U.S.C. 428a

Department of 

Agriculture Organic 

Act - Aviation, 

Lookout Towers, & 

Fire Management

Authorizes the Forest Service, by contract or 

otherwise, to provide for procurement and 

operation of aerial facilities and services for the 

protection and management of the national forests 

and other lands administered by the agency.

WFM P.L. 78-425 16 U.S.C. 

579a

Eastern Wilderness 

Act of 1975

Sections 6 and 9 authorize the acquisition, 

exchange, and donation of land for inclusion in 

the Eastern Wilderness system.

NFS P.L. 93-622 16 U.S.C. 

1132 note
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-12

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Endangered Species 

Act of 1973

The Endangered Species Act (ESA) provides a 

program for the conservation of threatened and 

endangered plants and animals and the habitats in 

which they are found. Section 7 requires federal 

agencies to consult with the U.S. Fish and 

Wildlife Service and/or the NOAA Fisheries 

Service to ensure that actions they authorize, fund 

or carry out are not likely to jeopardize the 

continued existence of any listed species or 

destroy or adversely modify designated critical 

habitat of such species. Sections 5 and 15 

authorize the acquisition of land to protect 

threatened and endangered species.

NFS P.L. 93–205 16 U.S.C. 

1534 and 1542

Federal Agricultural 

Improvement and 

Reform Act (Forest 

Legacy)

Authorizes grants to States for carrying out the 

Forest Legacy Program, including the acquisition 

by the State of lands and interests in lands.

SPF P.L. 104-127 16 U.S.C. 

2103c

Federal Agriculture 

Improvement and 

Reform Act of 1996

This Act authorizes the acceptance of 

contributions for cooperative work in forest 

investigations, protection, management, and 

improvement of the National Forest System.

NFS P.L. 104-127 16 U.S.C. 498

Federal Highway Act This Act establishes the Federal Highway Trust 

Fund, managed by the Department of 

Transportation. Federal highway construction, 

maintenance, and other projects defined in the Act 

are financed from the Federal Highway Trust 

Fund. The Department of Transportation transfers 

these monies to the Forest Service for highway 

projects pertinent to National Forest System 

lands.

CIM P.L. 85-767 23 U.S.C. 120, 

125, 205
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-13

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Federal Land 

Exchange Facilitation 

Act of 1988

Section 4 of this Act authorizes appropriations to 

consider, process, and consummate land 

exchanges pursuant to the Federal Land Policy 

and Management Act of 1976 (43 USC 1701).

NFS P.L. 100-409 43 U.S.C. 

1716

Federal Land 

Transaction 

Facilitation Act

This Act authorizes the Bureau of Land 

Management (BLM) to sell parcels of public land 

regarded as “in –holdings” to reduce land 

management costs and fragmentation. This 

authority expires in the year 2010 at which time 

any unobligated funds will be added to the 

existing Land and Water Conservation Fund.

07/25/2011 P.L. 106-248; 

P.L. 111-212 

sec. 3007

43 U.S.C. 

2301

Federal Lands 

Recreation 

Enhancement Act

This Act provides authority to implement a fee 

program for certain recreation sites on Federal 

lands. Fees collected from users of recreation 

facilities are used to pay for on-the-ground 

operation, maintenance, and improvements of 

recreation sites and services to maintain and 

enhance recreation opportunities, visitor 

experiences, and related habitat. Funds are 

available until expended. The Act directs the 

creation of Recreation Resource Advisory 

Committees to allow for public involvement on 

recreation fee programs.

12/08/2014 NFS P.L. 108-447 16 U.S.C. 

6806 and 6807
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-14

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Federal Water Project 

Recreation Act, 1965

The Act has provided up to 50 percent of the costs 

of recreation facility development at certain 

reservoirs when a non-Federal entity entered into 

an agreement to provide the remaining 

development funds; to pay all of the costs of 

operations, maintenance, and replacement 

(OM&R); and to manage the area for public 

recreational use. For reservoirs constructed before 

1965, the Federal contribution for the 

development of recreation facilities was limited to 

$100,000 for each reservoir.

NFS P.L. 89-72 16 U.S.C. 

460L-13

FLAME Act of 2009 The FLAME Act of 2009 states, " ..for fiscal year 

2011 and each fiscal year thereafter, the amounts 

requested by the President for a FLAME Fund 

should be not less than the amount estimated by 

the Secretary concerned as the amount necessary 

for that fiscal year for wildfire suppression 

activities of the Secretary that meet the criteria 

specified..." The criteria are fires that 1) cover 

300 or more acres, 2) pose significant complexity, 

severity, or threat to human life, property, or 

resources.

FLAME P.L. 111-88 43 USC 1701 

note; 43 

U.S.C. 1748a

Florida National 

Forest Land 

Management Act

This Act authorizes the Secretary of Agriculture 

to sell or exchange certain parcels of land in the 

State of Florida, and for other purposes.

NFS P.L. 108-152 16 U.S.C. 

484a

Food and Agriculture 

Act of 1977

Designates the U.S. Department of Agriculture as 

the lead agency of the Federal government for 

agricultural research, extension, and teaching. It 

also removes restrictions on the use of 

cooperative agreements with universities and 

permits cost reimbursable agreements with State 

ALL P.L. 95-113 7 U.S.C. 3318-

3319d
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-15

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

cooperating institutions without competition.

Food Security Act of 

1985

Authorizes a conservation acreage reserve 

program, and authorizes the Secretary of 

Agriculture to utilize the services of the Forest 

Service and other Federal and State agencies to 

carry out the program.

ALL P.L. 99-198 16 U.S.C. 

3842

Food, Agriculture, 

Conservation, and 

Trade Act of 1990

Section 1241 authorizes the Modern Timber 

Bridge Initiative, with an authorization of 

$5,000,000 annually. Section 1271 authorizes 

assistance to landowners who suffer destruction of 

35 percent or more of a commercial tree stand due 

to damaging weather, related condition, or 

wildfire. Section 2371 authorizes the 

establishment of and economic development and 

global marketing program, including technology 

transfer to natural resource-based industries in the 

United States. The Healthy Forest Initiative 

amended section 2371 the Act to create the “Rural 

Revitalization Technologies” program, which 

provides for the accelerated adoption of 

technologies in the biomass industry. Sections 

2372-2379 authorize economic assistance to rural 

communities in or near national forests. 

SPF P.L. 101-624 16 U.S.C. 

2106; 7 U.S.C. 

6601; 7 U.S.C. 

6611-6617

Forest and Rangeland 

Renewable Resources 

Planning Act of 1974

Requires preparation of a renewable resource 

assessment, program plans, inventories, and 

budget request, and an update to these plans every 

10 years.

ALL P.L. 93-378 16 U.S.C. 

1601 note
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-16

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Forest and Rangeland 

Renewable Resources 

Research Act of 1978

The Act authorizes the Forest Service to conduct, 

support, and cooperate in investigations, tests, and 

other activities necessary to obtain, analyze, 

develop, demonstrate, and disseminate scientific 

information about forest and rangeland renewable 

resources in rural, suburban, and urban areas. It 

authorizes competitive grants and advance of 

funds to cooperators and grantees; research 

encouraging improved reforestation of cutover 

lands; and development and implementation of 

improved methods of survey and analysis of 

forest inventory information. An amendment 

made under P.L. 101-624 established a forestry 

student grant program for minority and female 

students.

NFS P.L. 95–307; 

P.L. 100-521; 

P.L. 101-624

16 U.S.C. 

1641 - 1648

Forest Biomass for 

Energy

Authorizes $15,000,000 in annual appropriations 

for a forest biomass for energy program through 

FY 2012. To develop technology and techniques 

to use low-value forest biomass for the production 

of energy.

09/30/201311 R&D P.L. 110-246 7 U.S.C. 8112

Forest Botanical 

Products

The Department of the Interior and Related 

Agencies Appropriation Act of 2000 authorizes 

the Secretary of Agriculture to charge and collect 

fees from persons who harvest forest botanical 

products to cover costs to the agency. Funds 

collected are deposited in a special fund in the 

Treasury. This authority is authorized through 

September 30, 2014, with the funds collected 

available for expenditure through September 30, 

2015.

09/30/2014 NFS P.L. 106-113; 

P.L. 111-88

16 U.S.C. 528 

note

 11 The authority granted in the Food Conservation and Energy Act of 2008 was extended through Fiscal Year 2013 by the American Taxpayer Relief Act (P.L. 112-240).
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-17

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Forest Inventory 

Analysis Data Privacy

The FY 2000 Interior and Related Agencies 

Appropriations Act added Forest Inventory and 

Analysis (FIA) Program to the existing Food 

Security Act of 1985, thus providing a legal basis 

for protecting the privacy of the data suppliers.

R&D P.L. 106-113 7 U.S.C. 2276

Forest Service 

Administration of 

Rights-Of-Way and 

Land Uses (Cost 

Recovery)

This Act provides authority to implement a pilot 

program to improve customer service to 

applicants and holders of special land use 

authorizations and reduce the agency’s backlog of 

expired authorizations. The authority allows the 

Forest Service to charge a fee for analysis of 

special use authorizations. The Act originally 

granted the authority until Sept 30, 2012; the 

Consolidated and Further Continuing 

Appropriation Act, 2013 extended the authority 

until September 30, 2013.

09/30/2013 NFS P.L. 106-113, 

Sec. 331; P.L. 

113-6, Sec. 

1415

30 U.S.C. 

185(l); 43 

U.S.C. 

1764(g); 16 

U.S.C. 470h–

2(g)

Forest Service Facility 

Realignment and 

Enhancement Act 

(FSFREA)

This Act provided authority to convey unneeded 

administrative sites and retain the proceeds for 

building maintenance, rehabilitation, and 

construction. In addition, projects initiated under 

the pilot authority of P.L. 107-63, Section 329 

may continue under the provisions of the 

FSFREA. The Consolidated Appropriations Act 

of 2012 extended the authority to September 30, 

2016.

09/30/2016 NFS P.L. 109-54; 

P.L. 111-8; 

P.L. 112-74

16 U.S.C. 

580d note

Forest Service Facility 

Realignment Pilot

The Interior and Related Agencies Appropriation 

Act of 2002 provided authority through 

September 30, 2008 to implement a pilot program 

that allowed the agency to retain proceeds from 

the conveyance of excess structures and expend 

the receipts for building maintenance, 

09/30/2008 CIM P.L. 107-63, 

Section 329
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-18

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

rehabilitation, and construction.

Gifts, Donations, and 

Bequests for Research

The Act of June 30, 1978 authorizes the 

acceptance and use of donated funds for research 

activities.

R&D P.L. 95-307 16 U.S.C. 

1643

Gifts, Donations, and 

Bequests to the 

Department of 

Agriculture

The Act of October 10, 1978 authorizes agencies 

within the U.S. Department of Agriculture to 

accept donations for non-research activities (i.e., 

land or other real property).

ALL P.L. 95-442 7 U.S.C. 2269

Global Change 

Research Act of 1990

Establishes the Committee on Earth and 

Environmental Sciences, part of the Federal 

Coordinating Council on Science, Engineering, 

and Technology under the Office of Science and 

Technology Policy of the Executive Office of the 

President. Authorizes funded participation in the 

United States Global Change Research Program 

as the Forest Service Global Change Research 

Program.

R&D P.L. 101-606 15 U.S.C. 

2931

Global Climate 

Change Prevention 

Act of 1990

Establishes a Global Climate Change Program at 

USDA to study the effects of global climate 

change on agriculture and forestry. The Program 

Direction shall coordinate policy analysis, long 

range planning and research across the 

Department and with other Agencies. The Act 

also establishes the Office of International 

Forestry to be responsible for the international 

forestry activities of the Forest Service and

establishes the Institutes of Tropical Forestry; 

09/30/201312 International 

Forestry; 

R&D

P.L. 101-624; 

P.L. 107-171; 

P.L. 110-234, 

sec 8202

7 U.S.C. 6701 

to 6708

 12 The provision that expired 9/30/12 only applies to authorization of appropriations for International Forestry. This authority was extended through 2012 in the Food, 

Conservation and Energy Act of 2008 and extended through Fiscal Year 2013 by the American Taxpayer Relief Act (P.L. 112-240).
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-19

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

authorizes the creation of a pilot project in urban 

forestry.

Granger-Thye Act of 

April 24, 1950

This Act authorizes cooperation with other parties 

to perform work for permittees, agencies, 

organizations, and persons for work that the 

Forest Service is authorized to do, on lands of the 

United States. Also allows for research funds to 

be advanced to Also allows for research funds to 

be advanced to cooperators. Authorizes assistance 

for work on other than Forest Service 

jurisdictions.

ALL P.L. 81-478 16 U.S.C. 572

Grazing Permits The terms and conditions contained in the 

expired, transferred, or waived (or renewed prior 

to 2004) permit or lease shall continue in effect 

under the renewed permit or lease until such time 

as the Secretary completes processing of such 

permit or lease in compliance with all applicable 

laws and regulations or until the expiration of the 

renewed permit, whichever comes first. At which 

time such permit or lease may be canceled, 

suspended or modified, in whole or in part, to 

meet the requirements of such applicable laws and 

regulations.

09/30/2013 NFS P.L. 108-108, 

Sec. 325; P.L. 

111-88; P.L. 

112-74

43 U.S.C. 

1752
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-20

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Grey Towers National 

Historic Site Act of 

2004

Creates permanently available Grey Towers 

National Historic Site Fund. The Secretary is 

authorized to enter into Agreements for grants, 

contracts, and cooperative agreements as 

appropriate with the Pinchot Institute, public and 

other private agencies, organizations, institutions, 

and individuals to provide for the development, 

administration, maintenance, or restoration of 

land, facilities, or Forest Service programs at 

Grey Towers or to otherwise further the purposes 

of this section.

NFS P.L. 108-447, 

Sec. 348

16 U.S.C. 461 

note

Hardwood Technology 

Transfer and Applied 

Research

This Act establishes the Institute of Hardwood 

Technology Transfer and Applied Research in 

Princeton, West Virginia, previously named the 

Robert C. Byrd Hardwood Technology Center in 

West Virginia. Certain revenues shall be 

deposited into a special Treasury fund to be 

available for obligation until expended.

SPF P.L. 106-113 16 U.S.C. 

1650

Hawaii Tropical 

Forestry Recovery Act 

of 1992

This Act grants authorities to the Secretary of 

Agriculture to treat invasive plants on Federal and 

non-Federal ownerships in Hawaii and in tropical 

forests on Federal lands in other States.

SPF, 

International 

Forestry

P.L. 102-574 16 U.S.C. 

4505a, 4503

Healthy Forests 

Restoration Act 

(HFRA) of 2003

Title I of HFRA provides for expedited 

environmental review, a pre-decisional Forest 

Service administrative review process, and other 

measures on National Forest and Bureau of Land 

Management (BLM) lands that are at-risk of 

catastrophic fire. Titles II through VI authorize 

various forest health restoration programs, 

including promoting the use of woody biomass,

creating the Health Forest Reserve Program, and 

ALL P.L. 108-148; 

P.L. 110-246

portions of 16 

U.S.C. 6501 -

18 and 16 

U.S.C. 6541-

6591
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-21

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

providing watershed forestry assistance.

Herger-Feinstein 

Quincy Library Group 

Forestry Recovery Act

This Act authorizes the Secretary of Agriculture 

to conduct a pilot program to demonstrate the 

effectiveness of the resource management 

activities recommended in the Quincy Library 

Group-Community Stability Proposal. The 

Secretary shall conduct the pilot project on the 

Federal lands within Plumas National Forest, 

Lassen National Forest, and the Sierraville Ranger 

District of Tahoe National Forest in the State of 

California designated.

09/30/2012 NFS P.L. 105–

277; P.L. 

110-161, Sec 

434

16 U.S.C. 

2104 note

Historic Preservation 

Act of 1966

This Act authorizes use of appropriated funds for 

the preservation and protection of historical and 

archaeological resources.

NFS P.L. 89-665 16 U.S.C. 470

Historic Preservation 

Act of 1966, 

Preservation of 

Historical and 

Archaeological Data

These Acts authorizes use of appropriated funds 

for the preservation and protection of historical 

and archaeological resources and protection of 

archaeological data.

NFS P.L. 93-291; 

P.L. 96-95; 

P.L. 106-355

16 U.S.C. 

sections of 

both 460 and 

470
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-22

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Illinois Land 

Conservation Act of 

1995

The Secretary of Agriculture is authorized to 

charge reasonable user fees for the admission, 

occupancy, and use of the Midewin National 

Tallgrass Prairie; and may sell for salvage value 

any facilities and improvements which have been 

transferred under this Act. The Secretary may use 

amounts in the fund, in such amounts as are 

provided in advance in Appropriation Acts, for 

restoration and administration of the Midewin 

National Tallgrass Prairie.

NFS P.L. 104-106 16 U.S.C. 

1609 note

Illinois Land

Conservation Act of 

1995, Midewin 

National Tallgrass 

Prairie creation

Established the Midewin National Tallgrass 

Prairie in Illinois, to be managed as part of the 

National Forest System. This Act also authorized 

the conversion of Joliet Army Ammunition Plant 

to the Midewin National Tallgrass Prairie. 

Further, certain revenue receipts from the 

Midewin National Tallgrass Prairie are authorized 

for deposit into a special Treasury fund to be 

available for obligation until expended.

NFS P.L. 104-106 16 U.S.C. 

1609; 16 

U.S.C. 698u

Illinois Land 

Conservation Act of 

1995, special use 

authorizations

The Secretary of Agriculture is authorized to issue 

agricultural special use authorizations or grazing 

permits for purposes primarily related to erosion 

control, provision for food and habitat for fish and 

wildlife, or other resource management activities 

consistent with the purposes of the Midewin 

National Tallgrass Prairie.

NFS P.L. 104-106 16 U.S.C. 

1609 note

International Forestry 

Cooperation Act of 

1990

Authorizes support (including cooperation, 

financial, and technical assistance, without 

reimbursement) for international forestry and 

related natural resource activities outside the 

United States and its territories. Authorizes 

International 

Forestry

P.L. 101-513; 

P.L. 102-574

16 U.S.C. 

4501
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-23

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

expansion of the research capabilities of the 

Institute of Tropical Forestry in Puerto Rico. 

Job Corps Comptroller General Decision B-215842, dated 

June 25, 1986, (65 Comp.Gen.666). In accordance 

with this Comptroller General Decision Job Corps 

reimbursable authority is restricted to the 

activities of collections from non-students for 

meals in the students’ dining hall and collections 

from students for lost and/or damaged tools and 

clothing.

NFS

Knutson-Vandenberg 

Act of June 9, 1930

The Knutson-Vandenberg Act established a 

special fund to collect a portion of timber sale 

receipts to pay for reforesting the area from which 

the timber was cut. The Act was amended in 1976 

to allow the use of these funds for other sale area 

improvement activities. The FY 2006 Interior 

Appropriations Act amended this authority to 

allow for the expenditure of unused funds, not 

needed for work on the sale area, on other areas in 

the same Forest Service region.

NFS P.L. 71-319; 

P.L. 94-588; 

P.L. 109-54

16 U.S.C. 

576b

Lake Tahoe 

Restoration Act

This Act enables the Forest Service to plan and 

implement environmental restoration activities 

and forest management activities in the Lake 

Tahoe Basin, along with other Federal, State, 

local, regional, tribal, and private entities to 

improve water quality.

NFS P.L. 106-506

Land Acquisition Act 

of March 3, 1925

This Act authorizes the purchase of land for 

administrative sites and acceptance of donations 

of land when no suitable Government land is 

available. Appropriated funds must be available 

NFS P.L. 68-575; 

P.L. 85–464

16 U.S.C. 555
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-24

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

for the purpose for which the land is to be used. 

This authority is subject to an annual, servicewide limitation of $50,000.

Land and Water 

Conservation Fund 

Act of 1965

Created by Congress in 1964, the Land and Water 

Conservation Fund (LWCF) provides money to 

federal, state and local governments to purchase 

land, water and wetlands for the benefit of all 

Americans. The Fund receives money from fees 

paid by companies drilling offshore for oil and 

gas. Other funding sources include the sale of 

surplus federal real estate and taxes on motorboat 

fuel.

09/30/2015 NFS P.L. 88-578 16 U.S.C. 

460l-4

Land Between the 

Lakes Protection Act 

of 1998

This Act establishes the Land Between the Lakes 

(LBL) Trust Fund and the LBL Management 

Fund. In accordance with Title V of the Act, 

responsibility for the LBL National Recreation 

Area in Kentucky and Tennessee transferred from 

the Tennessee Valley Authority (TVA) to the 

Secretary of Agriculture. The Act directed the 

Tennessee Valley Authority to deposit into the 

LBL Trust Fund $1,000,000 for five years, to be 

available until expended. The Act also authorizes 

the Forest Service to retain certain recreation 

revenue receipts from the Land Between the 

Lakes National Recreation Area, to be deposited 

into the LBL Management Fund to be available 

for obligation until expended.

NFS P.L. 105-277, 

Title V of 

Sec. 101 - e

16 USC 460lll 

(Chapter 1, 

subchapter 

CXXIII)
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-25

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

McIntire-Stennis Act 

of 1962

Authorizes the Secretary of Agriculture to 

cooperate and assist State colleges and 

universities in forestry research on a matching 

funds basis. Authorizes the Secretary of 

Agriculture to make competitive grants to a State 

agricultural experiment station, college, or 

university, research institution or organization, 

Federal agency, private organization, or 

corporation with the demonstrable capacity to 

conduct forestry, natural resource, and 

environmental research; and to update research 

facilities and equipment available for this type of 

research.

R&D and 

SPF

P.L. 87-788; 

P.L. 101-624

16 U.S.C.. 

582a and 

582a-1-582a-7

Mineral Materials Act 

of 1947

This Act provides authority to: (a) dispose of 

mineral material and (b) approve and issue 

permits to explore and develop oil and gas leases.

NFS P.L. 80-291 30 U.S.C. 226, 

601-602, and 

611

Mississippi National 

Forest Improvement 

Act of 1999

Authorizes the Secretary of Agriculture to sell or 

exchange U.S. right, title, and interest in and to 

specified lands in Mississippi. Makes proceeds 

from such sales or exchanges available for the 

construction of a research laboratory and office at 

the Forest Service administrative site at 

Mississippi State University at Starkville, 

Mississippi; the acquisition, construction, or 

improvement of administrative facilities in 

connection with National Forest System units in 

the State; and the acquisition of land and interests 

in land for units of the NFS in the State. 

NFS P.L. 106–113 7 U.S.C. 1281 

Note
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-26

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Multiple-Use 

Sustained-Yield Act of 

1960

Clarifies Forest lands are to be administered for 

outdoor recreation, range, timber, watershed, 

wildlife, and fish. Authorized and directed the 

development and administration of the renewable 

surface resources of the National Forests for 

multiple use and sustained yield of the several 

products and services obtained there from.

NFS P.L. 86-517 16 U.S.C. 528 

note

Mutually Beneficial 

Agreements

Established permanent authority for the Forest 

Service to enter in to mutually beneficial 

agreements with public or private agencies, 

organizations, institutions, or persons. Exempts 

watershed restoration and enhancement 

agreements and agreements under the first section 

of P.L. 94-148 from Chapter 63 of Title 31, 

United States Code.

ALL P.L. 111-11, 

sec. 3001

16 U.S.C. 

1011

National and 

Community Service 

Act of September 21, 

1993

Authorizes the Secretary to enter in to contracts or 

cooperative agreements with any qualified youth 

or conservation corps for completion of 

conservation work.

NFS P.L. 103-82 42 U.S.C. 

12501, 12572-

12681

National Forest 

Management Act 

(NFMA) of 1976

The NFMA requires that the Forest Service 

prepare and revise at fifteen-year intervals a land 

management plan (LMP) for each national forest 

to provide for multiple use and sustained yield of 

the products and services obtained from the forest.

NFMA also establishes restrictions on timber 

harvest, such as provisions that harvest can only 

occur where soil, slope or other watershed 

conditions will not be irreversibly damaged. The 

Act directs the Secretary to develop regulations to 

set out the process for the development and 

revision of land management plans.

NFS P.L. 94-588 16 U.S.C. 

472a
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-27

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

National Forest Roads 

and Trails Act of 1964

This Act authorizes the acquisition, construction, 

and maintenance of National Forest System roads 

and trails. Also authorizes the construction of 

roads using cooperative financing from other 

agencies.

CIM P.L. 88-657 16 U.S.C. 532-

538

National Forest Ski 

Area Permit Act of 

1986

The Act authorizes the issuance of permits for use 

and occupancy of suitable lands within the 

National Forest System for construction and 

maintenance of buildings, structures, and other 

facilities for hotels, resorts, summer homes, 

stores, industrial or commercial purposes, 

education or other public use, alpine and nordic 

skiing operations, and so forth.

NFS P.L. 99-522 16 U.S.C. 497 

and 497b

National Forest 

System Drug Control 

Act of 1986

Authorized the Secretary of Agriculture to prevent 

and control drug abuse on National Forest System 

lands, including investigative powers beyond the 

exterior boundaries of the National Forest System.

For employment, equipment, facilities, training, 

and cooperative programs, $10 million annually.

LEI P.L. 99-570 16 U.S.C. 

559b note, 

559b-559g

National Trails System 

Act of 1968

Sections 7 and 10 authorize the acquisition, 

exchange, and donation of land for the National 

Trails System and for development, management, 

and volunteer assistance on the system.

CIM P.L. 90–543 16 U.S.C. 

1241-1251
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-28

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Organic 

Administration Act of 

1897

The Act provides authority for the administration, 

protection, and management of the National 

Forests, for the purposes of improving and 

protecting the forest, securing favorable 

conditions of water flows, and to furnish a 

continuous supply of timber for the use and 

necessities of citizens of the United States. The 

Act also directs the Secretary of Agriculture to 

protect National Forests against destruction by 

fire and depredations. 

NFS, WFM 16 U.S.C. 473-

478, 479-482, 

and 551

Organizational Camp 

Fees

The Consolidated Appropriations Resolution, 

2003 provides authority to establish a land use fee 

system for the occupancy and use of NFS lands 

by organizational camps that serve young people 

or individuals with a disability.

NFS P.L. 108-7

Payment for Receipts 

for Schools and Roads

The Act of May 23, 1908, as amended, commonly 

known as “Payments to States”, authorizes annual 

payments on a fiscal year basis to States equal to 

25 percent of revenues from the sale of goods and 

services by the national forests. States shall use 

these payments for schools and roads.

P.L. 60-136 16 U.S.C. 500

Pest and Disease 

Revolving Loan Fund

Pest and Disease Revolving Loan Fund (Section 

10205) – establishes a revolving loan fund to 

provide low interest loans to local governments to 

finance purchases of authorized equipment to 

monitor, remove, dispose of, and replace infested 

trees. Authorizes appropriations of such sums as 

are necessary.

SPF P.L. 110-246 16 U.S.C. 

2101a and 

continuing
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-29

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Pipelines Act of 1920, 

Mineral Leasing Act

Rights-of-way through any Federal lands may be 

granted by the Secretary of the Interior or 

appropriate agency head for pipeline purposes for 

the transportation of oil, natural gas, synthetic 

liquid or gaseous fuels, or any refined product.

NFS P.L. 66-146 30 U.S.C. 185

Private Schooling, 

Puerto Rico

Funds available to the Forest Service may be used 

for the purpose of expenses associated with 

primary and secondary schooling for dependents 

of agency personnel stationed in Puerto Rico at a 

cost not in excess of those authorized for the 

Department of Defense for the same area, at the 

discretion of the Chief of the Forest Service.

09/30/2014 ALL P.L. 108-447; 

P.L. 109-54; 

P.L. 111-88

Quarters Operations 

and Maintenance

This Act authorizes the collection of rental 

income from employees living in government 

residences. Such rents and charges shall be 

deposited in a special Treasury fund, to remain 

available for obligation until expended, for 

maintenance and operation of quarters.

ALL P.L. 98-473 5 U.S.C. 5911

Quinault Special 

Management Area

The Act of November 8, 1968 establishes the 

“Quinault Special Management Area” from part 

of the Olympic National Forest, and assigns 

responsibility to the Forest Service for managing 

its natural resources and distributing proceeds 

from the sale of forest products according to 

provisions of the Act.

NFS P.L. 100-638

Reciprocal Fire 

Protection Act, Fire 

Protection Agreements 

and Mutual Aid 

Agencies

Authorizes agreements between agencies of the 

United States Government and other domestic 

agencies, including State and local entities and 

instrumentalities for mutual aid in fire protection.

WFM P.L. 84-46 42 U.S.C. 

1856a-d
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-30

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Reforestation Trust 

Fund

The Recreational Boating Safety and Facilities 

Act establishes the Reforestation Trust Fund 

which receives monetary resources through an 

annual warrant from Treasury, of monies received 

for certain customs duties and tariffs. No more 

than $30,000,000 may be deposited annually. The 

trust fund balance is available for reforestation 

and other “treatment of acreage.” The Act’s 

provisions give investment authority to the Forest 

Service for the trust fund balance.

NFS P.L. 96-451 16 U.S.C. 

1606a

Research Facilities Act 

of 1963

This Act authorizes support for agricultural 

research (including forestry) at eligible 

institutions through Federal grant funds, on a 

matching funds basis, to help finance physical 

facilities and equipment as required for the 

effective conduct of agricultural research and 

related academic programs.

R&D P.L. 88-74; 

P.L. 95-113; 

P.L. 99-198

7 U.S.C. 390 -

390c

Research Grants Act 

of 1958

Provides, to agencies authorized to enter into 

contracts for basic scientific research with 

nonprofit institution and organizations, authority 

to make grants to such institutions and 

organizations; title to equipment purchased with 

such grants being vested with the nonprofit 

organization or institution. Such sums as are 

necessary; no expiration date.

R&D P.L. 85-934 42 U.S.C. 

1891-1893
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-31

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Resource 

Conservation and 

Recovery Act (RCRA)

An Act to provide technical and financial 

assistance for the development of management 

plans and facilities for the recovery of energy and 

other resources from discarded materials and for 

the safe disposal of discarded materials, and to 

regulate the management of hazardous waste. 

RCRA was last reauthorized by the Hazardous 

and Solid Waste Amendments of 1984. The 

amendments set deadlines for permit issuance, 

prohibited the land disposal of many types of 

hazardous waste without prior treatment, required 

the use of specific technologies at land disposal 

facilities, and established a new program 

regulating underground storage tanks. 

ALL P.L. 94-580 42 U.S.C. 

6901

Resource Management 

Timber Receipts

The 1990 Appropriations Act made excess 

receipts from timber sales available for support 

costs of National Forest System programs as 

follow: 6 percent for trail maintenance, 4 percent 

for trail construction, 20 percent for wildlife and 

fish habitat management, 20 percent for soil, 

water and air management, 5 percent for cultural 

resource management, 5 percent for wilderness 

management, 10 percent for reforestation and 30 

percent for timber sale administration and 

management. No excess receipts were generated 

after 1989 and the balance of this fund was 

expended in FY 2012.

does not expire 

but there have 

been no excess 

receipts 

generated since 

1989; final funds 

spent in FY 

2012.

NFS P.L. 101-121
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-32

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Restoration of 

National Forest Lands 

and Improvements Act

This Act authorizes establishment of a fund for 

improvement, protection, or rehabilitation of 

National Forest System lands. This fund receives 

monies from (a) a forfeiture of a bond or deposit 

by a permittee or timber purchaser (b) the result 

of a judgment, compromise, or settlement of any 

claim, involving present or potential damage to 

lands or improvements. Funds are available until 

expended to cover the costs of performing the 

required work. 

NFS P.L. 85-464 16 U.S.C. 

579c

Retention of Receipts, 

Omnibus Budget 

Reconciliation Act of 

1993

This Act authorizes the Forest Service to retain 15 

percent of certain recreation receipts to defray the 

costs of collecting those receipts.

NFS P.L. 103-66 16 U.S.C. 

460i-6c, 16 

U.S.C. 500, 16 

U.S.C. 460

Rights-of-Way for 

Highways

Forest highways are generally constructed by the 

FHWA and then transferred to State ownership 

and control. This act authorizes appropriate 

transfer, to States, National Forest System lands 

for highway rights-of-way.

CIM P.L. 85-767 23 U.S.C., 

Sections 

107(d), 204(f) 

and 317

Roads and Trails for 

States (Ten percent 

fund)

Act of March 4, 1913, as amended, commonly 

known as “Ten-percent Roads and Trails”, 

authorizes 10 percent of all moneys received from 

the national forests during each fiscal year shall 

be available to be expended for the construction 

and maintenance of roads and trails within the 

national forests in the States from which such 

proceeds are derived. Annual appropriation acts 

have amended this Act to allow the Secretary of 

Agriculture to expend funds without regard to the 

State in which the amounts were derived.

NFS P.L. 62-430 16 U.S.C. 501
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-33

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Roads and Trails for 

States (10 Percent) 

Fund), transfer to 

Treasury

The Department of the Interior Appropriations 

Act of 2010 directed “That funds becoming 

available in fiscal year 2010 under the Act of 

March 4, 1913 (16 U.S.C. 501) shall be 

transferred to the General Fund of the Treasury 

and for any other purpose unless the funds are 

appropriated.”

CIM P.L. 111-88 16 U.S.C. 501

Robert S. Kerr 

Memorial Arboretum 

and Nature Center

The Act of June 6, 1968 authorizes the Secretary 

of Agriculture to cooperate with, and receive the 

cooperation of, agencies, organizations and 

individuals in the development, administration, 

and operation of the Robert S. Kerr Memorial 

Arboretum and Nature Center in the Ouachita 

National Forest in Arkansas. The Secretary of 

Agriculture is authorized to accept contributions 

and gifts to further the purposes of the Act.

NFS P.L. 90-327 16 U.S.C. 

693b-d

Rogue River 

Conveyance and 

Improvement Act

This Act authorizes the Secretary of Agriculture 

to convey the administrative site for the Rogue 

River National Forest and use the proceeds for the 

construction or improvement of offices and 

support buildings for the Rogue River National 

Forest and the Bureau of Land Management.

NFS P.L. 105-282

Rural Communities 

Technical Assistance

Starting in FY 1993, the Administrative or 

General Provisions language of the Interior 

Appropriations Act allows employees to interact 

with and provide technical assistance to rural 

communities for sustainable rural development 

outside the boundaries of National Forest System 

lands.

NFS P.L. 102-381
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-34

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Rural Revitalization 

Technologies

Authorizes $5,000,000 in annual appropriations 

for forestry rural revitalization technologies to:

(A) accelerate adoption of technologies using 

biomass and small-diameter materials; (B) create 

community-based enterprises through marketing 

activities and demonstration projects; and (C) 

establish small-scale business enterprises to make 

use of biomass and small-diameter materials.

09/30/201313 P.L. 110-246 7 U.S.C. 6601

Secure Rural Schools 

and Community SelfDetermination Act of 

2000

This Act, originally authorized through FY 2006 

as P.L. 106-393, provides choices to counties to 

either receive a guaranteed level of annual 

payments for roads and schools and other 

authorized purposes, as well as funding for 

specific resource improvement projects on the 

national forest where the county is located, or to 

receive payments under the Act of May 23, 1908. 

The Act was reauthorized through FY 2011 on 

October 3, 2008 in P.L. 110-343, Division C, 

Title VI. It was then reauthorized through FY 

2012 on July 6, 2012 in P.L. 112-141 with some 

changes to funding levels.

09/30/2012 P.L. 106-393; 

P.L. 110-343; 

P.L. 112-141

16 U.S.C. 500 

note

Service First The Secretaries of the Interior and Agriculture, 

subject to annual review of Congress, may 

establish pilot programs involving the land 

management agencies referred to in this section to 

conduct projects, planning, permitting, leasing, 

contracting and other activities, either jointly or 

on behalf of one another.

ALL P.L. 106-291; 

P.L. 109-54; 

P.L. 111-8; 

P.L. 112-74

43 U.S.C. 

1701 note

 13 The authority granted in the Food Conservation and Energy Act of 2008 was extended through Fiscal Year 2013 by the American Taxpayer Relief Act (P.L. 112-240).
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-35

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Shasta Trinity Marina 

Permit Fee Collection

A permit fee for a marina on the Shasta-Trinity 

National Forest shall be deposited in a special 

account in the Treasury established for the 

Secretary of Agriculture, and shall remain 

available to the Secretary of Agriculture until 

expended, without further appropriation, for 

purposes stated in section 808(a)(3)(A-D) of title 

VIII of division J of Public Law 108-447 (16 

U.S.C. 6807), and for direct operating or capital 

costs associated with the issuance of a marina 

permit.

09/30/2014 NFS P.L. 110-161 16 U.S.C. 497; 

16 U.S.C. 

6807

Sisk Act of 1971 This Act authorizes cooperation with States and 

political subdivisions in enforcement of State and 

local laws on National Forest System lands, and 

reimbursement of States and political subdivisions 

for expenditures incurred in such activities.

NFS, SPF P.L. 92-82 16 U.S.C. 

551a

Small Tracts Act of 

January 12, 1983

This Act authorizes the sale, exchange, or 

interchange of National Forest System lands of 

forty acres or less and of $150,000 or less in 

value.

NFS P.L. 97-465 16 U.S.C. 

521d

Soil and Water 

Resources

Conservation Act of 

1977

This Act authorizes cooperation in soil and water 

resource appraisal and conservation.

09/31/2018 ALL P.L. 95-192; 

P.L. 110-246

16 U.S.C. 

2008-9

Southern Nevada 

Public Land 

Management Act of 

1998

This Act authorizes proceeds from the sale of 

public lands in Southern Nevada to be used to 

acquire environmentally sensitive lands in the 

State of Nevada. Lands acquired that are within 

the boundaries of a unit of the NFS, become part 

of that unit.

NFS P.L. 105-263
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-36

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(if applicable)

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Affected

Public Law 

Citation

USC 

reference

Southwest Forest 

Health and Wildfire 

Prevention Act of 

2004, Ecological 

Restoration Institutes

Establishes institutes to demonstrate and promote 

the use of adaptive ecosystem management to 

reduce the risk of wildfires, and restore the health 

of fire-adapted forest and woodland ecosystems of 

the interior west. If the Secretary determines that 

an Institute does not qualify for further Federal 

assistance under this Act, the Institute shall 

receive no further Federal assistance under this 

Act until such time as the qualifications of the 

Institute are reestablished. Authorizes $15 million 

annually.

WFM P.L. 108-317 16 U.S.C. 

6701-6707

State and Private 

Forestry Redesign

Allows for a portion of CFAA funds, determined 

by the Secretary, to be competitively allocated to 

State Forestry agencies. No new authorization of 

appropriations.

SPF P.L. 110-246 16 U.S.C. 

2101a and 

continuing

State-wide Assessment 

and Strategies for 

Forest Resources

Authorization of appropriations for State-wide 

assessment and strategies for forest resources. 

Authorizes $10,000,000 in annual appropriations 

for State-wide assessments of forest resource 

conditions. Plans must be submitted by May 22, 

2010 for a State to be eligible to receive funds 

under the authorities of the Cooperative Forestry 

Assistance Act of 1978 (P.L. 95-313), as 

amended. Additionally, the Secretary may use any 

other funds made available in the FY 2008 farm 

bill for planning, not to exceed $10,000,000 per 

fiscal year. Annual reports from the States on the 

use of funds are required.

09/30/201314 SPF P.L. 110-246 16 U.S.C. 

2101a

 14 The authority granted in the Food Conservation and Energy Act of 2008 was extended through Fiscal Year 2013 by the American Taxpayer Relief Act (P.L. 112-240).
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-37

Title of the Act or 

Program Summary of Authority

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(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Stewardship 

Contracting

This Act authorizes the Forest Service to enter 

into stewardship projects via agreement or 

contract to perform services to achieve land 

management goals and meet local and rural 

community needs.

09/30/2013 NFS P.L. 108-7 16 U.S.C. 

2104

Terry Peak Land 

Transfer Act of 1999

This Act requires the conveyance of certain NFS 

lands at the Terry Peak Ski Area to the private ski 

area owners and to utilize the proceeds to acquire 

more desirable lands for the United States for 

permanent public use and enjoyment.

NFS P.L. 106-138 16 U.S.C. 

497b; 16 

U.S.C. 484a; 

16 U.S.C. 521

Texas National Forests 

Improvement Act of 

2000

To authorize the Secretary of Agriculture to 

convey certain administrative sites for National 

Forest System lands in the State of Texas, to 

convey certain National Forest System land to the 

New Waverly Gulf Coast Trades Center, and for 

other purposes.

NFS P.L. 106-330 16 U.S.C. 

484a

The Smokey Bear Act This Act authorizes the Secretary of Agriculture 

to deposit all fees collected under regulations 

promulgated by the Secretary relating to “Smokey 

Bear”, into a special Treasury account to be 

available to further the nationwide forest fire 

prevention campaign. Most fees deposited under 

this Act are royalty fees from Smokey Bear 

character-licensing collection agreements with 

merchandisers.

P.L. 82-359 16 U.S.C. 

580p-2; 18 

U.S.C. 711
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-38

Title of the Act or 

Program Summary of Authority

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(if applicable)

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Affected

Public Law 

Citation

USC 

reference

The Woodsy Owl Act This Act authorizes the Secretary of Agriculture 

to deposit all use or royalty fees collected for the 

manufacture, reproduction, or use of the name or 

character “Woodsy Owl” and the associated 

slogan, “Give a Hoot, Don’t Pollute”. The 

Secretary shall deposit all fees revenue into a 

special Treasury account, to be available for 

obligation and expenditure for the purpose of 

furthering the “Woodsy Owl” campaign to 

promote the wise use of the environment and 

programs which foster maintenance and 

improvement of environmental quality.

P.L. 93-318 16 U.S.C. 

580p-3

Thye-Blatnik Act of 

June 22, 1948, 

Boundary Water 

Canoe Area 

Wilderness

The Act established the Boundary Waters Canoe 

Area in the Superior National Forest and 

subsequently revised the designation and 

boundaries to the Boundary Waters Canoe Area 

Wilderness (BWCAW) and Mining Protection 

Area.

NFS P.L. 87–351; 

P.L. 94–384

16 U.S.C. 

577h

Thye-Blatnik Act of 

June 22, 1948, 

Payments to 

Minnesota Counties

This Act, commonly known as “Payments to 

Minnesota Counties”, authorizes annual payments 

on a fiscal year basis to the State of Minnesota 

from any national forest receipts not otherwise 

appropriated, an amount equivalent to threequarters of 1 percent of the fair appraised value of 

certain national forest lands specified in the Act, 

situated in three Minnesota counties (sec. 61.2).

Payments under the Act of May 23, 1908 (sec. 

60.1 paragraph 1), shall not be applicable to the 

national forest land to which this Act applies.

NFS P.L. 87–351; 

P.L. 94–384

16 U.S.C. 

577g
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-39

Title of the Act or 

Program Summary of Authority

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(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Timber Salvage Sales 

(authorized by NFMA)

NFMA authorizes the Secretary of Agriculture to 

require purchasers of salvage timber to make 

monetary deposits in a designated Treasury fund 

to cover the costs for sale preparation and 

administration, and the engineering design and 

administration of any needed roads necessary for 

the harvesting of salvage timber. Funds are 

available until expended.

NFS P.L. 94-588 16 U.S.C. 

472a (h)

Timber Purchaser 

Elect (authorized by 

NFMA)

NFMA authorizes the acquisition, construction, 

and maintenance of National Forest System roads 

and trails; cooperation with States, counties, and 

other subdivisions; construction of roads by 

timber purchasers; and election by timber 

purchasers to have the Forest Service construct 

the roads. 

NFS P.L. 94-588 16 U.S.C. 

472a

Timber Roads, 

Purchaser Election

The Department of the Interior Appropriations 

Act of 1999 authorizes small business timber 

purchasers to elect to pay the Forest Service to 

construct or reconstruct any permanent roads or 

bridges required by the timber sale. The timber 

purchaser must be classified as a small business 

operator, and the total estimated reconstruction 

and construction cost in the timber sale contract 

must exceed $50,000.

NFS P.L. 105-277 16 USC 535a

Timber Roads, 

Purchaser Election 

Construction Program

This Department of the Interior Appropriations 

Act of 2008 authorized the use of $15,000,000 

from current balances of the Purchaser Election 

Fund for vegetative treatments.

NFS P.L. 110-161
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-40

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Timber Sale Pipeline 

Restoration Fund

The Department of the Interior and Related 

Agencies Appropriation Action of 1996 

authorized the Secretary of Agriculture to collect 

and deposit revenues from a specific set of timber 

sales. The sales, known under the program as first 

generation sales, had been suspended legally for 

various environmental reasons and were released 

under P.L. 104-19, [title II, Sec. 2001(k)], July 27, 

1995. The revenues are to be used prepare timber 

sales and addressing the backlog of recreation 

projects. Revenues from the sale of timber 

prepared using these funds are also deposited into 

this fund and are available for preparation of 

additional timber sales and recreation backlog 

projects.

NFS P.L. 104-134 16 U.S.C. 

1611 note

Timber Sale Pipeline 

Restoration Fund, 

Office of General 

Counsel opinion

Office of General Counsel Opinion dated 

December 13, 2002. This opinion states that 

timber sales under the Timber Pipeline 

Restoration program must use sales receipts for 

payments to States before net receipts are 

deposited into the Timber Sale Pipeline 

Restoration Fund.

NFS

Tongass Timber 

Reform Act of 1990

This Act established the Tongass Timber Supply 

Fund with related appropriations to finance the 

consistent supply of saw timber from the Tongass 

National Forest to meet the annual market 

demand as defined in the Act and to use wood 

products which might otherwise not be utilized.

NFS P.L. 101-626 16 U.S.C. 

539d

Transfer of funds to 

BLM for Wild Horse 

and Burro and 

Authorization to transfer up to $10,000,000 from 

the National Forest Systems appropriation to 

BLM for removal, preparation, and adoption of 

09/30/2012 NFS P.L. 108-447; 

P.L. 111-88
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-41

Title of the Act or 

Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

Cadastral surveys excess wild horses and burros from NFS lands, 

and for cadastral surveys..

Treasury and General 

Government 

Appropriations Act, 

2002

This Act authorizes Federal agencies to receive 

and use revenue resulting from waste prevention 

and recycling programs. Such revenue shall be 

available until expended for the purpose of waste 

reduction, prevention and recycling. The FS uses 

this authority for its "Go Green" program in 

which funds are collected from recycling and can 

be used to accomplish clean-up activities on the 

unit.

ALL P.L. 107-67 

Title VI

Trust Fund 

Authorization

Section 1321 of Title 31 of the United States 

Code authorizes Trust Funds.

NFS 31 U.S.C. 

1321

U.S. Mining Laws Act 

of May 10, 1872

This Act governs mining activities for valuable 

minerals on public domain lands.

ALL 30 U.S.C. 22 

and 28

Use and Occupancy 

Permits Act of 1915

To permit the use and occupancy of areas for the 

purpose of constructing or maintaining hotels, 

resorts, summer homes, commercial purposes, and 

other structures. (Note: There are special 

provisions under P.L. 99-522 for ski areas).

NFS P.L. 63-293 16 U.S.C. 497

Use of Funds for 

Program Information 

Purposes and for 

Nonmonetary Awards

Hereafter, any appropriations or funds available to 

the Forest Service may be used to disseminate 

program information to private and public 

individuals and organizations through the use of 

nonmonetary items of nominal value. This act 

also provides for nonmonetary awards of nominal 

value and to incurring of necessary expenses for 

the nonmonetary recognition of private 

individuals and organizations making 

P.L. 105-277 16 U.S.C. 

556h
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-42

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Program Summary of Authority

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(if applicable)

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Affected

Public Law 

Citation

USC 

reference

contributions to Forest Service programs.

Utah Good Neighbor The Secretary of Agriculture, via cooperative 

agreement or contract, may permit the State 

Forester of the State of Utah to perform forest, 

rangeland, and watershed restoration services on 

National Forest System lands in the State of Utah. 

09/30/2013 ALL P.L. 108-447; 

P.L. 112-74

Valles Caldera 

Preservation Act of 

July 25, 2000

This Act authorizes the Valles Caldera Trust to 

receive and collect funds in support of the 

management and administration of the Preserve. 

This includes the authority to assess fees for 

admission to and use of the Preserve. In addition, 

the Trust may solicit and accept donations of 

funds, property, supplies, or services for the 

purpose of management of the Preserve.

NFS P.L. 106-248 16 U.S.C. 

698v-4, 698v6

Virginia Land 

Conveyance and 

Improvement Act

Authorizes the sale or exchange of all or parts of 

certain administrative sites and other lands in the 

George Washington National Forest and the 

Jefferson National Forest. Authorizes the use of

sale revenue to acquire a replacement site and to 

construct on the site suitable improvements for 

national forest administrative purposes.

NFS P.L. 105-171 16 U.S.C. 

484a

Watershed Restoration 

and Enhancement 

Agreements

Appropriations for the Forest Service may be used 

by the Secretary of Agriculture for the purpose of 

entering into cooperative agreements with willing 

Federal, tribal, State and local governments, 

ALL P.L. 105-277 

Sec. 323; P.L. 

111-11 Sec. 

3001

16 U.S.C. 

1011 note
FY 2014 Budget Justification USDA Forest Service

Forest Service Budget Authorities 15-43

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Program Summary of Authority

Expiration date

(if applicable)

Programs 

Affected

Public Law 

Citation

USC 

reference

private and nonprofit entities and landowners for 

the protection, restoration and enhancement of 

fish and wildlife habitat, and other resources on 

public or private land, the reduction of risk from 

natural disaster where public safety is threatened, 

or a combination thereof or both that benefit these 

resources within the watershed.

Weeks Act of 1911 Sections 1 and 2 authorize land acquisition for 

watershed protection and timber production. One 

of the primary authorities for land acquisition 

with Land and Water Conservation Fund moneys.

NFS P.L. 61-435 16 U.S.C. 516, 

521b

Wild and Scenic 

Rivers Act of 1968

Sections 6 and 16 authorize land acquisition, 

exchange, and donation of land for inclusion in 

the Wild and Scenic River System.

NFS P.L. 90–542 16 U.S.C. 

1277

Wilderness Act of 

1964

Sections 5 and 6 provide authority for acquisition, 

exchange, and donation of land for inclusion in 

the Wilderness System.

NFS P.L. 88-577 16 U.S.C. 

1131-1136

Wildfire Suppression 

Act

This Act authorizes reciprocal agreements with 

foreign fire organizations for mutual aid in 

wildfire protection.

WFM P.L. 101-11 42 U.S.C. 

1856m note

Youth and 

Conservation Corps 

activities

Together, the Public Lands Corps Act of 1993 and 

the Public Lands Corp Healthy Forest Restoration 

Act of 2005 provide for the conduct of projects 

that protect forests, and for other purposes by 

qualified youth or conservation corps up to $12 

million per year.

NFS P.L. 109-154 16 U.S.C. 

1701 - 1730