United States Department of Agriculture 

Forest Service 

Fiscal Year 2007 

President’s Budget 

 

 Budget Justification
FY 2007 Budget Justification USDA Forest Service

Errata to Fiscal Year 2007 Budget Justification

This table shows revisions and additions to the USDA Forest Service FY 2007 Budget Justification. 

Changes listed below are included in the FY 2007 Budget Justification posted on the Forest Service 

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

Page Location Change/Date of Change 

Overviewi Overview Table of Contents Added Table C on FY 2006 Reprogramming Requests 

and Transfers which changed the letter designation of 

following tables (February 8, 2006) 

Overview1 Table – Land Acquisition Adjusted program changes to -$17,032 from -$17,030 

(February 10, 2006) 

Overview12 Forest & Rangeland 

Research bullet 3 

Corrected language related to FPL funding 

(February 8, 2006) 

OverviewTable B Minor adjustments to Land 

Acquisition Special Acts and 

Land Exchanges 

Reduced FY 2007 budget (in thousands) from $1,054 

to $1,053 and $232 to $231, respectively 

(February 10, 2006) 

OverviewTable C Table C – FY 2007 Budget 

Request vs. FY 2006 After 

Reprogramming and 

Transfers 

Capital Improvement and Maintenance – Facilities, 

Roads, and Trails information split out to show 

amounts for maintenance and improvements under 

each. (February 21, 2006) 

 Additional changes include FIA, formula adjustments, 

and other changes (February 23, 2006) 

Special 

Exhibits15-1 to 11 

Special Exhibit 1 – 

Allocation Tables 

Inclusion of tables for allocations to regions, stations, 

and area, FY 2005-2007 

(February 24, 2006) 

Overview – 

Table G 

Table G – Activity/Output 

Measures 

Reposted to correct truncated measures and footnotes 

throughout the table (March 1, 2006) 

Performance 

Management 

3-6 

FY 2005 National 

accomplishments table 

EP3.1B Accomplishment % is 86%, not 83% 

EP6.5C Accomplishment is 10, not 7 

(March 1, 2006) 

Forest and 

Rangeland 

Research 

6-1 

Annual Outcome Measures 

Table 

Incorrect table was included in original document; 

updated to correct one. 

(March 1, 2006) 

State & 

Private 

Forestry 

7-1 

Appropriation Table-Total 

Enacted Budget Authority, 

FY 2007 vs FY 2006 

Amount should be -$64,996 

(March 1, 2006) 

Special 

Exhibits 15-

71 

Special Exhibit 15 – 

National Scenic and Historic 

Trails 

Includes land acquisition costs associated with Pacific 

Crest Trail 

(March 1, 2006) 
FY 2007 Budget Justification USDA Forest Service

Table of Contents i 

 USDA Forest Service 

FY 2007 Budget Justification 

Table of Contents

 

Page

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

 

Budget and Performance Integration .................................................................................... 2-1 

 

Performance Management...................................................................................................... 3-1 

National Fire Plan ................................................................................................................... 4-1 

Appropriation Language Changes......................................................................................... 5-1

Forest and Rangeland Research............................................................................................. 6-1 

State and Private Forestry ...................................................................................................... 7-1

Forest Health Management.................................................................................................. 7-3 

 Federal Lands................................................................................................................. 7-5 

 Cooperative Lands ......................................................................................................... 7-8 

 Cooperative Fire Protection ............................................................................................... 7-11

 State Fire Assistance.................................................................................................... 7-13

 Volunteer Fire Assistance............................................................................................ 7-16 

 Cooperative Forestry.......................................................................................................... 7-18 

 Forest Stewardship....................................................................................................... 7-20 

 Forest Legacy Program................................................................................................ 7-23 

 Urban and Community Forestry .................................................................................. 7-28 

 Economic Action Programs ......................................................................................... 7-33 

 Forest Resources Information and Analysis ................................................................ 7-36 

 International Forestry......................................................................................................... 7-38 

National Forest System............................................................................................................ 8-1 

Land Management Planning ................................................................................................ 8-7 

 Inventory and Monitoring.................................................................................................. 8-23

 Recreation, Heritage, and Wilderness................................................................................ 8-30 

 Wildlife and Fisheries Habitat Management .................................................................... 8-40 

 Grazing Management......................................................................................................... 8-45 

 Forest Products................................................................................................................... 8-50 

 Vegetation and Watershed Management ........................................................................... 8-56 

 Minerals and Geology Management.................................................................................. 8-63 

 Landownership Management............................................................................................. 8-70 

 Law Enforcement Operations ............................................................................................ 8-76 

 Valles Caldera National Preserve ...................................................................................... 8-81 

 Centennial of Service Challenge........................................................................................ 8-84 
FY 2007 Budget Justification USDA Forest Service

ii

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

 Preparedness ........................................................................................................................ 9-4 

 Fire Operations -- Suppression .......................................................................................... 9-10 

 Fire Operations -- Other..................................................................................................... 9-15 

 Hazardous Fuels........................................................................................................... 9-16 

 Rehabilitation............................................................................................................... 9-21 

 Fire Research and Development .................................................................................. 9-23 

 Joint Fire Sciences Program......................................................................................... 9-29 

 Forest Health Mangement – Federal Lands................................................................. 9-34 

 Forest Health Mangement – Cooperative Lands ......................................................... 9-37 

 State Fire Assistance.................................................................................................... 9-40

 Volunteer Fire Assistence............................................................................................ 9-43 

 

Capital Improvement and Maintenance.............................................................................. 10-1 

Facilities............................................................................................................................. 10-4 

 Roads................................................................................................................................ 10-15 

 Trails ................................................................................................................................ 10-19 

 Deferred Maintenance and Infrastructure Improvement.................................................. 10-23 

Land Acquisition.................................................................................................................... 11-1 

 Acquisition of Lands for National Forests Special Acts.................................................... 11-1 

 Acquisition of Lands to Complete Land Exchanges.......................................................... 11-2 

Other Appropriations

 Range Betterment Fund ..................................................................................................... 12-1

 Gifts, Donations, and Bequests for Forest and Rangeland Research................................. 12-3 

 Management of National Forest Lands for Subsistence Uses ........................................... 12-4 

 

Permanent Appropriations................................................................................................... 13-1 

 Brush Disposal................................................................................................................... 13-4 

 Licensee Program (Smokey Bear and Woodsy Owl) ........................................................ 13-5 

 Restoration of National Forest Lands and Improvements ................................................. 13-8 

 Recreation Enhancement Program..................................................................................... 13-9 

 Land and Facility Enhancement Fund ............................................................................. 13-10 

 Timber Roads - Purchaser Election Program................................................................... 13-17 

 Timber Salvage Sale Fund............................................................................................... 13-18 

 Stewardship Contracting.................................................................................................. 13-19

 Timber Sales Pipeline Restoration Fund.......................................................................... 13-21 

 Roads and Trails (10 Percent Fund)................................................................................. 13-23 

 Midewin National Tall Grass Prairie Rental Fee Fund ................................................... 13-25 

 Midewin National Tall Grass Prairie Restoration Fund .................................................. 13-27 

 Operation and Maintenance of Quarters.......................................................................... 13-28 

 Land Between the Lakes Management Fund................................................................... 13-29 

 Administration of Rights-of-Way and Other Land Uses ................................................. 13-31 

 Forest Botanical Products ................................................................................................ 13-34

 Valles Caldera Fund......................................................................................................... 13-35 

 Payment Funds................................................................................................................. 13-37 
FY 2007 Budget Justification USDA Forest Service

Table of Contents iii 

Trust Funds............................................................................................................................ 14-1 

 Cooperative Work - Knutson-Vandenberg (K-V) Fund .................................................... 14-2 

 Cooperative Work - Other ................................................................................................. 14-8 

 Land Between the Lakes.................................................................................................... 14-9

 Reforestation.................................................................................................................... 14-10 

Special Exhibits

 1 Allocations by Regions, Stations, and Area, FY 2005-2007 ....................................... 15-1 

 2 Bark Beetle Management........................................................................................... 15-12 

 3 Business Operations Transformation Assessment (BOTA) ...................................... 15-16 

4 Chief’s Reserve Fund................................................................................................. 15-19 

5 Conservation Education............................................................................................. 15-21 

 6 Deferred Maintenance Backlog ................................................................................. 15-25 

 7 Facilities Maintenance Assessment ........................................................................... 15-31 

 8 Federal Excess Personal Property and Aircraft ......................................................... 15-40 

9 Forest Land Enhancement Program........................................................................... 15-41 

 10 Forest Products Laboratory Modernization ............................................................... 15-42 

 11 Invasive Species......................................................................................................... 15-49 

 12 Law Enforcement Funding of Indirect Costs............................................................. 15-55 

 13 Legislative Proposals ................................................................................................. 15-60

 14 National Energy Policy.............................................................................................. 15-61 

 15 National Scenic and Historic Trails ........................................................................... 15-70 

 16 Northwest Forest Plan................................................................................................ 15-78 

 17 Office of General Counsel Reimbursement............................................................... 15-81 

 18 Office of Tribal Relations .......................................................................................... 15-82 

 19 Partnerships................................................................................................................ 15-87 

 20 President’s Management Agenda .............................................................................. 15-97 

 21 Resforestation .......................................................................................................... 15-107 

 22 Research and Development Threat Assessment Centers......................................... 15-109 

 23 Service First ............................................................................................................ 15-112 

 24 Unobligated Balances .............................................................................................. 15-114 

 25 Wood Education and Resource Center .................................................................... 15-115 

 26 Working Capital Fund, Forest Service..................................................................... 15-120 

 27 Working Capital Fund and Greenbook Charges, USDA......................................... 15-121 

 28 Working Capital Fund – Forest Service Fleet Management.................................... 15-127 

 

Authorities.............................................................................................................................. 16-1 

United States Department of Agriculture 

Forest Service 

Fiscal Year 2007 

President’s Budget 

OVERVIEW

 

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

March 1, 2006 ii 

Errata to Fiscal Year 2007 President’s Budget Overview

Revisions included in Overview dated February 6, 2006 (Revision dates shown on revised pages) 

Page Location Change/Date of Change 

i Overview Table of Contents Added Table C on FY 2006 Reprogramming Requests 

and Transfers which changed the letter designation of 

following tables (February 8, 2006) 

1 Table – Land Acquisition Adjusted program changes to $17,032 from -$17,030 

(February 10, 2006) 

12 Forest & Rangeland Research 

bullet 3 

Corrected language related to FPL funding 

(February 8, 2006) 

Table B Minor adjustments to Land 

Acquisition Special Acts and 

Land Exchanges 

Reduced FY 2007 budget (in thousands) from $1,054 to 

$1,503 and $232 to $231, respectively 

(February 10, 2006) 

Table C Table C – FY 2007 Budget 

Request vs. FY 2006 After 

Reprogramming and 

Transfers Maintenance 

Page C-2 Capital Improvement and Maintenance – 

Facilities, Roads, and Trails information split out to 

show amounts for maintenance and improvements under 

each. (February 21, 2006) 

Table C Table C – FY 2007 Budget 

Request vs. FY 2006 After 

Reprogramming and 

Transfers 

Additional changes to include FIA, correct formulas to 

include supplemental costs, and other changes (February 

23, 2006) 

Table G Table G – Activity/Output 

Measures 

Reposted to correct truncated measures and footnotes 

throughout the table (March 1, 2006) 

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised i 

USDA Forest Service 

Fiscal Year 2007 President’s Budget Overview 

Table of Contents 

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

Forest Service Mission, Goals, and Objectives.............................................................2 

Advancing Forest Service Priorities in FY 2007 

While Achieving Deficit Reduction Goals.....................................................................3 

Legislative Proposals ....................................................................................................11 

FY 2007 Highlights of Changes by Program Area ....................................................12 

FY 2007 Highlights by Appropriations.......................................................................14 

Appendices.....................................................................................................................17 

A - Forest Service Organization 

B - Three Year Budget Summary of Appropriations 

C - FY 2007 Budget Request vs. FY 2006 after Reprogramming and Transfers 

D - Three Year Budget Summary of Full-Time Equivalents 

E - Three Year Receipts by Source and Payments to States 

F - FY 2004-08 Strategic Plan 

G - Activity Output Table 

H - FY 2007 Capital Improvement Projects 

I - Timber Harvest Volume, FY 2005 – FY 2007 

J - FY 2007 Proposed Land Acquisition Program 

K - FY 2007 Proposed Forest Legacy Program 

L - Four Year Healthy Forest Initiative Funding and Accomplishment Table 

M - Forest Service Efficiency Savings and Buying Power

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 10, 2006 - Revised Page 1 

Overview 

The USDA Forest Service works to sustain the health, diversity, and productivity of the 

Nation’s forests and grasslands by managing the 193 million acres that comprise our 

national forests and grasslands, by serving as the largest forestry research organization in 

the world, and by providing private landowners with technical and financial assistance 

that encourages sustainable forest management. As the Forest Service continues its 

second century of service, there are many challenges to sustainable resource 

management. These include restoring fire-adapted forests, providing sustainable 

recreation opportunities under increasing population pressures, dealing with the loss of 

open space, addressing the spread of invasive species, and restoring the health of our 

watersheds in the face of increasing development. These challenges occur at a time when 

our nation needs to provide critical resources needed for our highest priorities: fighting 

the War on Terror, strengthening our homeland defenses, and sustaining the momentum 

of our economic recovery. The Forest Service must therefore use collaborative 

approaches and operate with renewed efficiency in order to reduce costs while 

accomplishing its mission. 

The FY 2007 President’s Budget request for the Forest Service totals $4.1 billion in 

discretionary appropriations and an estimated $769 million in mandatory appropriations 

(permanent appropriations and trust funds). This budget request enables the Forest 

Service to continue to advance the goals outlined in its strategic plan, while pursuing 

increased efficiencies through collaboration, improved organizational and financial 

management and through the use of legislative and policy initiatives such as the Healthy 

Forests Initiative and the Forest Service’s new planning rule. The President’s Budget 

also demonstrates an ongoing commitment to the implementation of the Northwest Forest 

Plan and continuation of the Secure Rural Schools and Community Self-Determination 

Act. With this budget the Forest Service will continue to advance sustainable resource 

management on our Nation’s forests and grasslands. 

 FY 2006 Program FY 2007 

Appropriation Title Enacted Paycosts Changes Budget 

Research $278,929 $3,446 -$14,584 $267,791

State and Private Forestry $279,406 $1,369 -$36,365 $244,410

National Forest System $1,403,391 $19,618 -$24,943 $1,398,066

Wildland Fire Management $1,753,214 $18,304 -$3,323 $1,768,195

Capital Improvement and Maintenance $434,687 $4,206 -$56,292 $382,601

Land Acquisition $43,159 $232 -$17,032 $26,359

Other Appropriations $8,186 $52 $1,068 $9,306

Total Discretionary Appropriations $4,200,972 $47,227 -$151,471 $4,096,728

Total Mandatory Appropriations $790,428 $4,611 -$25,971 $769,068

Subtotal, regular appropriations $4,991,400 $51,838 -$177,442 $4,865,796

Supplemental & Emergency 

Appropriations $57,000 $0 $0 $0

Grand Total, Forest Service $5,048,400 $51,838 -$177,442 $4,865,796
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 2 

 

Forest Service Mission, Goals, and Objectives 

The mission of the Forest Service is to: 

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

grasslands to meet the needs of present and future generations.” 

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

resource heritage. This relationship is characterized by the principles of sustaining our 

natural resources for future generations, producing personal and community well-being, 

and providing economic wealth for the Nation. This foundation is often referred to as 

“sustainable resource management.” 

The Forest Service’s updated 2004 National Strategic Plan embodies the agency’s many 

areas of responsibility by outlining the strategic goals and objectives. The agency has six 

strategic goals: 

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

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

wildland fire. 

• Reduce the impacts from invasive species. Restore the health of the 

Nation’s forests and grasslands to be resilient to the effects of invasive 

insects, pathogens, plants, and pests. 

 

• Provide outdoor recreation opportunities. Provide high-quality outdoor 

recreational opportunities on forests and grasslands, while sustaining 

natural resources, to meet the Nation’s recreational demands. 

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

need for energy. 

• Improve watershed condition. Increase the number of forest and 

grassland watersheds that are in fully functional hydrologic condition. 

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

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

statutory stewardship and assistance requirements. 

There are 16 strategic objectives to guide program implementation and each objective has 

corresponding performance measures that track progress in reaching the 6 goals included 

in the plan. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 3 

Advancing Forest Service Priorities in FY2007 While 

Exercising Fiscal Discipline 

The theme of the Forest Service budget for FY 2007 is advancing agency priorities while 

exercising fiscal discipline. The FY 2007 Budget reflects the President’s commitment to 

providing the critical resources needed for our Nation’s highest priorities: fighting the 

War on Terror, strengthening our homeland defenses, and sustaining the momentum of 

our economic recovery. The President's pro-growth economic policies, coupled with 

spending restraint, will keep us on track to cut the deficit by more than half by 2009. 

The President’s Budget demonstrates that the Forest Service can use collaborative 

approaches and operate with renewed efficiency and accountability in order to reduce 

costs while accomplishing its mission. The Forest Service will achieve this by 

1) expanding collaborative efforts with other federal agencies, state and local 

governments, and non-governmental partners; 2) increasing the efficiency of Forest 

Service programs; 3) improving organizational and financial management; and 4) dealing 

strategically with threats to forest health and open space preservation in a changing 

global environment. Through these four strategies, the Forest Service will build on its 

past successes and advance its priorities for FY 2007. 

Forest Service Successes

The Events of 2005

In 2005 the Forest Service achieved its priorities and demonstrated that it continues to be 

an agency of great value to the American people. The Forest Service exceeded its goals 

to restore the health of our forests and protect critical resources from wildland fire. 

Working collaboratively with the Department of Interior (DOI), the Forest Service 

controlled 99 percent of all unwanted and unplanned fires during initial attack. Through 

National Fire Plan funding over 2.9 million acres of land were treated to reduce 

hazardous fuels. An additional 1.4 million acres were treated as a secondary benefit of 

activities funded with other appropriations, for a total of 4.3 million acres of land treated 

to reduce hazardous fuels. 

The National Forest System continued to provide benefits to the American public, 

including fresh water, flood regulation, local climate regulation, carbon sequestration and 

recreation. Sixty million people benefited from clean water provided by national forests 

and grasslands, and the American people made over 200 million visits to these lands. 

National forests and grasslands also produced valuable timber, mineral and energy 

outputs for the Nation’s economy. These statistics underscore the importance of the 

National Forest System to the environmental infrastructure, natural heritage and economy 

of the United States. 

The events of 2005 also highlighted the strength and resourcefulness of Forest Service 

employees and the agency’s Incident Command System. The Forest Service provided 

extensive support in the relief efforts following the many hurricanes of 2005. During 

peak response to Hurricane Katrina and Rita the Forest Service had 5,500 employees 

working in the affected region, and total Forest Service efforts represented over 250,000 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 4 

work days. Forest Service employees provided a variety of critical services, including 

managing evacuation centers and base camps, providing logistical support, clearing 

roadways and operating mobilization centers. In the first four weeks after Katrina’s 

landfall, Forest Service employees provided support to over 600,000 people affected by 

Katrina, distributing over 2.7 million meals, 4 million gallons of water, and 40 million 

pounds of ice. 

The Forest Service accomplished these tasks while simultaneously completing major 

improvements in organizational and financial management. In 2005, the Forest Service 

began its Business Operations Transformation Program, which is expected to save the 

agency $241 million in administrative operation costs over the next five years. The 

Albuquerque Service Center became operational in 2005, creating a centralized location 

for human resources and financial management operations. The Forest Service also 

achieved its fourth unqualified (“clean”) audit opinion in a row for FY2005, continuing 

the agency’s efforts to improve financial performance. Building upon these successes, the 

Forest Service will use improved financial information to drive results in key areas. 

Lessons from the Centennial

The Forest Service celebrated its Centennial by holding a series of forums in 2004 and 

2005, culminating in a Centennial Congress that assessed the past and future direction of 

the agency. The overarching theme that emerged from the Congress was the realization 

that a new era of natural resource management has begun. This new era of forest 

management requires new management solutions and better engaging the public in 

conservation. Many of the rules governing the Forest Service were designed at a time 

when the focus of the agency was on producing timber and mitigating the impacts so 

other resource uses, such as recreation and habitat, could be maintained. Today the 

primary focus of the Forest Service is restoration and recreation. The rules and 

procedures created during the former era of resource extraction often slow down 

important work during the current era of restoration. 

The Forest Service faces many challenges as it enters a new era of natural resource 

management. The accomplishments of 2005, along with the lessons highlighted in the 

Centennial, demonstrate the ability of the Forest Service to meet these challenges as the 

agency begins its second century of service. 

Forest Service Priorities for FY 2007 

The President’s Budget for FY 2007 totals $4.1 million in discretionary appropriations 

and enables the Forest Service to continue to advance the goals outlined in the agency’s 

strategic plan. These goals, described in more detail in the Mission, Goals and 

Objectives section of the budget Overview, are to: 

• Reduce the risk from catastrophic wildland fire; 

• Reduce the impacts from invasive species; 

• Provide outdoor recreation opportunities; 

• Help meet energy resource needs; 

• Improve watershed condition; and 

• Conduct mission-related work in addition to that which supports the agency goals. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 5 

In addition to these long-term strategic goals, the President’s Budget provides increased 

support to Forest Service programs that improve forest health conditions, protect critical 

resources from catastrophic wildland fire, help prevent the loss of open space, and 

expand Forest Service’s efforts to meet the targets of the 1994 Northwest Forest Plan. 

The Forest Service will achieve these objectives by reallocating resources from lower 

priority work to these efforts and through increased funding for: 

• Hazardous fuels treatment (+ $10 million above FY 2006 enacted appropriation); 

• Fire Suppression Operations (+ $56 million above FY 2006 enacted 

appropriation); 

• Forest Legacy Program (+ $5 million above FY 2006 enacted appropriation); and 

• Forest Products (+ $30 million, to meet the goals of the Northwest Forest Plan). 

The FY 2007 budget also includes a legislative proposal that if enacted would provide 

funding for a 5-year extension of an amended Secure Rural Schools and Community 

Self-Determination Act, underscoring the President’s commitment to states and counties 

impacted by the ongoing loss of receipts associated with lower timber harvest levels on 

Federal Lands in the Pacific Northwest and elsewhere. The legislative proposal provides 

these payments in a fiscally responsible manner by fully offsetting their costs. 

Expanding Collaborative Efforts

The White House Conference on Cooperative Conservation, held in August 2005, 

marked an important milestone in the effort to expand and improve collaboration in 

natural resource management. A clear lesson of the Forest Service Centennial was the 

need to simplify and expand cooperative efforts. The increase in collaboration reduces 

duplicative efforts between the Forest Service and its partners and enables the Forest 

Service and its partners to accomplish more without costing the American public more 

money. The President’s Budget supports these innovations in several ways. 

The 1994 Northwest Forest Plan brought together timber and environmental interests of 

the Pacific Northwest to produce a collaborative forest management plan for the region. 

The Northwest Forest Plan promised to produce a predictable and sustainable level of 

timber sales while protecting the long-term health of forests, wildlife and waterways of 

the region. Since 1994, timber sales from the Pacific Northwest have often fallen below 

the targets set by the Plan. In order to recognize the needs of all parties represented in the 

Northwest Forest Plan, the President’s Budget increases funding for the Plan by $65 

million. This change in funding will allow the Forest Service to offer the Northwest 

Forest Plan’s goal of 800 million board feet of timber in 2007. 

The new planning rule for the Forest Service creates a dynamic planning process that is 

less bureaucratic, emphasizes science, and provides the opportunity for more public 

involvement earlier in the planning stages. The new system of planning also requires 

land management plans to be more strategic, transparent, timely and cost-effective. This 

process is more effective because it allows land managers to adapt to changes in the land 

and surrounding community through the use of an Environmental Management System, 

which requires independent audits of our agency’s performance at 5-year intervals to 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 6 

ensure that the Forest Service is achieving the goals of the land management plan. The 

new rule also requires opportunities for public involvement at four key stages in the 

planning process. The result is a planning rule that allows for adaptive management, 

enhanced cooperation with partners, and a more streamlined, cost-effective planning 

process. 

The new Off-Highway-Vehicle Rule, made final in November 2005, provides another 

example of successful cooperation creating an effective rule making process. In 2004, 

OHV users accounted for between 11 and 12 million visits to national forests and 

grasslands. While the Forest Service believes that OHVs are a legitimate use of the 

National Forest System, unmanaged OHV use has resulted in unplanned roads and trails, 

erosion, watershed and habitat degradation, and impacts to cultural resource sites. The 

2005 OHV rule requires each national forests and grassland to identify and designate the 

roads, trails and areas that will be open to motor vehicle use. Once designation is in 

place cross-country travel will be prohibited. Ranger districts and national forests will 

work with state and local governments and assorted user groups to decide which areas 

will be open to OHV use. The Forest Service will engage its partners at the local level so 

that the OHV management is cooperative, which in turn will increase compliance. The 

end result is greater protection for recreation resources without spending many additional 

Forest Service funds. 

Another example of collaboration includes language in the Energy Policy Act that allows 

the Forest Service and the Bureau of Land Management to work together more closely in 

the energy permitting process. Specifically the Energy Act allows the BLM to transfer 

funds to the Forest Service for pilot field offices working to streamline permit processing. 

The result will be a more efficient permitting process. 

The President’s Budget also includes a legislative proposal that provides $800 million 

above the current baseline for a five year extension of an amended Secure Rural Schools 

and Community Self Determination Act. Payments will be targeted to the areas most 

affected by the ongoing loss of receipts associated with lower timber harvests on Federal 

lands; the payments will be capped, adjusted downwards over time, and eventually 

phased out. In addition to providing important funding to allow local economies to adjust 

to market shifts and reduced timber harvests and Federal lands, the Secure Rural Schools 

Act also established a unique mechanism for collaborative conservation through the 

creation of Rural Advisory Committees, a platform for a diverse set of local residents to 

work together on natural resource issues. 

Increasing the Efficiency of Forest Service Programs

The President’s Budget reflects continued implementation of the Forest Service’s vision 

as a “Center of Excellence in Government” in which it will be viewed as a model agency 

recognized for efficiently delivering its services. The Budget continues reforms that will 

streamline the Forest Service’s organization, improve accountability, and focus on 

measurable results. The Budget reduces indirect costs to $461 million, and reflects 

completion of organizational efficiency studies that will lead to savings in FY 2008 and 

beyond. The Budget further reflects a continuing emphasis on Forest Service 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 7 

performance and accountability by including two new performance measures for the 

National Forest System, including the use of volume sold as an annual output measure for 

Forest Products and an annual efficiency measure consisting of the ratio of total receipts 

for each activity that generates receipts to the obligations for each such respective activity 

necessary to generate those receipts. These reforms will foster a greater focus on results; 

lead to improved decisions based on performance; and enhance accountability through 

the use of more readily available and better quality performance information. 

The President’s Budget expands the Forest Service’s use of valuable authorities that 

Congress has recently made available to the agency. Through these authorities and 

through the Forest Service’s own internal efforts, the agency will continue to increase 

program efficiency. With the provisions of the Facilities and Land Management 

Enhancement Act, the Forest Service is reducing its administrative site maintenance 

backlog and improving efficiency in its land management program. This new authority 

provides a necessary incentive to identify and maintain mission-critical facilities while 

streamlining facility holdings that reflect a bygone era of forest management. In short, 

the new authority enables the Forest Service to accomplish more with its Capital 

Improvement and Maintenance funds, while also decreasing the deferred maintenance 

backlog by removing unneeded facilities and producing additional funds to enhance 

mission-critical ones. The FY 2007 budget also reflects the 2005 changes to KnutsonVandenberg (K-V) authority, which provides greater flexibility in the collection and 

expenditure of K-V funds. 

In 2004, Congress approved the Federal Lands Recreation Enhancement Act, giving the 

Forest Service a 10-year authority to reinvest a portion of collected recreation fees to 

enhance local recreation opportunities. The Act also directs the creation of recreation 

resource advisory committees that will provide public involvement and comment on 

recreation fee programs. In FY 2007, the Forest Service will charter Recreation Resource 

Advisory Committees in cooperation with the Bureau of Land Management. The 

Committees are a demonstration of the agency’s continued commitment to improving its 

effectiveness and efficiency through increased public involvement and cooperation. 

The FY 2007 Budget also emphasizes the Presidents Healthy Forest Initiative and the 

Healthy Forests Restoration Act. The Forest Service has used these authorities by 

removing administrative process delays and expediting critical restoration projects. This 

allows the Forest Service to more effectively restore national forests and grasslands to a 

more fire adaptive environment. In 2005 the Forest Service treated 2.7 million acres of 

land to reduce hazardous fuels, with over 60 percent of those acres in the wildland-urban 

interface. The FY 2007 budget proposes $292 million for the treatment of hazardous 

fuels, which will enable the agency to treat as many as 2.8 million acres, with 70 percent 

of the acres in the wildland-urban interface. The Forest Service is also better integrating 

its hazardous fuels treatments with other vegetation management activities. The result is 

an additional 1.4 million acres of hazardous fuels treated in 2005 as secondary benefits to 

other vegetation management activities. Hazardous fuels treatments, in turn, often have 

secondary benefits such as wildlife habitat improvement or watershed restoration. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 8 

The agency is increasing its use of stewardship contracts, which allow forest managers to 

combine timber and service contracts so that efforts to restore forest health and a 

traditional fire regime are more efficient. Forty-four stewardship contracts were awarded 

in 2005, providing over 35,000 acres with services such as noxious weed treatment, lake 

restoration, and harvesting biomass for energy use. A final highlight of HFI/HFRA 

activities is the Forest Service’s support of Community Wildfire Protection Plans 

(CWPPs). CWPPs enable communities to establish a localized definition of the 

wildland-urban interface in their area, and high-risk areas identified in a CWPP receive 

funding preference from the Forest Service. As of December 2005, at least 450 CWPPs 

had been completed nationwide, covering at least 2,250 communities at risk from 

wildfire. The Forest Service will continue to assist communities adjacent to National 

Forest land in the development of Community Wildfire Protection Plans. 

Providing high quality recreation opportunities on the National Forest’s and Grasslands is 

of key importance to the Forest Service. This resource provides a direct connection to the 

American people, with 204.8 million visits occurring in 2004. The Forest Service 

continues working with the public to increase capacity to deliver recreation services. The 

agency is developing a programmatic plan, “The Capacity Building Model for 

Sustainable Recreation” that will identify efforts to build capacity to meet increasing 

demand. Tools will include partnership development, volunteerism, fee revenues, 

improved business practices and prioritization of recreation facility assets. Specific 

actions in 2007 will include: completion of recreation facility master planning to 

prioritize facility assets, completion of a feasibility study on fee retention of existing 

recreation special use fees, continued implementation of the Federal Lands Recreation 

Enhancement Act, working with private sector partners to create a web site on improved 

business practices including grant resources and volunteerism, and a skills assessment to 

address improved business and financial skills. 

The President’s Budget reflects the efforts of Forest Service Research and Development 

(R&D) to improve the efficiency of research programs and continue the use of science as 

the foundation for Forest Service activities. To do this, R&D is expanding collaborative 

and coalition building efforts, focusing funding on extramural research, and aligning 

research projects along strategic program areas. R&D is hosting two “Outlook 

Workshops” on future forestry research with non-governmental organizations (NGOs), 

government partners, academia and industry to encourage a common research agenda for 

all sectors of forestry research. In January 2006, R&D participated in a summit for 

Deans from US forestry programs to lay plans for a common research agenda. 

R&D is also refocusing its research dollars on Congressional Priorities that have high 

extramural funding, further increasing R&D’s support of external and collaborative 

research efforts from 13 percent of the R&D budget currently to 20 percent over the next 

five years. Finally, R&D is reorganizing its research along strategic programs areas, so 

the agency can best produce the research that decision makers need. Along these lines, 

the President’s Budget allocates $1.5 million to research on the value of processes by 

which the environment produces resource benefits; $3.5 million to research on biomass 

markets and utilization; and includes funding for the reorganization of the Forest 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 9 

Products Lab, so it can better focus on research that increases the utilization value of 

wood products. The research on wood products will advance the use of the small 

diameter timber that results from hazardous fuels treatments; this compliments the Forest 

Service’s use of stewardship contracts to make hazardous fuels treatment as efficient as 

possible. 

Improving Organizational and Financial Management

The FY 2007 budget continues the Forest Service’s efforts to improve organizational and 

financial management. These efforts are organized around the five core components of 

the President’s Management Agenda (PMA): 

• Strategic Management of Human Capital 

• Competitive Sourcing 

• Expanding E-Gov 

• Improved Financial Management 

• Budget and Performance Integration. 

In the area of Human Capital, Expanded E-Gov, and Improved Financial Management, 

the Forest Service will continue its Business Operations Transformation Program. The 

Program is improving the overall efficiency of the Forest Service’s administrative 

operations and increasing the agency’s ability to reduce indirect costs and make more 

funds available for mission delivery. The Albuquerque Service Center successfully 

opened this past year, bringing nearly 400 employees to a consolidated budget and 

finance center that will better serve the needs of Forest Service internal and external 

customers. During the next five years, the Business Operations Transformation Program 

is estimated to generate an estimated $241 million in savings for the Forest Service. 

The centralization of Forest Service budget and finance will also create greater 

transparency, accountability and efficiency in the agency’s financial management. The 

Forest Service continues to improve its financial management, as evidenced by the 

agency’s fourth consecutive unqualified (“clean”) audit in 2005. Building upon these 

successes, the Forest Service will use improved financial information to drive results in 

key areas. 

The President’s Budget also continues support for the Forest Service Competitive 

Sourcing program, and focuses on proper and timely implementation of completed 

competitive sourcing studies and rigorous analysis of the studies’ results and savings.

In FY 2007, the Forest Service will continue its work in Budget and Performance 

Integration through implementation of its strategic plan, Performance Accountability 

System, and by making effective use of OMB’s Program Assessment and Rating Tool 

(PART). The Forest Service Strategic Plan helps the agency and its field units develop 

programs of work that address natural resource needs while maximizing limited resources 

and improving performance accountability. The Strategic Plan will be revised in 

September of 2006 to reflect the latest needs and resources of the agency. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 10 

Through the Performance Accountability System (PAS) the Forest Service is integrating 

existing data sources so that timely, consistent and credible performance information is 

available project and program managers as well as external customers. In addition, 

PART efforts will ensure that the agency’s activities are aligned with its strategic plan. 

Thus far the Forest Service has used PART to evaluate the following programs: Wildland 

Fire Management, Capital Improvements & Maintenance, Forest Legacy, Invasive 

Species, Land Acquisition, Recreation and Energy. In FY 2006 (FY 2008 budget 

process), the Forest Service will complete a PART analysis of mission-support activities 

and programs aimed at improving watershed quality. Results from the PART process 

have been, and will continue to be, used to improve program management and develop 

better performance measures. 

A Strategic Approach to Restoring Forest Health and Preserving Open Space

The protection of forest health and open space is increasingly affected by the dynamics of 

a global timber market. Timber prices are now often set globally; the result has been a 

reduction in the private wood products infrastructure and divestment of timber companies 

from their timber land in the United States. These trends have altered the economic and 

environmental reality in which the Forest Service operates. The FY 2007 budget 

provides a strategy to deal with these realities. 

The sell-off of industrial timber lands opens up millions of acres to development, adding 

to the loss of open space. To counter these trends, the President’s Budget requests $62 

million for the Forest Legacy Program, which will protect an estimated 130,000 priority 

acres in FY 2007. The Forest Legacy Program works in concert with other State and 

Private Forestry programs to provide private landowners with the technical and financial 

assistance needed to sustain intact, working forests. 

The Forest Service’s efforts to restore forest health are also affected by the global timber 

market. With the reduction in mill capacity and other related infrastructure, it becomes 

more difficult to access the markets that make restoration work on our Nation’s forests 

and grasslands financially feasible. The FY 2007 budget addresses this need by 

dedicating $292 million to hazardous fuels treatment, with $5 million to foster markets in 

biomass utilization. Additionally, authorities of HFI/HFRA such as Stewardship 

Contracting allow the Forest Service to work more effectively with the local community 

in treating hazardous fuels, and promote investment in the local timber infrastructure. 

With greater exchange of global goods also comes greater transfer of invasive species. 

According to a study published in the journal Ecological Economics (Pimentel et al. 

2005), invasive species cost Americans more than $138 billion a year in total economic 

damage and associated control costs. The FY 2007 budget provides over $94 million to 

Forest Service invasive species programs, allowing the agency to complete invasive 

species suppression, prevention and management on over 63,000 acres of Federal lands 

and 403,800 acres of cooperative lands. These efforts involve enhanced collaboration 

with Forest Service partners to find and implement solutions to invasive species 

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

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 11 

An additional strategy for protecting forest health and open space involves USDA’s 

work to broaden the use of markets for ecosystem services through voluntary market 

mechanisms as announced by Secretary Johanns at the White House Conference on 

Cooperative Conservation. As part of this effort, Forest Service Research and 

Development will continue its role as an expert in the quantification of ecosystem 

services values. 

The FY 2007 Budget reflects the President’s commitment to providing the critical 

resources needed for our Nation’s highest priorities. The FY 2007 budget addresses the 

need for deficit reduction while preparing the Forest Service for a new, more 

collaborative, era of natural resource management. With this budget the Forest Service 

will continue to identify and support more efficient and effective methods of pursuing its 

mission. This will be accomplished through increased collaboration, the use of new 

legislative authorities, expanded program efficiencies and improved organizational and 

financial management. Through these efforts the Forest Service will sustain the health 

and productivity of the Nation’s forests and grasslands.

Legislative Proposals 

The FY 2007 President’s Budget contains two legislative proposal titled: 

Amendment to Secure Rural Schools and Community Self-Determination Act of 2000 

The proposed legislation identifies funding sources up to $800 million above the current 

baseline to enable payments to States under an amended Secure Rural Schools and 

Community Self-Determination Act. The legislative proposal provides payments that 

would be continued for an additional 5 years. Provisions will be incorporated to cap 

payments, adjust the current payment schedule downward each year, and eventually 

phased out payments. 

Payments under the proposal will target areas most affected by the loss of timber receipts. 

This proposal will apply to lands under the jurisdiction of the Department of the Interior’s 

Bureau of Land Management as well as USDA National Forest System lands. For 

administrative purposes, the payments would be made by the USDA on behalf of both 

agencies. 

To provide a funding basis to offset these payments, the proposal would also include 

provisions to authorize the sale of National Forest System land parcels that meet 

identified criteria as eligible for conveyance. The criteria would identify lands that are 

mainly isolated parcels of land which are interspersed with or adjacent to non-federal 

lands or are not efficient or effective to manage because of their location, size or shape. 

Under the proposal, the Secretary will make a determination prior to conveyance that it is 

in the public interest to convey eligible lands at no less than market value based on 

appraisals conducted in accordance with uniform standards. The proposal expressly 

precludes the conveyance of lands with certain designations (including wilderness, wild 

and scenic rivers, national recreation areas, monuments and historic sites.) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page 12 

Enhancing Forest Service Administration of Rights-of-Way and Land Uses 

This proposal extends the authority to implement a 10-year pilot program authorizing the 

assessment, collection, and expenditure of administrative fees collected from applicants 

for and holders of special use authorizations and to recover the agency’s costs to process 

those applications and/or monitor the compliance with those authorizations. The Forest 

Service has not yet exercised this pilot authority, pending completion and adoption of the 

Secretary of Agriculture’s cost recovery regulations, which are necessary to assess and 

collect the administrative fees for which expenditure authority is granted by the subject 

pilot program. Adoption and implementation of those cost recovery regulations is 

expected during FY 2006. The value of cost recovery will be limited if the agency is 

unable to retain these fees for expenditure as granted in this pilot authority. A total of 

$5.45 million in expected receipts will be collected in FY 2006 if the Administration of 

Rights-of-Way authority is extended beyond the legislations’ expiration date at the end of 

FY 2005. 

FY 2007 Highlights of Changes by Program Area 

Forest and Rangeland Research 

• Focuses research dollars on Congressional Priorities with at least 40 percent nonForest Service funding, further increasing support of external and collaborative 

research. 

• Contains focused increases for Research in Ecosystem Services, Biomass 

Marketing and Utilization, and Biological Controls for Invasive Species. 

• Increases funding for Forest Products Laboratory that will enhance the 

capabilities and efficiencies of the lab’s research programs. 

State & Private Forestry 

• Emphasizes training and wildfire community planning within Cooperative Fire 

Protection to deliver an efficient and effective fire suppression response and 

prioritize hazardous fuel conditions. 

• Shifts some gypsy moth suppression resources to other high priority pest needs. 

• Increases Forest Legacy by $5 million in support of Administration commitment 

to protect open space. 

National Forest System 

• Provides a $41 million dollar increase in Forest Products and $24 million dollar 

increase in other areas for full implementation of the Northwest Forest Plan for 

ecosystem management, intergovernmental and public collaboration, and rural 

community economic assistance on federal forests in western Oregon, 

Washington, and northern California. 

• Increases the “process mineral operations” activity by $7.5 million to meet the 

high priority objective of processing mineral applications in support of the 

President’s Energy Plan. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 13 

Wildland Fire Management 

• Continues work on Fire Program Analysis (FPA) with an expected full 

completion date in FY 2008. FPA will provide a common system to better predict 

the optimal distribution wildland fire program budget resources. 

• Increase of nearly $10 million in Hazardous Fuels reduction will help accomplish 

treatment on 1,950,000 acres, an additional 150,000 over FY 2006. 

• Wildland Fire Preparedness budget will allow the Forest Service to maintain 99 

percent initial attack success rate. 

• Increases Wildland Fire Suppression by $56 million based on 10-year Average of 

Suppression Costs, adjusted for inflation. The Budget re-establishes a long 

standing policy that provides for suppression funding in a manner that does not 

include the compulsory assessment of indirect costs. This requirement, enacted 

over the Administration’s objections, would effectively result in under-funding 

fire suppression and in turn increase the need to borrow from other programs. 

Capital Improvement & Maintenance 

• Focuses Capital Improvement & Maintenance funds on improving FAO 

infrastructure. 

• Provides $15 million in funds for first phase of Forest Products Lab 

modernization.

Land Acquisition 

• Emphasizes highest priority lands that provide quality outdoor recreational 

opportunities and prevent habitat fragmentation by improving or maintaining 

ecological conditions for species of interest. 

Mandatory Appropriations 

• Includes legislative proposal that provides $800 million above current baseline for 

a 5-year extension of an amended Secure Rural Schools and Community SelfDetermination Act, offset by receipts derived through an authorization of the sale 

of National Forest System lands that meet identified criteria for conveyance. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 14 

FY 2007 Highlights by Appropriation 

 (dollars in thousands) 

 % of 

Total 

Budget 

* Program Description FY 2007

FY 2007 

vs. 

FY 2006

% 

Change

Major Program Area, 

Program, and SubProgram

6.5% Forest Service Research carries out basic and applied research to 

study biological, physical, and social sciences related to forests and 

rangelands, forest products and economics, and public use of 

Forest Service land. Research is conducted both internally and 

through extramural funding.

267,791 -11,138 -4.0%

6.0% State and Private Forestry provides technical and financial 

assistance to landowners and resource managers to help sustain 

the Nation's urban and rural forests and to protect communities and 

the environment from wildland fire.

244,410 -34,996 -12.5%

2.1% Forest Health Management develops and applies technologies for 

use in forest insect, disease and plant survey, monitoring, technical 

assistance, prevention, and suppression.

84,430 -15,936 -15.9%

Federal Land 1.2% The Federal Land Program includes activities carried out in 

cooperation with the National Forest System, other Federal 

agencies and tribal governments.

49,849 -3,589 -6.7%

Cooperative Land 0.8% The Cooperative Lands program includes activities carried out in 

cooperation with the States and territories, local governments, 

private organizations and individual forest landowners.

34,581 -12,347 -26.3%

0.8% Cooperative Fire Protection provides technical and financial 

assistance to States and local fire agencies to promote efficient 

wildland fire protection on Federal, State, and private lands.

32,818 -6,023 -15.5%

State Fire 

Assistance

0.7% The State Fire Assistance program provides financial assistance to 

State foresters for all fire management activities.

26,960 -5,970 -18.1%

Volunteer Fire 

Assistance

0.1% The Volunteer Fire Assistance program provides technical and 

financial assistance through the States to local organizations to 

protect State and private forestlands threatened by wildfire.

5,858 -53 -0.9%

Cooperative Forestry 3.0% Cooperative Forestry works with States, tribal governments, 

communities and private landowners to improve management, 

protection, and use of forest-based goods and services, in addition 

to building civic capacity to achieve long-term goals for sustainable 

development.

122,241 -11,061 -8.3%

Forest Stewardship 0.8% Forest Stewardship provides landowners with technical assistance 

and multi-resource management plans to promote the practice of 

sustainable forestry.

33,880 -309 -0.9%

Forest Legacy 1.5% Forest Legacy works with State governments and local entities to 

safeguard working forests and open space through the purchase of 

conservation easements or fee simple titles.

61,515 4,979 8.8%

Urban and 

Community Forestry

0.7% Urban and Community Forestry assists communities and volunteer 

organizations in assessing, retaining and protecting their natural 

environment. Efforts are focused on stimulating communities to 

achieve high citizen participation in the care of urban trees and 

forests.

26,846 -1,605 -5.6%

Economic Action 0.0% Economic Action provides funding to local communities to stimulate 

local private enterprise and local community action to treat 

forestland and maintain healthy forests and grasslands

0 -9,537 -100%

Forest Resource 

Information & 

Analysis

0.0% FRIA provides cost-share financial assistance to states to support 

the nationwide Forest Inventory and Analysis (FIA) program.

0 -4,589 -100%

International Forestry 0.1% International Forestry coordinates the Forest Service's efforts in 

technical cooperation and policy assistance for countries outside the 

United States, with the focus on fostering sustainable forest 

management.

4,921 -1,976 -28.7%

Forest Health 

Management

Cooperative Fire 

Protection

FOREST AND 

RANGELAND RESEARCH

STATE & PRIVATE 

FORESTRY

* Percentages are of Discretionary Funds only
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 15 

% of 

Total 

Budget 

* Program Description FY 2007

FY 2007 

vs. 

FY 2006

% 

Change

Major Program Area, 

Program, and SubProgram

34.1% The National Forest System provides for the stewardship and 

management of 193 million acres of Federal lands.

1,398,066 -5,325 -0.4%

1.4% Land Management Planning is responsible for developing and 

revising forest plans, which establish a framework for conforming to 

laws and regulations governing national forest management.

55,555 -2,633 -4.5%

Inventory & Monitoring 3.8% Inventory and Monitoring funds inventory, monitoring, assessment, 

and resource mapping activities needed for ecosystem assessment 

and the creation, revision and amendment of land management 

plans 

154,135 -13,540 -8.1%

6.1% Recreation, Wilderness, & Heritage provides the wide range of 

recreation settings, services and infrastructure needed to support 

over 205 million visits each year to national forests. This includes 

management of Wilderness areas and heritage sites on national 

forest lands. 

250,880 -10,419 -4.0%

3.0% Wildlife & Fish Management works to manage habitats and provide 

the ecological conditions necessary to maintain the diversity, 

viability and productivity of plant and animal communities on 

national forest lands.

123,548 -9,318 -7.0%

Grazing Management 1.0% Grazing Management manages the rangeland resources on national 

forest lands to provide goods and services and maintain sustainable 

rangeland ecosystems.

39,735 -8,544 -17.7%

Forest Products 7.6% Forest Products manages the timber sale program of the Forest 

Service. The timber sale program is a tool for accomplishing 

vegetation management objectives and provides a supply of forest 

products to society.

310,114 29,999 10.7%

4.6% Vegetation & Watershed Management focuses on the restoration, 

enhancement and maintenance of watershed conditions, including 

soil, air, water and forest and rangeland vegetation.

187,582 6,240 3.4%

2.0% Minerals and Geology Management provides inspection and 

monitoring of mineral operations on national forest land and 

conducts environmental review of proposed operations.

81,242 -3,359 -4.0%

2.1% Land Ownership Management provides for land purchase, 

ownership and boundary adjustment, authorized uses, trespass and 

title claim resolution and the survey and location of National Forest 

System property lines and other special land boundaries.

84,285 -7,346 -8.0%

2.7% Law Enforcement Operations works to provide a safe environment 

for the public and Forest Service employees on National Forest 

System lands.

110,000 22,113 25.2%

Other 0.0% This includes miscellaneous programs, primarily the management of 

Valles Caldera National Preserve.

990 -4,084 -80.5%

43.2% Wildland Fire Management works to protect life, property and 

natural resources from wildfire on National Forest and adjacent 

lands, while recognizing the importance of fire in natural land 

processes.

1,768,195 14,981 0.9%

Preparedness 16.0% Preparedness activities include wildfire prevention, detection, 

information and education, pre-incident training, equipment and 

supply purchase and replacement. All of these activities support the 

work of the Suppression division.

655,887 -10,181 -1.5%

Suppression 18.2% Suppression funds to suppress wildland fires on or threatening 

National Forest System lands, including paying for Forest Service 

firefighter salaries and equipment maintenance.

746,176 55,990 8.1%

Hazardous Fuels 7.1% Hazardous Fuels program works to decrease the incidence of large, 

destructive wildfires by reducing the volume of hazardous fuels on 

forests, woodlands, shrublands and grasslands.

291,792 9,999 3.5%

Other 1.8% Includes all other Forest Service programs related to fire fighting 

and wildfire management.

74,340 -40,827 -35.5%

Wildlife & Fish 

Management

Land Management 

Planning

NATIONAL FOREST 

SYSTEM

WILDLAND FIRE 

MANAGEMENT

Recreation, Wilderness, & 

Heritage

Vegetation & Watershed 

Management

Minerals & Geology 

Management

Land Ownership 

Management

Law Enforcement 

Operations

* Percentages are of Discretionary Funds only 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page 16 

% of 

Total 

Budget 

* Program Description FY 2007

FY 2007 

vs. 

FY 2006

% 

Change

Major Program Area, 

Program, and SubProgram

9.3% Capital Improvements & Maintenance provides funding to improve 

and maintain facilities, roads and trails infrastructure for recreation, 

fire, administrative and other uses.

382,601 -52,086 -12.0%

Facilities 3.2% Facilities program provides improvements and program operations 

for the Forest Services' multi-billion dollar facilities infrastructure.

130,140 5,325 4.3%

Roads 4.5% Roads program provides for the maintenance, capita improvement, 

decommissioning and management of 380,000 miles of National 

Forest System roads.

182,787 -39,394 -17.7%

Trails 1.5% Trails program finds the operation, maintenance and rehabilitation of 

approximately 133,000 miles of trails.

60,341 -14,541 -19.4%

Deferred Maintenance 0.2% Deferred Maintenance is maintenance that is not performed as 

needed and is then postponed to a later date.

9,333 -3,476 -27.1%

0.6% Land Acquisition program allows the Forest Service to acquire 

lands, waters and related interests within the National Forests 

System.

25,075 -16,800 -40.1%

0.2% Other programs not specific to major budget area 9,307 1,121 13.7%

0.1% The Range Betterment Fund provides for range improvements 

(including seedlings) to improve forage conditions.

3,932 1,012 34.7%

0.0% Includes the acceptance of gifts, donations and bequests for deposit 

into a special account to be used to establish or operate any forest 

or rangeland research facility.

63 0 0.0%

Subsistence Uses 0.1% Subsistence Uses provides for enforcement of Federal subsistence 

hunting and fishing regulations in pursuance to the 1980 Alaska 

National Interest Lands Conservation Act.

5,312 319 6.4%

100.0% Total of all discretionary appropriations listed above. 4,096,730 -104,032 -2.5%

Mandatory Appropriations include the 18 permanent appropriations 

and 4 trust funds that are used to accomplish a variety of Forest 

Service work.

769,888 -31,960 -4.0%

Includes all mandatory and discretionary appropriations 4,866,618 -124,992 -2.5%

CAPITAL IMPROVEMENT 

& MAINTENANCE

LAND ACQUISITION

OTHER APPROPRIATIONS

TOTAL FOREST SERVICE 

APPROPRIATIONS

TOTAL DISCRETIONARY 

APPROPRIATIONS

MANDATORY 

APPROPRIATIONS

Range Betterment Fund

Gifts, Donations, & 

Bequests

* Percentages are of Discretionary Funds only 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page 17 

Appendices 

A - Forest Service Organization 

B - Three Year Budget Summary of Appropriations 

C - FY 2007 Budget Request vs. FY 2006 after Reprogramming and Transfers 

D - Three Year Budget Summary of Full-Time Equivalents 

E - Three Year Receipts by Source and Payments to States 

F - FY 2004-08 Strategic Plan 

G - Activity Output Table 

H - FY 2007 Capital Improvement Projects 

I - Timber Harvest Volume, FY 2005 – FY 2007 

J - FY 2007 Proposed Land Acquisition Program 

K - FY 2007 Proposed Forest Legacy Program 

L - Four Year Healthy Forest Initiative Funding and Accomplishment Table 

M - Forest Service Efficiency Savings and Buying Power 

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 6, 2006 Page A - 1 

Forest Service Organization 

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

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

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

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

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

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

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

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

Programs, Legislation, and Communication.

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

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

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

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

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

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

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

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

and wildlife habitat. 

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

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

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

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

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

foresters. 

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

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

forester has broad responsibility for coordinating activities among the various forests

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

programs, and for coordinated regional land use planning. 

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

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

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

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

people of the 20 Northeastern and Midwestern States and the District of Columbia.

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

Development organization includes six research stations, the Forest Products Laboratory,

and the International Institute of Tropical Forestry. Station directors, like regional
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 6, 2006 Page A- 2 

foresters, report to the Chief. Research stations include North Central, Northeastern, 

Pacific Northwest, Pacific Southwest, Rocky Mountain, and Southern. There are 133 

research work units located at 65 sites throughout the United States. 

Centralized Business Services: In FY 2004 and FY 2005, the agency began centralizing 

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

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

report to the Deputy Chief for Business Operations. Most employees in two of these 

areas, B&F and HRM, are (or will be) located at the Albuquerque Service Center 

(ASC). Some IRM employees are at the ASC but most are housed in locations across the 

country. 

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

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

USDA Forest Service 

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

Overview of FY 2007 President’s Budget 

February 10, 2006 - Revised Page B-1 

Three Year Budget Summary of Appropriations 

FY 2007

FY 2005 FY 2006 Program FY 2007 vs

Final Enacted PayCosts Changes Budget FY 2006

Discretionary Appropriations

Forest & Rangeland Research

Research and Development $276,384 $278,929 $3,446 -$14,584 $267,791 -$11,138

Total, Forest & Rangeland Research $276,384 $278,929 $3,446 -$14,584 $267,791 -$11,138

State and Private Forestry

Forest Health Management

Forest Health Fed Lands $54,236 $53,438 $755 -$4,344 $49,849 -$3,589

Forest Health Fed Lands - Supplemental & Emergen $100 $0 $0 $0 $0 $0

Forest Health Coop Lands $47,629 $46,928 $102 -$12,449 $34,581 -$12,347

Forest Health Coop Lands - Supplemental & Emerg $2,000 $0 $0 $0 $0 $0

Total, Forest Health Mmgt $103,965 $100,366 $857 -$16,793 $84,430 -$15,936

Cooperative Fire Assistance

State Fire Assistance $32,920 $32,930 $97 -$6,067 $26,960 -$5,970

State Fire Assistance - Supplemental & Emergency $16,000 $0 $0 $0 $0 $0

Volunteer Fire Assistance $5,917 $5,911 $0 -$53 $5,858 -$53

Volunteer Fire Assistance - Supplemental & Emerge $4,000 $0 $0 $0 $0 $0

Total, Cooperative Fire Assistance $58,837 $38,841 $97 -$6,120 $32,818 -$6,023

Cooperative Forestry

Forest Stewardship $32,320 $34,189 $132 -$441 $33,880 -$309

Forest Stewardship - Supplemental & Emergency $20,000 $0 $0 $0 $0 $0

Forest Legacy $57,134 $56,536 $43 $4,936 $61,515 $4,979

Urban & Community Forestry $31,950 $28,451 $110 -$1,715 $26,846 -$1,605

Urban & Community Forestry - Supplemental & Em $17,000 $0 $0 $0 $0 $0

Economic Action $19,032 $9,537 $69 -$9,606 $0 -$9,537

Economic Action - Supplemental & Emergency $0 $0 $0 $0 $0 $0

Forest Res Info & Analysis $4,958 $4,589 $23 -$4,612 $0 -$4,589

Total, Cooperative Forestry $182,394 $133,302 $377 -$11,438 $122,241 -$11,061

International Forestry $6,410 $6,897 $38 -$2,014 $4,921 -$1,976

Subtotal, Regular Appropriations $292,506 $279,406 $1,369 -$36,365 $244,410 -$34,996

Emergency & Supplemental Funding $59,100 $30,000 $0 -$30,000 $0 -$30,000

Total, S&PF $351,606 $309,406 $1,369 -$66,365 $244,410 -$64,996

(dollars in thousands)
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 10, 2006 - Revised Page B-2 

FY 2007

FY 2005 FY 2006 Program FY 2007 vs

Final Enacted PayCosts Changes Budget FY 2006

Discretionary Appropriations

National Forest System

Land Management Planning $63,167 $58,188 $759 -$3,392 $55,555 -$2,633

Inventory & Monitoring $167,302 $167,675 $2,091 -$15,631 $154,135 -$13,540

Inventory & Monitoring - Supplemental & 

Emergency $200 $0 $0 $0 $0 $0

Recreation, Wilderness & Heritage $257,343 $261,299 $3,913 -$14,332 $250,880 -$10,419

Recreation, Wilderness & Heritage - Supplemental & 

Emergency $1,559 $0 $0 $0 $0 $0

Wildlife & Fish Management $134,749 $132,866 $1,850 -$11,168 $123,548 -$9,318

Wildlife & Fish Management - Supplemental & 

Emergency $1,104 $0 $0 $0 $0 $0

Grazing Management $48,034 $48,279 $745 -$9,289 $39,735 -$8,544

Forest Products $273,247 $280,115 $4,550 $25,449 $310,114 $29,999

Forest Products - Supplemental & Emergency $1,796 $0 $0 $0 $0 $0

Vegetation & Watershed Management $189,614 $181,342 $2,340 $3,900 $187,582 $6,240

Vegetation & Watershed Management - 

Supplemental & Emergency $6,691 $0 $0 $0 $0 $0

Minerals & Geology Management $55,747 $84,601 $850 -$4,209 $81,242 -$3,359

Minerals & Geology Management - Supplemental & 

Emergency $0 $0 $0 $0 $0 $0

Landownership Management $92,129 $91,631 $1,294 -$8,640 $84,285 -$7,346

Landownership Management - Supplemental & 

Emergency $1,443 $0 $0 $0 $0 $0

Law Enforcement Operations $86,014 $87,887 $1,196 $20,917 $110,000 $22,113

Valles Caldera $3,599 $5,074 $1 -$4,085 $990 -$4,084

Hazardous Fuels [$262,539] [$281,793] [$3,620] --- $0 $0

Hazardous Fuels - Supplemental & Emergency [$31,028] [$0] $0 --- $0 $0

Centennial of Service Challenge $9,861 $4,434 $29 -$4,463 $0 -$4,434

Subtotal, Regular Appropriations w/o Supp& Emergen $1,380,806 $1,403,391 $19,618 -$24,943 $1,398,066 -$5,325

Supplemental & Emergency Funding $12,793 $20,000 $0 -$20,000 $0 -$20,000

Total, NFS $1,393,599 $1,423,391 $19,618 -$44,943 $1,398,066 -$25,325

Wildland Fire Management

Preparedness $676,470 $666,068 $8,744 -$18,925 $655,887 -$10,181

Preparedness - Supplemental & Emergency $742 $0 $0 $0 $0 $0

Fire Operations - Suppression

Regular Appropriations $648,859 $690,186 $5,422 $50,568 $746,176 $55,990

Supplemental & Emergency Funding $394,443 $0 $0 $0 $0 $0

Total, Fire Ops - Suppression $1,043,302 $690,186 $5,422 $50,568 $746,176 $55,990
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 10, 2006 - Revised Page B-3 

FY 2007

FY 2005 FY 2006 Program FY 2007 vs

Final Enacted PayCosts Changes Budget FY 2006

Discretionary Appropriations

Fire Operations - Other

Hazardous Fuels $262,539 $281,793 $3,620 $6,379 $291,792 $9,999

Hazardous Fuels - Supplemental & Emergency $30,286 $0 $0 $0 $0 $0

Rehab & Restoration $12,819 $6,188 $63 -$4,271 $1,980 -$4,208

Fire Research & Development $21,719 $22,877 $242 -$2,998 $20,121 -$2,756

Joint Fire Sciences Program $7,889 $7,882 $0 -$3,922 $3,960 -$3,922

NFP Forest Health - Fed Lands $14,792 $14,780 $198 -$8,176 $6,802 -$7,978

NFP Forest Health - Coop Lands $9,861 $9,852 $12 -$5,312 $4,552 -$5,300

NFP State Fire Assistance $40,179 $45,816 $3 -$16,704 $29,115 -$16,701

NFP Volunteer Fire Assistance $7,889 $7,772 $0 $38 $7,810 $38

Total, Fire Ops - Other $407,973 $396,960 $4,138 -$34,966 $366,132 -$30,828

Subtotal, Regular Appropriations $1,703,016 $1,753,214 $18,304 -$3,323 $1,768,195 $14,981

Supplemental & Emergency funding $425,471 $0 $0 $0 $0 $0

Total, WFM $2,128,487 $1,753,214 $18,304 -$3,323 $1,768,195 $14,981

Capital Improvement & Maintenance

Facilities $198,769 $124,815 $768 $4,557 $130,140 $5,325

Facilities - Supplemental & Emergency $19,805 $0 $0 $0 $0 $0

Roads $226,396 $222,181 $2,328 -$41,722 $182,787 -$39,394

Roads - Supplemental & Emergency $55,544 $0 $0 $0 $0 $0

Trails $75,707 $74,882 $1,045 -$15,586 $60,341 -$14,541

Trails - Supplemental & Emergency $9,216 $0 $0 $0 $0 $0

Deferred Maintenance $13,829 $12,809 $65 -$3,541 $9,333 -$3,476

Subtotal, Regular Appropriations $514,701 $434,687 $4,206 -$56,292 $382,601 -$52,086

Supplemental & Emergency Funding $84,565 $7,000 $0 -$7,000 $0 -$7,000

Total, CI&M $599,266 $441,687 $4,206 -$63,292 $382,601 -$59,086

Land Acquisition

Land Acquisitions $61,007 $41,875 $232 -$17,032 $25,075 -$16,800

Acquisition of Lands for National Forests, Special Ac $1,054 $1,053 $0 $0 $1,053 $0

Acquisition of Lands to Complete Land Exchanges $231 $231 $0 $0 $231 $0

Total, Land Acquisition $62,292 $43,159 $232 -$17,032 $26,359 -$16,800

Other Appropriations

Gifts, Donations, and Bequests for Research $64 $63 $0 $0 $63 $0

Range Betterment Fund $2,472 $3,130 $19 $783 $3,932 $802

Subsistence Mgmt (R10) $5,879 $4,993 $33 $285 $5,311 $318

Total, Other Appropriations $8,415 $8,186 $52 $1,068 $9,306 $1,120

Subtotal, Discretionary Appropriations -- nonemergency

$4,238,120 $4,200,972 $47,227 -$151,471 $4,096,728 -$104,244

Supplemental & Emergency Funding $581,929 $57,000 $0 -$57,000 $0 -$57,000

Total, Discretionary Appropriations $4,820,049 $4,257,972 $47,227 -$208,471 $4,096,728 -$161,244

(dollars in thousands)
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 10, 2006 - Revised Page B-4 

FY 2007

FY 2005 FY 2006 Program FY 2007 vs

Final Enacted PayCosts Changes Budget FY 2006

Mandatory Appropriations

Permanent Appropriations 

Brush Disposal $12,643 $12,500 $155 $345 $13,000 $500

Licensee Program $95 $70 $0 $0 $70 $0

Restoration of Forestlands & Improvements $7,824 $3,000 $5 -$5 $3,000 $0

Rec Fee Collection Costs $380 --- --- --- --- ---

Fed Lands Recreation Enhancement Fund $50,245 $52,850 $677 $1,323 $54,850 $2,000

Fed Lands and Facilities Enhancement Fund $211 $37,000 $80 $10,920 $48,000 $11,000

Timber Roads - Purchaser Election $6,800 $6,800 $0 -$2,800 $4,000 -$2,800

Timber Salvage Sale $71,185 $60,000 $907 -$2,907 $58,000 -$2,000

Stewardship Contracting [$2,039] $5,926 $0 -$926 $5,000 -$926

Timber Sales Pipeline Restoration $4,914 $4,500 $127 -$127 $4,500 $0

Roads and Trails $15,712 $18,850 $69 -$69 $18,850 $0

Midewin - Rental Fees $287 $400 $0 $0 $400 $0

Midewin - Restoration $0 $5 $0 $0 $5 $0

Operation & Maintenance of Quarters $7,377 $8,000 $62 -$62 $8,000 $0

LBL Management Fund $3,571 $3,600 $18 -$18 $3,600 $0

Administration of Rights 0f Way $497 $1,300 $3 $2,322 $3,625 $2,325

Forest Botanical Products $1,396 $1,800 $0 $50 $1,850 $50

Valles Caldera Fund $109 $500 $0 $0 $500 $0

Total, Permanent $183,246 $217,101 $2,103 $8,046 $227,250 $10,149

Payment to States $415,346 $445,139 $138 -$31,675 $413,602 -$31,537

Trust Funds

Cooperative Work - KV $228,945 $50,000 $1,734 -$1,734 $50,000 $0

Cooperative Work - Other $34,311 $48,000 $372 -$372 $48,000 $0

Subtotal, Cooperative Work $263,256 $98,000 $2,106 -$2,106 $98,000 $0

LBL Trust Fund $173 $188 $0 $28 $216 $28

Reforestation Trust Fund $30,000 $30,000 $264 -$264 $30,000 $0

Total, Trust Funds $293,429 $128,188 $2,370 -$2,342 $128,216 $28

Total, Mandatory Appropriations $892,021 $790,428 $4,611 -$25,971 $769,068 -$21,360

Subtotal, FS non-emergency $5,130,141 $4,991,400 $51,838 -$177,442 $4,865,796 -$125,604

Subtotal, FS supplemental & emergency $581,929 $57,000 $0 -$57,000 $0 -$57,000

Grand Total, FS $5,712,070 $5,048,400 $51,838 -$234,442 $4,865,796 -$182,604

(dollars in thousands)
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 23, 2006 - Revised Page C-1 

FY 2007 Budget Request vs. FY 2006 after 

Reprogramming and Transfers 

FY 2007

vs

FY 2006 FY 2007

Enacted Budget

Discretionary Appropriations

Forest & Rangeland Research

 Forest Inventory & Analysis $59,380 $59,380 $59,329 -$51

Research and Development $219,549 $218,331 $208,462 -$9,869

Total, Forest & Rangeland Research $278,929 $277,711 $267,791 -$9,920

State and Private Forestry

Forest Health Management

Forest Health Fed Lands $53,438 $53,163 $49,849 -$3,314

Forest Health Coop Lands $46,928 $46,904 $34,581 -$12,323

Total, Forest Health Mmgt $100,366 $100,067 $84,430 -$15,637

Cooperative Fire Assistance

State Fire Assistance $32,930 $32,895 $26,960 -$5,935

Volunteer Fire Assistance $5,912 $5,912 $5,858 -$54

Total, Cooperative Fire Assistance $38,842 $38,807 $32,818 -$5,989

Cooperative Forestry

Forest Stewardship $34,188 $34,144 $33,880 -$264

Forest Legacy $56,536 $56,524 $61,515 $4,991

Urban & Community Forestry $28,450 $28,413 $26,846 -$1,567

Economic Action $9,537 $9,537 $0 -$9,537

Forest Res Info & Analysis $4,588 $4,588 $0 -$4,588

Total, Cooperative Forestry $133,299 $133,206 $122,241 -$10,965

International Forestry $6,897 $6,886 $4,921 -$1,965

Emergency Appropriation (PL 109-148) $30,000 $30,000 $0 -$30,000

Total, S&PF $309,404 $308,966 $244,410 -$64,556

National Forest System

Land Management Planning $58,188 $57,675 $55,555 -$2,120

Inventory & Monitoring $167,675 $166,638 $154,135 -$12,503

Recreation, Wilderness & Heritage $261,298 $258,797 $250,880 -$7,917

Wildlife & Fish Management $132,866 $131,734 $123,548 -$8,186

Grazing Management $48,279 $47,826 $39,735 -$8,091

Forest Products $280,114 $277,583 $310,114 $32,531

Vegetation & Watershed Management $181,342 $179,852 $187,582 $7,730

Minerals & Geology Management $84,602 $84,164 $81,242 -$2,922

Landownership Management $91,632 $90,932 $84,285 -$6,647

Law Enforcement Operations $87,888 $110,937 $110,000 -$937

Valles Caldera $5,074 $5,074 $990 -$4,084

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

Emergency Appropriations (PL 109-148) $20,000 $20,000 $0 -$20,000

Total, NFS $1,423,392 $1,435,646 $1,398,066 -$17,580

FY 2006 

after R & T

FY 2006 

after R & T
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 23, 2006 - Revised Page C-2 

FY 2007 Budget Request vs. FY 2006 after 

Reprogramming and Transfers 

(dollars in thousands)

FY 2007

vs

FY 2006 FY 2007

Enacted Budget

Wildland Fire Management

Preparedness $666,068 $660,705 $655,887 -$4,818

Fire Operations - Suppression

Regular Appropriations $690,186 $690,186 $746,176 $55,990

Total, Fire Ops - Suppression $690,186 $690,186 $746,176 $55,990

Fire Operations - Other

Hazardous Fuels $281,792 $280,119 $291,792 $11,673

Rehab & Restoration $6,189 $6,189 $1,980 -$4,209

Fire Research & Development $22,877 $22,789 $20,121 -$2,668

Joint Fire Sciences Program $7,882 $7,882 $3,960 -$3,922

NFP Forest Health - Fed Lands $14,779 $14,779 $6,802 -$7,977

NFP Forest Health - Coop Lands $9,853 $9,853 $4,552 -$5,301

NFP State Fire Assistance $45,816 $45,816 $29,115 -$16,701

NFP Volunteer Fire Assistance $7,773 $7,773 $7,810 $37

Total, Fire Ops - Other $396,961 $395,200 $366,132 -$29,068

Total, WFM $1,753,215 $1,746,091 $1,768,195 $22,104

Capital Improvement & Maintenance

Facilities Maintenance $50,764 $50,172 $69,466 $19,294

Facilities Improvements $74,051 $73,526 $60,674 -$12,852

Roads Maintenance $145,888 $144,832 $92,787 -$52,045

Roads Improvements $76,293 $75,856 $90,000 $14,144

Trails Maintenance $41,382 $40,908 $35,509 -$5,399

Trails Improvements $33,500 $33,297 $24,832 -$8,465

Deferred Maintenance $12,809 $12,743 $9,333 -$3,410

Emergency Appropriations (PL 109-148) $7,000 $7,000 $0 -$7,000

Total, CI&M $441,687 $438,335 $382,601 -$48,733

Land Acquisition

Acquisitions $28,081 $28,081 $16,778 -$11,303

Acquisition Management $12,316 $12,213 $8,297 -$3,916

Cash Equalization $493 $493 -$493

Critical Inholdings/wilderness protection $985 $985 -$985

Total, Land Acquisition $41,875 $41,772 $25,075 -$16,697

Other Appropriations

Acquisition of Lands for National Forests, Special Acts $1,053 $1,053 $1,053 $0

Acquisition of Lands to Complete Land Exchanges $231 $231 $231 $0

Range Betterment Fund $2,920 $2,920 $3,932 $1,012

Gifts, Donations, and Bequests for Research $63 $63 $63 $0

Subsistence Mgmt (R10) $4,993 $4,975 $5,311 $336

Total, Other Appropriations $9,260 $9,242 $10,590 $1,348

Total, Discretionary Appropriations $4,257,762 $4,257,762 $4,096,728 -$134,034

** Committee on Appropriations approved one Forest Service reprogramming request of $131,400 from facility 

construction to road construction in FY 2006 and instructed transfer of funds to Law Enforcement to fully pay overhead 

costs.

FY 2006 

after R & T

FY 2006 

after R & T
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page D-1 

Three Year Budget Summary of Full-Time Equivalents 

FY 2007

FY 2005 FY 2006 FY 2007 vs

FTEs FTEs FTEs FY 2006

Discretionary Appropriations

Forest & Rangeland Research

Forest & Rangeland Research 2,520 2,379 2,405 26

Fire Research & Development 176 167 166 -1

Joint Fire Sciences Program 0 0 0 0

Gifts, Donations, and Bequests for Research 3 0 0 0

Total, Forest & Rangeland Research 2,699 2,546 2,571 25

State & Private Forestry

Forest Health Management

Forest Health - Fed Lands 457 458 457 -1

NFP Forest Health - Fed Lands 118 120 120 0

Forest Health - Coop Lands 61 62 62 0

NFP Forest Health - Coop Lands 8 7 7 0

Total--Forest Health Management 644 647 646 -1

Cooperative Fire Protection

State Fire Assistance 57 59 58 -1

NFP State Fire Assistance 2 2 2 0

Volunteer Fire Assistance 0 0 0 0

NFP Volunteer Fire Assistance 0 0 0 0

Total--Cooperative Fire Protection 59 61 60 -1

Cooperative Forestry

Forest Stewardship 79 80 82 2

Forest Legacy 24 26 26 0

Urban & Community Forestry 66 67 67 0

Economic Action 52 42 0 -42

Forest Res Info & Analysis 19 14 0 -14

Total--Cooperative Forestry 240 229 175 -54

International Forestry 25 23 25 2

Total, State & Private Forestry 968 960 906 -54
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page D-2 

FY 2007

FY 2005 FY 2006 FY 2007 vs

FTEs FTEs FTEs FY 2006

Discretionary Appropriations

National Forest System

Land Management Planning 616 558 579 21

Inventory & Monitoring 1,565 1,538 1,432 -106

Recreation, Wilderness, & Heritage 2,873 2,878 2,874 -4

Wildlife & Fish Management 1,396 1,361 1,346 -15

Grazing Management 552 548 466 -82

Forest Products 3,269 3,347 3,770 423

Vegetation & Watershed Management 1,817 1,721 1,858 137

Minerals & Geology Management 592 625 642 17

Landownership Management 982 952 888 -64

Law Enforcement Operations 695 880 823 -57

Valles Caldera National Preserve 1 1 0 -1

Centennial of Service 51 21 0 -21

NFP-Rehabilitation and Restoration 88 46 15 -31

Total, National Forest System 14,497 14,476 14,693 217

Wildland Fire Management

Preparedness 6,678 5,725 6,228 503

Fire Operations - Suppression 2,113 3,350 3,097 -253

Fire Operations - Other

Hazardous Fuels 2,344 2,370 2,275 -95

Total, Wildland Fire Management 11,135 11,445 11,600 155

Capital Improvement & Maintenance

Facilities 1,024 583 662 79

Roads 1,824 1,766 1,534 -232

Trails 809 793 620 -173

Deferred Maintenance 54 49 39 -10

Total, Capital Improvement & Maintenance 3,711 3,191 2,855 -336

Land Acquisitions

Land Acquisitions 120 118 102 -16

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 0

Total, Land Acquisitions 120 118 102 -16

Other Appropriations

Range Betterment Fund 16 19 19 0

Management of NF Lands for Subsistence Uses 26 24 26 2

Total--Other Appropriations 42 43 45 2

Total, Discretionary Appropriations 33,172 32,779 32,772 -7

Total, Mandatory Appropriations 2,832 3,079 3,208 129

Total, Working Capital Fund 627 627 627 0

Grand Total, Forest Service 36,631 36,485 36,607 122
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page E-1 

Three Year Receipts by Source and Payments to States Table 

FY 2005 FY 2006 FY 2007

Revenues and Receipts ACTUAL ESTIMATE ESTIMATE

Deposits in the National Forest Fund, and the National Grasslands 

Fund. 

National Forest Fund Receipts for Sale of Products or Use of 

Land

 Timber 77,108 126,000 126,000

 Grazing 6,410 8,000 8,000

 Land Uses 12,153 12,500 12,500

 Recreation, Admission, and User Fees 44,632 41,700 41,700

 Power 2,278 2,530 2,530

 Minerals 2,897 3,100 3,250

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Subtotal 145,478 193,830 193,980

National Grasslands Fund and Land Utilization Projects 

Receipts

 Grazing 664 700 700

 Minerals 40,297 42,000 45,000

 Other 330 340 340

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Subtotal 41,291 43,040 46,040

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Subtotal of Receipts that are deposited into the National Forest 

Fund, and the National Grasslands Fund. 186,769 236,870 240,020

National Forest Fund Receipts, National Grassland Receipts, 

and/or Land Utilization Project Receipts which are transferred 

to Permanent and Other Appropriations by Special Acts

 Acquisition of Lands for National Forests, Special Acts 1,054 1,053 1,058

 Ten-Percent Roads and Trails Fund 15,712 18,850 18,850

 Range Betterment Fund (50 Percent Grazing) 2,472 3,130 3,932

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

 Recreation Fee Collection Costs 380 na na

 Timber Sales Pipeline Restoration Fund 4,914 4,500 4,500

 Midewin NTP Rental Fees 287 400 400

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Subtotal--Transfers to Permanent Appropriations and Others 31,619 34,733 32,740

Total -- National Forest Fund Receipts, National Grasslands 

Receipts, and Land Utilization Project Receipts on deposit that 

are the source of funds for Payments to States, or any returns to 

the Treasury 155,150 202,137 207,280
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page E-2 

FY 2005 FY 2006 FY 2007

Revenues and Receipts ACTUAL ESTIMATE ESTIMATE

Receipts that are considered to be National Forest Fund 

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

deposited directly into the following Permanent and Trust 

Funds

Timber Sale Area Improvement (Knutson-Vandenburg Fund) 228,945 50,000 50,000

Timber Salvage Sales 71,185 60,000 58,000

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Subtotal--Deposits to Permanent and Trust Appropriations 300,130 110,000 108,000

Credits to Timber Purchasers that are considered to be 

National Forest Fund receipts for the purposes of the 1908 

Act, but are not a receipt of funds.

Timber Roads

Purchaser Credit Program, non-add 2,810 1,000 1,000

Specified Road Costs, non-add 16,542 18,000 20,000

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Subtotal--Credits 19,352 19,000 21,000

Grand Total -- National Forest Fund, National Grasslands Fund, 

and Land Utilization Project Receipts, 

plus deposits and credits deemed to be National Forest Fund for 

the purposes of the 1908 Act 506,251 365,870 369,020

Permanent Appropriations, Cooperative Work, and Other 

Appropriations not deemed to be National Forest Fund receipts 

for the purposes of the 1908 Act

 Brush Disposal 12,643 12,500 13,000

Stewardship Contracting retained receipts [2,039] 5,926 5,000

 Cooperative Contributions 34,311 48,000 48,000

 Midewin NTP Restoration Fund 0 5 5

 Licensee Programs 95 70 70

Federal Lands Recreation Enhancement Fund 50,245 52,850 54,850

 Operation and Maintenance of Quarters 7,377 8,000 8,000

Federal Land and Facility Enhancement Fund 211 37,000 48,000

 Restoration of Forestlands and Improvements 7,824 3,000 3,000

 Acquisition of Lands to Complete Land Exchanges 960 231 232

 Gifts, Donations, and Bequests for Research 64 63 63

 Administration of Rights-of-Way, Other Land Uses 497 1,300 3,625

 Land Between the Lakes (LBL) Management Fund 3,571 4,000 4,400

 Land Between the Lakes (LBL) Trust Fund 173 188 216

 Valles Caldera Fund 109 500 500

Forest Botanical Products 1,396 1,800 1,850

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Total -- Receipts deposited for Permanent Appropriations, 

Cooperative Work, and Other Appropriations 119,476 175,433 190,811

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Total--Forest Service Receipts 637,994 557,036 571,571
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page E-3 

FY 2005 FY 2006 FY 2007

Revenues and Receipts ACTUAL ESTIMATE ESTIMATE

Revenues received by other agencies for activities on National 

Forest Lands

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

Mineral Leases on Public Domain Lands, Acquired Lands, and 

Oregon and California Grant Lands, estimated 1/ 645,000 765,000 765,000

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Total -- Revenues to other agencies for activities on National Forest 

Lands 665,000 785,000 785,000

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Grand Total--Revenues and Receipts from National 

Forest Lands 1,302,994 1,342,036 1,356,571

Payments and Transfers for States and Counties. 2/

Payments and Transfers from National Forest Fund Receipts 3/

Payment to Minnesota 2,102 2,102 2,102

Payments to States, Act of 1908 7,227 6,653 7,000

Secure Rural Schools & Community Self-Determination Act

Payment to States, Title I & III 50,926 75,352 120,000

Transfer to Forest Service, Title II 33,009 33,642 34,000

Payments from U.S. Treasury funds

Secure Rural Schools & Community Self-Determination Act

Payment to States, Title I & III 4/ 309,915 295,912 242,000

Payments from National Grasslands and Land Utilization Project 

receipts

Payments to Counties 6,834 7,000 7,500

~~~~~~~~~ ~~~~~~~~~ ~~~~~~~~~

Total--Payments and Transfers for States and Counties 410,013 420,661 412,602

Funds to Treasury for National Grasslands and Land Utilization 

Projects after Transfers by Special Acts 3/ 0 30,000 32,000

/3 Transfer to Treasury in 2005 is being reconciled due to anomalies in the historic record. Treasury transfers of prior 

years revenue will be made upon completion

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

those previous years receipts in the fiscal year shown. 

4/ $14 million of declared excess Knutson-Vandenburg funds returned to miscellaneous receipts in FY 2006 will be 

utilized as an additional source of funds for Secure Rural Schools & Community Self-determination Act payment in 

FY 2007, reducing payments from U.S. Treasury funds to the amount shown

1/ Represents receipts from NFS lands which are deposited directly to Department of Interior and Department of 

Energy.

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page F-1 

FY 2004 – FY 2008 STRATEGIC GOALS AND OBJECTIVES 

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

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

that guide program implementation and corresponding performance measures. 

In FY 2006, the Forest Service will complete the 3-year update of its Strategic Plan, in 

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

continuity with the current plan and will be closely linked to the USDA Strategic Plan. 

Strategic Goal Agency Objectives Performance Measures 

1.1 a: Number of acres of hazardous fuels treated 

in the wildland-urban interface and percent 

identified as high priority through collaboration 

consistent with the 10-year Comprehensive 

Strategy Implementation Plan. 

1.1 b: Number of acres in the wildland-urban 

interface treated per $1 million gross investment. 

1.1 c: Number of acres of hazardous fuels treated 

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

or 3 outside the wildland-urban interface, and 

percent identified as high priority through 

collaboration consistent with the 10-Year Plan. 

1.1 d: Number of acres treated outside the 

wildland-urban interface per $1 million gross 

investment. 

1.1 e: Number of acres in Condition Classes 2 or 

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

management activities that improve condition 

class, and percent that were identified as high 

priority through collaboration consistent with the 

10-Year Plan. 

1.1 f: Percent of mechanically treated acres to 

reduce hazardous fuels with byproducts used. * 

1.1: Improve the health of National 

Forest System lands that have the 

greatest potential for catastrophic 

wildland fire. 

1.1 g: Number of acres brought into stewardship 

contracts. * 

1.2.a: Percent of unplanned and unwanted 

wildland fires controlled during initial attack. * 

1.2.b: Number of acres burned by unplanned and 

unwanted wildland fires. * 

1.2: Consistent with resource 

objectives, wildland fires are 

suppressed at a minimum cost, 

considering firefighter and public 

safety, benefits, and values to be 

protected. 

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

resources protected exceeds the cost of 

suppression. * 

1.3 a: Percent of communities at risk with 

completed and current fire management plans or 

risk assessments. * 

1. Reduce the risk 

from catastrophic 

wildland fire 

1.3: Assist 2,500 communities and 

those non-National Forest System 

lands most at risk with developing 

and implementing hazardous fuels 

reduction and fire prevention plans 

and programs. 

1.3 b: Number of acres covered by partnership 

agreements. * 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page F-2 

Strategic Goal Agency Objectives Performance Measures 

2.1 a: Availability and reliability of the annual 

National Risk Assessment survey. 

 2.1 b: Acres treated for selected invasive 

species. 

2. Reduce the 

impacts from 

invasive species 

2.1: Improve the effectiveness of 

treating selected invasive species on 

the Nation’s forests and grasslands. 

2.1 c: Percent change in the rate of spread of 

selected invasive species. 

3.1 a: Miles and percent of trail network 

maintained to standard. * 

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

the passenger car road network. * 

3.1 c: Number and percent of facilities 

maintained to standard. * 

3.1 d: Number and percent of facilities and sites 

that meet accessibility standards. * 

3.1: Improve public access to 

National Forest System land and 

water and provide opportunities for 

outdoor health-enhancing activities. 

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

provide public access. 

3. Provide outdoor 

recreational 

opportunities 

3.2: Improve the management of 

off-highway-vehicle use to protect 

natural resources, promote safety of 

all users, and minimize conflicts 

among various uses through the 

collaborative development and 

implementation of locally based 

travel management plans. 

3.2.a: Percent of National Forest System lands 

covered by travel management implementation 

plans. 

4.1: Work with other agencies to 

identify and designate corridors for 

energy facilities, improve the 

efficiency of processing permit 

applications, and establish 

appropriate land tenure (including 

transferability clauses) in easements 

and other authorizations to provide 

for long-term project viability. 

4.1.a: Percent of energy facility and corridor 

applications approved within prescribed 

timeframes. * 

4. Help meet 

energy resource 

needs 

4.2: Stimulate commercial use of 

small-diameter trees from National 

Forest System lands for biomass 

energy. 

4.2.a: Total biomass from small-diameter and 

low-value trees used for energy production. * 

5.1.a: Number of inventoried forest and grassland 

watersheds in fully functioning condition as a 

percent of all watersheds. 

5.1: Assess and restore high-priority 

watersheds and maintain riparian 

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

under approved stewardship management plans. 

5. Improve 

watershed 

condition 

5.2: Monitor water quality impacts 

of activities on National Forest 

System lands. 

5.2.a: Percent of projects on National Forest 

System lands fully implementing best 

management practices (BMPs). 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page F-3 

Strategic Goal Agency Objectives Performance Measures 

5.2.b: Allotment acres and percent administered 

to 100 percent of standard. 

5.3 a: Terrestrial and aquatic habitat enhanced to 

achieve desired ecological conditions. 

5.3: Restore and maintain native and 

desired nonnative plant and animal 

species diversity in terrestrial and 

aquatic ecosystems and reduce the 

rate of species endangerment by 

contributing to species recovery. 

5.3.b: Value of partnership contributions that 

support habitat enhancement. 

6.1.a: Percent of the Nation for which forest 

inventory and analysis information is accessible 

 6.1: Provide current resource data, to external customers. 

monitoring, and research information 

in a timely manner. 

6.1.b: The percent of research and development 

products or services that meet customer 

expectations as assessed through targeted, 

standardized evaluations. 

6.2.a: Review of financial statement audits and 

implementation of corrective actions based on 

audit findings. 

6.2.b: Average number of days between fiscal 

obligation and transaction data entry into the 

Foundation Financial Information System. 

6.2.c: Extent to which performance data are 

current and complete. 

6.2.d: Number of accounting adjustments 

required to reconcile agency quarterly reports 

with Federal Treasury reports. 

6.2: Meet Federal financial 

management standards and integrate 

budget with performance. 

6.2.e: Number of "business operations internal 

control weaknesses" identified in annual financial 

statement audits. 

6.3: Maintain the environmental, 

social, and economic benefits of 

forests and grasslands by reducing 

their conversion to other uses. 

6.3.a: Acres of land adjustments to conserve the 

integrity of undeveloped lands and habitat quality. 

* 

6. Conduct 

mission-related 

work in addition to 

that which 

supports the 

agency goals 

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

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

Compensation Program cases. 

6.5.a: Number and percent of Land and Resource 

Management Plans developed and revised. 

6.5.b: Percent of data in information systems that 

is current to standard. 

6.5: Develop and maintain the 

processes and systems to provide and 

analyze scientific and technical 

information to address agency 

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

monitoring reports completed. 

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

needing to be updated. 

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

Revised March 1, 2006 Page G-1 

Activity / Output Measures 

The following table of measures presents the Forest Service’s outputs according to appropriation, 

Budget Line Item (BLI), and activity. The agency manages work activities and outputs to 

achieve long-term, on-the-ground outcomes. 

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

BLI. Please refer to those sections for more detailed discussions about the measurements and the 

agency’s plans for meeting output targets. 

80% 78% 72% 72%

78% 84% 88% 90%

--- --- 143,217 61,368

--- --- 44,990 27,399

125,917 104,321 --- ---

--- --- 670,275 314,954

--- --- 160,117 60,302

585,545 747,056 --- ---

9,784 7,723 6,653 5,278

2,800 4,056 2,800 2,800

1,500,000 1,590,464 1,575,000 1,575,000

15,400 13,244 16,250 16,250

224,000 46,181 230,000 130,000

State Fire Assistance

Volunteer Fire Assistance

Forest Stewardship

Volunteer fire departments assisted 

(number)

Measure

Percentage of customers who are satisfied 

with Research and Development products 

and services*

Percent of Nation with accessible FIA data**

Federal acres treated - Invasives*

* Beginning in FY 2006, this measure will be formulated from the American Customer Satisfaction Index, 

an independently administered survey.

** Beginning in FY 2006, this measure will be based on percent of States rather than percent of land 

area.

Federal acres treated - Native plants*

Cooperative lands acres treated - Invasives*

Cooperative lands acres treated - Native 

Communities assisted (number)

Forest health acres managed on Federal 

lands (acres)

 * New measure starting in FY 2006

Forest health acres managed on 

cooperative lands (acres)

Forest Health Management - Cooperative Lands

Appropriation / Budget Line Item

FY 2005 Plan

FY 2005 

Actual FY 2006 Plan FY 2007 Plan

Outputs by Activity

Forest and Rangeland Research

State and Private Forestry

Forest Health Management - Federal Lands

Non-industrial private forestlands (NIPF) 

under approved stewardship management 

plans (number)

Number of NIPF stewardship management 

plans

Forest Legacy Program acres acquired

 * New measure starting in FY 2006

Forest Legacy Program
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

Revised March 1, 2006 Page G-2 

Appropriation / Budget Line Item

FY 2005 Plan

FY 2005 

Actual FY 2006 Plan FY 2007 Plan

Outputs by Activity

Measure

9,600 6,998 6,200 5,800

254,000 149,789 133,300 125,800

565 648 --- ---

130,000 130,000 130,000 130,000

49 48 51 31

37 44 33 33

74,429 55,977 --- ---

17,265,745 29,601,977 30,273,000 ---

--- --- 73,285,000 ---

--- --- --- 16,362,000

118 105 90 ---

--- --- --- 1,250

93 102 69 ---

41 47 18 ---

--- --- --- 53

Number of annual monitor and evaluation 

reports completed

Number of annual monitoring requirements 

completed

Number of landscape scale ecosystem 

assessments completed***

Number of ecosystem assessments 

completed***

* Activity tracked only in FY 2005

** Activity tracked only in FY 2006

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

ecosystem assessments. Difference in last column in FY 2007 is FY 2007 ecosystem assessments 

total minus the FY 2006 broadscale and landscape scale assessments.

Number of Quarter Quads Completed*

Acres of inventory data collection and entry 

completed

Acres of legacy data migrated**

Acres of inventory data collected and 

acquired

Volunteer assistance generated (days)

Communities under broad-based strategic 

plans (number)

Acres of migratory habitat restored

Number of land management plan revisions 

or creations underway

International Forestry

Technical assists to communities (number 

of communities assisted)

Number of land management plan 

amendments underway

Number of broadscale assessments 

underway***

National Forest System

Land Management Planning

Inventory and Monitoring

Urban and Community Forestry

Economic Action Programs
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

Revised March 1, 2006 Page G-3 

78,705,457 91,728,473 80,999,000 ---

1,057,782 1,051,921 2,223,800 ---

n/a n/a n/a 67,700,000

12,767 15,062 13,460 9,200

10,129 11,441 11,899 9,275

6,522 5,797 6,531 6,250

69 48 99 80

--- --- --- 32

1,604 1,623 1,674 1,300

12,826 19,250 13,295 8,600

184,715 230,867 194,530 146,000

2,163 3,390 2,053 1,665

22,116,544 36,503,278 23,089,000 21,517,618

473 543 484 321

335 356 405 ---

3,141,406 3,152,956 --- ---

--- --- 3,417,500 4,656,000

3,158,109 3,966,544 3,071,804 3,200,000

146,338 145,982 165,806 ----

--- --- --- 146,000

Number of PAOT (persons at one time) 

days administered to standard (Developed 

Sites)*

Number of days managed to standard 

(General Forest Areas)*

* In FY 2007, days administered to standard for developed sites and general forest area were combined 

into one activity 

Number of recreation special use 

authorizations administered to standard

Number of priority heritage assets managed 

to standard

Number of wilderness areas managed to 

minimum stewardship level

Number of wild & scenic river areas meeting 

statutory requirements

Number of recreation interpretation & 

education products provided to standard

Number of PAOT days administered to 

standard*

Forest Products

Timber volume sold (Hundred Cubic Feet)

Timber volume harvested (Hundred Cubic 

Feet - CCF)

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

2007.

Number of wildlife interpretation & education 

products provided

Number of allotment acres administered to 

100% of standard

Number of grazing allotments with signed 

decision notices

Number of special forest products permits 

administered*

Number of special forest product permits 

issued*

Grazing Management

Approved timber sale NEPA documents 

(through appeal and litigation)

Timber volume offered (Hundred Cubic Feet 

- CCF)

Wildlife and Fisheries Habitat Management

Miles of stream enhanced

Acres of lake enhanced

Acres of terrestrial habitat enhanced

Recreation, Heritage, and Wilderness

Measure

Appropriation / Budget Line Item

FY 2005 Plan

FY 2005 

Actual FY 2006 Plan FY 2007 Plan

Outputs by Activity
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

Revised March 1, 2006 Page G-4 

73,349 369,109 42,901 80,914

--- --- 61,256 57,952

1,886,109 1,521,286 1,650,000 1,804,660

13,804 13,510 12,406 12,200

75,456 120,040 80,800 115,702

265 241 322 330

197 229 --- ---

13,069 13,712 13,256 12,533

6,446 8,017 6,548 6,587

760 549 1,051 0

--- --- --- 561

--- --- 10% ---

--- --- 11% ---

--- --- 312 960

--- --- 17 195

--- --- 25 80

20,653 353,770 20,824 9,523

348 406 274 ---

--- --- --- 230

2,352 2,365 2,241 1,851

8,237 6,740 6,373 6,350

1,858 4,083 1,725 1,785

Number of geologic resource and hazard 

sites managed***

Percent of inspections/audit findings 

addressed****

Number of land use authorizations 

administered to standard

Number of land use proposals and 

applications processed

* Activity redefined in FY 2007 from "Land ownership acres adjusted"

** Activity redefined in FY 2007 and not comparable between FY 2006 and FY 2007

Number of acres acquired or conveyed*

Land ownership title cases resolved through 

litigation or processed through 

administrative procedure**

Number of title management cases resolved 

or completed to standard**

Miles of boundary line marked/maintained to 

standard

Percent of total sites identified where no 

further response (remedial or removal) 

action is required (NFRAP)****

Landownership Management

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

** Activity not tracked in FY 2007

*** Activity not tracked prior to FY 2007

**** Activity tracked in FY 2006 only

Number of AML safety risk features 

mitigated to "no further action"

Number of administrative units where audits 

were conducted

Number of sites which have been mitigated

Number of mineral applications processed*

Number of geological resources or hazard 

assessments completed**

** Activity not tracked after FY 2005

Acres of rangeland vegetation improved

Acres of watershed improved

Acres of noxious weeds and invasive plants 

treated

Planned Environmental Compliance and 

Protection/Abandoned Mine Lands 

(ECAP/AML) activities completed**

Number of air quality services provided

Minerals and Geology Management

Acres of forest vegetation improved*

Acres of forest vegetation established*

Number of mineral operations administered

Vegetation and Watershed Management

Measure

Appropriation / Budget Line Item

FY 2005 Plan

FY 2005 

Actual FY 2006 Plan FY 2007 Plan

Outputs by Activity

* In FY 2006, "...forest vegetation established" was identified as a separate output measure from 

"...forest vegetation improved".
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

Revised March 1, 2006 Page G-5 

Appropriation / Budget Line Item

FY 2005 Plan

FY 2005 

Actual FY 2006 Plan FY 2007 Plan

Outputs by Activity

Measure

55% 60% 60% 65%

63% 75% 75% 78%

15,130 13,764 15,130 14,820

99% 99% 99% 99%

$846 $1,084 $676 $676

519,000 476,042 417,000 411,000

1,281,000 1,187,854 1,383,000 1,539,000

700,000 1,057,976 1,275,000 1,275,000

100 137 20 20

80% 78% 72% 72%

25,358 70,438 --- ---

--- --- 1,641 1,895

--- --- 43,632 21,653

181,180 161,751 --- ---

--- --- 205,355 88,876

--- --- 2,364 5,712

9,344 11,413 10,763 6,765

3,800 5,377 3,800 3,800

Volunteer fire departments assisted - NFP 

(number)

Volunteer Fire Assistance (NFP)

Forest Health Management - Federal Lands (NFP)

Forest health acres treated on Federal 

lands (acres)

Forest Health Management - Cooperative Lands (NFP)

Forest health acres treated on cooperative 

lands 

Fire Research and Development (NFP)

Percent of R&D products and services that 

meet customer expectations

State Fire Assistance (NFP)

Communities at risk from wildfire assisted - 

NFP (number)

Federal acres treated under NFP - 

Invasives

Federal acres treated under NFP - Native 

plants

Acres treated on cooperative lands under 

NFP - Invasives

Acres treated on cooperative lands under 

NFP - Native plants

Acres of non-wildland/urban interface 

hazardous fuels mitigated

High-priority acres treated in the 

wildland/urban interface

Rehabilitation (NFP)

Rehabilitation projects completed

Acres of hazardous fuels reduction obtained 

through other land management activities

Percent of wildland fires suppressed during 

intial attack

Fire Operations

Gross fire suppression costs per acre 

(dollars)

Hazardous Fuels

Investigative capability (percent of cases 

closed)

Wildland Fire Management

Readiness

Chains per hour

Law Enforcement Operations

Enforcement capability (percent of reported 

incidents in which action was taken)
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

Revised March 1, 2006 Page G-6 

86.5% 88.0% 87.0% 87.0%

--- --- 47.0% 67.0%

[10,271] n/a [9,865] 9,460

96 89 51 50

30,657 42,896 39,043 22,000

31,692 25,094 26,465 8,000

770 938 355 350

824 333 548 450

20,612 25,208 20,577 12,700

1,025 1,378 1,076 980

52,775 48,216 37,345 20,620

59,756 32,047 45,207 50,000

200 206 211 ---

1,200,000 1,617,385 852,025 ---

--- --- --- 863,000

1,017,415 n/a***** 854,903 812,000

600 422 600 590

Miles of passenger car roads receiving 

maintenance

Capital Improvement and Maintenance

Facilities

Facilities condition index* (percent)

Structures Improved (number)

Timber Salvage Sales

Number of Planned Salvage Timber Sales

Prepare Salvage Timber Sales (Hundred 

Cubic Feet - CCF)*

Hundred cubic feet (CCF) of salvage timber 

volume sold (included within NFTM)**

** New output measure starting in FY 2007

*****Actual harvest volume in FY 2005 included in timber volume harvested under Forest Products 

*** Activity "Adminster Salvage Timbe Sales (Hundred Cubic Feet)" redefined for FY 2007

* Activity not tracked after FY 2006

Hundred cubic feet (CCF) of salvage timber 

volume harvested (included within NFTM)***

Miles of roads decommissioned

Miles of road reconstruction and capital 

improvement

Trails

Range Betterment Fund

*Activity "National Forest System acres acquired" redefined for FY 2007

Number of acres acquired or donated*

Other Appropriations

Acres of harvest related woody fuels treated

Brush Disposal

Land Acquisition

Miles of trails maintained to standard

Miles of trail improved to standard

Percent of facilities with "Good" or "Fair" 

condition rating**

Number of recreation sites whose Facility 

Condition Rating is good or fair***

Number of projects completed

Roads

* FA&O and research facilities are now maintained under the facilities maintenance multi-program 

assessment (Cost Pool 9) - see special exhibit on this subject for more information

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

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

improvements to overall facility condition.

*** Activity used as output measure starting in FY 2007. Bracketed values in FY 2005 and FY 2006 

provide trend data.

Miles of high clearance and closed roads 

receiving maintenance 

Measure

Appropriation / Budget Line Item

FY 2005 Plan

FY 2005 

Actual FY 2006 Plan FY 2007 Plan

Outputs by Activity
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page H-1 

 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 253 100 53 100 5,009 752 All All Regionwide Minor Construction ** 3,240 1,105 2,135 54 1,005 214 R101 MT 1 Custer Jimmy Joe Campground Reconstruction N 277 55 222 307 146 R102 MT 1 Lewis & Clark Renovate District Offices for Security N 500 200 300 505 R103 ID 1 Nez Perce Grangeville Air Center Office N 728 611 117 45 150 REGION 1 TOTAL 4,998 $ 2,016 $ 417 $ 2,243 $ 322 $ 406 $ - $ 1,806 $ 5,223 $ 752 $ - $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 440 100 120 70 150 103 6 4,807 789 150 All All Regionwide Minor Construction ** 109 109 50 111 200 All All Regionwide Prior Year Project Contract Admin. & Modification 18 18 R201 WY At-large Bighorn Hunter Campground & Trailhead N 248 248 111 111 850 5 5 5 R202 WY At-large Medicine Bow-Routt Brush Creek WC Rehab N 510 510 52 30 R203 Neb 3 Nebraska SO Addition/Pine Ridge RD N 755 675 80 20 25 R204 WY At-large Medicine Bow-Routt Saratoga Shop Building N 304 304 48 20 R205 WY At-large Shoshone Falls Campground N 756 756 251 17 340 20 R206 CO 3 San Juan Cayton Campground N 495 495 349 100 - - R207 CO 3 Rio Grande North Clear Creek Falls Overlook N 219 184 35 55 70 R208 SD At-large Black Hills Deerfield Campground N 421 421 57 250 R209 CO 5 Pike-San Isabel, CC Squirrel Creek Recreation Area N 389 178 211 76 29 180 7 3 1 R210 CO 3 Grand Mesa, Uncomp, Gunnison Roper Landscaping N 108 108 R211 KS 1 Pike-San Isabel, CC Elkhart Purchase N 268 268 R212 WY At-large Shoshone Wind River Storage Y 1,899 1,669 230 97 30 R213 WY At-large Big Horn Boulder Park Campground N 349 40 309 124 122 380 20 8 8 REGION 2 TOTAL 7,288 $ 3,124 $ 940 $ 1,324 $ 1,900 $ 1,121 $ 451 $ 2,587 $ 4,964 $ 805 $ 164 $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Facilities Funds Breakout Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost FY 2007 FY 2007 Facilities Projects REGION 2 - ROCKY MOUNTAIN REGION Facilities Funds Breakout FY 2007 Facilities Projects REGION 1 - NORTHERN REGION (In thousands of dollars) Construction Cost Beyond FY 2007 OUTYEAR COST (In thousands of dollars) OUTYEAR COST Construction Cost Beyond
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page H-2 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 446 300 46 100 7,011 2,126 All All Regionwide Minor Construction ** 529 132 397 816 299 R301 NM 3 Lincoln Sacramento Administrative Site N 1,952 1,952 297 1,445 215 R302 AZ 1 Prescott Thumb Butte Picnic Ground N 460 92 368 194 117 R303 AZ 3 Kaibab Jacob Lake Campground N 911 911 515 554 R304 NM 2 Lincoln Deerhead Campground N 642 642 250 476 R305 NM 3 Santa Fe San Antonio Campground N 889 889 291 565 R306 NM 1 Cibola Capulin Snow Play Area N 508 167 341 50 85 REGION 3 TOTAL 6,337 $ 2,384 $ - $ 702 $ 3,251 $ 2,413 $ - $ 3,541 $ 7,226 $ 2,126 $ - $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 113 35 25 53 52 2,150 720 R401 UT 2 Uinta Little Mill Campground Reconstruction N 989 989 976 1,000 R402 ID 2 Sawtooth Redfish Lake Complex Deferred Mtc. Reduction Phase 1 N 391 391 311 307 138 350 REGION 4 TOTAL 1,493 $ 35 $ 25 $ - $ 1,433 $ 1,339 $ - $ 1,307 $ 2,288 $ 1,070 $ - $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost FY 2007 Facilities Projects REGION 4 - INTERMOUNTAIN REGION (In thousands of dollars) FY 2007 Facilities Funds Breakout FY 2007 Facilities Projects REGION 3 - SOUTHWESTERN REGION (In thousands of dollars) OUTYEAR COST Construction Cost Beyond OUTYEAR COST Construction Cost Beyond FY 2007 Facilities Funds Breakout
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page H-3 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS CA All Regionwide Planning & Design * 594 100 250 100 144 7,614 442 CA All Regionwide Minor Construction ** 735 443 292 649 R501 CA 25 Angeles Santa Clara Mohave RD Office N 743 743 495 490 R502 CA 25 Inyo Inyo NF Food Storage Lockers N 373 373 40 R503 CA 2 Lassen Chester Helibase Y 586 586 489 R504 CA 2 Lassen Almanor Group Campground N 760 760 408 93 1,230 R505 CA 1 Six Rivers Ship Mountain Lookout Y 267 267 41 41 R506 CA 2 Plumas Challenge Barracks Y 555 555 46 R507 CA 44 San Bernardino Keenwild Helibase Y 527 527 440 R508 CA 2 Shasta-Trinity McCloud River Complex Phase II N 287 287 215 31 86 R509 CA 21 Sequoia Peppermint WC Expansion Y 548 548 40 240 R510 CA 19 Sierra Pine Point and Pine Slope Rehabilitation N 350 350 80 42 735 R511 CA 4 Tahoe Hobart WC Fire Station Y 527 527 - R512 CA 4&1 LTBMU Pope Beach Toilet Replacement N 425 425 355 REGION 5 TOTAL 7,277 $ 4,296 $ 250 $ 1,152 $ 1,579 $ 1,319 $ 166 $ 4,801 $ 7,614 $ 442 $ - $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 495 300 95 100 3,475 200 All All Regionwide Minor Construction ** 1,505 1,089 416 1,513 R601 OR 2 Malhuer Forest Headquarters Office N 2,970 2,770 200 297 R602 WA 4 Okangon-Wenatchee Salmon La Sac II N 626 626 504 R603 OR 3 Mt. Hood MTH Historical Structures II N 495 495 450 R604 OR 4 Rogue River-Siskiyou Scenic Illinois Reconstruction II N 248 214 34 224 36 223 R605 WA 4 Okanogan-Wenatchee 25 Mile Boathouse and Dock N 495 495 445 REGION 6 TOTAL 6,834 $ 4,654 $ 295 $ 630 $ 1,255 $ 521 $ 36 $ 3,135 $ 3,475 $ 200 $ - $ **Projects costing less than $250,000. Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost Facilities Funds Breakout *Planning and design for projects costing more than $250,000. FY 2007 Facilities Projects REGION 5 - PACIFIC SOUTHWEST REGION Facilities Funds Breakout FY 2007 (In thousands of dollars) (In thousands of dollars) REGION 6 - PACIFIC NORTHWEST REGION OUTYEAR COST Construction Cost Beyond FY 2007 FY 2007 Facilities Projects OUTYEAR COST Construction Cost Beyond
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page H-4 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 1,084 700 184 100 100 380 11,160 All All Regionwide Minor Construction ** 446 446 350 All All Regionwide Prior Year Project Contract Admin & Modifications 297 70 30 47 150 300 R801 FL 6 Florida Ocala Helibase Y 248 248 50 R802 TN 1 Cherokee Paint Creek Corridor - Recreation Rehabilitation N 327 327 233 300 R803 FL 3 Florida Clearwater Lake Recreation Area Bathhouse N 495 495 25 418 R804 AR 3 Ozark-St.F Ozark-St. Francis Supervisors Office - Phase 2 N 1,782 591 1,191 1,250 R805 FL 8 Florida Lake Dorr Recreation Area Bathhouse N 287 287 16 263 R806 AR 4 Ouachita Ouachita Supervisors Office Build- out N 1,663 1,663 - R807 TX 2 Texas Ratcliff Lake Recreation Area - Water/Sanitation N 257 257 257 R808 AR 1 Ozark-St.Francis Blanchard Swim Beach - Bathhouse Rehabilitation N 337 337 282 R809 MS 3 Mississippi Turkey Fork Recreation Area - Rehabilitation N 465 465 385 650 500 R810 NC 11 North Carolina Dry Falls Recreation Area - Rehabilitation N 644 644 881 350 300 950 R811 AR 3 Ouachita Shady Lake Recreation Area - Bathhouse Rehabilitation N 312 312 225 REGION 8 TOTAL 8,644 $ 3,272 $ 1,405 $ 593 $ 3,374 $ 922 $ - $ 4,743 $ 12,410 $ 1,450 $ - $ *Planning and design for projects costing more than $250,000. **Projects Costing less than $250,000. Facilities Funds Breakout FY 2007 Facility Deferred Maintenance Eliminated by FY 2007 Cost FY 2007 Facilities Projects (In thousands of dollars) REGION 8 - SOUTHERN REGION OUTYEAR COST Construction Cost Beyond
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page H-5 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 297 297 50 3,980 500 All All Regionwide Prior Year Project Contract Admin & Modifications ** 856 800 56 99 R901 IL 19 Shawnee Vienna Administrative Site N 3,297 3,144 153 396 3,312 R902 IN 4 Hoosier Brownstown Administrative Site, Land Purchase N 495 495 3,000 500 R903 WI 7 Chequamegon-Nicolet Rhinelander Office Purchase & Renovation N 891 316 575 50 R904 NH 2 White Mountain White Mountain Adiministrative Site - Phase 1 N 2,295 2,295 743 829 6,336 250 REGION 9 TOTAL 8,131 $ 7,347 $ 784 $ - $ - $ 1,338 $ - $ 4,141 $ 13,316 $ 1,250 $ - $ *Planning and design for projects costing more than $250,000. **Projects Costing less than $250,000. FA&O FA&O Rec Rec FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS AK At Large Regionwide Planning & Design * 959 500 350 50 59 223 173 6,286 1,300 675 AK At Large Regionwide Minor Construction ** 986 326 660 343 AK At Large Regionwide Prior Year Project Contract Admin & Modifications 220 80 20 60 60 R1001 AK At Large Chugach Upper Russian Lake Cabin N 292 292 20 R1002 AK At Large Chugach Kenai Lake Trailer Park Flex Housing N 3,082 3,082 347 R1003 AK At Large Chugach Tenderfoot Campground Reconstruction N 1,129 339 790 234 719 R1004 AK At Large Tongass Thomas Bay Crew Quarters N 534 200 334 106 R1005 AK At Large Tongass SE Alaska Discovery Center Lighting Safety N 671 671 350 R1006 AK At Large Tongass Remote Site Alternative Energy N 287 287 - 580 REGION 10 TOTAL 8,160 $ 4,475 $ 704 $ 1,401 $ 1,580 $ 804 $ 173 $ 1,538 $ 6,866 $ 1,300 $ 675 $ *Planning and design for projects costing more than $250,000. **Projects Costing less than $250,000. Facilities Funds Breakout Facilities Funds Breakout FY 2007 Facilities Projects REGION 10 - ALASKA REGION (In thousands of dollars) Construction Cost Beyond OUTYEAR COST Construction Cost Beyond Project Name ID Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost FY 2007 OUTYEAR COST Fire Fac? FY 2007 State Cong District Forest (In thousands of dollars) FY 2007 Facilities Projects REGION 9 - EASTERN REGION
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page H-6 Cong Fire FA&O FA&O Rec Rec ID State District Location Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Servicewide Planning & Design * 410 350 60 4,680 All All Servicewide Minor Construction ** N 824 824 110 832 S001 WI 2 Forest Products Lab FPL Modernization, Phase I N 15,144 15,144 600 31,521 S002 CA 4 Pacific Southwest Mirov Lab Safety Upgrade N 1,810 200 1,610 1,500 S003 CA 1 Pacific Southwest Redwood Science Laboratory Building Upgrade N 827 827 600 S004 WI 2 Forest Products Lab Replace Roof, B29 N 666 666 529 S005 WV 1 Northern Research Morgantown Greenhouse Addition N 1,197 1,197 - S006 CT 3 Northern Research Ansonia Lab Test Facility N 366 366 - RESEARCH TOTAL 21,244 $ 18,908 $ 2,336 $ - $ - $ - $ - $ 3,339 $ 37,033 $ - $ - $ Note: North Central and North East Research Station merge to become Northern Research Station, Oct 1, 2006 *Planning and design for projects costing more than $250,000. **Projects Costing less than $250,000. Facility Funds Breakout FA&O FA&O Rec Rec FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS Total Regions 59,162 $ 31,603 $ 4,820 $ 8,045 $ 14,694 $ 10,183 $ 826 $ 27,599 $ 63,382 $ 9,395 $ 839 $ Total Stations 21,244 $ 18,908 $ 2,336 $ - $ - $ - $ - $ 3,339 $ 37,033 $ - $ - $ Subtotal 80,406 $ 50,511 $ 7,156 $ 8,045 $ 14,694 $ 10,183 $ 826 $ 30,938 $ 100,415 $ 9,395 $ 839 $ WO Program Management -- Facilities Project List 2,909 $ 1,827 $ 259 $ 291 $ 532 $ TOTAL - Facilities 83,315 $ 52,338 $ 7,415 $ 8,336 $ 15,226 $ Facilities Funds Breakout FY 2007 Facilities Projects Construction Cost Beyond FY 2007 OUTYEAR COST Construction Cost Beyond FY 2007 OUTYEAR COST Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost (In thousands of dollars) FY 2007 Facilities Projects RESEARCH STATIONS (In thousands of dollars) SUMMARY
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page I-1 

Program Components and Costs of the Timber Sales Program, 

FY 2005 – FY 2007

 

BOARD FEET 2005 2006 2007

Final Programmed Estimate

National Forest System Forest Products 

 Funding (Dollars in thousands) $273,247 $280,115 $310,114

 Volume Offered (FY 2005) or Sold (FY 2006-07) (MMBF) 1,643 1,7091

 2,328

 

Salvage Sale Fund 

 Funding (Dollars in thousands) $69,436 $78,333 $70,000

 Volume Offered (FY 2005) or Sold (FY 2006-07) (MMBF) 888 408 449

 

Knutson -Vandenberg Funds 

 Funding (Dollars in thousands) N.A. $40,000 $23,000

 Volume Sold (MMBF) N.A. 492 226

 

Timber Sales Pipeline Restoration Fund 

 Funding (Dollars in thousands; Pipeline Preparation only) $1,670 $3,172 $3,000

 

Road Construction/Reconstruction for Timber Sales and Land 

Stewardships Contracting (Dollars in thousands) 

 Forest Service Engineering Support @ $30/MBF $49,290 $51,270 $69,840

 

Total, Timber Sales Program 

 Funding (Dollars in thousands) $393,643 $452,890 $475,954

 Volume Offered (FY 2005) or Sold (FY 2006-07) (MMBF) 2,531 2,609 3,003

 Average unit cost ($/MBF) $155.53 $173.59 $158.49

 

Total, Timber Harvest (MMBF) 2

 2,098 1,534 1,600

 1 Does not include approximately 260 MMBF of salvage volume from the Emergency Supplemental. 

2 Includes both regular and salvage timber volume. 

N.A. Not Applicable.

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget

February 8, 2006 - Revised Page J-1 

FY 2007 Proposed Land Acquisition Program 

(Dollars in Thousands) 

Project Forest State 

Performance 

Objective(s) 

1/

Amount 

Cartwright Ranch Tonto AZ 3.1,5.1,6.3 $1,000 

Cascade Checkerboard 

Mt Baker-Snoqualmie/ 

Wenatchee WA 

3.1,5.1,6.3 

$1,000 

Columbia River Gorge Multiple OR/WA 3.1,5.1,6.3 $1,000 

Georgia Mountains Chattahoochee-Oconee GA 3.1,5.1,6.3 $1,500 

Great Lakes/Great Lands 

Huron-Manistee/Ottawa/ 

Hiawatha MI 

3.1,5.1,6.3 

678 

Greater Yellowstone Area Multiple MT, ID, WY 3.1,5.1,6.3 $606 

Hoosier Unique Areas Hoosier IN 3.1,5.1,6.3 $1,000 

Lady C Black Hills SD 3.1,5.1,6.3 500 

Little Missouri River (Ebert Ranch/ 

Horse Creek) Dakota Prairie Grasslands ND 

3.1,5.1,6.3 

$4,500 

Minnesota Wilderness Chippewa/Superior MN 3.1,5.1,6.3 500 

Ophir Valley Uncompahgre CO 3.1,5.1,6.3 850 

Oregon Dunes Siuslaw OR 3.1,5.1,6.3 $500 

Pacific NW Streams Multiple OR/WA 3.1,5.1,6.3 $1,000 

Packard Ranch Coconino AZ 3.1,5.1,6.3 $500 

Salado Canyon Bridal Veil Falls Lincoln NM 3.1,5.1,6.3 $544 

Tejon Ranch (Pacific Crest Trail) Angeles/Los Padres CA 3.1,5.1,6.3 $600 

Wayne Select Lands Wayne OH 3.1,5.1,6.3 $500 

 Total Purchase $16,778 

Acquisition Management 

Critical Inholdings/Wilderness 

Protection 

Land Exchange Equalization Payment 

 

Multiple 

Multiple 

 8,297 

0 

0 

 Total $25,075 

* Performance objectives referred to are from the USDA Forest Service Strategic Plan for Fiscal Years 2004-08. 

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page K-1 

FY 2007 Proposed Forest Legacy Program 

State Project Name 

Forest Legacy 

Program 

Funding 

ME Grafton $2,000,000

RI North-South Corridor $3,000,000

SC Pee Dee River $2,500,000

CA Baxter Ranch $2,000,000

MI Northern Great Lakes Forest Project $3,500,000

HI Kealakekua Ranch $2,000,000

ID Clifty Mountain Foothills Project $2,900,000

FL Northeast Florida Timberlands $2,250,000

GA Paulding County Land area $2,250,000

VA New River Corridor $2,100,000

ME Lower Penobscot Forest Project: Phase I $2,200,000

NH Willard Pond $3,000,000

TX Turkey Creek $2,045,000

SC Savannah River $2,500,000

AL Cumberland Mountains Preserve $1,185,000

MT North Swan River Valley $3,000,000

NV Ash Canyon Gateway $500,000

MA Southern Monadnock Plateau $2,500,000

UT Virgin River Headwaters $2,800,000

WA Tahuya Headwaters Pope $1,880,000

AZ Cedar Springs $880,000

MN Sugar Hills $750,000

DE Green Horizons $2,000,000

IN Luke's Run $1,700,000

KY Marrowbone Creek State Forest $1,000,000

PA Birdsboro Waters $300,000

NC Whitehurst Forest $1,000,000

AS Ottoville Rainforest Preserve $500,000

AR Moro Big Pine $500,000

OR South Eugene Hills Phase I $460,000

MO New State Start-Up $500,000

 Forest Legacy Program Administration, Acquisition 

Management, and Assessment of Need Planning $5,815,000

 TOTAL $61,515,000

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page L-1 

Four Year Healthy Forest Initiative Funding and Accomplishment 

UNITED STATES DEPARTMENT OF AGRICULTURE

Healthy Forests Initiative

(Dollars in Thousands)

2004 enacted 2005 enacted 2006 enacted 2007 Budget

Department of the Interior1/

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

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

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

Vegetation & Watershed....................................... 8,143 9,746 9,724 9,688

Wildlife & Fish................................................... 9,843 12,560 15,044 15,006

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

DOI Total......................................................... 273,485 299,787 309,198 302,282

Forest Service

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

State & Private Forestry:

 Forest Health Management....................................... 5,030 29,575 27,347 14,000

 State Fire Assistance............................................. 7,500 14,443 30,788 23,392

 State Fire Assistance-Emergency 

 Supplemental for Southern California........................ 10,000 0 0 0

 Economic Action Programs..................................... 1,000 0 0 0

National Forest System:

 Forest Products...................................................... 39,988 54,640 68,310 76,400

 Vegetation & Watershed.......................................... 48,710 56,884 75,834 79,300

 Wildlife & Fish...................................................... 13,649 17,170 17,721 16,600

 Stewardship Contracting 2/....................................... 0 32,400 53,460 64,800

Wildland Fire Management:

 Hazardous Fuels 3/................................................... 258,332 262,593 281,793 291,792

 Southern California Earmark - Haz Fuels..................... 0 30,000 0 0

 National Fire Plan R&D.......................................... 11,000 14,339 13,000 13,000

 Joint Fire Sciences................................................ 4,000 3,944 6,000 3,000

FS Total......................................................... 418,209 535,273 598,253 610,284

Grand Total Funding.......................................... 691,694 835,060 907,451 912,566

Acres treated for Hazardous Fuels Reduction (000):

Department of Interior - Haz Fuels Funds..............................................................

 - Acres Treated Inside WUI..................... 490 543 472 451

 - Acres Treated Outside WUI.................. 771 726 613 601

 - Accomplish with Other Funds............... 370 351 350 350

DOI Total......................................................... 1,631 1,620 1,435 1,402

Forest Service - Haz Fuels Funds....................................................................

 - Acres Treated Inside WUI..................... 1,311 1,194 1,383 1,539

 - Acres Treated Outside WUI.................. 492 470 417 411

 - Accomplish With Other Funds 4/............ 758 1,058 1,275 1,275

2,561 2,722 3,075 3,225

Grand Total Acres..............................................................................

4,192 4,342 4,510 4,627

1/ Department of the Interior (DOI) budget figures were extrapolated from the existing DOI budget structure to fit the categorical format of this table.

2/ Accomplishments from large Stewardship Contracts (>100,000 acres) are reported in the year in which task orders are issued for the work, rather than the 

entire scope of the contract.

5/ The decision in the Earth Island Institute case, which delayed or foreclosed the use of Categorical Exclusions on projects, affected an estimated 723 Forest 

Service projects, reducing accomplishments by over one million acres over what would have been treated in 2005 and 2006. 

3/

FY 2004 and FY 2005 hazardous fuels figures include supplementals for So. California fuels treatments.

4/ Forest Service FY 2006 and FY 2007 targets for Hazardous Fuels Reduction accomplished with other funds include acres treated as a secondary benefit to 

other land management activities, and estimated acres treated through: Wildland Fire Use events, Hazard Mitigation Grants awarded under the State Fire 

Assistance program, and activities of the Southern Nevada Public Lands Management Act. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page M-1 

Forest Service Efficiency Savings and Buying Power 

In a May 3, 2005, memorandum to the United States Department of Agriculture (USDA) from the 

Office of Management and Budget (OMB), an agreement was formalized on USDA’s proposal to 

establish the Forest Service as a “Center of Excellence” and to achieve the goals of the President’s 

Management Agenda. Components of the agreement include: 

• Reduction of Forest Service indirect costs, 

• Organizational restructuring studies 

• Competitive sourcing studies to inform the Forest Service Human Capital Plan 

• Implementation of the Performance Accountability System (PAS). 

Consistent with the agreement, the FY 2007 budget reduces indirect costs to $461 million, and 

reflects completion of organizational efficiency studies that will lead to savings in FY 2008 and 

beyond. This trend provides significantly more buying power to programs than a simple 

comparison in budget request from year to year would suggest. 

Specifically, the FY 2007 President’s Budget demonstrates progress towards the establishment of 

the Forest Service as a “Center of Excellence” through significant efficiency savings resulting 

from strategic procurement, database reduction, fleet vehicle allocation methodology, and 

centralization of aircraft service. Efficiency savings to be realized in FY 2007 total $16.335 

million. The specific savings to be realized in FY 2007 are as follows: 

• $9.9 million — Working Capital Fund fleet vehicle allocation methodology and aircraft 

service centralization 

• $2.475 million — Information technology savings in TIM-FACTS database reductions 

• $3.96 million — Strategic procurement and procurement efficiencies 

The table below illustrates efficiency savings realized by each Budget Line Item, and the Final 

Buying Power associated with what each program area will be able to achieve in FY 2007. 

Forest Service Efficiency Savings and Buying Power 

 (dollars in thousands) 

FY 2007 Final

FY 2006 Program Efficiency President's Buying

DISCRETIONARY APPROPRIATIONS Enacted Pay Costs Changes Savings Budget Power

Forest and Rangeland Research

 Research and Development Programs 278,929 3,446 -14,584 1,925 267,791 269,716

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

 Total--Forest and Rangeland Research 278,929 3,446 -14,584 1,925 267,791 269,716

State and Private Forestry

 Forest Health Management

 Federal Lands 53,438 755 -4,344 437 49,849 50,286

 Cooperative Lands 46,928 102 -12,449 42 34,581 34,623

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

 Subtotal--Forest Health Management 100,366 857 -16,793 479 84,430 84,909

U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page M-2 

FY 2007 Final

FY 2006 Program Efficiency President's Buying

DISCRETIONARY APPROPRIATIONS Enacted Pay Costs Changes Savings Budget Power

State and Private Forestry

 Cooperative Fire Protection 0

 State Fire Assistance 32,930 97 -6,067 58 26,960 27,018

 Volunteer Fire Assistance 5,912 0 -53 0 5,858 5,858

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

 Subtotal--Cooperative Fire Protection 38,842 97 -6,120 58 32,818 32,876

 Cooperative Forestry

 Forest Stewardship 34,189 132 -441 72 33,880 33,951

 Forest Legacy Program 56,536 43 4,936 21 61,515 61,536

 Urban and Community Forestry 28,451 110 -1,715 61 26,846 26,906

 Economic Action Programs 9,537 69 -9,606 0 0 0

 Forest Resources Information and Analysis 4,589 23 -4,612 0 0 0

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

 Subtotal--Cooperative Forestry 133,302 377 -11,438 153 122,241 122,394

 International Forestry 6,897 38 -2,014 19 4,921 4,940

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

Total--State and Private Forestry 279,407 1,369 -36,365 709 244,410 245,119

National Forest System

 Land Management Planning 58,188 759 -3,392 838 55,555 56,392

 Inventory and Monitoring 167,675 2,091 -15,631 1,690 154,135 155,825

 Recreation, Heritage, and Wilderness 261,299 3,913 -14,332 3,965 250,880 254,846

 Wildlife and Fisheries Habitat Management 132,866 1,850 -11,168 1,880 123,548 125,429

 Grazing Management 48,279 745 -9,289 723 39,735 40,459

 Forest Products 280,115 4,550 25,449 5,020 310,115 315,135

 Vegetation and Watershed Management 181,342 2,340 3,900 3,959 187,582 191,541

 Minerals and Geology Management 84,601 850 -4,209 754 81,242 81,995

 Landownership Management 91,631 1,294 -8,640 1,126 84,285 85,411

 Law Enforcement Operations 87,887 1,196 20,917 0 110,000 110,000

 Valles Caldera National Preserve 5,074 1 -4,085 0 990 990

 Centennial of Service Challenge 4,434 29 -4,463 0 0 0

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

Total--National Forest System 1,403,391 19,618 -24,943 19,955 1,398,067 1,418,022

Wildland Fire Management

 Preparedness 666,068 8,744 -18,925 8,473 655,887 664,360

 Fire Operations--Suppression 690,186 5,422 50,568 0 746,176 746,176

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

Subtotal--Regular Wildland Fire Management 1,356,254 14,166 31,643 8,473 1,402,063 1,410,536

 Other Operations

 Hazardous Fuels 281,793 3,620 6,379 2,664 291,792 294,456

 Rehabilitation and Restoration 6,188 63 -4,271 0 1,980 1,980

 Fire Research and Development 22,877 242 -2,998 138 20,121 20,259

 Joint Fire Sciences Program 7,882 0 -3,922 0 3,960 3,960

 State and Private Forestry

 Forest Health Management--Federal Lands 14,780 198 -8,176 0 6,802 6,802

 Forest Health Management--Cooperative Lands 9,852 12 -5,312 0 4,552 4,552

 State Fire Assistance 45,816 3 -16,704 0 29,115 29,115

 Volunteer Fire Assistance 7,772 0 38 0 7,810 7,810

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

Subtotal--State and Private Forestry 78,220 213 -30,154 0 48,279 48,279

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

 Subtotal--Other Operations 396,960 4,138 -34,966 2,801 366,132 368,933

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

Total--Wildland Fire Management 1,753,214 18,304 -3,323 11,274 1,768,195 1,779,469
U.S. Department of Agriculture - Forest Service 

Overview of FY 2007 President’s Budget 

February 8, 2006 - Revised Page M-3 

FY 2007 Final

FY 2006 Program Efficiency President's Buying

DISCRETIONARY APPROPRIATIONS Enacted Pay Costs Changes Savings Budget Power

Capital Improvement and Maintenance

 Facilities - Total BLI 124,815 768 4,557 1,570 130,140 131,710

 Roads - Total BLI 222,181 2,328 -41,722 2,587 182,787 185,374

 Trails - Total BLI 74,882 1,045 -15,586 1,065 60,341 61,407

 Deferred Maintenance/Infrastructure Improvement 12,809 65 -3,541 105 9,333 9,437

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

Total--Capital Improvement and Maintenance 434,687 4,206 -56,292 5,327 382,602 387,929

Land Acquisition

 Land Purchase 28,081 0 -12,780 165 16,778 16,943

 Acquisition Management 12,316 232 -4,252 0 8,297 8,297

 Cash Equalization 493 0 -493 0 0

 Critical Inholdings/Wilderness Protection 985 0 -985 0 0

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

Total--Land Acquisition/L&WCF 41,875 232 -17,032 165 25,075 25,240

Other Appropriations

 Acquisition of Lands for National Forests, Special Acts 1,053 0 1 0 1,054 1,054

 Acquisition of Lands to Complete Land Exchanges 231 0 1 0 232 232

 Range Betterment Fund 3,130 19 783 0 3,932 3,932

 Gifts, Donations, and Bequests for Research 63 0 0 0 63 63

 Management of NF Lands for Subsistence Uses 4,993 33 285 28 5,311 5,339

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

Total--Other Appropriations 9,470 52 1,070 28 10,592 10,620

~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~ ~~~~~~~

Total--Discretionary Appropriations 4,200,972 47,227 -151,469 39,384 4,096,731 4,136,115

FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 

Chapter 2 

Budget and Performance Integration

FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 1 

Budget and Performance Integration 

Background 

The Government Performance and Results Act of 1993 (GPRA) requires Federal agencies to 

focus Federal programs on performance. The Office of Management and Budget (OMB) set 

government-wide implementation guideline in Circular A-11. Specifically, agencies are required 

to develop strategic plans, performance plans, and performance reports. A strategic plan 

articulates the mission, goals, and objectives of an agency. In addition, it states the strategies 

that will be used to monitor progress toward meeting those objectives. Performance plans 

communicate the annual goals agencies use in working toward achieving its strategic goals. 

Finally, performance reports provide the results of annual programs of work. 

To improve Federal program performance, the President announced the President’s Management 

Agenda (PMA) in August 2001. The PMA contains five government-wide initiatives, including 

Budget and Performance Integration (BPI). By linking budgeting and performance, agencies can 

define measurable results, monitor the progress in achieving those results, and make 

management and resource decisions based on such progress. This also enables agencies to better 

gauge program efficiency and effectiveness. Based on strategic plan goals and a rigorous set of 

performance standards, the agency can objectively measure success and where necessary, take 

actions to improve program performance. Thus, agency actions are not just expended, but used 

as true investments toward successfully implementing the agency mission. 

To implement these changes, OMB updated Circular A-11 and the Department of Agriculture 

issued its 2002 Performance Management Guidance that together direct agencies to revise 

strategic plans and associated goals, objectives, and performance measures to meet the intent of 

GPRA and BPI 

Fiscal Years 2004 - 2008 Strategic Plan 

Purpose Statement 

The basis of the USDA Forest Service’s mission is established in laws that reflect the deeprooted relationship between the American people and their natural resource heritage. This 

relationship relies on the principles of sustaining our natural resources for future generations, 

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

The foundation can be summarized in the phrase “sustainable resource management.” 

The USDA Forest Service is most widely recognized for its management of more than 193 

million acres of National Forests and grasslands, located in 44 States, Puerto Rico, and the 

Virgin Islands comprising 8.5 percent of the total land area in the United States. In addition, the 

agency delivers technical and financial assistance to 10 million private forest land owners 

through State and Private Forestry programs. International Forestry programs promote and 

enable sustainable natural resource management in developing countries and works with 

overseas partners to prevent accidental introduction of exotic forest pests and pathogens into this 

country. 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 2 

The strategic plan embodies the Forest Service’s many areas of responsibility, as captured in the 

agency’s mission statement: 

“The mission of the USDA Forest Service is to sustain the health, diversity, and 

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

future generations.” 

Managing the Nation’s forests and grasslands is a complex and important mission. In order to 

assess resource conditions and trends and track long-term results of Forest Service management 

the agency uses criteria and indicators developed for evaluating national progress in sustainable 

resource management. Scientific assessments that report on these indicators help identify the 

issues considered in our agency planning efforts. 

Executive leadership must set priorities to focus programs on those issues or challenges deemed 

the most critical, the most in need of a concentrated effort. As units of the Forest Service 

formulate future budgets and execute existing budgets, employees plan their programs of work to 

make maximum contribution to the strategic goals. Together, those work plans focus the 

maximum concerted effort to address the goals identified in this strategic plan. 

The Forest Service developed 6 strategic goals and 16 strategic objectives to guide program 

implementation and focus efforts. Activities and associated performance measures were 

established describing the work to achieve each strategic goal. Tables describing the goals, 

objectives, activities, and performance measures, management tools, and standard reports are in 

place to assist managers at all levels to plan and monitor their programs of work. Budgets are 

formulated allocating dollars and staff years by budget line item (BLI) and activity within each 

of the six strategic goals; the total dollars for all activities within BLIs becomes the agency's 

requested budget. The rate of expenditures and the accomplishment of associated targets by 

activity are monitored through standard reports which are updated on an on-going basis. The 

availability of up-to-date expenditure and output information allows managers to monitor 

progress and make program of work adjustments as needed. Annual performance measures track 

and gauge agency progress in reaching goals over the duration of the FY 2004 - 2008 Strategic 

Plan. 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 3 

Goals, Objectives, and Performance Measures

Strategic Goal Agency Objectives Performance Measures 

1.1 a: Number of acres of hazardous fuels 

treated in the wildland-urban interface and 

percent identified as high priority through 

collaboration consistent with the 10-year 

Comprehensive Strategy Implementation Plan. 

1.1 b: Number of acres in the wildland-urban 

interface treated per $1 million gross 

investment. 

1.1 c: Number of acres of hazardous fuels 

treated in Condition Classes 2 or 3 in Fire 

Regimes 1, 2, or 3 outside the wildland-urban 

interface, and percent identified as high priority 

through collaboration consistent with the 10- 

Year Plan. 

1.1 d: Number of acres treated outside the 

wildland-urban interface per $1 million gross 

investment. 

1.1 e: Number of acres in Condition Classes 2 

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

land management activities that improve 

condition class, and percent that were 

identified as high priority through collaboration 

consistent with the 10-Year Plan. 

1.1 f: Percent of mechanically treated acres to 

reduce hazardous fuels with byproducts used. *

1.1: Improve the health of National 

Forest System lands that have the 

greatest potential for catastrophic 

wildland fire. 

1.1 g: Number of acres brought into 

stewardship contracts. * 

1.2.a: Percent of unplanned and unwanted 

wildland fires controlled during initial attack. * 

1.2.b: Number of acres burned by unplanned 

and unwanted wildland fires. * 

1.2: Consistent with resource 

objectives, wildland fires are 

suppressed at a minimum cost, 

considering firefighter and public 

safety, benefits, and values to be 

protected. 

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

of resources protected exceeds the cost of 

suppression. * 

1.3 a: Percent of communities at risk with 

completed and current fire management plans 

or risk assessments. * 

1. Reduce the risk 

from catastrophic 

wildland fire 

1.3: Assist 2,500 communities and 

those non-National Forest System 

lands most at risk with developing 

and implementing hazardous fuels 

reduction and fire prevention plans 

and programs. 

1.3 b: Number of acres covered by partnership 

agreements. * 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 4 

Strategic Goal Agency Objectives Performance Measures 

2.1 a: Availability and reliability of the annual 

National Risk Assessment survey. 

2.1 b: Acres treated for selected invasive 

species. 

2. Reduce the 

impacts from 

invasive species 

2.1: Improve the effectiveness of 

treating selected invasive species on 

the Nation’s forests and grasslands. 

2.1 c: Percent change in the rate of spread of 

selected invasive species. 

3.1 a: Miles and percent of trail network 

maintained to standard. * 

3.1 b: The 3-year average number of fatalities 

on the passenger car road network. * 

3.1 c: Number and percent of facilities 

maintained to standard. * 

3.1 d: Number and percent of facilities and 

sites that meet accessibility standards. * 

3.1: Improve public access to 

National Forest System land and 

water and provide opportunities for 

outdoor health-enhancing activities. 

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

provide public access. 

3. Provide outdoor 

recreational 

opportunities 

3.2: Improve the management of offhighway-vehicle use to protect 

natural resources, promote safety of 

all users, and minimize conflicts 

among various uses through the 

collaborative development and 

implementation of locally based 

travel management plans. 

3.2.a: Percent of National Forest System lands 

covered by travel management implementation 

plans. 

4.1: Work with other agencies to 

identify and designate corridors for 

energy facilities, improve the 

efficiency of processing permit 

applications, and establish 

appropriate land tenure (including 

transferability clauses) in easements 

and other authorizations to provide 

for long-term project viability. 

4.1.a: Percent of energy facility and corridor 

applications approved within prescribed 

timeframes. *

4. Help meet 

energy resource 

needs 

4.2: Stimulate commercial use of 

small-diameter trees from National 

Forest System lands for biomass 

energy. 

4.2.a: Total biomass from small-diameter and 

low-value trees used for energy production. *
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 5 

Strategic Goal Agency Objectives Performance Measures 

5.1.a: Number of inventoried forest and 

grassland watersheds in fully functioning 

condition as a percent of all watersheds. 

5.1: Assess and restore high-priority 

watersheds and maintain riparian 

habitat in these watersheds. 5.1.b: Acres of non-industrial private forest 

land under approved stewardship management 

plans. 

5.2.a: Percent of projects on National Forest 

System lands fully implementing best 

management practices (BMPs). 

5.2: Monitor water quality impacts of 

activities on National Forest System 

lands. 5.2.b: Allotment acres and percent 

administered to 100 percent of standard. 

5.3 a: Terrestrial and aquatic habitat enhanced 

to achieve desired ecological conditions. 

5. Improve 

watershed 

condition 

5.3: Restore and maintain native and 

desired nonnative plant and animal 

species diversity in terrestrial and 

aquatic ecosystems and reduce the 

rate of species endangerment by 

contributing to species recovery. 

5.3.b: Value of partnership contributions that 

support habitat enhancement. 

6.1.a: Percent of the Nation for which forest 

inventory and analysis information is 

accessible to external customers. 

6.1: Provide current resource data, 

monitoring, and research information 

in a timely manner. 6.1.b: The percent of research and development 

products or services that meet 

customer expectations as assessed through 

targeted, standardized evaluations. 

6.2.a: Review of financial statement audits and 

implementation of corrective actions based on 

audit findings. 

6.2.b: Average number of days between fiscal 

obligation and transaction data entry into the 

Foundation Financial Information System. 

6.2.c: Extent to which performance data are 

current and complete. 

6.2.d: Number of accounting adjustments 

required to reconcile agency quarterly reports 

with Federal Treasury reports. 

6.2: Meet Federal financial 

management standards and integrate 

budget with performance. 

6.2.e: Number of "business operations internal 

control weaknesses" identified in annual 

financial statement audits. 

6.3: Maintain the environmental, 

social, and economic benefits of 

forests and grasslands by reducing 

their conversion to other uses. 

6.3.a: Acres of land adjustments to conserve 

the integrity of undeveloped lands and habitat 

quality. * 

6.4.a: Number of firefighters injured in firerelated incidents. 

6. Conduct 

mission-related 

work in addition 

to that which 

supports the 

agency goals 

6.4: Maintain Office of Safety and 

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

Compensation Program cases. 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 6 

Strategic Goal Agency Objectives Performance Measures 

6.5.a: Number and percent of Land and 

Resource Management Plans developed and 

revised. 

6.5.b: Percent of data in information systems 

that is current to standard. 

6. Conduct 

mission-related 

work in addition 

to that which 

supports the 

agency goals 

6.5: Develop and maintain the 

processes and systems to provide and 

analyze scientific and technical 

information to address agency 

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

monitoring reports completed. 

 * These performance measures have been identified through the PART Process as needing to be 

updated. 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 7 

Goal Descriptions 

Program Assessment Rating Tool (PART) reviews for each of the agency’s strategic goals have 

been completed or are scheduled, in order to evaluate the strengths and weaknesses of the 

agency’s programs that are designed to meet those goals. The PART assessments have led to 

specific recommendations to improve performance and action plans to implement those 

recommendations, which will be discussed below. 

Goal 1: Reduce Catastrophic Wildland Fire Risk 

Wildland fire is a natural component of ecosystem processes and, conversely, is also a threat to 

both communities and the environment. The challenge is to manage wildland fire within its 

place in natural systems while reducing the risk of losses from catastrophic fire. The agency 

addresses the complex challenge on both Federal and non-Federal lands by identifying when and 

where priority work can be implemented and specific field level projects that affect future fire 

behavior. The Forest Service, State foresters, and local fire departments assist private 

landowners in this challenge through the Firewise program. Firewise assists property owners in 

the wildland-urban interface in increasing the survivability of their homes from wildfires and 

preventing fires. 

The likelihood of loss from natural or human causes depends on the vulnerability of the 

ecosystems at the time of the event. Many ecosystems must be returned to, and maintained in, a 

resilient state to mitigate loss from unexpected events. Natural factors, including prolonged 

drought and lower than average precipitation, contribute significantly to the risk of wildland fire. 

Other factors include arson and accidental human-caused fires, as well as administrative appeals 

of proposed fuel treatment projects and litigation. While wildland fire is an element of natural 

ecosystem processes, catastrophic wildland fire is not. 

Wildland fire received an initial PART review during fiscal year (FY) 2002 for the 2004 

President’s Budget Year and was rated Results Not Demonstrated (RND) due to three factors: 

• The cost of responding to fires has increased substantially in recent years and the Forest 

Service needs to emphasize cost containment within its program. 

• The agency faces significant obstacles in meeting its long-term goals of reducing risks to 

communities and restoring fire-adapted ecosystems. 

• The agency faces implementation challenges for both of its new systems to improve 

internal management: the first to allocate fire preparedness resources (e.g., firefighters 

and equipment) effectively across geographic areas and the second to collect hazardous 

fuels data to prioritize fuels reduction projects and inform fire suppression efforts. 

The Wildland Fire program is implementing PART recommendations by 

• Emphasizing accountability for firefighting costs, improving management oversight, and 

ensuring that states are paying their fair share of such costs. 

• Implementing new performance measures and strengthening hazardous fuels project 

criteria to ensure that funds are effectively targeted. 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 8 

• Prioritizing the timely implementation of the preparedness and fuels reduction systems to 

ensure that institutional barriers are overcome. 

Wildland fire will complete a PART reassessment during the FY 2006 for the 2008 President’s 

Budget Year.. 

The President’s Budget currently proposes an increase of $10 million for the Wildland Fire 

Management appropriation directed toward activities that address the risk of catastrophic 

wildland fire. With this increase, the Forest Service will remove hazardous fuels on 1.95 million 

acres in high priority areas, including 1.54 million acres in the wildland-urban interface (WUI) 

and an additional 411,000 in non-WUI areas. The Forest Service will increase the use of 

Stewardship Contracts to get critical work accomplished nationwide. 

In addition, the Forest Service will maintain fire preparedness levels and suppress 99 percent 

unplanned and unwanted fires during initial attack. The agency will also provide 12,000 

communities with fire mitigation and prevention assistance and assist 6,600 volunteer fire 

departments in becoming better equipped and prepared. 

Managers at all levels of the organization plan and monitor progress toward achieving the 

primary activities listed above, as well as other planned activities. Spending and associated 

target accomplishments by activity are monitored by reports which are updated throughout the 

fiscal year. The availability of up-to-date spending and associated results allows managers to 

monitor progress and make program of work adjustments as needed to reach program goals. 

Goal 2: Reduce the Impacts from Invasive Species

The threat of invasive species has become one of the most significant environmental and 

economic issues facing the Nation. The number of infestations and impacts from them are 

increasing every year. Concerns over the invasive species problem have reached global 

proportions. There has been a significant Federal and State response to addressing the issue. 

With the passage of the Executive Order 13112 and the establishment of the National Invasive 

Species Council in 1999, Federal agencies have increased their coordination and collaboration to 

deal with the host of species threatening the nation. 

The Forest Service recognizes the danger invasive species pose to ecosystem health, the 

economy, and the agency’s mission. The Forest Service has identified the invasive species threat 

as one of four significant threats affecting National Forest System lands, as well as neighboring 

State, tribal, and private lands. Invasive species cost the public more than $138 billion per year 

in damage, loss, and control costs (Pimental et al. 2000. BioScience 50:1 pp 53-65). The 2000 

Resource Planning assessment estimated 3.5 million national forest acres were infested with 

invasive plants. About half the species currently on the endangered species list are at risk 

because of competition and loss of habitat traceable to invasive species. 

The Invasive Species program received an initial PART review during FY 2004 for the 2006 

President’s Budget Year and was rated Results Not Demonstrated (RND) due to three factors: 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 9 

• The Invasive Species Management Plan incorporates performance measures, but lacks 

adequate efficiency measures. Existing measures lack a transparent scientific and policy 

basis that ensures treatments that are appropriate and effective, and minimize 

environmental impacts. 

• The agency has established a national risk map, but does not allocate resources to address 

national priorities in the most effective and efficient manner, particularly within the 

National Forest System. 

• The agency treats both invasive pests and noxious weeds and tracks the costs of doing so, 

but does not measure the environmental or economic effects of treatments. 

The Invasive Species program is implementing PART recommendations by: 

• Refining performance measures; for example, by including members of the plant 

kingdom; developing appropriate efficiency measures; and strengthening the scientific 

and policy basis for their use. 

• Improving use of forest health risk maps in agency decision-making and allocation of 

resources, particularly within the National Forest System. 

• Measuring the environmental and economic effects of treatments of invasive pests and 

noxious weeds. 

The Invasive Species program will complete a PART reassessment during FY 2006 for the 2008 

President’s Budget Year. 

Forest Service funding in FY 2007 will help mitigate impacts of invasive species by several 

methods. The national risk assessment survey reviews and documents forest health conditions 

on Federal and cooperative forest lands. The agency will provide invasive species protection on 

467,000 acres of Federal and cooperative forest lands across the Nation through specially 

designed treatments. Over 97,600 acres of national forest lands would be treated for noxious 

weeds as well. The International Forestry program cooperates with numerous foreign countries 

to prevent the introduction of new exotic plant, insect and pathogen species into the country that 

could become invasive pests if released. 

Managers at all levels of the organization plan and monitor progress toward achieving the 

primary activities listed above, as well as other planned activities. Spending and associated 

target accomplishments by activity are monitored by reports which are updated throughout the 

fiscal year. The availability of up-to-date spending and associated results allows managers to 

monitor progress and make program of work adjustments as needed to reach program goals. 

Goal 3 – Provide Outdoor Recreation Opportunities

The Forest Service offers a wide range of recreation opportunities and services in various 

settings. Camping, picnicking, winter sports, hunting, fishing, hiking, and sightseeing in the 

backcountry or urban areas, as well as visiting cultural sites and visitor centers are all a part of 

the recreation program. Major operational components of delivering this goal include the 

administration and management of recreation infrastructure (facilities, roads and trails), human - 

wildlife interaction, wilderness and heritage resources, partnerships and tourism, interpretive 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 10 

services, recreation special uses, congressionally designated areas, and national forest scenic byways. 

Abundant forests and rangelands, clean water and air, and habitat for wildlife and fish enhance 

recreation activities. National forests and grasslands contain some of America’s most important 

wildlife habitat resources - over 200,000 miles of fishable streams, including over 50 percent of 

the Nation’s premier trout and salmon habitat; over 2 million acres of lakes; 80 percent of the elk 

and bighorn sheep habitat in the lower 48 States; 28 million acres of wild turkey habitat; and 

over 5 million acres of wetlands. Sustainable management of these resources is major factor in 

providing quality outdoor recreation. 

Supporting the delivery of this goal are research and development activities. Studies conducted 

in the areas of Recreation and Tourism, Human Interactions with Forests and Grasslands, and 

Wilderness Ecology and Management develop information pertinent to the goal of helping meet 

the Nation’s demand for outdoor recreation. The President’s Budget proposes over $600 million 

in the National Forest System and Capital Improvement and Maintenance to support this goal. 

The Recreation program received a PART review during FY 2005 for the 2007 President’s 

Budget Year and was rated Moderately Effective due to three factors: 

• The Recreation Program has a clear purpose and adequate long-term performance 

measures, but the Forest Service strategic plan does not make good use of these 

measures. 

• Although each Recreation Fee Demonstration Project completed a business plan prior to 

implementation, not all National Forests have completed business plans for recreation 

areas. This may lead to situations where resources are not effectively targeted due to 

program design issues or inconsistent data. 

• Independent evaluations have identified business system information data gaps needed to 

improve financial and management decisions that enhance visitor satisfaction. However, 

key recommendations for improving data reliability and use remain to be implemented. 

The Recreation program is implementing PART recommendations by: 

• Amending the Forest Service strategic plan to include Recreation Program performance 

measures that better link improvements in program performance with achievement of 

strategic goals. 

• Optimizing available resources by completing business plans for each national forest or 

grassland recreation area. 

• Improving revenue and cost data for the program, using actual use and service delivery 

cost data, and implementing key recommendations on data reliability and use. 

During FY 2007, the agency will maintain 41,140 miles of roads, maintain nearly 9,460 

recreation sites to specified standards, and maintain or improve over 13,980 miles of hiking 

trails. 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 11 

Managers at all levels of the organization plan and monitor progress toward achieving the 

primary activities listed above, as well as other planned activities. Spending and associated 

target accomplishments by activity are monitored by reports which are updated throughout the 

fiscal year. The availability of up-to-date spending and associated results allows managers to 

monitor progress and make program of work adjustments as needed to reach program goals. 

Goal 4 – Help Meet Energy Resource Needs 

America presently faces its most serious energy crises since the oil embargoes of the 1970s. 

Domestic energy consumption currently exceeds production. Total primary domestic energy 

consumption is projected by the Energy Information Administration to increase from 99.7 

quadrillion British thermal units (BTUs) in 2004 to 127.0 quadrillion BTUs in 2025. Net 

imports of energy on a BTU basis are expected to constitute approximately 32 percent of 

domestic energy consumption by 2025. The increased production imbalance and implied 

dependence on foreign oil could jeopardize the Nation’s economy, standard of living, and 

security. Recognizing the gravity of the situation, in his second week in office President George 

W. Bush established a National Energy Policy Group to develop a policy framework that would 

“promote dependable, affordable, and environmentally sound production and distribution of 

energy for the future.” The National Energy Policy Group finalized the National Energy Policy; 

the Research, State and Private Forestry, and National Forest System programs play important 

roles in implementing the Policy’s recommendations. Recommendations include increasing 

domestic production of traditional energy sources (e.g., oil, natural gas, and coal) in 

environmentally sound ways; capitalizing on the potential of woody biomass as a renewable 

energy source; increasing local industrial and community infrastructure necessary for harvesting, 

processing, and marketing biomass for energy and other bioproducts; and enhancing our existing 

infrastructure for transmitting energy across the country. 

On August 8, 2005, the Energy Policy Act of 2005 was signed into law by President Bush to ease 

growing energy problems by establishing a comprehensive, long-range energy policy. The Act 

provides tax incentives and loan guarantees for traditional energy production as well as newer, 

more efficient energy technologies and conservation. 

The strategic goal of helping meet energy resource needs received a PART review during the 

2007 president’s budget year and was rated Adequate due to three factors: 

• Performance measures are incomplete, particularly relating to compliance with permit 

conditions and whether violations or outstanding issues are addressed within acceptable 

timeframes. 

• The agency works with its Federal partner, the Bureau of Land Management, through an 

interagency agreement, but a review indicated actual collaboration is sporadic and varies 

by location. This may lead to situations where application processing and program 

administration is delivered inconsistently. 

• The agency is on track with the percent of drilling permits processed but is not meeting 

its target for the percentage of lease applications processed in prescribed timeframes. 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 12 

The agency is implementing PART recommendations by 

• Refining performance measures to include compliance and remediation. 

• Improving coordination with the Bureau of Land Management to enhance program 

efficiency. 

• Reducing the backlog of lease applications by implementing authorities provided by the 

Energy Policy Act of 2005. 

The agency will direct over $37 million of the agency budget toward energy development. 

Projects will include leasing and development of substantial quantities of oil, gas, coal, coal bed 

methane and geothermal energy. This level of funding will allow full consideration of 

environmental issues in close coordination with the States and other agencies. It will also 

increase the total biomass generated from National Forest System lands originating from small 

diameter and low valued trees to be used for energy production. 

The Landownership Management program will direct $7.3 million towards energy in FY 2007. 

Emphasis will continue on processing of new energy related land use applications and on 

eliminating the backlog of pending applications and expired authorizations in order to get the 

production on-line and to markets. In response to the Energy Policy Act of 2005, the agency will 

complete the designation of utility rights-of-way corridors for oil, gas, and hydrogen pipelines in 

11 Western States, incorporating these into forest land management plans and begin work 

necessary to designate corridors in the remaining States. 

Managers at all levels of the organization plan and monitor progress toward achieving the 

primary activities listed above, as well as other planned activities. Spending and associated 

target accomplishments by activity are monitored by reports which are updated throughout the 

fiscal year. The availability of up-to-date spending and associated results allows managers to 

monitor progress and make program of work adjustments as needed to reach program goals. 

Goal 5 – Improve Watershed Condition

Over 60 million people receive at least a portion of their water from national forests and 

grasslands. This resource is a particularly scarce commodity in the arid West where many 

communities depend on national forests for their water. Many municipal watersheds in the 

Western States are at risk from catastrophic wildland fire and degradation from excessive use. 

Careful planning for, and management of, basic physical and biological resources provides the 

foundation for healthy, viable watersheds, and for the social and economic needs of 

communities. Benefits of improved watershed conditions include improved water quality, 

quantity, and timing of flows; improved forage conditions; healthier, more resilient forests; 

improved fish and wildlife habitats resulting in more robust populations; a reduction of risks 

associated with destructive wildfires; and resistance to the establishment and spread of invasive 

species. 

Watershed research provides science-based validation of the effectiveness of current methods 

and techniques to improve watersheds. It provides new information and techniques to more 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 13 

effectively and efficiently achieve this goal, and helps managers predict future resource 

condition changes due to natural and human caused processes and actions. 

The Watershed Management program will receive a PART review during FY 2006 for the 2008 

President’s Budget Year. 

The FY 2007 President’s Budget will strategically focus available resources to improve 

watershed conditions. Increases in the vegetation and watershed management program will 

provide for establishment of forest vegetation on 70,500 acres, improve forest health on 118,600 

acres, and improve rangeland health on over 105,500 acres. In addition, 21,517,618 grazing 

allotment acres will be managed to 100 percent of standard. Wildlife habitat on 1,300 miles of 

streams, 8,600 lake acres and 146,000 terrestrial acres will be restored or enhanced. Lastly, over 

1,675,000 acres of non-industrial private forestland be will managed under 17,380 approved 

stewardship management plans. 

Managers at all levels of the organization plan and monitor progress toward achieving the 

primary activities listed above, as well as other planned activities. Spending and associated 

target accomplishments by activity are monitored by reports which are updated throughout the 

fiscal year. The availability of up-to-date spending and associated results allows managers to 

monitor progress and make program of work adjustments as needed to reach program goals. 

Goal 6 – Mission Related Work in Addition to that which Supports the Agency Goals

The programs in this section are critical to the overall mission of the agency and support one or 

more of the agency goals. The President’s Budget proposes approximately $580 million to 

accomplish Goal 6. 

In FY 2007, the agency will provide quality research products and service that meet 80 percent 

of customer expectations. In addition, the forest inventory and analysis program will cover 83 

percent of the Nation. The agency will conserve the integrity of undeveloped lands and habitat 

quality through the acquisition or conveyance of 80,855 acres, and continue to update or revise 

resource management plans (40 and 36 respectively) to allow for better management of National 

Forest System lands. Finally, the agency will measure its progress in meeting finance and 

budget performance standards. 

The strategic goal to support mission related work will receive a PART review during the 2008 

president’s budget year. 

The tables on the following pages show a strategic goal funding matrix for fiscal years 2005 

through 2007. 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 14 

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 1: Reduce Catastrophic Wildland Fire Risk

Forest & Rangeland Research $30,404 269 $29,431 254 $34,469 287 $5,038 33

State and Private Forestry $38,837 57 $38,841 83 $32,818 58 -$6,023 -25

Wildland Fire Management $1,678,363 11,404 $1,728,582 11,134 $1,756,841 11,783 $28,259 649

Total, Appropriated Funds $1,747,604 11,730 $1,796,854 11,471 $1,824,128 12,128 $27,274 657

Permanent Funds $12,003 130 $0 0 $0 0 $0 0

Subtotal, Non-emergency funding $1,759,607 11,860 $1,796,854 11,471 $1,824,128 12,128 $27,274 657

Emergency Funding $445,471 $26,931 $0 0 -$26,931

TOTAL, ALL FUNDS $2,205,078 11,860 $1,823,785 11,471 $1,824,128 12,128 $344 657

Goal 2: Reduce Impacts from Invasive Species

Forest & Rangeland Research $35,195 452 $35,968 434 $33,100 311 -$2,868 -123

State and Private Forestry $108,275 518 $107,263 595 $89,351 544 -$17,912 -51

National Forest System $17,920 185 $21,983 226 $23,259 226 $1,276 0

Wildland Fire Management $24,653 116 $24,632 248 $11,354 127 -$13,278 -121

Total, Appropriated Funds $186,043 1,271 $189,846 1,504 $157,064 1,208 -$32,782 -295

Permanent Funds $69,436 785 $0 0 $0 0 $0 0

 Subtotal, Non-emergency funding $255,479 2,056 $189,846 1,504 $157,064 1,208 -$32,782 -295

 Emergency funding $2,100 $725

TOTAL, ALL FUNDS $257,579 2,056 $190,571 1,504 $157,064 1,208 -$32,782 -295

Goal 3: Provide Outdoor Recreation Opportunities

Forest & Rangeland Research $9,453 87 $9,177 75 $7,296 77 -$1,881 2

National Forest System $271,363 2,939 $272,631 2,924 $258,426 2,952 -$14,205 28

Capital Improvement & Maintenance $462,387 3,398 $396,060 2,992 $369,601 2,651 -$26,459 -341

Total, Appropriated Funds 743,203 6,424 677,868 5,991 635,323 5,681 -42,545 -311

Permanent Funds $48,327 524 $65,587 536 $54,062 536 -$11,525 0

Trust Funds $38,258 272 $55,603 270 $43,125 270 -$12,478 0

 Subtotal, Non-emergency funding $829,788 7,220 $799,058 6,797 $732,510 6,487 -$66,548 -311

 Emergency funding $87,868 $7,659 -$7,659 0

TOTAL, ALL FUNDS $917,656 7,220 $806,717 6,797 $732,510 6,487 -$66,548 -311

Goal 4: Help Meet Energy Resource Needs

Forest & Rangeland Research $17,200 160 $16,157 154 $15,415 133 -$742 -21

State and Private Forestry $19,032 77 $0 0 $0 0 $0 0

National Forest System $88,105 963 $90,378 816 $94,054 833 $3,676 18

Total, Appropriated Funds $124,337 1,200 $106,535 970 $109,469 966 $2,934 -3

Permanent Funds $408 0 $500 0 $3,880 5 $3,380 5

Emergency funding $1

TOTAL, ALL FUNDS $124,745 1,200 $107,035 970 $113,349 971 $6,314 2

Goal 5: Improve Watershed Condition

Forest and Rangeland Research $97,572 717 $91,581 607 $87,256 774 -$4,325 167

State and Private Forestry [$32,320] [---] $34,189 77 $33,880 82 -$309 5

National Forest System $674,101 7,677 $682,609 7,260 $652,821 7,320 -$29,788 61

Capital Improvement & Maintenance $38,485 330 $38,627 288 $13,000 204 -$25,627 -85

Other Appropriations $3,021 19 $3,130 19 $3,932 19 $802 0

Total, Appropriated Funds $813,179 8,743 $850,136 8,252 $790,889 8,399 -$59,247 148

Permanent Funds $2,226 61 $102,074 1,037 $91,079 1,042 -$10,995 5

Trust Funds $107,009 823 $210,219 924 $160,000 1,023 -$50,219 99

Subtotal, Non-emergenct funds $922,414 9,627 $1,162,429 10,213 $1,041,968 10,464 -$120,461 252

Emergency Funds $7,847 $12,946 -$12,946 0

TOTAL, ALL FUNDS $930,261 9,627 $1,175,375 10,213 $1,041,968 10,464 -$133,407 252

Goal 6: Other Forest Service Programs & Activities

Forest and Rangeland Research $86,561 820 $96,615 855 $90,255 823 -$6,360 -32

State and Private Forestry $126,362 206 $99,113 118 $88,361 93 -$10,752 -25

National Forest System $329,317 3,086 $335,790 3,465 $369,505 3,345 $33,715 -120

Capital Improvement & Maintenance $13,829 91 [$9,725] [82] [$9,333] [79] --- ---

Land Acquistion $62,292 138 $43,159 140 $26,361 102 -$16,798 -38

Other Appropriations $5,943 26 $5,056 23 $5,374 26 $318 3

Total, Appropriated Funds $624,304 4,367 $579,733 4,602 $579,856 4,389 $123 -212

Permanent Funds $439,032 237 $495,168 312 $482,671 332 -$12,497 20

Subtotal, Non-emergenct funds $1,069,279 4,630 $1,079,957 4,937 $1,067,901 4,747 -$12,056 -190

Emergency funds $38,643 $8,738 -$8,738 0

TOTAL, ALL FUNDS $1,107,922 4,630 $1,088,695 4,937 $1,067,901 4,747 -$20,794 -190

TOTAL, ALL GOALS

Forest & Rangeland Research $276,384 2,505 $278,929 2,379 $267,791 2,405 -$11,138 26

State and Private Forestry $292,506 858 $279,406 874 $244,410 777 -$34,996 -97

National Forest System $1,380,806 14,851 $1,403,391 14,691 $1,398,066 14,678 -$5,325 -13

Wildland Fire Management $1,703,016 11,520 $1,753,214 11,382 $1,768,195 11,910 $14,981 528

Capital Improvement & Maintenance $514,701 3,819 $434,687 3,280 $382,601 2,855 -$52,086 -425

Land Acquistion $62,292 138 $43,159 140 $26,361 102 -$16,798 -38

Other Appropriations $8,964 45 $8,186 42 $9,306 45 $1,120 3

Subtotal, Appropriated Funds, non-emergency $4,238,669 33,736 $4,200,972 32,790 $4,096,730 32,772 -$104,242 -18

Emergency Funding $581,929 $57,000 $0 -$57,000 

Total, Appropriated Funds $4,820,598 33,736 $4,257,972 32,790 $4,096,730 32,772 -$161,242 -18

Permanent Funds $571,432 1,737 $663,329 1,885 $631,692 1,915 -$31,637 30

Trust Funds $145,267 1,095 $265,822 1,194 $203,125 1,293 -$62,697 99

Subtotal, Non-emergency funding $4,955,368 36,568 $5,130,123 35,869 4,931,547 35,980 $68,368 111

Emergency Funding $581,929 $57,000 $0 -$57,000 0

TOTAL, ALL FUNDS* $5,537,297 36,568 $5,187,123 35,869 $4,931,547 35,980 $11,368 111

*Does not include 627 Working Capital Fund FTEs in each year

Permanent Funds and Trust Funds show Program Level amounts, so totals for this chart will differ from the Three Year Budget Authority Table

Strategic Goal Funding Matrix

(dollars in thousands)

FY 2005 Enacted FY 2006 Enacted FY 2007 Pres Budget FY 2007 vs FY 2006

 
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 15 Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years Goal 1: Reduce Castrophic Wildland Fire Risk $30,404 269 $29,431 254 $34,469 287 $5,038 33 $32,920 57 $32,930 59 $26,960 58 -$5,970 -1 $5,917 0 $5,911 0 $5,858 0 -$53 0 $676,470 7,280 $666,068 5,725 $655,887 6,228 -$10,181 503 $648,859 1,695 $690,186 3,350 $746,176 3,097 $55,990 -253 $262,539 2,230 $281,793 2,370 $291,792 2,275 $9,999 -95 $12,819 0 $6,188 46 $1,980 15 -$4,208 -31

$21,719 192 $22,877 167 $20,121 166 -$2,756 -1

$7,889 0 $7,882 0 $3,960 0 -$3,922 0

$40,179 7 $45,816 2 $29,115 2 -$16,701 0

$7,889 0 $7,772 0 $7,810 0 $38 0

Total -Appropriated Funds $1,747,604 11,730 $1,796,854 11,973 $1,824,128 12,128 $27,274 155

$12,003 130

$1,759,607 11,860 $1,796,854 11,973 $1,824,128 12,128 $27,274 155

$445,471 $26,931

$2,205,078 11,860 $1,823,785 11,973 $1,824,128 12,128 $27,274 155

* Brush Disposal moved from Goal 1 (Fire) to Goal 5 (Watershed) starting in FY 2006WFM: PreparednessWFM: Operations -SuppressionWFM: Operations - Hazardous FuelsWFM: NFP - RehabilitationWFM: NFP - Research and DevelopmentWFM: NFP - Joint Fire ScienceWFM: NFP State Fire Assistance

FY 2005 - FY 2007 Funding and FTEs by Strategic Goal

Forest & Rangeland ResearchS&PF: State Fire AssistanceS&PF: Volunteer Fire Assistance

FY 2006 Enacted FY 2007 Pres Budget FY 2007 vs FY 2006

(dollars in thousands)

FY 2005 Enacted

**Emergency Funds, FY 2005 - Includes $394,443 for fire suppression (P.L. 108-108), $30,000 for San Bernardino NF hazardous fuels (P.L. 108-287), $1,028 for WFM: NFP Volunteer Fire AssistancePermanent Funds - Brush Disposal*Total - Non-emergency fundsEmergency Funds**Total Funding - Goal 1hurricane damage related projects in the WFM appropriationa and $20,000 in the S&PF appropriation) (P.L.. 108-324).
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 16 Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years Goal 2:Reduce Impacts from Invasive Species $35,195 452 $35,968 434 $33,100 311 -$2,868 -123 $54,236 436 $53,438 458 $49,849 457 -$3,589 -1 $47,629 57 $46,928 62 $34,581 62 -$12,347 0 $6,410 25 $6,897 0 $4,921 25 -$1,976 25

$17,920 185 $21,983 202 $23,259 226 $1,276 25$14,792 116 $14,780 120 $6,802 120 -$7,978 0

$9,861 0 $9,852 7 $4,552 7 -$5,300 0

Total -Appropriated Funds $186,043 1,271 $189,846 1,283 $157,064 1,208 -$32,782 -74

$69,436 785

$255,479 2,056 $189,846 1,283 $157,064 1,208 -$32,782 -74

$2,100 $725

$257,579 2,056 $190,571 1,283 $157,064 1,208 -$32,782 -74

* Salvage Sales moved from Goal 2 (Invasives) to Goal 5 (Watershed) starting in FY 2006**Emergency Funds, FY 2005 - funding for hurricane damage related projects (P.L. 108-324); FY 2006 funding in P.L. 109-148)

FY 2006 Enacted FY 2007 Pres Budget FY 2007 vs FY 2006

(dollars in thousands)

FY 2005 - FY 2007 Funding and FTEs by Strategic Goal

FY 2005 Enacted

Forest & Rangeland ResearchS&PF: Forest Health, Federal LandsS&PF: Forest Health, Cooperative LandsInternational ForestryNFS: Vegetation and WatershedWFM: NFP - Forest Health, Federal LandsWFM: NFP - Forest Health, Cooperative LandsPermanent Funds - Salvage Sales*Total - Non-emergency fundsEmergency Funds**Total Funding - Goal 2
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 17 

 

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 3:Provide Outdoor Recreation Opportunities

$9,453 87 $9,177 75 $7,296 77 -$1,881 2

$257,343 2,812 $261,299 2,878 $250,880 2,874 -$10,419 -4

$9,089 89 $9,115 90 $7,546 78 -$1,569 -11$4,931 38 $2,217 11 $0 0 -$2,217 -11

$462,387 3,398 $396,060 1,992 $369,601 2,651 -$26,459 659

Total -Appropriated Funds $743,202 6,424 $677,868 5,045 $635,323 5,681 -$42,545 635

$87,868 $7,659

$831,070 6,424 $685,527 5,045 $635,323 5,681 -$42,545 635

FY 2005 - FY 2007 Funding and FTEs by Strategic Goal

Forest & Rangeland ResearchNFS: Recreation, Heritage & Wilderness ResourcesNFS: Wildlife and Fish Habitat ManagementNFS: Centennial of Service ChallengeCapital Improvement & MaintenanceEmergency Funds*Total Funding - Goal 3* IFY 2005 Emergency Funding includes $50,815 for hurricane damage related CI&M projects and $10,000 for Forest Stewardship program (P.L. 108-324) $2,663 for hurricane damage projects in NFS (108-324), and $24,390 in southern California flood damage funds (P.L. 109-113); FY 2006 funding in P.L. 109-148)

(dollars in thousands)

FY 2005 Enacted FY 2006 Enacted FY 2007 Pres Budget FY 2007 vs FY 2006

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 4:Help Meet Energy Resource Needs

$17,200 160 $16,320 154 $15,415 133 -$905 -21$19,032 77 $0 0 $0 0 $0 0$47,696 516 $50,632 357 $54,040 423 $3,408 66$40,409 447 $39,746 425 $40,014 411 $268 -14

Total -Appropriated Funds $124,337 1,200 $106,698 936 $109,469 966 $2,771 31

$0 $1

$124,337 1,200 106,699 936 $109,469 966 $2,771 31

* Economic Action Programs moved to Goal 6 (All Other) starting in FY 2006

FY 2005 - FY 2007 Funding and FTEs by Strategic Goal

Forest & Rangeland Research

(dollars in thousands)

FY 2005 Enacted FY 2006 Enacted FY 2007 Pres Budget FY 2007 vs FY 2006

NFS: Landownership Management

** Emergency funds in FY 2006 in P.L. 109-148

S&PF: Economic Action Programs*NFS: Minerals and Geology ManagementEmergency Funds**Total Funding - Goal 4
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 18 Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years Goal 5:Improve Watershed Condition $97,572 717 $91,581 607 $87,256 774 -$4,325 167 $0 0 $34,189 80 $33,880 82 -$309 2 $42,680 510 $0 0 $0 0 $0 0 $12,596 130 $48,557 235 $0 0 -$48,557 -235 NFS: Wildlife and Fish Habitat Management $125,660 1,369 $123,750 1,271 $116,002 1,268 -$7,748 -4 NFS: Grazing Management $48,034 555 $48,279 548 $39,735 466 -$8,544 -82 NFS: Forest Products $273,247 3,243 $280,115 3,347 $310,114 3,770 $29,999 423 NFS: Vegetation and Watershed Management $166,954 1,834 $154,639 1,271 $159,769 1,597 $5,130 326

NFS: Minerals and Geology Management**** $0 0 $25,052 205 $27,202 219 $2,150 14NFS: Centennial of Service Challenge $4,930 37 $2,217 11 $0 0 -$2,217 -11Capital Improvement & Maintenance $38,485 330 $38,627 295 $13,000 204 -$25,627 -91Other Appropriations: Range Betterment Fund $2,472 19 $3,130 19 $3,932 19 $802 0Total -Appropriated Funds $812,630 1,357 $850,136 922 $790,889 856 -$53,191 -66

$7,847 $12,946

$820,477 1,357 $863,082 922 $790,889 856 -$53,191 -66

* Forest Stewardship moved from Goal 6 (All Other) to Goal 5 (Watershed) in FY 2006** Land Management Planning activity "Create/Revise Forest Plan Projects" moved from Goal 5 (Watershed) to Goal 6 (All Other) starting in FY 2006

FY 2005 - FY 2007 Funding and FTEs by Strategic Goal

Forest & Rangeland ResearchS&PF: Forest Stewardship*NFS: Land Management Planning**

(dollars in thousands)

FY 2007 vs FY 2006

Emergency Funds******Total Funding - Goal 5*** Inventory and Monitoring broadscale assessment activities moved to Goal 6 (All Other) in FY 2007 and combined with "Landscape Scal Assessments" into activity "Number of ecosystem assessment activities completed

NFS: Inventory and Monitoring***

FY 2005 Enacted FY 2006 Enacted FY 2007 Pres Budget

  ECAP/AML program transferred from Vegetation and Watershed Management to Minerals and Geology in FY 2006** *** Emergency Funding, FY 2005 includes $7,847 for hurricane damage related projects (P.L. 108-324); FY 2006 funding in P.L. 109-148
FY 2007 Budget Justification USDA Forest Service

Budget and Performance Integration 2- 19 Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years Goal 6:Mission Related Work in Addition to That Which Supports the Agency Goals $86,561 820 $96,615 855 $90,255 823 -$6,360 -32 $32,320 84 $0 0 $0 0 $0 0 S&PF: Forest Legacy $57,134 22 $56,536 26 $61,515 26 $4,979 0 S&PF: Urban and Community Forestry $31,950 69 $28,451 67 $26,846 67 -$1,605 0 S&PF: Economic Action Program $0 0 $9,537 42 $0 0 -$9,537 -42 S&PF: Forest Resource and Inventory Analysis $4,958 31 $4,589 14 $0 0 -$4,589 -14 $20,487 198 $58,188 558 $55,555 579 -$2,633 21 $154,706 1,478 $119,118 1,303 $154,135 1,432 $35,017 129 NFS: Vegetation and Watershed Management $4,740 40 $4,719 35 $4,554 34 -$165 -1 NFS: Minerals and Geology Management*** $8,051 65 $8,918 63 $0 0 -$8,918 -63

NFS: Landownership Management $51,720 545 $51,886 527 $44,271 477 -$7,615 -50NFS: Law Enforcement Operations $86,014 756 $87,887 880 $110,000 823 $22,113 -57NFS: Valles Caldera National Preserve $3,599 4 $5,074 1 $990 0 -$4,084 -1Capital Improvement and Maintenance**** $13,829 91 $0 0 $0 0 $0 0Land Acquisition $62,292 138 $43,159 118 $26,361 102 -$16,798 -16Other Appropriations: Gifts, Donations & Requests $64 0 $63 0 $63 0 $0 0Other Appropriations: Subsistence Management $5,879 26 $4,993 24 $5,311 26 $318 2

Total -Appropriated Funds $624,304 4,367 $579,733 4,514 $579,856 4,389 $123 -124

$38,643 $8,738

$662,947 4,367 $588,471 4,514 $579,856 4,389 $123 -124

* Forest Stewardship moved to Goal 5 (Watershed) starting in FY 2006

FY 2005 - FY 2007 Funding and FTEs by Strategic Goal

Forest & Rangeland ResearchS&PF: Forest Stewardship*NFS: Land Management PlanningNFS: Inventory and Monitoring**Emergency Funds Total Funding - Goal 6**  All funding for Inventory and Monitoring moved to Goal 6 in FY 2007*** Manage Geologic Resources and Hazards activity moved to Goal 5 in FY 2007 Emergency funding for FY 2005 Includes $1,643 for hurricane damage related projects (P.L. 108-324); funding for FY 2006 hurricane damage in P.L. 109-xxx** ** Infrastructure Improvement moved to Goal 3 (Recreation) starting in FY 2006

(dollars in thousands)

FY 2005 Enacted FY 2006 Enacted FY 2007 Pres Budget FY 2007 vs FY 2006

FY 2007 Budget Justification USDA Forest Service

Performance Management 

Chapter 3 

Performance Management

FY 2007 Budget Justification USDA Forest Service

Performance Management 3-1

Program Assessment Rating Tool (PART) Overview 

Introduction 

The Program Assessment Rating Tool (PART) is used to evaluate the strengths and weaknesses 

of agency programs. It is a rigorous process that uses a standard set of questions applied to all 

programs to assess a program’s purpose and design, how well the program supports an agency’s 

strategic goals and objectives, how well it is managed, and results achieved by the program. 

Programs are scored using five categories: effective; moderately effective; adequate; ineffective; 

and if the program does not have adequate performance measures, results not demonstrated. 

Programs receiving a score of results not demonstrated must complete a PART reassessment. 

Program Assessment Summary 

The Forest Service has completed nine PART assessments to date (through the fiscal year 2007 

President’s Budget Request). Two of these assessments were reassessments from earlier PART 

analyses, which resulted in improved performance measures and improved scores. For the fiscal 

year 2008 President’s Budget Request, the Forest Service will complete two new assessments, in 

addition to completing two reassessments. Below is a summary of assessments by program area, 

which includes actions taken to improve PART scores. 

Figure 1: PART Schedule for the USDA Forest Service 

Budget Year Program Assessed Status

Wildland Fire Management

Capital Improvement and Maintenance

Land Acquisition

Forest Legacy

Invasive species

Forest Legacy Reassessment

Energy

Recreation

Land Acquisition Reassessment

Support Mission NA

Watershed Management NA

Wildland Fire Management Reassessment NA

Invasive Species Reassessment NA

Legend

Moderately Effective

Adequate

Results Not Demonstrated

Reassessment Demonstrating Improvement

NA Assessment Scheduled

2008

2004

2005

2006

2007
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-2

Wildland Fire Management 

Initial Assessment: Fiscal Year 2004 President’s Budget Request 

Rating: Results Not Demonstrated (RND) 

Reassessment Scheduled: Fiscal Year 2008 President’s Budget Request 

Actions Taken To Improve PART Score 

Performance Measures Changes

The agency, in cooperation with Department of Interior, is in the process of approving new 

performance measures that will be contained in the 10-Year Comprehensive Strategy. In 

addition, the agency is reporting on specific performance measures associated with fire 

suppression costs as directed by Congress. 

Partnership Development

Since the original PART assessment, the Forest Service has worked in cooperation with the 

Department of Interior and States to develop a 10-year Comprehensive Strategy. 

Program Cost Reductions 

The agency will report on the many actions taken to date to reduce costs. Most actions have 

occurred since the RND rating. 

Independent Reviews 

The agency will report on the numerous independent reviews that have occurred since the RND 

score was issued. The report will include the actions taken to address shortfalls. 

Capital Improvement and Maintenance 

Initial Assessment: Fiscal Year 2004 President’s Budget Request 

Rating: Adequate 

Actions Taken To Implement PART Recommendations 

• Use enhanced disposal authority to reduce the number of excess facilities; align the road 

system with available resources; and assess projects for efficiency improvements. 

• Continue facility and developed recreation site master planning efforts to identify optimum 

locations, sizes and numbers of facilities to reduce future maintenance needs. 

• Continue facility assessments to optimize utilization, reduce costs, and improve the facility 

condition index by reducing facility deferred maintenance by at least 25 percent by 2010. 
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-3

Land Acquisition 

Initial Assessment: Fiscal Year 2005 President’s Budget Request 

Rating: Results Not Demonstrated (RND) 

Reassessment Competed: Fiscal Year 2007 President’s Budget Request 

Rating: Adequate 

Actions Taken To Improve PART Score 

Performance Measures Changes

The Forest Service developed two new outcome measures for acres acquired that increase public 

access, recreation opportunities, and threatened and endangered species habitat. 

Forest Legacy 

Initial Assessment: Fiscal Year 2005 President’s Budget Request 

Rating: Results Not Demonstrated (RND) 

Reassessment Completed: Fiscal Year 2006 President’s Budget Request 

Rating: Moderately Effective 

Actions Taken To Improve PART Score 

Performance Measures Changes

The agency developed and implemented new outcome and efficiency measures that more 

accurately capture the benefits of the program. The program received credit for developing a 

national 5-year program strategic direction that sets national program goals and measures 

performance annually as well as for electing to undergo periodic independent assessments of 

program management effectiveness. 

Invasive species 

Initial Assessment: Fiscal Year 2006 President’s Budget Request 

Rating: Results Not Demonstrated (RND) 

Reassessment Scheduled: Fiscal Year 2008 President’s Budget Request 

Actions Taken To Improve PART Score 

Performance Measures Changes

The agency developed new measures that are aimed at refining outcome-based performance 

measures as well as efficiency measures, both of which attempt to look at the environmental and 

economic effects of treatments. 
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-4

Funding Allocation Changes 

The agency is updating the national risk assessment map, which will assist in prioritizing 

allocations, and is implementing a new, performance-based allocation system beginning with the 

2006 allocation process. 

Independent Review

An independent program review will be completed during fiscal year 2006 

Energy 

Initial Assessment: Fiscal Year 2007 President’s Budget Request 

Rating: Adequate 

Actions Taken To Implement PART Recommendations 

• Initiate a comprehensive energy program evaluation by an independent consultant to focus on 

the processing of oil and gas lease nominations and applications to drill and the 

administration of oil and gas operations. 

Recreation 

Initial Assessment: Fiscal Year 2007 President’s Budget Request 

Rating: Moderately Effective 

Actions Taken To Implement PART Recommendations 

• Amend the Forest Service strategic plan to include Recreation Program performance 

measures that better link improvements in program performance with achievement of 

strategic goals 

• Optimize available resources by completing business plans for each national forest or 

grassland recreation area 

• Improve revenue and cost data for the program, using actual utilization and service delivery 

cost data, and implementing key recommendations on data reliability and use. 

Support Mission 

Initial Assessment Scheduled: Fiscal Year 2008 President’s Budget Request 

Watershed Management 

Initial Assessment Scheduled: Fiscal Year 2008 President’s Budget Request 
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-5

Corrective Action Plans for Executive Priority Measures with 

Unmet Targets 

Introduction 

This section describes and explains the unmet targets for the executive priority measures from 

fiscal year 2005 that are aligned to the Forest Service's strategic goals and objectives. These 

measures will also be included in the agency's annual Performance and Accountability Report. 

Performance accountability is an integral part of the Forest Service’s operating standards for 

work planning and accomplishment reporting. The agency assigns targets to WO staff, regions, 

stations, and the Northeast Area based on the agency’s strategic plan goals and objectives, and 

input from executive leaders as to on-the-ground capability. Each unit within the agency 

develops a program of work consisting of specific projects planned in the Forest Service 

WorkPlan system that includes accomplishments based on congressional direction, the strategic 

plan, resource management plans, and budget allocations. Project plans are reviewed and 

updated throughout the fiscal year to reflect changed conditions. 

Accomplishment data is reported in a designated system/database and is gathered at the national 

forest level and summarized to the region and agency level for use by internal and external 

customers. The accomplishment data for key performance measures is used as part of the annual 

Regional Forester and other Senior Executive Service individual performance evaluations. In 

2005, the Forest Service issued an internal directive to improve internal controls over 

performance data reporting. Maintaining and reporting quality performance data is reinforced 

through individual performance plan evaluations. The Forest Service requires line officers at the 

regional level to certify that key performance data are valid and reliable while documenting those 

data items that do not meet the standard. Managers, supervisors and project staff review the 

completeness and quality of the data on an on-going basis at the regional, national forest, and 

ranger district levels. On-site activity and program reviews conducted by Washington Office 

staff increase the review and analysis of information reported during the year. Year-end 

accomplishment reports are analyzed and agency level corrective action plans are developed for 

unmet measures. 

Following are both specific and generic explanations (OMB Circular A-11 Section 230.2) for 

variances from the targets based on the actual, 12-month data. Included in the "explanation and 

action plan" section for each performance measure is a discussion of any material inadequacies 

of the data, explanations for the variance, and the necessary corrective actions, if applicable. 
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-6 

Revised March 1, 2006

Fiscal Year 2005 National accomplishments with a material difference short 

of targets (defined by 5 percent criteria) 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp 

% of 

Target 

Target Accomp 

Total miles of high clearance road 

maintained at objective maintenance 

level (Level 1 & 2) 

EP3.1B RD-HIGH-FN 

Total miles of passenger car road 

maintained at objective maintenance 

level (Level 3, 4, & 5) 

RD-PASS-FN 

83% 87,400 72,376 

EP3.1D Rights-of-way acquired LM-ROW-ACQFN 92% 250 229 

EP4.1A Oil and Gas applications processed in 

prescribed timeframes 

MG-OG-APP-FN 27% 45% 12% 

EP6.5B Number of annual monitor and 

evaluation reports completed 

IM-LMP-M&E-FN 89% 118 105 

EP6.5C Land Management Plan (LMP) 

revisions/new plans completed 

PN-LMP-COMPFN 63% 16 10 

Explanations and Action Plans 

Road Maintenance 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp 

% of 

Target 

Target Accomp 

Total miles of high clearance road 

maintained at objective maintenance 

level (Level 1 & 2) 

EP3.1B RD-HIGH-FN 

Total miles of passenger car road 

maintained at objective maintenance 

level (Level 3, 4, & 5) 

RD-PASS-FN 

83% 87,400 72,376 

Under accomplishment of road maintenance miles is a result of several factors. One is the need 

for further refinement of measure standards which has lead to inconsistent descriptions of 

capability (and hence inconsistent target setting) and inconsistent reporting. Another was the 

need to shift program emphasis and funding to engineering support due to the increased 

emphasis on hazardous fuels and forest management projects. The agency is in the process of 

refining accomplishment measure definitions to implement in FY 2008. 
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-7

Rights-of-way acquired 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp 

% of 

Target 

Target Accomp 

EP3.1D Rights-of-way acquired LM-ROW-ACQ-FN 92% 250 229 

Underaccomplishment was the result of several factors including the refusal of State agencies to 

grant easements, landowner unwillingness, defense of existing rights taking priority over 

acquisition of new rights, and substitution of permits in some cases in lieu of easements to 

accommodate fire salvage and rehabilitation activities requiring a short timeframe. The timing 

for reporting of capability from regions has been changed to allow more precise establishment of 

targets in the future to better anticipate these normal program delivery anomalies. 

Oil and Gas applications processed in prescribed timeframes 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp 

% of 

Target 

Target Accomp 

EP4.1A Oil and gas applications processed in 

prescribed timeframes 

MG-OG-APP-FN 27% 45% 12% 

For applications for permit to drill, the focus was on reducing the number of FY 2003 

backlogged applications rather than on processing new applications. To improve performance, 

the Forest Service will refine performance measures to include compliance and remediation, and 

improve coordination to enhance program efficiency. The agency will reduce the backlog of 

lease applications by implementing authorities provided by the Energy Policy Act of 2005, in 

particular section 365, which will establish pilot offices to address application processing. 

Land Management Plan (LMP) Monitoring and Evaluation Reports 

Exec Priority FY 2005 Accomplishment Measure '05 Accomp 

Code 

Accomp 

% of 

Target 

Target Accomp 

EP6.5B Number of annual monitor and 

evaluation reports completed 

IM-LMPM&E-FN 89% 118 105 

The measure wording does not capture the effort associated with the requirements for monitoring 

and evaluation reports being completed. The action plan includes the replacement of the 

measure with a new measure that focuses on the requirement efforts instead of the completion of 

a given report. No other action is required 
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-8 

Revised March 1, 2006

 Land Management Plan (LMP) Revisions/New Plans Completed 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp 

% of 

Target 

Target Accomp 

EP6.5C Land Management Plan (LMP) 

revisions/new plans completed 

PN-LMP-COMP-FN 63% 16 10 

The shortfall was primarily due to Region 9. That region, although doing its revisions under the 

1982 rule, incorporated emphases included in the 2005 rule, reducing their accomplishments as a 

result. The agency has updated its schedule to reflect this and the targets will carryover into 2006 

so the shortfall is not ignored. 

FY2005 National accomplishments with a material difference exceeding 

targets (defined by 5 percent criteria) 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp 

Code 

Accomp 

% of 

Target 

Target Accomp 

EP2.1A Acres of noxious weeds and invasive 

plants treated 

VW-NOXWD-TR-FN 159% 75,456 120,040 

Forest health acres treated on 

cooperative lands 

SP-FHMFIRE-COOPFN 

Forest health acres treated on federal 

lands 

SP-FHMFIRE-FED-FN 

Forest health acres managed on 

cooperative lands 

SP-FHMPRO-COOPFN 

EP2.1B 

Forest health acres managed on federal 

lands 

SP-FHMPRO-FED2-

FN 

118% 918,000 1,083,566 

EP3.1A Miles of trails maintained to standard TL-MTCSTD-FN 122% 20,612 25,208 

EP3.1C Number of facilities maintained to 

standard 

FC-FACMNT-FNNUM 166% 15,802 26,238 

EP5.3A Acres of terrestrial habitat enhanced WL-HAB-FN 125% 184,715 230,867 

EP5.3C Acres of lake enhanced WL-LAK-REFN 150% 12,826 19,250 

Acres acquired LA-LNDPURCH-FN 

Acres adjusted LM-OWNERADJ-FN 

EP6.3A 

Forest legacy acres acquired SP-LEGPROT-FN 

151% 297,428 448,167 

EP6.5D Number of grazing allotments with 

signed decision notices 

RG-GZNEPA-FN 115% 473 543 
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-9

Explanations and Action Plans 

Noxious Weed/Invasive Plant Treatment 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp % 

of Target 

Target Accomp 

EP2.1A Acres of noxious weeds and invasive 

plants treated 

VW-NOX-WD-TRFN 159% 75,456 120,040 

This high level of performance was achieved in every Forest Service region of the country, with 

individual regional performance ranging from 105 percent to 382 percent of projected 

performance levels for invasive plant treatments. This high level of performance reflects the 

agency emphasis on curbing the invasive species threat and the strategic approach to addressing 

the problem at the field level. In response to this level of accomplishment the agency will work 

with the regions with the intention of increasing proposed targets for FY 2006 and FY 2007 to 

more accurately reflect capability. 

Forest Health Protection 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp 

Code 

Accomp 

% of 

Target 

Target Accomp 

Forest health acres treated on cooperative 

lands 

SP-FHM-FIRECOOP-FN 

Forest health acres treated on federal lands SP-FHM-FIREFED-FN 

Forest health acres managed on cooperative 

lands 

SP-FHM-PROCOOP-FN 

EP2.1B 

Forest health acres managed on federal lands SP-FHM-PROFED2-FN 

118% 918,000 1,083,566

The over-accomplishment of 18 percent above the FY 2005 target is attributable to treatment 

efficiencies realized during final project planning and implementation stages, including reduced 

contract costs. No further action is necessary. 

Miles of Trails receiving maintenance 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp % 

of Target 

Target Accomp 

EP3.1A Miles of trails maintained to standard TL-MTC-STD-FN 122% 20,612 25,208 

The confidence level of the reporting precision is being examined. There are concerns about the 

uniformity of systems to track accomplishments. More accurate information on the conditions of 

trails, and the implementation of the INFRA trails module will lead to better target 

establishments in the future, and better precision in the reporting of actual accomplishments. 

This effort is underway in FY 2006. 
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-10

Number of facilities maintained to standard 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp 

% of 

Target 

Target Accomp 

EP3.1C Number of facilities maintained to 

standard 

FC-FAC-MNT-FNNUM 166% 15,802 26,238 

Of the approximately 41,000 buildings in the agency, approximately 16,000 were unrated when 

the target was established. The assumptions made about the conditions of those buildings when 

the target was set for FY 2005 proved to be too pessimistic. As the facility data was cleaned up, 

more buildings proved to be at standard than was assumed, hence the accomplishment exceeded 

the target. Targets for FY 2006 and beyond will be increased to reflect the improved building 

condition inventory. 

Terrestrial Wildlife Habitat Restored or Enhanced 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp 

% of 

Target 

Target Accomp 

EP5.3A Acres of terrestrial habitat enhanced WL-HAB-FN 125% 184,715 230,867 

Favorable weather prevailed in most areas during burning seasons which allowed for increased 

accomplishments. This is a weather-related situation, and no further action is necessary. 

Lakes Restored or Enhanced 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp 

% of 

Target 

Target Accomp 

EP5.3C Acres of lake enhanced WL-LAK-RE-FN 150% 12,826 19,250 

Acres accomplished over the planned amount were acres made accessible in a single project for 

anadromous salmon by reconstruction of a nonfunctioning fish ladder in one region. This project 

was not anticipated in the original capability projections. No further action is warranted. 

Acres Acquired & Acres Adjusted 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp % 

of Target 

Target Accomp 

Acres acquired LA-LND-PURCHFN 

Acres adjusted LM-OWNER-ADJFN 

EP6.3A 

Forest legacy acres acquired SP-LEG-PROT-FN 

151% 297,428 448,167 

The increase in actual landownership acres adjusted was due to a planned FY 2004 land 

exchange that did not occur until FY 2005. The exchange included the Federal acquisition of 

approximately 18,600 acres for the conveyance of approximately 297,400 acres of both Federal 

lands and mineral interests to the State of Florida, for a total of about 316,000 acres. No followup is warranted. 
FY 2007 Budget Justification USDA Forest Service

Performance Management 3-11

Grazing Allotment Decisions Signed (Analyzed/NEPA) 

Exec 

Priority 

FY 2005 Accomplishment Measure '05 Accomp Code Accomp 

% of 

Target 

Target Accomp 

EP6.5D Number of grazing allotments with 

signed decision notices 

RG-GZ-NEPA-FN 115% 473 543 

The overaccomplishment for 2005 is due to the increased authority for categorical exclusions 

provided in the 2005 appropriations bill. Due to the late enactment of that bill, the agency could 

not move quickly to accomplish more last year, and the accomplishments got carried over to this 

year. Also, with the planning process slimmed down according to the FSM 2209.13 Chapter 90, 

we have been able to get more work done. All this was done through a significant effort 

combining multiple allotments in one document. No follow-up actions are necessary. 

FY 2007 Budget Justification USDA Forest Service

National Fire Plan 

Chapter 4 

National Fire Plan

FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-1 

 National Fire Plan 

Background 

In 2000, the President requested the Secretaries of the Departments of Agriculture and the 

Interior to prepare a report recommending how to respond to severe, ongoing fire activity, reduce 

impacts of fires on rural communities and the environment, and ensure sufficient firefighting 

resources in the future. The report, Managing the Impacts of Wildfire on Communities and the 

Environment: A Report to the President in Response to the Wildfires of 2000, became the 

cornerstone of what is known as the National Fire Plan (Plan or NFP). Acting on presidential 

and congressional direction in 2001, the Secretaries of Agriculture and the Interior joined State 

governors and other partners in developing the 10-Year Comprehensive Strategy and its 

subsequent Implementation Plan to further develop a coordinated strategy addressing the threats 

posed by wildland fire. 

In August 2002, the President announced his Healthy Forests Initiative to implement core 

components of the National Fire Plan and the 10-Year Comprehensive Strategy through a series 

of measures to reduce the adverse human and environmental impacts of wildland fire. This 

effort led to the enactment of the Healthy Forests Restoration Act of 2003. All the reports, 

guidance, and legislative assistance are now in place, incorporated under the concepts of the 

National Fire Plan and reducing the devastation of severe wildland fire as well as improving the 

health of the Nation’s forests and rangelands. 

Five Years of National Fire Plan Implementation 

The Plan represents a commitment to help protect communities, natural resources, and most 

importantly, the lives of firefighters and the public. This commitment is shared among Federal 

agencies, States, local governments, tribes, and other partners. Collaboration, priority setting, 

and accountability are the guiding principles that will ensure the continued success of the Plan. 

Since the inception of the Plan, the five Federal wildland fire management agencies (the Bureau 

of Land Management, Bureau of Indian Affairs, National Park Service, and Fish and Wildlife 

Service in the Department of the Interior (DOI) and the Forest Service in the Department of 

Agriculture) have made significant progress in creating a seamless fire protection response. 

Congress has supported this effort by providing funds to maintain firefighting capabilities; 

reduce the amount of hazardous fuels with special emphasis on areas around communities; 

increase fire-related research; increase State and local fire prevention and firefighting programs; 

increase economic development through contracting; restore fire damaged lands; and improve 

accountability for the resources used in fighting wildland fires. 

Firefighting Challenges 

In 2005, the Departments jointly spent over $984 million suppressing fires that burned more than 

8.6 million acres nationally; 4.4 million were in Alaska and 4.2 million acres in the lower 48 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-2 

States. More than 240 primary residences, and 750 total structures were lost to wildfire, many 

were adjacent or in close proximity to Federal lands. Most tragically, the fires of 2005 resulted 

in the fatalities of three firefighters. 

 

Federal wildland fire management agencies demonstrated the positive results of years of 

coordinating their suppression resources. Combined with State and local resources, the five 

agencies provided the public with an effective and seamless firefighting effort. Firefighters 

protected thousands of homes, businesses and other structures threatened by large fires. Of the 

66,020 fires reported on public lands in 2005, 437 were classified as wildland fire use fires, 

occurring on 489,000 acres. National interagency initial attack was successful on 98 percent of 

fires in 2005. 

Ultimately, measures to reduce fuel buildup and protect communities provide the best long-term 

method of fighting wildland fires. To this end, the agencies significantly reduced the risk 

associated with uncontrolled wildfires by treating hazardous fuels on over 4.34 million acres 

(2.93 million under the National Fire Plan), 2.44 million acres of which were in the wildlandurban interface (WUI). In addition, by using naturally occurring fire, the agencies reduced fuels 

on an estimated 489,000 acres in 2005. 

10-Year Comprehensive Strategy Implementation Plan 

In 2001, the Secretaries of Agriculture and the Interior joined State governors and other partners 

in developing the 10-Year Comprehensive Strategy. A broad collaborative group representing 

Federal agencies, States, local governments, conservation and commodity groups, and tribal 

interests developed this long-term strategy to help implement the National Fire Plan. It is the 

first national long-term comprehensive strategy for wildland fire management. 

The 10-Year Comprehensive Strategy and its Implementation Plan provide for long-term 

implementation of NFP objectives and the Healthy Forests Initiative, and expand the emphasis 

on a collaboration-based solution that includes input and support from many participants, 

including local, State, and tribal governments, as well as non-governmental organizations. A key 

to the success of the Implementation Plan is early and frequent cooperation among all parties at 

the local level. 

The four goals of the 10-Year Comprehensive Strategy are: 

• Improve fire prevention and suppression; 

• Reduce hazardous fuels; 

• Restore fire-adapted ecosystems; and 

• Promote community assistance. 

The three major principles which guided the development of the 10-Year Plan are: 

• Priority setting that emphasizes the protection of communities and other high-priority 

watersheds at risk; 

• Collaboration among governments and broadly representative stakeholders; and 

• Accountability through performance measures and monitoring for results. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-3 

Ninety-six of the 168 actions items set forth in the plan have been completed while others 

comprised continuous tasks. With much of this work accomplished, the Wildland Fire 

Leadership Council (WFLC) launched an effort to update the implementation plan. During 

2005, task groups composed of stakeholders and agency representatives have reviewed past and 

current tasks, actions, and performance measures and have suggested updates. In 2006, WFLC 

will consider these recommended changes and dialogue with the task groups to consider 

responsibility for data gathering and provide direction for completion of the review and update. 

Wildland Fire Leadership Council 

In April 2002, the Secretaries of the two Departments commissioned the Wildland Fire 

Leadership Council (WFLC). Members are: the Under Secretary for Natural Resources and 

Environment at USDA; the Assistant Secretary for Policy, Management and Budget, and the 

Assistant Secretary for Land and Minerals Management at DOI; the Chief of the Forest Service; 

the Directors of the Bureau of Land Management, Bureau of Indian Affairs, Fish and Wildlife 

Service, Geological Survey, and National Park Service; and representatives from the U.S. Fire 

Administration, Western Governors’ Association, National Association of Counties, National 

Association of State Foresters, and the Inter-Tribal Timber Council. The Council meets twice a 

year to address numerous policy and management issues. Consistent with the policies and 

actions contained within the 2007 President’s Budget, the Council is dedicated to achieving 

consistent implementation of the goals, actions, and policies of the National Fire Plan, the 10-

Year Comprehensive Strategy, Implementation Plan, the Federal Wildland Fire Management 

Policy, the President’s Healthy Forests Initiative, and the Healthy Forests Restoration Act. 

The heads of the five wildland fire management agencies have resolved several key issues such 

as common performance measures, common fire cost accounting protocols, and seamless 

direction for an effective hazardous fuel reduction program. In 2004, WFLC commissioned a 

Strategic Issues Panel on Fire Suppression Costs to identify specific actions for cost containment. 

In 2006, WFLC continues to direct implementation of seven recommendations from the Strategic 

Issues Panel. Designated cost action teams developed ambitious work plans complete with 

milestones, action items, deliverables, and due dates. The teams are guided by an executive 

oversight committee to ensure progress. 

The year 2006 will see WFLC complete its review and revision of the Implementation Plan.

2005 National Fire Plan Accomplishments 

Operations and Firefighting 

• The fire management agencies conducted a nationwide effort to update the fire management 

plans on every land management unit. Fire management plans (FMPs) provide the 

framework for wildfire responses. One hundred percent of the plans have been completed. 

• Achieved a 98 percent interagency success rate at containing all fires unplanned and 

unwanted fires. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-4 

• Successfully deployed an aerial firefighting fleet of helitankers and large fixed-wing aircraft 

validated for use as airtankers in response to safety concerns raised by the National 

Transportation Safety Board. 

• Hired, maintained, and trained a wildland fire management workforce of 14,798 personnel. 

• Provided a firefighting fleet of 2,074 engines, dozers, and water/foam tenders, and over 250 

aircraft. 

• Continued construction and maintenance on 69 facilities including crew quarters, air tanker 

bases, helibases, offices, and fire stations. 

• Implementation of the Interagency Fire Program Management (IFPM) qualifications standard 

continues for key fire management positions to enhance firefighter safety and increase 

professionalism in interagency fire management. The 14 key IFPM standard positions have 

been adopted by the USDA Forest Service and four Department of the Interior agencies. 

Additional workforce analytical tools and data are being added to the system that will 

continue to enhance its value in identifying a number of performance measures. 

Hazardous Fuels Reduction 

• Treated some 2.93 million acres of hazardous fuels with dollars appropriated under the 

National Fire Plan. An additional 1.41 million acres of hazardous fuels were treated as a 

secondary benefit of activities funded with other appropriations. Primary benefits of these 

treatments were to improve wildlife habitat, restore watershed function, or enhance timber 

stand conditions. 

• Treated 2.44 million acres in the wildland-urban interface from all funding sources. 

• Treated 2.36 million acres with prescribed fire and 1.65 million acres by mechanical means. 

• Treated 489,000 acres through wildland fire use. 

• The Departments of Energy, the Interior, and Agriculture formed a Federal Woody Biomass 

Utilization Working Group to promote and support the utilization of woody biomass and 

woody biomass products from forest and woodland treatments. 

Community Assistance 

• Increased firefighting capacity by providing technical assistance, training, supplies, and 

equipment to nearly 11,000 small rural communities through Rural Fire Assistance (DOI) 

and Volunteer Fire Assistance (USDA Forest Service). 

• Provided more than $40 million for technical and financial assistance to States to enhance 

firefighting capacity at the state and local levels. 

• Supported the organization of 2,072 new fire departments with Volunteer Fire Assistance 

funds. 

• Entered into cooperative agreements with many rural volunteer fire departments for the 

purpose of protection of both communities and natural resources. 

• Partnered with the National Fire Protection Association, State, Federal and nonprofit partners 

to encourage community responsibility for hazard mitigation through land use planning, 

building codes, landscaping codes, zoning, and community fire protection planning through 

the Firewise Communities Program. 

• Leveraged more than $4.8 million from local communities in hazard mitigation efforts and 

engaged more than 10,000 individuals from 1,080 communities in 47 States in workshops 

through the Firewise Community Program since 1999. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-5 

• Assisted communities with hazard assessments and funding for Community Wildfire 

Protection Plans (CWPP) for communities at risk. 

Fire Research and Technology

• Forest Service research teams, partnering with DOI, continued to study the various aspects of 

wildland fire management including firefighter and public safety, fire weather and behavior, 

smoke dispersion, and post-fire susceptibility to invasive species. 

• Initiated the Encyclopedia of Southern Fire Science, a project to synthesize a large body of 

fire science into a fully linked and searchable hypertext system via the internet. 

• The Joint Fire Science Program (JFSP) funded 56 new research projects in support of 

hazardous fuels reduction, post-fire rehabilitation, and smoke management. 

Recommendations generated from these studies have already been incorporated into the 

incident response pocket guide and current wildland firefighting training curriculum. 

• Examples of tools generated by Forest Service and JFSP research teams include integrated 

fire and weather maps to generate 3-to-12 month fire forecasts; imagery-based, burn-severity 

maps used by Burned Area Emergency Response teams; and a fiberboard structural product 

made from low- or no-value material obtained from hazardous fuels treatments. 

Increased Contracting and Jobs 

• Forty-four stewardship contracts were awarded in 2005, treating 35,478 acres. Byproducts 

from some of these projects were used in a number of products, such as timber, engineered 

lumber, paper and pulp, furniture and other value-added commodities, and bio-energy and 

bio-based products such as plastics, ethanol, and diesel. In addition, 29,324 acres of WUI 

high priority fuels were treated through stewardship contracting. 

Rehabilitation and Restoration

• Rehabilitated and restored burned areas through reforestation, seeding, road and trail 

restoration, invasive plant treatment, heritage site restoration, grazing management, insect 

and disease treatment watershed restoration, and restoration of streams, roads, and trails. 

These included new projects from fires in 2004 and a continuation of project work begun in 

FY 2002 and 2003. 

• National Fire Plan funding supported 262 rehabilitation projects in 13 States, treating 

254,985 acres and performing more than 900 miles of trail reconstruction, roadwork, riparian 

enhancement, fencing, and boundary line location. 

• Continued the Interagency Program to Supply and Manage Native Plant Materials, a longterm strategy to improve nursery and plant material center infrastructure, monitoring of 

restoration effects, and public/private partnerships. 

• Continued to reforest burned areas through a 5-year cost-share agreement with American 

Forests for Wildfire ReLeaf. 

• Developed a strategy with the Department of the Interior to establish monitoring protocols to 

evaluate the effectiveness of post-fire treatments. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-6 

Forest Health Management1

• Provided funds for suppression, prevention, and restoration projects on nearly 71,000 acres 

of Federal lands and nearly 162,000 acres of cooperative lands to control and manage native 

and non-native invasive insects and diseases on Federal lands. 

• Surveyed, detected, monitored, and evaluated native and non-native forest invasive species 

including insects and diseases on Federal and tribal forestlands. 

• Focused invasive species suppression, prevention, and restoration efforts to support the goals 

of the Healthy Forests Restoration Act of 2003. 

2006 Planned Accomplishments 

Operations and Firefighting

• Increase wildland fire use, consistent with land and resource management plans and public 

and firefighter safety and report these increases in future Budget Justifications. 

• Implement cost containment strategies for large fire suppression identified by the Strategic 

Issues Panel on Fire Suppression Costs Report accepted by the Wildland Fire Leadership 

Council. 

• Maintain interagency 98 percent initial attack success. 

• Implement emergency stabilization treatments on lands severely burned in 2006. 

• Continue development and implementation of a suppression cost performance measures 

system as directed by FY 2005 congressional language. 

• Complete Phase I (alternative analysis) of the Wildland Fire Decision Support System 

(WFDSS) and initiate Phase II development. The System will replace the Wildland Fire 

Situation Analysis (WFSA) and improve analyses of wildland fire suppression alternatives to 

enhance decision-making and facilitate cost containment. 

• The USDA Forest Service is working with a number of Department of the Interior agencies, 

States, the U.S. Fire Administration, and the National Incident Management System (NIMS) 

National Integration Center (NIC) to adapt the current fire curriculum, qualification standards 

and certification system to meet the needs of the Department of Homeland Security’s NIMS 

and the National Response Plan. 

• Continue interagency development and implementation of the Fire Program Analysis (FPA) 

system including completing a Phase I analysis of all interagency Fire Planning Units and 

continue development of Phase II. 

• Complete an Office of Management and Budget (OMB) Circular A-11, Part 7, Planning, 

Budgeting, Acquisition, and Management of Capital Assets (Exhibit 300) for all Forest 

Service Aviation Assets. 

• Complete a feasibility study for 500 aviation-related FTEs as outlined in the USDA Forest 

Service Competitive Sourcing “Green Plan,” FY 2005-2009. 

Hazardous Fuels Reduction 

• Implement provisions of the Healthy Forests Restoration Act of 2003 to restore forest and 

rangeland health and prevent catastrophic wildfires on public lands through active land 

management efforts and facilitated administrative processes.

 

1

 Only the Forest Service is appropriated National Fire Plan funding for forest health management. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-7 

• Treat approximately 2.88 million acres of hazardous fuel to reduce flammability of forests, 

woodlands, shrublands, and grasslands, including 1.85 million acres in the WUI areas and 

1.03 million acres in areas outside of WUI areas. 

• Reduce fuel loads on an estimated additional 1.625 million acres as a secondary benefit of 

other vegetation management activities, Wildland Fire Use events, Hazard Mitigation Grants 

awarded under the State Fire Assistance program, and activities of the Southern Nevada 

Public Lands Management Act. 

• When possible, use categorical exclusions (CEs) to save time and money in meeting NEPA's 

environmental impact analysis requirements for fuels projects. 

• Encourage projects where hazardous fuels reduction is a secondary benefit of activities 

funded with other appropriations.

Community Assistance 

• Provide technical assistance, training, supplies, and equipment to more than 10,000 small 

rural communities and 3,800 volunteer fire departments.

• Improve collaborative efforts with affected stakeholders to address landscape level integrated 

hazardous fuels treatments for high priority areas across all ownerships. 

• Increase use of the provisions of the Healthy Forests Restoration Act and the President’s 

Healthy Forests Initiative to better protect communities and the environment from the 

impacts of catastrophic wildland fire. 

Fire Research and Technology

• Fund important JFSP projects based on priorities defined by the JFSP Governing Board. 

• Performance accountability of JFSP projects will be enhanced by measuring regional or 

national use of JFSP products and scientific impact of studies. 

• LANDFIRE, a multi-partner effort, will continue to generate sound science to help land 

managers make decisions about fuels treatment and fire behavior. 

Increased Contracting and Jobs 

• Use stewardship contracting authority to remove small diameter material, improve forest 

health, and stimulate local economic opportunities. 

• Increase the number and impact of stewardship projects awarded. This will be accomplished 

by implementing lessons learned from the first two years of stewardship contracting and 

capitalizing on successes in collaboration with local and rural communities. 

• Continue to expand the use of contracts in hazardous fuels reduction projects, especially in 

the wildland urban interface. 

• Increase the use of web-based communication tools to encourage woody biomass utilization 

and provide resources for small-wood market development. 

Rehabilitation and Restoration

• Implement rehabilitation projects in the highest priority areas identified within areas burned 

during the fires of 2003-2005, and fund these projects from previously appropriated funds 

and other appropriate National Forest System budget line items. 

• Continue implementation of the Interagency Program to Supply and Manage Native Plant 

Materials. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-8 

• Continue development of a national website to provide information on the Burned Area 

Rehabilitation program as recommended by the Government Accountability Office. 

• Continue to implement the agreement with American Forests for Wildfire ReLeaf to enhance 

reforestation on burned areas. 

Forest Health Management1

• Conduct native and non-native invasive insect and disease suppression and prevention 

projects on approximately 45,000 Federal acres and 208,000 cooperative acres. 

• Program will focus invasive species suppression, prevention, and restoration efforts to 

support the goals of the Healthy Forests Restoration Act of 2003. 

2007 Program Emphases 

Strategic Priorities 

• Continue to work in a collaborative manner with States, tribes, non-governmental 

organizations, and other partners to ensure the accomplishment of mutual objectives. 

• Continue the integration of program funding to accomplish HFI and HFRA objectives 

efficiently and effectively. 

• Emphasize the integration of Community Wildfire Protection Plans with Federal hazardous 

fuels mitigation priorities. 

• Continue transition to a permanently reconfigured aviation fleet based on an interagency 

aviation strategic plan. 

Operations and Firefighting 

• Maintain an interagency 98 percent initial attack success rate. 

• Continue to implement suppression operations cost containment strategies. 

• Complete Phase 2 (develop initial prototype) of the Wildland Fire Decision Support System 

(WFDSS) and improve analyses of wildland fire suppression alternatives to enhance 

decision-making and facilitate cost containment.

• Continue interagency development and implementation of the Fire Program Analysis (FPA) 

system.

• Implement emergency stabilization treatments on lands that are severely burned in 2007.

• Manage and evaluate the Forest Service owned and operated fleet of aircraft in accordance 

with the principles specified in OMB Circular A-11, Part 7.

Hazardous Fuels Reduction 

• Treat approximately 3.0 million acres of hazardous fuel to reduce flammability of forests, 

woodlands, shrublands, and grasslands, including 2.0 million acres in the WUI areas and 1.0 

million acres in areas outside of WUI areas. 

• Reduce fuel loads on an estimated additional 1.625 million acres as a secondary benefit of 

other vegetation management activities, Wildland Fire Use events, Hazard Mitigation Grants 

awarded under the State Fire Assistance program, and activities of the Southern Nevada 

Public Lands Management Act. 

 

1

 Only the Forest Service is appropriated National Fire Plan funding for forest health management. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-9 

• Implement protocols for the Strategic Placement of Treatments to better reduce the threat to 

communities and natural resources from catastrophic wildland fire. 

• Expand forest health protection and biomass utilization projects that support the fuels 

treatment program. 

• Expand use of the provisions of the Healthy Forests Restoration Act and the President’s 

Healthy Forests Initiative to better protect communities and the environment from the 

impacts of catastrophic wildland fire. 

• Encourage projects where hazardous fuels reduction is a secondary benefit of activities 

funded with other appropriations.

Community Assistance 

• Provide technical assistance, training, supplies, and equipment to more than 6,500 small rural 

communities and 3,800 volunteer fire departments. 

• Use CWPPs to help guide fuel hazard reduction and forest restoration project selection across 

ownership on a landscape scale. 

Fire Research and Technology

• Researchers will continue working to improve fire fighting preparedness through tools and 

models developed to predict activities such as wildfire behavior, aggression, intensity and 

effects.

• JFSP will continue to emphasize science application and technology transfer, balancing 

meeting local needs of managers with developing knowledge and tools with more national 

applications, and better integration across funded studies.

• JFSP will work with participating agencies and other partners to complete a new Strategic 

Plan to guide the program through 2012.

Increased Contracting and Jobs

• Continue to emphasize the use of contracts in hazardous fuels reduction projects, especially 

in the wildland urban interface. 

Rehabilitation and Restoration

• Implement rehabilitation projects in the highest priority areas identified within areas burned 

during the fires of 2004-2006, and fund these projects from previously appropriated funds 

and other appropriate National Forest System budget line items. 

• Continue to implement the Native Plant Materials program for burned areas. 

Forest Health Management1

 

• Conduct native and non-native invasive insect and disease suppression and prevention 

projects on approximately 24,000 Federal acres and 95,000 cooperative acres. 

• Program will focus invasive species suppression, prevention, and restoration efforts to 

support the goals of the Healthy Forests Restoration Act of 2003. 

 

1

 Only the Forest Service is appropriated National Fire Plan funding for forest health management. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-10 

2007 Budget Highlights 

The budget request for 2007 continues to reflect the President’s concern about the vulnerability 

of people and their property to the destruction caused by unwanted and uncontrolled wildfires. 

The President and the Secretaries are therefore proposing an increase of $82.3 million for 

suppression operations, 8.9 percent more than the 2006 fire suppression budget, to enable the 

two Departments to respond to wildfires without having to rely so heavily on funds transferred 

from other accounts on an emergency basis. 

The budget supports the recent enactment of the Healthy Forests Restoration Act by adding $1.7 

million for hazardous fuels reduction. These funds will be used to treat high priority acres 

identified through collaboration with our partners and improve the monitoring of projects. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-11 

Three-Year National Fire Plan Funding Table

(dollars in thousands)

AGENCY/Program 

FY 2005 

Final 

Approps 

FY 2006 

Enacted to 

Date with 

Rescissions 

FY 2007 

President's 

Budget 

FY 2007 vs. 

FY 2006 

INTERIOR 

Preparedness 258,939 268,839 274,801 5,962

Fire Suppression Operations 218,445 230,721 257,041 26,320

Other Operations: 

 Hazardous Fuels Reduction 201,409 208,113 199,787 -8,326

 Burned Area Rehabilitation 23,939 24,116 24,286 170

 Facilities Construction and Maintenance 12,202 7,734 7,734 0

 Joint Fire Science Program 7,889 5,911 5,911 0

 State and Local Assistance 9,861 9,852 0 -9,852

Other Operations Total 255,300 255,726 237,718 -18,008

Subtotal, DOI 732,684 755,286 769,560 14,274

Supplementals 98,611 0 0 0

Total, DOI 831,295 755,286 769,560 14,274

FOREST SERVICE 

Preparedness 676,470 666,068 655,887 -10,181

Fire Suppression Operations 648,859 690,186 746,176 55,990

Other Operations: 

 Hazardous Fuels Reduction 262,539 281,793 291,792 9,999

 Rehabilitation 12,819 6,188 1,980 -4,208

 Fire Plan Research and Development 21,719 22,877 20,121 -2,756

 Joint Fire Science Program (A) 7,889 7,882 3,960 -3,922

 Forest Health Management (Federal lands) (B) 14,792 14,780 6,802 -7,978

 Forest Health Management (co-op lands) (B) 9,861 9,852 4,552 -5,300

 State Fire Assistance (B) 73,099 78,746 56,075 -22,669

 Volunteer Fire Assistance (B) 13,806 13,683 13,668 -15

Other Operations total 416,524 435,801 398,950 -36,851

Subtotal, Forest Service 1,741,853 1,792,055 1,801,013 8,958

Supplementals (C) 425,471 0 0 0

Total, Forest Service 2,167,324 1,792,055 1,801,013 8,958

INTERIOR & FOREST SERVICE 

Preparedness 935,409 934,907 930,688 -4,219

Fire Suppression Operations 867,304 920,907 1,003,217 82,310

Other Operations: 

Hazardous Fuels Reduction 463,948 489,906 491,579 1,673

Rehabilitation 36,758 30,304 26,266 -4,038

Facilities Construction and Maintenance 12,202 7,734 7,734 0

Joint Fire Science Program (A) 15,778 13,793 9,871 -3,922

Fire Plan Research and Development 21,719 22,877 20,121 -2,756

Forest Health Management (Federal lands) (B) 14,792 14,780 6,802 -7,978

Forest Health Management (co-op lands) (B) 9,861 9,852 4,552 -5,300
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-12 

 (dollars in thousands)

AGENCY/Program 

FY 2005 

Final 

Approps 

FY 2006 

Enacted to 

Date with 

Rescissions 

FY 2007 

President's 

Budget 

FY 2007 vs. 

FY 2006 

State Fire Assistance (B) 73,099 78,746 56,075 -22,671

Volunteer Fire Assistance (B) 13,806 13,683 13,668 -15

State and Local Assistance 9,861 9,852 0 -9,852

Other Operations total 671,824 691,527 636,668 -54,859

Subtotal 2,474,537 2,547,341 2,570,573 23,232

Supplementals (C) 524,082 0 0 0

Grand Total 2,998,619 2,547,341 2,570,573 23,232

A) In FY 2005, Forest Service funding for Joint Fire Science Program came from Suppression appropriations. 

In FY 2006, Forest Service funding will come from the Preparedness appropriations. As a result, totals for 

Other Operations may not appear to be added correctly. 

B) Forest Service figures include both Wildland Fire Management and State & Private Forestry totals for State 

and Volunteer Fire Assistance lines, but only Wildland Fire Management total for Forest Health 

Management (Federal & co-op lands) lines. 

C) Supplemental appropriation to the Forest Service in FY 2005 was for fire suppression operations. 

$30,000,000 of the FY 2005 supplemental was earmarked for hazardous fuels treatments. 
FY 2007 Budget Justification USDA Forest Service

National Fire Plan 4-13 

National Fire Plan – Common Performance Measures 

Department of the Interior and Forest Service FY 2005 – 2007 

Summary of common performance measures 

Performance Measure FY 2005 Actual FY 2006 Plan FY 2007 Request 

Percent of unplanned and unwanted fires 

controlled during initial attack 98% 98% 98% 

Gross fire suppression cost per acre A/ $170 $160 $174 

1,184,629 FS 1,383,000 FS 1,500,000 FS 

Number of high-priority acr 542,568 DOI 472,000 DOI 450,000 DOI es treated in the WUI. 

1,727,197 Total 1,855,000 Total 1,950,000 Total 

371,980 FS 235,000 FS 225,000 FS 

Number of acres in condition class 2 or 3 treated 477,742 DOI 373,000 DOI 420,000 DOI

outside the WUI in fire regimes 1, 2, or 3. B/

849,722 Total 608,000 Total 645,000 Total 

1,000,530 FS 678,600 FS 717,600 FS 

Number of acres in fire regimes 1, 2, or 3 moved to 271,551 DOI 230,000 DOI 235,000 DOI

a better condition class C/ 

1,272,081 Total 908,600 Total 952,600 Total 

3,578 FS 2,408 FS 2,553 FS 

1,306 DOI 1,105 DOI 1,176 DOI

Number of acres in fire regimes 1, 2, or 3 moved to 

a better condition class per million dollars gross 

investment D/ 

2,486 Total 1,855 Total 1,993 Total 

A/ Estimated acres burned and costs for 2005 and 2006 are based on the 10-year actual averages from 1996-

2005. Acres include all acres, regardless of ownership. 

B/ In addition to these treatments, the Forest Service has or will treat additional acres, including condition class 1 

non-WUI and acres as a secondary benefit of other land management activities that contribute to an improvement 

in condition class, as follows: FY 2005, 927,000; and FY 2006, 800,000 acres, and FY 2007, 850,000. 

C/ FY 2005 Forest Service acres in fire regimes 1, 2, or 3 moved to a better condition class includes Hazardous 

Fuels and other vegetation management activities that improve condition class. 

D/ This measure includes only Hazardous Fuels Reduction accomplishments and funding. 

FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 

Chapter 5 

Appropriation Language Changes

FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-1 

Appropriation Language Changes

FOREST AND RANGELAND RESEARCH 

1. 

2. 

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

[$283,094,000] $267,791,000, to remain available until expended: [Provided, That of the 

funds provided, $60,267,000 is for the forest inventory and analysis program] 

1. Reflects change in the level of funding 

2. Provision unnecessarily restricts agency discretion. 

STATE AND PRIVATE FORESTRY 

1. 

1. 

2. 

For necessary expenses of cooperating with and providing technical and financial 

assistance to States, territories, possessions, and others, and for forest health management, 

including treatments of pests, pathogens, and invasive or noxious plants and for restoring 

and rehabilitating forests damaged by pests or invasive plants, cooperative forestry, and 

education and land conservation activities and conducting an international program as 

authorized, [$283,577,000] $244,410,000, to remain available until expended, as 

authorized by law of which [$57,380,000] $61,515,000 is to be derived from the Land and 

Water Conservation Fund: [Provided, That none of the funds provided under this heading 

for the acquisition of lands or interests in lands shall be available until the Forest Service 

notifies the House Committee on Appropriations and the Senate Committee on 

Appropriations, in writing, of specific contractual and grant details including the nonFederal cost share: Provided further, That the funds provided herein, $1,000,000 shall be 

provided to Custer County, Idaho, for economic development in accordance with the 

Central Idaho Economic Development and Recreation Act, subject to authorization: 

Provided further, That notwithstanding any other provision of law, of the funds provided 

under this heading, an advance lump sum payment of $1,000,000 shall be made available 

to Madison County, NC, for a forest recreation center, and a similar $500,000 payment 

shall be made available to Folkmoot USA in Haywood County, NC, for Appalachian Folk 

programs including forest crafts.] 

1. Reflects change in the level of funding. 

2. Provisions unnecessarily restrict agency discretion. 

NATIONAL FOREST SYSTEM 

1. 

2. 

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

management, protection, improvement, and utilization of the National Forest System, 

[$1,424,348,000] $1,398,066,000 to remain available until expended, which shall include 

50 percent of all moneys received during prior fiscal years as fees collected under the 

Land and Water Conservation Fund Act of 1965, as amended, in accordance with section 

4 of the Act (16 U.S.C. 4601-6a(i) 

[Provided, That unobligated balances under this heading available at the start of fiscal 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-2 

year 2006 shall be displayed by budget line item in the fiscal year 2007 budget 

justification: Provided further, That unobligated balances under this heading available at 

the start of fiscal year 2006 shall be displayed by budget line item in the fiscal year 2007 

budget justification: Provided further, That of the funds provided under this heading for 

Forest Products, $5,000,000 shall be allocated to the Alaska Region, in addition to its 

normal allocation for the purposes of preparing additional timber sale, to establish a 3-year 

timber supply and such funds may be transferred to other appropriation accounts as 

necessary to maximize accomplishment: Provided further, That within funds available for 

the purpose of implementing the Valles Caldera Preservation Act, notwithstanding the 

limitations of section 107(e)(2) of the Valles Caldera Preservation Act (Public Law 106-

248), for fiscal year 2006, the Chair of the Board of Trustees of the Valles Caldera Trust 

may receive, upon request, compensation for each day (including travel time) that the 

Chair is engaged in the performance of the functions of the Board, except that 

compensation shall not exceed the daily equivalent of the annual rate in effect for 

members of the Senior Executive Service at the ES-1 level, and shall be in addition to any 

reimbursement for travel, subsistence and other necessary expenses incurred by the Chair 

in performance of the Chair’s duties.] 

1. Reflects change in the level of funding. 

2. Provision unnecessarily restricts agency discretion. 

.

WILDLAND FIRE MANAGEMENT 

1. 

2. 

For necessary expenses for forest fire pre-suppression activities on National Forest 

System lands, for emergency fire suppression on or adjacent to such lands or other lands 

under fire protection agreement, hazardous fuels reduction on or adjacent to such lands, 

and for emergency rehabilitation of burned-over National Forest System lands and water, 

[$1,779,395,000] $1,768,195,000, 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 not less than 50 percent of any unobligated balances remaining (exclusive of 

amounts for hazardous fuels reduction) at the end of fiscal year 2005 shall be transferred 

to the fund established pursuant to section 3 of Public Law 71–319 (16 U.S.C. 576 et seq.) 

if necessary to reimburse the fund for unpaid past advances:] Provided further, That, 

notwithstanding any other provision of law, $8,000,000 of funds appropriated under this 

appropriation shall be used for Fire Science Research in support of the Joint Fire Science 

Program: Provided further, That all authorities for the use of funds, including the use of 

contracts, grants, and cooperative agreements, available to execute the Forest and 

Rangeland Research appropriation, are also available in the utilization of these funds for 

Fire Science Research: Provided further, That funds provided shall be available for 

emergency rehabilitation and restoration, hazardous fuels reduction activities in the urbanwildland interface, support to Federal emergency response, and wildfire suppression 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-3 

3. 

3. 

3. 

3. 

3. 

4. 

5. 

activities of the Forest Service: Provided further, That of the funds provided, 

[$286,000,000] $291,792,000 is for hazardous fuels reduction activities, [$6,281,000] 

$1,980,000 is for rehabilitation and restoration, [$23,219,000] $20,121,000 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.), [$46,500,000] 

$29,115,000 is for State fire assistance, [$7,889,000] $7,810,000 is for volunteer fire 

assistance, [$15,000,000] $6,802,000 is for forest health activities on Federal lands and 

[$10,000,000] $4,552,000 is for forest health activities on State and private lands: 

Provided further, That amounts in this paragraph may be transferred to the ‘‘State and 

Private Forestry’’, ‘‘National Forest System’’, and ‘‘Forest and Rangeland Research’’ 

accounts to fund State fire assistance, volunteer fire assistance, forest health management, 

forest and rangeland research, vegetation and watershed management, heritage site 

rehabilitation, and wildlife and fish habitat management and restoration: [Provided 

further, That transfers of any amount in excess of those authorized in this paragraph, shall 

require approval of the House and Senate Committees on Appropriations in compliance 

with reprogramming procedures contained in the report accompanying this Act:] Provided 

further, That funds provided under this heading for hazardous fuels treatments may be 

transferred to and made a part of the “National Forest System” account at the sole 

discretion of the Chief of the Forest Service thirty days after notifying the House and 

Senate Committees on Appropriations: Provided further, That the costs of implementing 

any cooperative agreement between the Federal Government and any non-Federal entity 

may be shared, as mutually agreed on by the affected parties: Provided further, That in 

addition to funds provided for State Fire Assistance programs, and subject to all 

authorities available to the Forest Service under the State and Private Forestry 

Appropriation, up to $15,000,000 may be used on adjacent non-Federal lands for the 

purpose of protecting communities when hazard reduction activities are planned on 

national forest lands that have the potential to place such communities at risk: Provided 

further, That included in funding for hazardous fuel reduction is $5,000,000 for 

implementing the Community Forest Restoration Act, Public Law 106–393, title VI, and 

any portion of such funds shall be available for use on non Federal lands in accordance 

with authorities available to the Forest Service under the State and Private Forestry 

Appropriation: Provided further, That the Secretary of the Interior and the Secretary of 

Agriculture may authorize the transfer of funds appropriated for wildland fire 

management, in an aggregate amount not to exceed $9,000,000, between the Departments 

when such transfers would facilitate and expedite jointly funded wildland fire 

management programs and projects: Provided further,That of the funds provided for 

hazardous fuels reduction, not to exceed $5,000,000, may be used to make grants, using 

any authorities available to the Forest Service under the State and Private Forestry 

appropriation, for the purpose of creating incentives for increased use of biomass from 

national forest lands: Provided further, That funds designated for wildfire suppression 

shall be assessed for indirect costs on the same basis as such assessments are calculated 

against other agency programs. Provided further, That the Secretary of Agriculture may 

use the amounts appropriated under this heading for rehabilitation and restoration and 

other activities authorized under this heading on lands administered by the Forest Service 

or on adjacent non-Federal land for activities that benefit resources on lands administered 

by the Forest Service. 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-4 

1. Reflects change in level of funding. 

2. Provision no longer necessary. 

3. Reflects change in level of funding. 

4. Provision unnecessarily restricts agency discretion. 

5. To enhance implementation of the Healthy Forests Restoration Act of 2003. 

CAPITAL IMPROVEMENT & MAINTENANCE 

1. 

2. 

 

 3. 

For necessary expenses of the Forest Service, not otherwise provided for, [$441,178,000] 

$382,601,000, to remain available until expended for [construction, reconstruction,] 

maintenance and decommissioning of recreation developed sites, and capital improvement 

and acquisition of recreation developed sites, buildings, and other facilities and for 

construction, [reconstruction, repair], decommissioning, and maintenance of forest roads 

and trails by the Forest Service as authorized by 16 U.S.C. 532-538 and 23 U.S.C. 101 

and 205: Provided, That up to $15,000,000 of the funds provided herein for road 

maintenance shall be available for the decommissioning of roads, including unauthorized 

roads not part of the transportation system, which are no longer needed. [: Provided 

further, That no funds shall be expended to decommission any system road until notice 

and an opportunity for public comment has been provided on each decommissioning 

project: Provided further, That of funds provided, $3,000,000 is provided for needed 

rehabilitation and restoration work at Jarbidge Canyon, Nevada: Provided further, That 

the Secretary of Agriculture may authorize the transfer of up to $1,350,000 as necessary to 

the Department of the Interior, Bureau of Land Management and Fish and Wildlife 

Service when such transfers would facilitate and expedite needed rehabilitation work on 

Bureau of Land Management lands, and for the Fish and Wildlife Service to implement 

terms and conditions identified in the Biological Opinion.] 

1. Reflects change in the level of funding 

2. Change provides terminology consistent with the Financial Accounting Standards 

Advisory Board (FASAB). 

3. Provision unnecessarily restricts agency discretion. 

LAND ACQUISITION 

1. 

2. 

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, [$42,500,000] $25,075,000, to be 

derived from the Land and Water Conservation Fund and to remain available until 

expended. [: Provided further, That, subject to valid existing rights, all land and interests 

in land acquired in the Thunder Mountain area of the Payette National Forest (including 

patented claims and land that are encumbered by unpatented claims or previously 

appropriated funds under this section, or otherwise relinquished by a private party) are 

withdrawn from mineral entry or appropriation under Federal mining laws, and from 

leasing claims under Federal mineral and geothermal leasing laws.] 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-5 

1. Reflects change in the level of funding 

2. Provisions unnecessarily restrict agency discretion. 

GIFTS, DONATIONS AND BEQUESTS FOR FOREST AND RANGELAND 

RESEARCH 

1. For expenses authorized by 16. U.S. C. 1643(b), [$64,000] $63,000 to remain available 

until expended, to be derived from the fund established pursuant to the above Act. 

1. Reflects change in the level of funding. 

MANAGEMENT OF NATIONAL FOREST LANDS FOR SUBSISTENCE USES 

1. 

For necessary expenses of the Forest Service to manage Federal lands in Alaska for 

subsistence uses under title VIII of the Alaska National Interest Lands Conservation Act 

(Public Law 96–487), [$5,067,000] $5,311,000, to remain available until expended. 

1. Reflects change in the level of funding. 

ADMINISTRATIVE PROVISIONS 

1. [None of the funds made available under this Act shall be obligated or expended to 

abolish any region, to move or close any regional office for National Forest System 

administration of the Forest Service, Department of Agriculture without the consent 

advance notification of the House and Senate Committees on Appropriations.] 

1. Provision unnecessarily restricts agency discretion. 

1. 

2. 

...[and if and only if all previously appropriated emergency contingent funds under the 

heading `Wildland Fire Management' have been released by the President and apportioned 

and all wildfire suppression funds under the heading `Wildland Fire Management' are 

obligated.] 

[The first transfer of funds into the Wildland Fire Management account shall include 

unobligated funds, if available, from the Land Acquisition account and the Forest Legacy 

program within the State and Private Forestry account.] 

1. Provisions unnecessarily restrict agency discretion. Also, combined with Federal 

Government accounting procedures, these provisions could cause stoppage of wildfire 

suppression activities. Once all suppression funds are obligated, account balances 

will be zero and at that point and the Forest Service may have to stop suppression 

activities. To avoid this situation, transfers must be initiated prior to balances 

reaching zero. 

2. Provision unnecessarily restricts agency discretion. 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-6 

1. 

2. 

2. 

[None of the funds made available to the Forest Service under this Act 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) or 7 U.S.C. 147b, except that in fiscal year 2006 the Forest 

Service may transfer funds to the `National Forest System' account from other agency 

accounts to enable the agency's law enforcement program to pay full operating costs 

including overhead.] 

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

[advance approval] notification of the House and Senate Committees on Appropriations in 

accordance with the reprogramming procedures contained in the report accompanying this 

Act. 

[Not more than $72,646,000 of funds available to the Forest Service shall be transferred to 

the Working Capital Fund of the Department of Agriculture. Nothing in this paragraph 

shall prohibit or limit the use of reimbursable agreements requested by the Forest Service 

in order to obtain services from the Department of Agriculture's National Information 

Technology Center.] 

1. Language is no longer needed. 

2. Provision unnecessarily restricts agency discretion. 

1. 

Funds available to the Forest Service shall be available to conduct a program of [not less 

than] up to $2,500,000 for high priority projects within the scope of the approved budget 

which shall be carried out by the Youth Conservation Corps. 

1. Provision unnecessarily restricts agency discretion. 

1. Pursuant to section 2(b)(2) of Public Law 98-244, [$3,000,000] up to $2,500,000 of the 

funds available to the Forest Service shall be advanced to the National Fish and Wildlife 

Foundation... 

1. Reflects a change in level of funding. 

1. 

Funds appropriated to the Forest Service shall be available for interactions with, and 

providing technical and financial assistance to, rural communities and natural resource 

based businesses for sustainable rural development purposes[.]; Provided, That no more 

than 2 percent of any unit’s budget may be used for such purposes; Provided further, That 

no more than 5 percent of the funds in any budget line item may be used for such 

purposes.

1. Increases authority to provide technical and financial assistance and provides funding 

limit on levels technical and financial assistance. 

1. [For each fiscal year through 2009, funds available to the Forest Service in this Act may 

be used for the purpose of expenses associated with primary and secondary schooling for 

dependents of agency personnel stationed in Puerto Rico prior to the date of enactment of 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-7 

this Act, who are subject to transfer and reassignment to other locations in the United 

States, at a cost not in excess of those authorized for the Department of Defense for the 

same area, when it is determined by the Chief of the Forest Service that public schools 

available in the locality are unable to provide adequately for the education of such 

dependents.] 

1. Multi-year authorization. 

1. Funds available to the Forest Service, [not to exceed $35,000,000] shall be assessed for 

the purpose of performing facilities maintenance. Such assessments shall occur using a 

square foot rate charged on the same basis the agency uses to assess programs for payment 

of rent, utilities, and other support services. 

1. Provision unnecessarily restricts agency discretion. 

1. [In support of management of the National Wildlife Refuge System, Lot 6C of United 

States Survey 2538-A, containing 2.39 acres and the residential triplex situated thereon, 

located in Kodiak, Alaska, is hereby transferred from the USDA Forest Service to the U.S. 

Fish and Wildlife Service.] 

1. One-time authorization. 

GENERAL PROVISIONS 

1. 

2. 

3. 

SEC. 405. Estimated overhead charges, deductions, reserves or holdbacks from programs, 

projects, activities and subactivities to support government-wide, departmental, agency or 

bureau administrative functions or headquarters, regional or central operations shall be 

presented in annual budget justifications [and subject to approval by the Committees on 

Appropriations]. Advance notice of changes to such estimates shall be presented to the 

Committees on Appropriations [for approval]. 

[SEC. 406. None of the funds made available in this Act may be transferred to any 

department, agency, or instrumentality of the United States Government except pursuant 

to a transfer made by, or transfer provided in, this Act or any other Act.] 

SEC. [407] 406. None of the funds in this Act may be used to plan, prepare, or offer for 

sale timber from trees classified as giant sequoia (Sequoiadendron giganteum) which are 

located on National Forest System or Bureau of Land Management lands in a manner 

different than such sales were conducted in fiscal year 2005] 2006. 

1. Provisions or portions of provisions unnecessarily restrict agency discretion. 

2. Provision unnecessarily restricts agency discretion. 

3. Updates fiscal year. 

1. 

SEC. [408] 407 LIMITATON OF FUNDS ... 

(c) Report.—On September 30, [2006] 2007... 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-8 

1. Updates fiscal year. 

1. 

SEC. [409] 408. Notwithstanding any other provision of law, amounts appropriated to or 

earmarked 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, [and] 108–447, and 109–54 for payments to 

tribes and tribal organizations for contract support costs associated with self-determination 

or self-governance 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 [2005] 2006 for such purposes, except 

that, for the Bureau of Indian Affairs, tribes and tribal organizations may use their tribal 

priority allocations for unmet contract support costs of ongoing contracts, grants, selfgovernance compacts or annual funding agreements.

1. Updates fiscal year. 

1. [SEC. 412. Section 3(a) of the Act of June 9, 1930 (commonly known as the KnutsonVandenberg Act; 16 U.S.C. 576), is amended— 

 (1) by striking “or” following “stand of timber,” in (3); and 

 (2) by striking the period following “wildlife habitat management” in (4), and inserting 

“, or (5) watershed restoration, wildlife habitat improvement, control of insects, disease 

and noxious weeds, community protection activities, and the maintenance of forest roads, 

within the Forest Service region in which the timber sale occurred: Provided, That such 

activities may be performed through the used of contracts, forest product sales, and 

cooperative agreements.”] 

1. Provision passed in 2006 Appropriations Bill; Act is thus already so amended. 

1. SEC. [413] 411. Amounts deposited during fiscal year [2005] 2006 in the roads and trails 

fund provided for in the 14th paragraph under the heading `FOREST SERVICE' of the 

Act of March 4, 1913 (37 Stat. 843; 16 U.S.C. 501), shall be used by the Secretary of 

Agriculture, without regard to the State in which the amounts were derived, to repair or 

reconstruct roads, bridges, and trails on National Forest System lands or to carry out and 

administer projects to improve forest health conditions, which may include the repair or 

reconstruction of roads, bridges, and trails on National Forest System lands in the 

wildland-community interface where there is an abnormally high risk of fire. ..... 

1. Updates provision to apply to funds deposited in FY 2006. 

1. [SEC. 414. Other than in emergency situations, none of the funds in this Act may be used 

to operate telephone answering machines during core business hours unless such 

answering machines include an option that enables callers to reach promptly an individual 

on-duty with the agency being contacted.] 

1. Provision unnecessarily restricts agency discretion. 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-9 

1. SEC. [415] 412. Prior to October 1, [2006] 2007, 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: ...

1. Extends provision until the end of FY 2007. 

1. 

1. 

1. 

[SEC. 416. No timber sale in Region 10 shall be advertised if the indicated rate is deficit 

when appraised using a residual value approach that assigns domestic Alaska values for 

western redcedar. Program accomplishments shall be based on volume sold. Should 

Region 10 sell, in the current fiscal year, the annual average portion of the decadal 

allowable sale quantity called for in the current Tongass Land Management Plan in sales 

which are not deficit when appraised using a residual value approach that assigns 

domestic Alaska values for western redcedar, all of the western redcedar timber from 

those sales which is surplus to the needs of domestic processors in Alaska, shall be made 

available to domestic processors in the contiguous 48 United States at prevailing domestic 

prices. Should Region 10 sell, in the current fiscal year, less than the annual average 

portion of the decadal allowable sale quantity called for in the Tongass Land Management 

Plan in sales which are not deficit when appraised using a residual value approach that 

assigns domestic Alaska values for western redcedar, the volume of western redcedar 

timber available to domestic processors at prevailing domestic prices in the contiguous 48 

United States shall be that volume: (1) which is surplus to the needs of domestic 

processors in Alaska; and (2) is that percent of the surplus western redcedar volume 

determined by calculating the ratio of the total timber volume which has been sold on the 

Tongass to the annual average portion of the decadal allowable sale quantity called for in 

the current Tongass Land Management Plan. The percentage shall be calculated by 

Region 10 on a rolling basis as each sale is sold (for purposes of this amendment, a 

`rolling basis' shall mean that the determination of how much western redcedar is eligible 

for sale to various markets shall be made at the time each sale is awarded). Western 

redcedar shall be deemed `surplus to the needs of domestic processors in Alaska' when the 

timber sale holder has presented to the Forest Service documentation of the inability to 

sell western redcedar logs from a given sale to domestic Alaska processors at a price equal 

to or greater than the log selling value stated in the contract. All additional western 

redcedar volume not sold to Alaska or contiguous 48 United States domestic processors 

may be exported to foreign markets at the election of the timber sale holder. All Alaska 

yellow cedar may be sold at prevailing export prices at the election of the timber sale 

holder.]

SEC. 421 No funds appropriated in this Act for the acquisition of lands or interests in 

lands may be expended for the filing of declarations of taking or complaints in 

condemnation without the [approval] prior notification of the House and Senate 

Committees on Appropriations... 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-10 

1. 

1. 

1. 

[SEC. 422. (a) LIMITATION ON COMPETITIVE SOURCING STUDIES.— 

 (1) Of the funds made available by this or any other Act to the Department of the 

Interior for fiscal year 2006, not more than $3,450,000 may be used by the Secretary of 

the Interior to initiate or continue competitive sourcing studies in fiscal year 2006 for 

programs, projects, and activities for which funds are appropriated by this Act until such 

time as the Secretary concerned submits a reprogramming proposal to the Committees on 

Appropriations of the Senate and the House of Representatives, and such proposal has 

been processed consistent with the reprogramming guidelines included in the report 

accompanying this Act. 

 (2) Of the funds appropriated by this Act, not more than $3,000,000 may be used 

in fiscal year 2006 for competitive sourcing studies and related activities by the Forest 

Service. 

 (b) COMPETITIVE SOURCING STUDY DEFINED.—In this section, the term 

‘‘competitive sourcing study’’ means a study on subjecting work performed by Federal 

Government employees or private contractors to public-private competition or on 

converting the Federal Government employees or the work performed by such employees 

to private contractor performance under the Office of Management and Budget Circular 

A–76 or any other administrative regulation, directive, or policy. 

 (c) Competitive Sourcing Exemption for Forest Service Studies Conducted Prior to 

Fiscal Year 2006.—The Forest Service is hereby exempted from implementing the Letter 

of Obligation and post-competition accountability guidelines where a competitive 

sourcing study involved 65 or fewer full-time equivalents, the performance decision was 

made in favor of the agency provider; no net savings was achieved by conducting the 

study, and the study was completed prior to the date of this Act. 

 (d) In preparing any reports to the Committees on Appropriations on competitive 

sourcing activities, agencies funded in this Act shall include the incremental cost directly 

attributable to conducting the competitive sourcing competitions, including costs 

attributable to paying outside consultants and contractors and, in accordance with full cost 

accounting principles, all costs attributable to developing, implementing, supporting, 

managing, monitoring, and reporting on competitive sourcing, including personnel, 

consultant, travel, and training costs associated with program management. 

 (e) In carrying out any competitive sourcing study involving Forest Service employees, 

the Secretary of Agriculture shall— 

 (1) determine whether any of the employees concerned are also qualified to 

participate in wildland fire management activities; and 

 (2) take into consideration the effect that contracting with a private sector source 

would have on the ability of the Forest Service to effectively and efficiently fight and 

manage wildfires.] 

[SEC. 423. None of the funds in this Act or prior Acts making appropriations for the 

Department of the Interior and Related Agencies may be provided to the managing 

partners or their agents for the SAFECOM or Disaster Management projects.] 

[SEC. 424. (a) IN GENERAL- An entity that enters into a contract with the United States 

to operate the National Recreation Reservation Service (as solicited by the solicitation 

numbered WO-04-06vm) shall not carry out any duties under the contract using: 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-11 

(1) a contact center located outside the United States; or 

(2) a reservation agent who does not live in the United States. 

(b) NO WAIVER- The Secretary of Agriculture may not waive the requirements of 

subsection (a). 

(c) TELECOMMUTING- A reservation agent who is carrying out duties under the 

contract described in subsection (a) may not telecommute from a location outside the 

United States. 

(d) LIMITATIONS- Nothing in this Act shall be construed to apply to any employee of 

the entity who is not a reservation agent carrying out the duties under the contract 

described in subsection (a) or who provides managerial or support services.] 

1. Provisions or portions of provisions unnecessarily restrict agency discretion. 

 

 

1. 

 1. 

SEC. [425]. 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. 1501A-196; 16 U.S.C. 497 note), as amended, is amended-- 

(1) in subsection (a) by striking [`2005'] 2006 and inserting [`2006'] 2007; and 

(2) in subsection (b) by striking [`2005'] 2006 and inserting [`2006'] 2007. 

1. Extends provision until the end of FY 2007. 

 1. 

1. 

[SEC. 426. Section 321 of the Department of the Interior and Related Agencies 

Appropriations Act, 2003 (division F of Public Law 108-7; 117 Stat. 274; 16 U.S.C. 565a1 note) is amended by striking `September 30, 2005' and inserting `September 30, 2007'.] 

[SEC. 428. 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), is 

amended-- 

(1) in the first sentence, by striking `2005' and inserting `2008'; 

(2) in the first sentence by striking `may pilot test agency-wide joint permitting 

and leasing programs' and inserting after `Congress,' the following: `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; may co-locate in Federal offices and 

facilities leased by an agency of either Department;'; 

(3) in the third sentence, by inserting `, National Park Service, Fish and Wildlife 

Service,' after `Bureau of Land Management'; and 

(4) by adding at the end the following new sentence: `To facilitate the sharing of 

resources under the Service First initiative, the Secretaries of the Interior and 

Agriculture may make transfers of funds and reimbursement of funds on an annual 

basis, including transfers and reimbursements for multi-year projects, except that 

this authority may not be used to circumvent requirements and limitations imposed 

on the use of funds.'.] 

1. Multi-year authorizations. 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-12 

 1. [SEC. 429. The Secretary of Agriculture may acquire, by exchange or otherwise, a parcel 

of real property, including improvements thereon, of the Inland Valley Development 

Agency of San Bernardino, California, or its successors and assigns, generally comprising 

Building No. 3 and Building No. 4 of the former Defense Finance and Accounting 

Services complex located at the southwest corner of Tippecanoe Avenue and Mill Street 

in San Bernardino, California, adjacent to the former Norton Air Force Base. As full 

consideration for the property to be acquired, the Secretary of Agriculture may terminate 

the leasehold rights of the United States received pursuant to section 8121(a)(2) of the 

Department of Defense Appropriations Act, 2005 (Public Law 108-287; 118 Stat. 999). 

The acquisition of the property shall be on such terms and conditions as the Secretary of 

Agriculture considers appropriate and may be carried out without appraisals, 

environmental or administrative surveys, consultations, analyses, or other considerations 

of the condition of the property.] 

1. One-time authorization. 

 1. 

 1. 

[SEC. 430. None of the funds in this Act may be used to prepare or issue a permit or lease 

for oil or gas drilling in the Finger Lakes National Forest, New York, during fiscal year 

2006.] 

[SEC. 431. (a) IN GENERAL- 

(1) The Secretary of Agriculture and the Secretary of the Interior are authorized to 

make grants to the Eastern Nevada Landscape Coalition for the study and 

restoration of rangeland and other lands in Nevada's Great Basin in order to help 

assure the reduction of hazardous fuels and for related purposes. 

(2) Notwithstanding 31 U.S.C. 6301-6308, the Director of the Bureau of Land 

Management may enter into a cooperative agreement with the Eastern Nevada 

Landscape Coalition for the Great Basin Restoration Project, including hazardous 

fuels and mechanical treatments and related work. 

(b) AUTHORIZATION OF APPROPRIATIONS- There are authorized to be appropriated 

such sums as are necessary to carry out this section.] 

1. Provisions unnecessarily restrict agency discretion. 

 1. [SEC. 432. (a) Section 108(g) of the Valles Caldera Preservation Act (16 U.S.C. 698v6(g)) is amended-- 

(1) in the first sentence, by striking `The Secretary' and inserting the 

following: 

(1) LAW ENFORCEMENT- 

(A) IN GENERAL- The Secretary'; 

(2) in the second sentence, by striking `The Trust' and inserting the 

following: 

(B) FEDERAL AGENCY- The Trust'; and 

(3) by striking `At the request of the Trust' and all that follows through the 

end of the subsection and inserting the following: 

(2) FIRE MANAGEMENT- 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-13 

(A) NON-REIMBURSABLE SERVICES- 

(i) DEVELOPMENT OF PLAN- Subject to the availability 

of appropriations under section 111(a), the Secretary shall, 

in consultation with the Trust, develop a plan to carry out 

fire preparedness, suppression, and emergency rehabilitation 

services on the Preserve. 

(ii) CONSISTENCY WITH MANAGEMENT PROGRAMThe plan shall be consistent with the management program 

developed pursuant to subsection (d). 

(iii) COOPERATIVE AGREEMENT- To the extent 

generally authorized at other units of the National Forest 

System, the Secretary shall provide the services to be carried 

out pursuant to the plan under a cooperative agreement 

entered into between the Secretary and the Trust. 

(B) REIMBURSABLE SERVICES- To the extent generally 

authorized at other units of the National Forest System and subject 

to the availability of appropriations under section 111(a), the 

Secretary shall provide presuppression and nonemergency 

rehabilitation and restoration services for the Trust at any time on a 

reimbursable basis.'. 

(b) The amendments made by subsection (a) take effect as of January 1, 2005.] 

1. Provision passed in 2006 Appropriations Bill; Act is thus already so amended. 

 1. [SEC. 433. None of the funds made available to the Forest Service under this Act shall be 

expended of obligated for the demolition of buildings at the Zephyr Shoals property, Lake 

Tahoe, Nevada.] 

1. Provision unnecessarily restricts agency discretion. 

 1. [SEC. 434. Section 323(a) of the Department of the Interior and Related Agencies 

Appropriations Act, 1999 (16 U.S.C. 1011 note; as contained in section 101(e) of Public 

Law 105-277), is amended by striking `fiscal year 1999' and all that follows through 

`2005' and inserting `each of fiscal years 2006 through 2011'.] 

SEC. [435] 418. Congressional Security Relating to Certain Real Property. 

 (a) IN GENERAL.—Except as provided under subsection (b)— 

 (1) the District of Columbia Board of Zoning Adjustments and the District of 

Columbia Zoning Commission may not take any action to grant any variance relating to 

the property located at 51 Louisiana Avenue NW, Square 631, Lot 17 in the District of 

Columbia; and 

 (2) if any variance described under paragraph (1) is granted before the effective 

date of this section, such variance shall be set aside and shall have no force or effect. 

 (b) CONDITIONS FOR VARIANCE.—A variance described under subsection (a) may 

be granted or shall be given force or effect if— 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-14 

2. 

 (1) the Capitol Police Board makes a determination that any such variance shall 

not— 

 (A) negatively impact congressional security; and 

 (B) increase Federal expenditures relating to congressional security; 

 (2) the Majority and Minority Leaders of the Senate and the Speaker and 

Minority Leader of the House of Representatives [approve] have been notified of such 

determination; and 

 (3) the Capitol Police Board certifies the determination in writing to the District 

of Columbia Board of Zoning Adjustments and the District of Columbia Zoning 

Commission. 

 (c) EFFECTIVE DATE.—This section shall take effect on the date of enactment of this 

Act and apply to the remaining portion of the fiscal year in which enacted and each fiscal 

year thereafter. 

1. Multi-year authorization. 

2. Provision unnecessarily restricts agency discretion. 

1. 

1. 

[SEC. 436. WISCONSIN NATIONAL FOREST ACQUISITON 

(a) PROSPECTIVE MANAGEMENT REQUIREMENTS- The Secretary of Agriculture 

is authorized to acquire property located within Sections 1 and 2, Township 44 North, 

Range 4 West; Section 31, Township 45 North, Range 3 West; and Section 36, Township 

45 North, Range 4 West; Fourth Principal Meridian, Ashland County, State of Wisconsin, 

and upon such acquisition, such lands shall be subject to the special management 

requirements of subsection (b). 

(b) SPECIAL MANAGEMENT- Subject to valid existing rights of record, upon 

acquisition by the Secretary of Agriculture of any land referenced in subsection (a), that 

area of the land encompassed within 300 feet of the ordinary high water mark of the 

Brunsweiler River or Beaverdam Lake, whether or not the waterways are impounded, 

shall be subject to the laws and regulations pertaining to the National Forest System with 

the following management emphasis: 

(1) Enhancing the physical, biological, and cultural features and values for public 

use, interpretation, research, and monitoring; 

(2) Maintenance of the natural character of Brunsweiler River, whether or not 

impounded; and 

(3) Prohibition of structures, motorized use of trails, developed recreation 

facilities, and surface occupancy for mineral exploration or extraction. 

(c) NATIONAL FOREST BOUNDARIES- Without further action by the Secretary of 

Agriculture, the boundaries of the Chequamegon National Forest are hereby expanded to 

encompass the lands referenced in subsection (a). 

(d) SAVINGS PROVISION- Nothing in this section shall be construed to prohibit the 

maintenance or reconstruction of the existing dam on the Brunsweiler River, located 

within the area referenced in subsection (a).] 

[SEC. 437. In addition to amounts provided to the Department of the Interior in this Act, 

$5,000,000 is provided for a grant to Kendall County, Illinois. 
FY 2007 Budget Justification USDA Forest Service

Appropriation Language Changes 5-15 

1. [SEC. 438. Section 344 of the Department of the Interior and Related Agencies 

Appropriations Act, 2005 as contained in division E of the Consolidated Appropriations 

Act, 2005 (Public Law 108–447) is amended as follows: 

 (1) by striking ‘‘seven’’, ‘‘14910001,’’, and ‘‘, 14913007, and 14913008’’; 

 (2) by inserting ‘‘and’’ after ‘‘14913005,’’; and 

 (3) by striking all after ‘‘(2)’’ and inserting ‘‘immediately transfer to the Alaska 

SeaLife Center for various acquisitions, waterfront improvements and facilities that 

complement the new Federal facility, any remaining balance of previously appropriated 

funds.’’] 

1. One-time authorization. 

 1. [SEC. 439. (a) ACROSS-THE-BOARD RESCISSIONS.—There is hereby rescinded an 

amount equal to 0.476 percent of the budget authority provided for fiscal year 2006 for 

any discretionary appropriation in titles I through IV of this Act. 

(b) PROPORTIONATE APPLICATION.—Any rescission made by subsection (a) shall 

be applied proportionately— 

 (1) to each discretionary account and each item of budget authority described in 

subsection (a); and 

 (2) within each such account and item, to each program, project, and activity (with 

program, projects, and activities as delineated in the appropriation Act or accompanying 

reports for the relevant fiscal year covering such account or item, or for accounts and 

items not included in appropriation Acts, as delineated in the most recently submitted 

President’s budget). 

(c) INDIAN LAND AND WATER CLAIM SETTLEMENTS.—Under the heading 

“Bureau of Indian Affairs, Indian Land and Water Claim Settlements and Miscellaneous 

Payments to Indians:, the across-the-board rescission in this section, and any subsequent 

across-the-board rescission for fiscal year 2006, shall apply only the first dollar amount in 

the paragraph and the distribution of the rescission shall by at the discretion of the 

Secretary of the Interior who shall submit a report on such distribution and the rationale 

therefor to the House and Senate Committees on Appropriations.] 

1. One-time rescission. 

FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 

Chapter 6 

Forest and Rangeland Research

FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-1 

Revised March 1, 2006

Appropriation Forest and Rangeland Research 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $276,384 $278,929 $3,446 -$14,584 $267,791 -$11,138

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $276,384 $278,929 $3,446 -$14,584 $267,791 -$11,138

Staff Years 2,520 2,379 26 2,405 26 

Estimate Funding By Activity 

Conduct Research $220,458 $219,549 -$11,087 $208,462 -$11,087

Conduct Forest Inventory & Analysis $55,926 $59,380 -$51 $59,329 -$51

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Outcome Measure Plan Actual Plan Plan FY 2006 

Percentage of customers who are satisfied with 

Research and Development products and services* 80% 78% 72% 72% 0%

Percent of Nation with accessible FIA data** 78% 84% 88% 90% 2%

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

administered survey. 

** Beginning in FY 2006, this measure will be based on percent of States rather than percent of land area. 

Program Description 

Forest Service Research & Development (FS R&D) strives to be recognized as a world leader 

in innovative science for sustaining global forest resources for future generations. FS R&D 

provides information and solutions to sustain forests and rangelands and the values they provide 

for people. Research scientists collaborate with industry, non-governmental organizations, 

colleges and universities, State foresters, and other governmental agencies. Research benefits 

the owners and managers of working forests and farms, and helps restore healthy forests and 

protect communities. FS R&D has the flexibility to address today’s issues effectively and to 

respond to tomorrow’s needs. 

Research is conducted at 6 research stations, the Forest Products Laboratory, and the 

International Institute of Tropical Forestry located in Puerto Rico, with 583 scientists and 67 

sites located throughout the United States. 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-2

FS R&D Investment Criteria 

Priorities in FS R&D are shaped by current and anticipated challenges and the types of 

information landowners, managers, and policy-makers need to provide for effective and efficient 

management and use of forest and range resources now and into the future. The challenges and 

information needs perceived to be most critical often differ across local, State, regional, national, 

and global levels. FS R&D’s six regional research stations, the Forest Products Laboratory, and 

the Institute of Tropical Forestry annually evaluate these challenges and needs, assign priorities, 

and request appropriate funding. Station budget requests are reviewed within the Washington 

Office to assess alignment with Departmental, agency, and deputy area priorities – and a national 

research program is then formulated. 

At present, FS R&D conducts activities in seven “strategic program areas” (SPAs) that align to 

the goals and objectives in the agency’s strategic plan as well as the Chief’s Four Threats. These 

seven SPAs are: Wildland Fire, Invasive Species, Recreation, Resource Management and Use, 

Water and Air, Wildlife and Fish, and Resource Data and Analysis. 

FS R&D has been fully engaged in the Forest Service’s “Managing for Results” initiative. As 

with all Federal R&D programs, since 2002, FS R&D has been required to demonstrate its 

compliance with and/or responsiveness to the “Investment Criteria” jointly articulated by the 

Office of Management and Budget (OMB) and the Office of Science and Technology Policy 

(OSTP) in May of 2002. These criteria are “relevance,” “quality,” and “performance.” 

FS R&D has always been concerned with the relevance, quality, and performance of its 

programs, and has for some time had policies, processes, and procedures in place to promote 

these ends. These mechanisms include: periodic internal reviews – e.g., station reviews of 

individual research work units (RWUs) and technical assistance visits (TAVs) – i.e., reviews by 

internal and external stakeholders of the past productivity and future research plans of an RWU. 

Standard procedures are used for periodic peer reviews and evaluation of all scientist positions – 

i.e., the Research Panel process, with policies for peer review of proposed study plans and/or 

publications. Lastly, policies are followed requiring development and periodic updating of 

Station Quality Assurance/Quality Control (QA/QC) plans. 

Since articulation of the “Investment Criteria,” FS R&D has initiated a variety of additional 

actions intended to help ensure its responsiveness to these indicators. Key actions taken in 

response to the investment criteria include the following: 

Logic Modeling – During fiscal year (FY) 2004 and FY 2005, FS R&D developed “logic 

models” for five of its seven SPAs – Wildland Fire, Invasive Species, Resource Management and 

Use, Water and Air, and Wildlife and Fish. Additionally, a logic model was developed for a 

fundamental R&D activity that cuts across all program areas. Each logic model was developed 

by a team of FS R&D employees using their own expertise as well as input received from a wide 

array of internal and external stakeholders. The models describe the societal goals each SPA is 

intended to help achieve, and explicitly show how attainment of these goals is causally linked to 

program-related strategies, activities, and outputs. Each model also contains performance 

measures that can be used to assess how well an SPA is performing. The models address all of 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-3

the R&D investment criteria, but with particular attention to relevance and performance. 

Implementation of an External Peer Review Process – FS R&D has agreed upon the structure of 

an external peer review process and will use this process to review three programs in FY 2006. 

Under the planned process, a team of five to eight scientific peers from outside FS R&D will 

spend 3 to 4 days conducting a national-level review of the relevance, quality, and performance 

of specific R&D programs – which could be SPAs, or major subcomponents thereof. The review 

team’s evaluation of a given program will be based upon an array of evidentiary materials 

compiled by FS R&D, as well as interviews with both program managers and customers. FY 

2006 is being viewed as a “pilot-test” year. FS R&D will evaluate its experiences at the end of 

the year and make needed improvements to the review process for FY 2007. This action 

addresses all the R&D investment criteria, but especially quality. 

Implementation of a Customer Satisfaction Survey – Late in FY 2005, FS R&D entered into an 

interagency agreement with the Federal Consulting Group of the Department of Treasury to have 

a customer satisfaction survey conducted in FY 2006 using the American Customer Satisfaction 

Index (ACSI) methodology. Key “drivers” of customer satisfaction, such as relevance, quality, 

timeliness, and accessibility, have been identified and will be used to develop a survey 

questionnaire. Additionally, FS R&D compiled an extensive listing of the e-mail addresses of 

FS R&D’s customers.. The goal is to collect survey results of customer satisfaction with FS 

R&D products and services no later than the end of the second quarter of FY 2006. This action 

addresses all the R&D investment criteria, particularly performance. 

FY 2005 Accomplishments 

Reducing Risk of Catastrophic Wildfire

Risk-Based Fire Decisions. FS researchers developed a risk-based framework for making 

complex fire and fuel related decisions called CRAFT (Comparative Risk Assessment 

Framework and Tools). CRAFT was designed to incorporate a vast array of existing models, 

such as those commonly used in fire, successional, and habitat modeling, and to be available on 

the web. CRAFT provides a framework for these models that leads to greater transparency 

among interdisciplinary specialists, stakeholders and decision makers. By adopting CRAFT’s 

comparative risk assessment approach, fire and fuel managers can meaningfully compare and 

communicate the tradeoffs between long- and short-term risks and local and broad scale goals. 

Tools for Fire and Air Quality Management. Researchers developed, tested, and applied 

numerous fire-weather, fire behavior, and smoke transport predictive tools to aid fire and air 

quality management in the North Central and Northeastern U.S. These efforts included the 

testing and implementation of the BlueSky smoke modeling framework for prescribed fires in 

the region; the identification of atmospheric precursors and processes important for fire-weather 

evolution; the development of a three-layer atmospheric model to improve fire-behavior 

predictions; a validation of the MM5 atmospheric mesoscale modeling system for fire-weather 

predictions; and the delivery of predictive tools to the user community via the Eastern Area 

Modeling Consortium and Eastern Area Coordination Center websites.
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-4

Real Time Smoke Movement Predictions. Forest Service scientists improved the BlueSky smoke 

model to provide real-time predictions about smoke movements from large wildfires throughout 

the country. Found on the Web at www.fs.fed.us/bluesky, BlueSky is currently available in every 

region. Incident command teams, air quality regulators, and smoke forecasters use BlueSky to 

provide public information about wildfire smoke, appropriate timing of managed fire ignitions, 

and to manage prescribed fires. The BlueSky smoke model and its Rapid Access Information 

System (RAINS) have changed the way fire and smoke are managed since the project began in 

2001. It is also being modified for implementation in the Southeast by the Environmental 

Protection Agency. 

GIS Based Fuel Model. Forest Service scientists developed ArcFuels, a new software program 

that links existing models within the ArcGIS interface, integrating the models within the familiar 

geographic information system (GIS) interface. Testing on this new tool began on a wildlandurban interface area in northeastern Oregon. 

Fire Behavior Technologies for Firefighting. FS R&D developed technologies that measure and 

provide information on fire danger, fire behavior, and smoke dispersion needed to enhance 

firefighting capacity and preparedness. Information was delivered online, offering 12-km 

resolution covering 19 Western States, and smaller sub-domains of 6-km resolution, each 

covering 3 western fire geographical coordination center regions and individual States. 

Products were specifically tailored to meet operational needs of fire managers, incident 

commanders, and air-resource smoke specialists during periods of intense firefighting and 

prescribed burning. All products are delivered continuously through the World Wide Web via a 

seamless, intuitive and user-friendly interface at http://fireweather.info. 

Multiple Resource Planning Models. FS R&D developed two new models - MAGIS and a 

streamlined version, MAGIS eXpress - to address the issue of encompassing multiple resource 

objectives in project planning. Researchers are working with project planners in several areas to 

incorporate MAGIS modeling into the project planning process. In all cases, these models 

include fuel treatment issues as part of a broader, integrated resource plan. Both modeling 

systems produce treatment schedules that are spatially explicit and take into account the changes 

in vegetation and economic costs and benefits. Both systems include the access issue (road 

access and maintenance) as part of the planning problem. A MAGIS model consists of GIS data, 

vegetation, timber, and other output relationships, and parameters to be used to set up specific 

‘scenarios.’ Details of this research can be found at http://www.fs.fed.us/rm/econ/magis/. 

Hazardous Fuel Use for Commercial Products. FS R&D has developed a new structural 

biocomposite product using hazardous fuels and whole tree trimmings. During the development 

of this product, such materials are whole-tree chipped (including timber, bark, and needles), 

refined to fiber, press-dried, and processed into structural biocomposite panels. The new product 

is called Three-Dimensional Engineered Fiberboard (3DEF). 3DEF is strong and stiff but much 

lower in weight than many commercial wood composites. This technology could have major 

impacts on the $200 billion/year residential construction market for uses such as pre-fabricated 

walls and floor or roof systems; it could also impact the non-residential construction market for 

uses such as cement forms and sound partitions. 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-5

Reducing Impact from Invasive Species 

Heat Treatment for Invasive Insects. Forest Service scientists and university partners developed 

heat-treatment protocols to kill the Asian long-horned beetle, emerald ash borer, and other 

destructive non-native invasive insect species on wooden packing materials. This work is 

helping prevent further dissemination of these highly destructive invasive insects, which have 

wreaked havoc among maple, ash, and other shade trees in cities around the U.S. 

Improved Wood Wasp Detection. Forest Service scientists have developed an assay for 

identifying Sirex noctilio larvae. This wood boring wasp was recently discovered in three New 

York counties. The wasp and an associated fungus cause widespread damage to exotic pines in 

the southern hemisphere. The assay technique developed enables taxonomists to quickly identify 

woodwasp larvae and not wait extended periods for adults to emerge. 

Douglas-fir Tussock Moth Early Warning. Forest Service scientists developed a pheromonebased early warning system for Douglas-fir tussock moth, which is a severe defoliator of 

Douglas-fir and true firs in the Pacific Northwest and other Western States. The early warning 

system successfully identifies areas where moth populations are increasing, as much as 1 to 3 

years in advance of major outbreaks, giving managers the time needed to develop treatment 

options. 

Environmental Threat Assessment Centers. FS R&D completed work on the charter for the 

Forest and Wildland Environmental Threat Assessment Centers, established in response to 

Healthy Forests Restoration Act (HFRA), and successfully recruited and filled the director 

positions and Western chief scientist position. 

Recreation 

National Recreation Survey Published. FS R&D and partners completed and published the 

National Survey on Recreation and the Environment (NSRE). Over 80,000 individual 

households were interviewed for the survey. Products developed this year based on the NSRE 

include: a report on Off-Highway Vehicle Recreation for the national OHV Policy 

Implementation Team; demand analyses for Statewide Comprehensive Outdoor Recreation Plans 

(SCORPs) for the States of Connecticut, Georgia, Missouri, Pennsylvania, and Wisconsin; and a 

national database providing estimates of outdoor recreation participation for all counties in the 

country covering 80 outdoor activities and 30 demographic strata. 

Forest Service scientists studied the effects of recreation activities on elk and mule deer in 

northeastern Oregon. Findings show that the use of all-terrain vehicle (ATV), mountain biking, 

hiking, horse riding, and hunting disrupt the elk. ATV use is most disruptive, followed by 

mountain biking. Mule deer increase their movement rates in response to the recreational 

activities but do not flee them as elk do. A study of the effects of roads and hunting on elk in the 

Black Hills National Forest of South Dakota confirms that elk require increased foraging time 

when subject to disturbances. These results can be used for scientifically defensible management 

of recreation on national forests. 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-6

Meeting Energy Resource Needs 

Biomass Petroleum Replacement. FS R&D and U.S. Department of Energy scientists jointly 

analyzed the ability of the Nation to meet the goal of replacing 30 percent of current petroleum 

consumption with consumption of biofuels. This requires approximately 1 billion dry tons of 

biomass annually. The final wood biomass production estimate is about 360 million dry tons 

annually, and agriculture can produce another 900 million dry tons. With science and 

application, biomass can replace in excess of 30 percent of U.S. petroleum consumption. A final 

report, “A Billion-Ton Feedstock Supply for a Bioenergy and Bioproducts Industry – Technical 

Feasibility of Annually Supplying 1 Billion Dry tons of Biomass,” is located at 

http://feedstockreview.ornl.gov/pdf/billion_ton_vision.pdf. 

Use of Materials from Forest Thinning. High value use of the large amounts of materials from 

forest biomass thinning in fire-prone forests is the key to making this healthy forest management 

practice economical. One potentially large volume use for small diameter and underutilized tree 

species is in pulp and paper production. Forest Service scientists have demonstrated that 

suppressed growth small diameter trees from overstocked and overcrowded fire-prone forests are 

superior to normal growth trees for thermomechanical pulp (TMP) production because of the 

uniformity in their cell radial geometry, thin cell walls, and more mature wood content. The thin 

tracheid cell walls of the suppressed growth trees require less refining intensity and energy to 

produce good quality pulp. 

Patented Yeast. Forest Service scientists licensed a patented yeast to a company that owns and 

operates two ethanol production facilities in Iowa that processes fermentable sugars derived from 

biomass as its primary feedstock. The specific product focuses of the licensee are use of the 

patented technology for conversion of xylose into fuel ethanol and the commodity sweetener, 

xylitol. 

Improving Wood Chip Use. Americans annually consume around 100 million tons of paper and 

paperboard made from wood chips. Conversion yields of pulps from wood chips range from 45 

percent to 90 percent depending upon the pulping process employed (i.e. chemical, semichemical, or mechanical). FS R&D has developed a new and novel wood chip pretreatment that 

selectively removes hemicelluloses present in wood chips prior to producing the pulp. Acetic 

acid and sugars are recovered by the treatment. For high yield mechanical pulps, refining energy 

is greatly reduced (30-50 percent) and pulp properties are enhanced (i.e. greater paper strength). 

Improved Watershed Condition

Mercury Contamination. Researchers discovered that the bioaccumulative form of mercury 

(methylmercury) increases with increased sulfate deposition due to the bacteria that occur in 

wetland soils. Sulfates are deposited across the landscape as a result of burning fossil fuels. 

Mercury is a highly toxic element that is found both naturally and as an introduced contaminant 

in the environment. Mercury contamination in fish concerns citizens who catch fish, those who 

eat them, public health officials, ecologists, and natural resource managers. This new knowledge 

advances the state-of-the-art research in finding ways to mitigate mercury contamination. 

Mount St. Helens. Forest Service scientists synthesized 25 years of research on the ecological 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-7

recovery at Mount St. Helens since the eruption of 1980. The Mount St. Helens research has 

yielded major findings on how watersheds and ecosystems recover from multiple, large, and 

severe disturbances; information is available at www.fs.fed.us/pnw/mtsthelens. Key lessons 

include the critical role of biological legacies in ecological recovery, the complexity of 

ecological succession, and the role of chance and timing in disturbances. Managers are applying 

these insights in the restoration of burned areas, flood- and landslide-damaged areas, and 

reclamation of mining areas. 

Other Mission-related Work

Science Education. For some years, FS R&D has cooperated in publishing the Natural Inquirer, 

a science education resource to be used by middle school students and teachers. The Natural 

Inquirer contains easy to read articles describing various aspects of the research being conducted 

by FS R&D and its cooperators. In FY 2005, 104,000 copies of the Natural Inquirer were 

distributed – 84,000 to students and 20,000 to educators. Since its inception, readers of the 

Natural Inquirer have been introduced to 60 Forest Service scientists engaged in carrying out 

some 65 different research studies. 

Forest Inventory and Analysis. The Forest Inventory and Analysis (FIA) branch of FS R&D has 

initiated the Federal base program in 45 States. Of these States, 38 have annual survey data 

available on-line through the FIA public data base. For the remaining States, periodic survey data 

are available, as these States transition from periodic to annual data. FIA 5-year State reports 

have been refined to be more issue based. The 5-year State reports for Maine and South Carolina 

were the first to integrate and address forest health statistics and indicators. 

Hurricane Katrina. FIA completed rapid damage assessments in Mississippi, Louisiana, 

Alabama, and Texas for Hurricanes Katrina and Rita. FS R&D developed proposals to initiate 

work for a re-inventory of FIA plots to determine the damage caused by Hurricane Katrina to 

forest resources and to provide a basis for the implementation of the annual inventory program 

for future years. 

FY 2006 Program 

Consolidation of Northeastern and North Central Research Stations 

During FY 2006, the Northeastern and North Central Research Stations are planned to be 

consolidated into the Northern Research Station. Headquarters will be located at the present site 

of the Northeastern Research Station headquarters in Newtown Square, PA. 

Reducing Risk of Catastrophic Wildfire

Fuel Treatment. FS scientists will provide an expanded version of the Fuel Treatment Evaluator 

(FTE 3.0), a web-based tool that estimates location and amount of biomass removal from 

thinnings across the West to meet specific fuel hazard reduction targets. The tool allows users to 

screen area for possible treatment - including wildland urban interface areas - apply alternate 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-8

silvicultural thinnings, check attainment of fire hazard reduction targets, and compare harvest 

costs to potential wood revenue. The tool can be used to identify locations where use of biomass 

may help most in supporting thinnings to reduce fire hazard. The website location is 

(http://www.ncrs2.fs.fed.us/4801/fiadb/fte_test/fte_testwc.asp). 

Reducing Impact from Invasive Species 

Invasive Species Research. FS R&D will conduct a wide range of critical invasive species 

research to guide regulatory and management activities, determine the magnitude of invasive 

species problems, and improve our prevention, detection, monitoring, control, and restoration 

efforts. 

Threat Assessment Centers. Both the Eastern and Western Forest Environmental Threat 

Assessment Centers will be fully operational, focusing on multi-scale assessment, monitoring, 

and evaluation of forest health threats. The Centers are coordinating planning efforts to conduct 

a joint scientific conference to assess the current knowledge of risk assessment in early 2006, and 

to use the results as the basis for an internet-based, hypertext encyclopedia that would be 

accessible by managers, landowners, and scientists. Planning efforts are also underway with the 

Western Center and the Remote Sensing Applications Center in Salt Lake City, to form a joint 

relationship with Stennis Space Center and Mississippi State University. 

Sudden Oak Death. FS R&D will expand the Sudden Oak Death Research Program to gain 

knowledge on the biology, ecology, epidemiology and behavior of Phytophthora ramorum, the 

exotic, invasive, quarantine pathogen that causes sudden oak death and other diseases. The 

Sudden Oak Death Research Program will focus on developing landscape-level treatments, and 

determining the mechanisms for long-distance spread to enable management and improve 

quarantine regulations. Researchers will accelerate efforts to develop data-based, practical 

strategies for control and restoration of invasive species. The information will be provided to 

impacted and interested people via an energetic education and outreach program. 

Soil Organisms. FS R&D will develop tools to assist land managers with the management and 

evaluation of belowground invasive soil organisms. Researchers will compile the best available 

information on how changes in soil organisms can impact the functioning of ecosystems. They 

will also continue studies on the impact of two exotic, root-feeding weevils on northern 

hardwoods and the impact of non-native earthworms on ecosystem functions in the Huron 

mountains of Michigan. 

Invasive Species in Aquatic Environment. FS R&D will continue to conduct research projects 

examining the ecosystem functions occurring in various aquatic (e.g., streams, freshwater 

wetlands) and coastal (e.g., mangrove forests) ecosystems on Pacific islands. Research will be 

conducted in streams and freshwater wetlands to examine how invasive species (e.g., fish, trees), 

land use, and biodiversity influence invertebrate communities, nutrient dynamics, leaf 

breakdown, and future restoration efforts. 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-9

Meeting Energy Resource Needs 

Low Value Biomass Use. FS R&D will expand research aimed at finding new and innovative 

ways to use low value forest biomass for biobased products and energy. These uses include both 

traditional and non-traditional products. Development of technologies that facilitate use of such 

material for energy and value-added products will make implementing needed treatments more 

economical and will yield other benefits. 

Carbon Accounting. FS R&D will deliver the first in a series of carbon management tools that 

will allow land managers to understand and determine the tradeoffs of engaging in carbon 

management. Tools to be delivered in FY 2006 include briefings and presentations on: (1) 

achieving carbon credits for bioenergy activities; and, (2) carbon accounting, credits, and market 

considerations. 

Improving Watershed Condition 

Acid Deposition Evaluation. FS R&D will develop a 2x2 km resolution critical acid (i.e., 

nitrogen and sulfur compounds) loads map for all terrestrial forests in the lower 48 States. The 

map will use a simple mass balance equation to estimate where current acid deposition is 

exceeding the ecosystems’ ability to neutralize these pollutants; termed “exceedance.” 

Ecosystems in exceedance are at elevated risk for reduced growth, stream acidification, and 

forest decline. The primary use of this map will be to suggest areas where more detailed analysis 

of critical acid load impacts are warranted across the Nation. 

Agroforestry. FS R&D National Agroforestry Center (NAC) will continue to develop effective 

upland and riparian forest buffers to mitigate non-point source pollution in runoff from 

agricultural lands. Regional scale methodology will be adapted for use in the Upper Mississippi 

River Basin and the Lower Mississippi Alluvial Valley to improve surface water quality, while 

also improving wildlife habitat, improving landowner economics, and sequestering carbon. 

Recreation 

Synthesis of Current and Past Recreation Research. FS R&D will initiate the development of a 

synthesis of relevant current and past recreation research in a format compatible with recreation 

managers needs. The synthesis will target high priority research topics as determined through a 

Recreation research strategic planning process, and identify knowledge gaps for future work. 

Other Mission-related Work

Hurricane Katrina. FS R&D will initiate the field work in Mississippi for a re-inventory of FIA 

plots to determine the damage caused by Hurricane Katrina to forest resources and to provide a 

basis for the implementation of the annual inventory program for future years. FIA will release a 

new public data base of annual inventory data that enables more powerful analyses of change 

and trend information and forest health data. FIA will also develop an implementation plan for 

full implementation of annual inventories for all 50 States. 

Small Diameter Materials. Researchers will continue working on two aspects of small diameter 

utilization for pulp production: (1) increasing understanding of the basic properties of the 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-10

materials in terms of tracheid geometry; and (2) better defining suitable mechanical pulping 

process parameters for producing quality pulp from forest thinning materials. The focus will be 

on carrying out a pulp mill of producing thermomechanical pulp (TMP) forest thinning material. 

 

Expanding Wood Use. Researchers will evaluate underutilized Northeastern wood species such 

as balsam fir, Eastern spruce, Eastern hemlock, and red maple for their treatability with wood 

preservatives. Increasing the value of these underused wood species would give forest managers 

more flexibility to economically manage the forest resource as well as create business and 

employment opportunities in rural communities. 

Soils Experimental Facility. FS R&D will complete construction of a major underground 

experimental facility, called a rhizotron, which will provide scientists with unprecedented access 

for understanding of basic belowground processes. The Smithsonian Museum of Natural History 

is interested in the possibility of using some the rhizotron’s features in its proposed soil science 

exhibit. 

Nanotechnology. Beginning in FY 2006 FS R&D has redirected funds toward research on 

nanotechnology under the National Nanotechnology Initiative. Focus will be on nano-scale 

properties of wood, nano-processes to modify wood, and nano-metrology techniques to measure 

the fundamental structure of wood. 

FY 2007 Plans 

Reducing Risk of Catastrophic Wildfire

Marketing and Utilization Research. FS R&D will work toward developing innovative new 

products and processing methods for low-value and small diameter trees that will help to reduce 

the costs of hazardous fuels reduction projects and allow the agency to treat more acres. New 

approaches to biomass use will enhance the ability of the Forest Service to improve the health of 

its managed lands through provisions in Healthy Forests Restoration Act of 2003. 

Fire Management and Safety. FS R&D will provide information and tools to better manage 

forest fuels, including silviculture and prescribed fire, as surrogates for natural wildfires; develop 

methods to predict long- and short-term wildfire occurrence and behavior; and develop planning 

tools to allocate fire-fighting resources and ensure effectiveness and safety for fire suppression 

professionals. 

Reducing Impact from Invasive Species 

Biological Control of Invasives. FS R&D will emphasize biological control of invasive species, 

such as hemlock woolly adelgid, Asian longhorned beetle, invasive bark beetles, emerald ash 

borer, and pathogen detection. The emphasis on biocontrols will provide land managers with 

more environmentally friendly tools to combat the invasive species threats to our Nation’s 

forests and rangelands. 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-11

Meeting Energy Resource Needs 

Global Change. FS R&D will continue to provide science and technology to improve 

understanding of the global carbon cycle in forest and rangeland management; improve accuracy 

of the U.S. forest carbon inventory, monitoring and projection system; enhance predictability of 

global change impacts on forests and rangelands; accelerate development and deployment of 

management systems that reduce and mitigate greenhouse gases and sequester carbon in a costeffective and environmentally beneficial manner; and provide and improve greenhouse gas 

accounting rules and guidelines for forest systems. 

Biomass Energy. FS R&D will continue to collaborate with research programs within USDA, 

the U.S. Department of Energy, and other agencies, universities, and the forest industry to 

enhance effectiveness in research, development, and deployment of biomass energy strategies 

and options. FS R&D will continue to focus work on integrated production, management, 

harvest and delivery, and utilization, and conversion systems for biobased products and 

bioenergy. 

Improving Watershed Condition 

Sustainable Watershed Systems. FS R&D will continue work in forested landscapes and increase 

our effort to develop a research program in agricultural, urban and mixed land use watersheds. 

Through the integration of physical, biological, and socio-economic sciences, we will investigate 

the balance between commodity production and clean water while identifying the cultural and 

economic hurdles to sustainable watershed management. 

Other Mission-related Work

Ecosystem Services. FS R&D will place emphasis on synthesizing existing knowledge about 

ecosystem services as related to forests, grasslands, wetlands, and aquatic ecosystems in the 

landscape. Synthesizing current social and biophysical scientific knowledge will provide critical 

information to initiatives focused on addressing fragmentation of forestland and loss of open 

space. 

Silvopasture. FS R&D National Agroforestry Center (NAC) will expand its efforts on the design 

and management of pine silvopasture systems. Silvopasture allows a landowner to manage 

stands of widely spaced trees for sawtimber production while continuing to derive an annual 

income grazing cattle, sheep, or goats in a pastured understory. The demand for more 

information has been particularly strong among underserved and minority landowner in the 

Southeast who see the potential of silvopasture to increase their profitability. 

Nanotechnology. Research will continue under the National Nanotechnology Initiative, aimed at 

accelerating the discovery, development, and deployment of nanoscale science, engineering, and 

technology. 
FY 2007 Budget Justification USDA Forest Service

Forest and Rangeland Research 6-12

Justification of FY 2007 Program Changes 

Forest and Rangeland Research will redirect research funds for the gypsy moth to other high 

priority invasive species research, and will begin to increase the total FS R&D level of funding 

in cooperative research agreements with universities from the current 13 percent toward a target 

of 20 percent over the next 5 years. 

No funding is proposed by the Administration for the Forest Resources Information and Analysis 

budget line item within State and Private Forestry. This funding shift places the FIA program 

entirely under Forest and Rangeland Research. FS R&D will maintain survey data online for 38 

States. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 

Chapter 7 

State and Private Forestry

FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-1 

Revised March 1 ,2006

Appropriation State and Private Forestry 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $292,506 $279,406 $1,369 -$36,365 $244,410 -$34,996

Emergency & Supplemental Appropriations* $59,100 $30,000 $0 -$30,000 $0 -$30,000

Total Enacted Budget Authority $351,606 $309,406 $1,369 -$66,365 $244,410 -$64,996

Staff Years 840 831 -54 777 -54 

Enacted Budget Authority by EBLI 

Forest Health Management - Federal Lands $54,236 $53,438 $755 -$3,589 $49,849 -$3,589

Forest Health Management - Coop Lands $47,629 $46,928 $102 -$12,347 $34,581 -$12,347

State Fire Assistance $32,920 $32,930 $97 -$5,970 $26,960 -$5,970

Volunteer Fire Assistance $5,917 $5,911 -$53 $5,858 -$53

Forest Stewardship $32,320 $34,189 $132 -$441 $33,880 -$309

Forest Legacy Program $57,134 $56,536 $43 $4,979 $61,515 $4,979

Urban & Community Forestry $31,950 $28,451 $110 -$1,605 $26,846 -$1,605

Economic Action Program $19,032 $9,537 $69 -$9,537 $0 -$9,537

Forest Research Information and Analysis $4,958 $4,589 $23 -$4,589 $0 -$4,589

International Forestry $6,410 $6,897 $38 -$1,976 $4,921 -$1,976

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* FY 2005 funding provided for hurricane damage related projects in P.L.108-324 

State and Private Forestry Programs 

State and Private Forestry provides technical and financial assistance to landowners and resource 

managers to help sustain the Nation’s urban and rural forests and to protect communities and the 

environment from wildland fires, insects, disease, and invasive plants. Through a coordinated 

effort in management, protection, conservation education, and resource use, State and Private 

Forestry programs help facilitate sound stewardship across lands of all ownerships on a 

landscape scale, while maintaining the flexibility for individual forest landowners to pursue their 

objectives. State and Private Forestry programs play a key role, along with the National Forest 

System, Forest and Rangeland Research, and the Department of the Interior, in implementing the 

National Fire Plan to manage the impacts of wildland fires on communities and the environment. 

Funds in the State and Private Forestry appropriation also support the International Forestry 

Program. State and Private Forestry will continue to develop and improve efficiency and 

outcome-based performance measures for all programs. 

Forest Health Management 

The Forest Health Management (FHM) Program maintains healthy, productive forest ecosystems 

by preventing, detecting, and suppressing damaging insects and diseases. FHM is responsible
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-2

for reporting insect, disease, invasive and noxious plants, and forest health trends across all land 

ownerships. FHM develops and applies new and improved technologies for use in forest insect, 

disease, and invasive plant survey, monitoring, technical assistance, prevention, and suppression. 

The program has two activities: Federal Lands and Cooperative Lands. 

Cooperative Fire Protection 

The program provides technical and financial assistance to States and local fire agencies to 

promote efficient fire protection on State and private lands. Program activities focus on 

protecting homes and structures in the growing “wildland-urban interface.” The program 

enhances State and local wildfire management capabilities. The program has two activities: 

State Fire Assistance and Volunteer Fire Assistance. 

Cooperative Forestry 

Cooperative Forestry Programs promote working in partnership with States, tribal governments, 

communities, and private landowners to improve management, protection, and use of forestbased goods and services in addition to building community capacity to achieve long-term goals 

for sustainable development. The President’s Budget proposes funding for the following 

Cooperative Forestry programs: Forest Stewardship, Forest Legacy, and Urban and Community 

Forestry. 

International Forestry 

International Forestry programs coordinate the expertise of Forest Service land managers and 

scientists with overseas assignments in the areas of technical cooperation and policy assistance. 

The focus is on key natural resource problems and issues in countries with significant forest 

resources and important forest-related trade with the United States. International Forestry 

programs focus on three major areas within sustainable natural resource management: invasive 

species, migratory species, and trade and economic aspects of forest management. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-3

Budget Line Item Forest Health Management 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $101,865 $100,366 $857 -$16,793 $84,430 -$15,936

Emergency & Supplemental Appropriations * $2,100 $0 $0 $0 $0 $0

Total Enacted Budget Authority $103,965 $100,366 $857 -$16,793 $84,430 -$15,936

Staff Years 518 520 -1 519 -1 

Enacted Budget Authority by EBLI 

Forest Health Management - Federal Lands $54,236 $53,438 $755 -$3,589 $49,849 -$3,589

Forest Health Management - Coop Lands $47,629 $46,928 $102 -$12,347 $34,581 -$12,347

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* Portion of $59.1 million provide for hurricane damage related projects (P.L. 108-324) 

Program Description 

The Forest Health Management (FHM) program maintains healthy, productive forest ecosystems 

by preventing, detecting, and suppressing damaging insects, diseases, and invasive plants. FHM 

reports nationwide on insect, disease, invasive plants, and forest health trends across all types of 

land ownership. 

The program develops and applies new and improved technologies for use in forest insect, 

disease, and invasive plant survey, monitoring, technical assistance, prevention, and suppression 

activities. 

The FHM program administers activities within two jurisdictions: 

Federal Lands: FHM activities on Federal lands are carried out in cooperation with the National 

Forest System, other Federal agencies and tribal governments. These activities maximize 

efficiency in executing a coordinated Federal program to detect, monitor, evaluate prevent, 

suppress, and restore Federal forestlands and rangelands and tribal lands damaged by insects and 

disease. 

Cooperative Lands: FHM activities on cooperative lands are carried out in cooperation with the 

States and territories. These activities maximize efficiency in executing a coordinated program to 

detect, monitor, evaluate prevent, suppress, and restore forestlands and rangelands damaged by 

insects and disease on lands owned by States, local governments, private organizations, and 

individual land owners. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-4

Independent Reviews 

PART Findings 

A Program Assessment Rating Tool (PART) evaluation of the invasive species program was 

completed during FY 2004 which included the Forest Health Management program, a major 

component of the agency invasive species program. The assessment found the agency needed to 

develop efficiency measures that depict the unit costs of implementation of a number of longterm output and outcome performance measures. A reassessment of the invasive species 

program will be conducted in FY 2006. 

In addition, the Forest Service will: 

• Refine outcome-based performance measures for selected species; develop appropriate 

efficiency measures; and articulate the scientific or policy basis to demonstrate how those 

selected species measured represent a valid method to measure the total invasive species 

population and their impacts, 

• Provide for measurement of the environmental and economic effects of treatments. 

• Improve use of forest health risk maps in agency decision-making and allocation of 

resources, particularly within National Forest System. 

• Expand use of Research and Development and continue level funding for the other 

program components where ecosystems are no longer impacted by invasive species. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-5

Budget Line Item Forest Health Management

Expanded Budget Line Item Federal Lands 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $54,236 $53,438 $755 -$4,344 $49,849 -$3,589

Emergency & Supplemental Appropriations * $100 $0 $0 $0 $0 $0

Total Enacted Budget Authority $54,336 $53,438 $755 -$4,344 $49,849 -$3,589

Staff Years 457 458 -1 457 -1 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* Portion of $59.1 million provided for hurricane damage related projects (P.L. 108-324) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs. 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Federal acres treated - Invasives* --- --- 143,217 61,368 -81,849

Federal acres treated - Native plants* --- --- 44,990 27,399 -17,591

Forest health acres managed on Federal lands 

(acres) 125,917 104,321 --- --- n/a

* New measures starting in FY 2006 replace FY 2005 measure 

Program Description 

The Federal Lands Forest Health Management program provides for detection, monitoring, 

evaluation, prevention, and suppression of forest insects and diseases on forest and rangelands 

managed by National Forest System (NFS), other Federal agencies, and tribal governments. This 

program includes technical assistance to Federal land managers regarding the control and 

management of invasive plants and insects on Federal lands. Forest health management 

specialists evaluate risk for tree mortality and determine prevention, suppression, maintenance, 

and restoration treatments based on results of risk evaluation and surveys. Follow-up aerial and 

ground surveys are conducted for risk areas. The program includes the development of 

technologies to improve efficiency and effectiveness of management activities to reduce the 

impacts of forest pests. 

FY 2005 Accomplishments 

• Treated 104,321 acres of Federal land in high-priority forest stands in condition classes II 

and III. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-6

• Conducted survey, detection, monitoring, and evaluation of forest insect and disease 

outbreaks on Federal and tribal forestlands and woodlands on 218 million acres. 

• Responded to nationwide threats to forest ecosystems from non-native invasive species, such 

as new gypsy moth outbreaks, sudden oak death, and emerald ash borer with evaluation, 

monitoring, and treatments. 

• Continued full implementation of the gypsy moth slow-the-spread strategy consisting of 

aerial applications and on-ground effectiveness monitoring on 15,051 acres across the 

advancing front of the gypsy moth from North Carolina to Wisconsin. 

• Continued to prevent gypsy moth from gaining a foothold in the western United States by 

conducting prompt eradication treatments. 

• Continued work on the insect and disease risk map update. 

• Expanded prevention and restoration efforts, including treatments of highest priority largescale watersheds currently in forest stand condition classes II & III, to mitigate infestations of 

native forest insects such as the southern pine beetle and western bark beetle. 

• Protected critical ecosystems from established infestations of non-native insects and diseases, 

such as, Port-Orford cedar root disease, white pine blister rust, and hemlock woolly adelgid. 

• Continued to develop effective biocontrol agents to combat hemlock woolly adelgid to 

protect hemlock old growth forests. 

• Monitored and assessed both short-term and long-term forest health conditions across the 

nation. 

• Maintained technology development, pilot tests, and demonstrations of new technologies, 

materials, methods, and invasive pest management strategies to improve efficiency of 

managing forest pests. 

• Implemented the goals in the Healthy Forests Restoration Act of 2003 through insect and 

disease treatments on priority Federal lands. 

• Found no trace of sudden oak death in eastern oak forests after extensive surveys. 

FY 2006 Program 

• Treat native and invasive species on 188,207 acres in high-priority forest stands in condition 

classes II and III following a competitive peer-reviewed project selection process. 

• Complete work on the insect and disease risk map update. 

• Continue full implementation of the gypsy moth slow-the-spread strategy consisting of aerial 

applications and on-ground effectiveness monitoring on approximately 15,000 acres across 

the advancing front of the gypsy moth from North Carolina to Wisconsin. 

• Conduct survey, detection, monitoring, and evaluation of forest insect and disease outbreaks 

on Federal and tribal forestlands and woodlands on 182 million acres.

• Focus prevention and restoration efforts for southern pine beetle and western bark beetle on 

treatments of highest priority large-scale watersheds currently in condition classes II & III. 

• Respond to nationwide threats to forest ecosystems from non-native invasive species, such as 

new gypsy moth outbreaks, sudden oak death, and emerald ash borer with evaluation, 

monitoring, and treatments. 

• Protect critical ecosystems from established infestations of non-native insects and diseases, 

such as, Port-Orford cedar root disease, white pine blister rust, and hemlock woolly adelgid. 

• Monitor and assess both short-term and long-term forest health conditions across the nation. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-7

• Maintain technology development, pilot tests, and demonstrations of new technologies, 

materials, methods, and invasive pest management strategies to improve efficiency of 

managing forest pests. 

• Implement the goals in the Healthy Forests Restoration Act of 2003 through insect and 

disease treatments on priority Federal lands 

FY 2007 Plans 

• Treat native and invasive species on 88,767 acres in high-priority areas following a 

competitive peer-reviewed project selection process. 

• Refocus the gypsy moth suppression, eradication, and slow-the-spread efforts to highest 

priority ecosystems, areas where human health is impacted, and areas of new introduction for 

eradication. The agency will maintain its technical assistance within the slow-the-spread 

program and redirect nearly all suppression and some slow-the-spread treatments to 

optimally mitigate other pest risks in highest priority areas according to the newly revised 

risk map and other information. 

• Focus prevention and restoration efforts for southern pine beetle and western bark beetles on 

treatments of highest priority large-scale watersheds currently in condition classes II & III. 

• Respond to nationwide threats to forest ecosystems from non-native invasive species, such as 

new gypsy moth outbreaks, sudden oak death, and emerald ash borer with evaluation, 

monitoring, and treatments. 

• Protect critical ecosystems from established infestations of non-native insects and diseases, 

such as, Port-Orford cedar root disease, white pine blister rust, hemlock woolly adelgid, 

emerald ash borer, and the sirex wood wasp. 

• Monitor and assess both short-term and long-term forest health conditions across the nation. 

• Maintain technology development, pilot tests, and demonstrations of new technologies, 

materials, methods, and strategies to improve the efficiency of the management of forest 

pests. 

• Implement the goals in the Healthy Forests Restoration Act of 2003 through insect and 

disease treatments on priority Federal lands.

• Develop more effective early detection and rapid response systems for invasive species 

which will serve to mitigate risk in natural ecosystems. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget will allow the agency to meet high-priority prevention and 

suppression needs on Federal lands. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-8

Budget Line Item Forest Health Management 

Expanded Budget Line Item Cooperative Lands 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $47,629 $46,928 $102 -$12,449 $34,581 -$12,347

Emergency & Supplemental Appropriations * $2,000 $0 $0 $0 $0 $0

Total Enacted Budget Authority $49,629 $46,928 $102 -$12,449 $34,581 -$12,347

Staff Years 61 62 0 62 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* Portion of $59.1 million provided for hurricane damage related projects (P.L. 108-324) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs. 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Cooperative lands acres treated - Invasives* --- --- 670,275 314,954 -355,321

Cooperative lands acres treated - Native 

plants* --- --- 160,117 60,302 -99,815

Forest health acres managed on cooperative 

lands (acres) 585,545 747,056 --- --- n/a

* New measures starting in FY 2006 replace FY 2005 measure 

Program Description 

The Forest Health Management, Cooperative Lands program works with States and territories on 

detection, monitoring, evaluation, prevention, and suppression of forest insects, diseases, and 

invasive plants on forestland owned by States, local governments, private organizations, and 

private individuals. The program includes evaluating tree mortality risk and determining 

prevention, suppression, maintenance, and restoration treatments based on evaluation results. 

The program supports aerial and ground surveys for insects and diseases in all areas of risk. 

Invasive plant surveys determine the need for prevention, suppression, maintenance, and 

restoration treatments for cooperative lands susceptible to infestations. The program also 

promotes the development of technologies to improve efficiency and effectiveness of forest pest 

management activities. 

The Forest Health Management, Cooperative Lands program benefits Federal and non-Federal 

land managers by controlling pest populations that have the potential to damage neighboring 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-9

lands, including those of rural communities. This program emphasizes protection and mitigation 

of impacts from invasive species at the watershed level. 

FY 2005 Accomplishments 

• Assisted cooperative landowners in treating 747,056 high priority acres in condition classes 

II and III. 

• Continued the gypsy moth slow-the-spread strategy consisting of aerial applications and onground effectiveness monitoring on 399,315 acres to slow the spread rate of gypsy moth by 

50 percent along an advancing front from North Carolina to Wisconsin. 

• Supported invasive plant control programs on State and private lands to control and manage 

invasive plant species on 24,000 acres in 28 states and the Pacific Islands. 

• Continued cooperative efforts with States to survey, detect, and evaluate insect, disease, and 

invasive plant species outbreaks on 493 million acres. 

• Responded to threats to forest ecosystems from non-native and native invasive species such 

as hemlock woolly adelgid, emerald ash borer, sudden oak death, southern pine beetle, 

western bark beetle, and others. 

• Monitored and assessed short-term and long-term forest health conditions, and provided 

scientific information on sustainable natural resources across the nation. 

• Provided technical and financial assistance to Hawaii for management of non-native weed 

species as provided for by the Hawaii Tropical Forestry Recovery Act. 

• Continued to achieve the goals set forth in the Healthy Forests Restoration Act of 2003 by 

treating insects and disease on high priority cooperative lands. 

 

FY 2006 Program 

• Assist cooperative landowners with treatment of native and invasive species on 830,392 

high-priority areas in condition classes II and III. 

• Continue the gypsy moth slow-the-spread strategy consisting of aerial applications and onground effectiveness monitoring to control gypsy moth infestations across an advancing front 

from North Carolina to Wisconsin on approximately 400,000 acres. 

• Support invasive plant control programs on State and private lands to control and manage 

invasive plant species on 92,000 acres in 28 States and the Pacific Islands. 

• Continue cooperative efforts with States to survey, detect, and evaluate insect, disease, and 

invasive plant species outbreaks on 493 million acres. 

• Respond to threats to forest ecosystems from non-native and native invasive species such as 

hemlock woolly adelgid, emerald ash borer, sudden oak death, southern pine beetle, western 

bark beetle, and others. 

• Continue to develop and release biocontrol agents to combat hemlock woolly adelgid which 

is decimating hemlock stands in the eastern United States. 

• Monitor and assess short-term and long-term forest health conditions, providing scientific 

information on sustainable natural resources across the Nation. 

• Continue to achieve the goals set forth in the Healthy Forests Restoration Act of 2003 by 

treating insects and disease on high priority cooperative lands. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-10

FY 2007 Plans 

• Assist cooperative landowners in treating 375,256 high-priority areas in condition classes II 

and III. 

• Refocus the gypsy moth suppression, eradication, and slow-the-spread efforts to highest 

priority ecosystems, areas where human health is impacted, and areas of new introduction for 

eradication. The agency will maintain its technical assistance within the slow-the-spread 

program and redirect nearly all suppression and some slow-the-spread treatments to 

optimally mitigate other risks in highest priority areas according to the newly revised risk 

map and other information. 

• Support invasive plant control programs on State and private lands to control and manage 

invasive plant species on 27,300 acres in 28 States and the Pacific Islands. 

• Respond to threats to forest ecosystems from non-native and native invasive species such as 

hemlock woolly adelgid, emerald ash borer, sudden oak death, southern pine beetle, western 

bark beetles, and others. 

• Monitor and assess short-term and long-term forest health conditions, providing scientific 

information on sustainable natural resources across the Nation. 

• Continue to achieve the goals set forth in the Healthy Forests Restoration Act of 2003 by 

treating insects and disease on high priority cooperative lands. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget will continue cooperative efforts with States to meet most of 

the high priority prevention and suppression needs on cooperative lands. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-11

Budget Line Item Cooperative Fire Protection 

 (dollars in thousands) 

 Increase or Decrease FY 2007

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006

Enacted Budget Authority 

Annual Appropriations $38,837 $38,841 $97 -$6,120 $32,818 -$6,023

Emergency & Supplemental Appropriations * $20,000 $0 $0 $0 $0 $0

Total Enacted Budget Authority $58,837 $38,841 $97 -$6,120 $32,818 -$6,023

Staff Years 57 59 -1 58 -1 

Enacted Budget Authority by EBLI 

State Fire Assistance $32,920 $32,930 $97 -$5,970 $26,960 -$5,970

Volunteer Fire Assistance $5,917 $5,911 $0 -$53 $5,858 -$53

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $59.1 million provided for hurricane damage related projects from P.L. 108-324 

Program Description 

 

Cooperative Fire Protection provides technical and financial assistance to States and local fire 

agencies to promote efficient wildland fire protection on Federal, State, and private lands. 

Program activities are focused on issues of national importance such as mitigating hazards, 

protecting homes in the wildland-urban interface (WUI), and reducing Federal wildfire 

suppression costs. State and Private Forestry will establish efficiency and outcome-based 

performance measures for all programs that will serve to focus program allocations on a priority 

basis. 

Cooperative Fire Protection consists of two activities: 

State Fire Assistance: More than 1 billion acres of State and private forestlands are under the 

protection of State and local fire agencies, most of those acres are adjacent to Federal lands, with 

a significant portion within the WUI. This budget activity provides financial assistance to State 

Foresters for all fire management activities including training, planning, hazardous fuel 

treatments, and purchase and maintenance of equipment. This activity emphasizes fire planning 

to ensure that Federal, State, and local agencies deliver a uniform and coordinated suppression 

response to wildfire. This activity provides funding to enable State and local fire protection 

organizations to be effective first responders in all types of disasters. The Cooperative Forest 

Fire Prevention program is a component within this activity and includes the “Smokey Bear” 

program. 

Volunteer Fire Assistance: This budget activity provides technical and financial assistance 

through the States to local organizations to protect State and private forestlands threatened by 

wildfire. Local fire agencies are often the first line of defense in meeting expanded fire 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-12

protection needs within the WUI. Volunteer and rural fire departments are often the only line of 

defense to respond to natural and human-caused disasters in rural America. The component 

supports local fire suppression efforts by providing technical assistance and grants for training, 

fire department development and organization, and equipment for volunteer fire departments in 

communities with populations of less than 10,000. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-13

Budget Line Item Cooperative Fire Protection

Expanded Budget Line Item State Fire Assistance 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $32,920 $32,930 $97 -$6,067 $26,960 -$5,970

Emergency & Supplemental Appropriations * $16,000 $0 $0 $0 $0 $0

Total Enacted Budget Authority $48,920 $32,930 $97 -$6,067 $26,960 -$5,970

Staff Years 57 59 -1 58 -1 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 20005 funding is a portion of $59.1 million provided for hurricane damage related projects from P.L. 108-324 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Communities assisted (number) 9,784 7,723 6,653 5,278 -1,375

 

Program Description

The program provides technical training and equipment to ensure that State and local agencies 

can deliver a uniform and coordinated suppression response to wildland fires, an important goal 

of the National Fire Plan. Emphasis is currently on fire response planning and training in 

wildland fire suppression tactics and the Incident Command System used nationally for all 

emergency response actions and will shift to include a greater emphasis on community-based 

wildland fire hazard mitigation. The program contributes significantly to virtually all aspects of 

State Foresters’ fire programs, from community wildfire planning and fire prevention to 

suppression and hazardous fuel treatments. With support provided by this program, State 

Foresters are able to work closely with Forest Service and USDI agencies for coordinated 

wildland fire protection throughout the country. State resources established and maintained with 

these funds are important resources that can be shared among States and with Federal land 

management agencies. 

 

The Cooperative Forest Fire Prevention (CFFP) program within State Fire Assistance provides a 

nationwide fire prevention program for fire organizations at all levels. Activities include public 

service advertising, educational and special prevention activities, licensing awards, corporate 

partnerships, and cooperation with other organizations to deliver the wildland fire prevention 

message. The Smokey Bear program is one activity under CFFP. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-14

Management of the Federal Excess Personal Property (FEPP) program is another element of the 

State Fire Assistance program. Through this program the Forest Service acquires and loans 

equipment for fire suppression to State and local fire agencies at no cost to the State. State Fire 

Assistance funds help the State forestry agencies administer this program and delivers over $133 

million in equipment annually. The FEPP program provides vital resources to local fire 

departments that rely heavily on the program to meet their equipment needs. States and local fire 

agencies currently use Federal excess personal property valued at over $1 billion. 

State Fire Assistance funding also supports implementation of the new Firefighter Property 

Program. This program implements the Rural Fire Department Equipment Priority Act of 2004 

and provides a higher level of screening authority for rural fire departments to access Department 

of Defense excess property and allows title for the equipment to pass to the State or fire 

department for firefighting and emergency purposes. This differs from the FEPP program in that 

it is not a loan program, rather title to the equipment passes to the recipient (State or local fire 

department). State Fire Assistance funding provided to the States provides for oversight and 

management of the program. 

This program supports the National Fire Plan. Accomplishments of this program and for Fire 

Operations – Other, State Fire Assistance, in the Wildland Fire Management account, are mixed 

and almost inseparable. All funds are matched at least dollar-for-dollar. 

FY 2005 Accomplishments 

• Technical and financial assistance was provided to 50 States and 5 territories to ensure their 

capability to protect lives and property through efficient wildland fire management. 

• Approximately 7,723 assists were made to communities, directly or indirectly, for hazard 

assessment plans, fuel hazard treatments, development of local fire department capacity, and 

wildfire preparedness. 

• High priority was placed on incident command and suppression training for local fire 

agencies, wildland-urban hazard and risk assessments, and improved cooperation among 

Federal, State, and local fire agencies to provide a coordinated response to all phases of 

wildland fire. The program also supports continued collection of statistical fire data on a 

national basis and working in cooperation with WUI communities on hazard mitigation. 

• The Smokey Bear and other prevention and public education efforts within each State were 

maintained.

FY 2006 Program 

• The program will continue efforts that focus strategic, technical, and financial assistance to 

the States to reduce hazardous fuels and strengthen the shared capacity in the protection of 

non-Federal wildlands and rural lands from wildfire. The program will emphasize training 

and fire planning to deliver an efficient and effective fire suppression response and 

prioritization of hazardous fuel conditions. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-15

• State fire programs will deliver an estimated 6,653 assists to communities for plans, 

assessments, prevention programs, and hazard mitigation projects in critical high-risk WUI 

areas. 

• The Fire Prevention program will provide public service advertising and education and 

promote partnerships designed to help reduce fire losses. 

FY 2007 Plans 

• The program will continue efforts that focus strategic, technical, and financial assistance to 

the States to reduce hazardous fuels and strengthen the shared capacity in the protection of 

non-Federal wildlands and rural lands from wildfire. The program will emphasize training 

and wildfire community planning to deliver an efficient and effective fire suppression 

response and prioritization of hazardous fuel conditions. 

• State fire programs will deliver an estimated 5,278 direct assists to communities for plans, 

assessments, and hazard mitigation projects in critical high-risk WUI areas. 

• The Fire Prevention program will provide public service advertising and education and 

promote partnerships designed to help reduce fire losses. 

Justification of FY 2007 Program Changes

The FY 2007 President’s Budget includes a decrease of $5.9 million. Within the Forest Service 

budget proposal, funding for State Fire Assistance reflects the priorities of the Administration 

and is consistent with previous proposals for State Fire Assistance. 

These funds complement the Volunteer Fire Assistance program funded through the State and 

Private Forestry appropriation, significantly expanding the benefits to the same target group. In 

addition, both the State Fire Assistance and the Volunteer Fire Assistance programs directly 

support implementation of the National Fire Plan and are critical to protecting communities and 

resources from catastrophic wildland fire. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-16

Budget Line Item Cooperative Fire Protection

Expanded Budget Line Item Volunteer Fire Assistance 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $5,917 $5,911 $0 -$53 $5,858 -$53

Emergency & Supplemental Appropriations * $4,000 $0 $0 $0 $0 $0

Total Enacted Budget Authority $9,917 $5,911 $0 -$53 $5,858 -$53

Staff Years 0 0 0 0 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $59.1 million provided for hurricane damage related projects from P.L. 108-324 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Volunteer fire departments assisted (number) 2,800 4,056 2,800 2,800 0

 

Program Description 

The Volunteer Fire Assistance program provides technical and financial assistance through the 

States for grants to rural communities for the protection of State and private lands and 

improvements. The program is targeted to rural volunteer fire departments that protect 

communities with populations of less than 10,000. The National Fire Protection Association 

estimates there are more than 24,000 local fire agencies nationwide, with over 658,000 volunteer 

firefighters. It is estimated these volunteer fire departments protect 43 percent of the population 

in the United States. Small, rural fire departments often provide initial attack on rural structure 

and wildland fires throughout the Nation, and contribute significantly to mitigating overall 

suppression costs. 

The Volunteer Fire Assistance program supports local fire suppression efforts by providing 

grants for equipment, training, and assistance in organizing fire departments. The State Forester 

in each State delivers the program. The recipients, leveraging the value of the Federal 

investment, match grants dollar-for-dollar. The Volunteer Fire Assistance program promotes safe 

and effective fire protection for rural America. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-17

This program supports the National Fire Plan. Accomplishments of this program complement 

those associated with Fire Operations – Other, Volunteer Fire Assistance, in the Wildland Fire 

Management account. 

FY 2005 Accomplishments 

• The program continued to provide assistance to State Foresters to help meet equipment and 

training needs of approximately 4,056 rural fire departments. 

• The Forest Service and the State Foresters continue to emphasize the need to prioritize 

assistance to those departments in locations at greatest risk from wildland fire, in the WUI. 

• Efforts will continue toward integrating the delivery of the program with the similar 

Department of the Interior’s Rural Fire Assistance program. 

• Funds enabled the organization of 22 new fire departments. 

FY 2006 Program 

• The program will support the critical needs of approximately 2,800 rural volunteer fire 

departments. The priority is fire protection in communities at greatest risk from wildland 

fire. 

FY 2007 Plans 

• The program will continue to support the critical needs of approximately 2,800 rural 

volunteer fire departments. The priority is fire protection in communities at greatest risk 

from wildland fire. An additional priority will be to fund National Incident Management 

System (NIMS) training for rural fire departments in order to allow departments to more 

effectively coordinate with State and national wildfire and emergency organizations. 

Justification of FY 2007 Program Changes 

 

There is virtually no change from FY 2006. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-18

Budget Line Item Cooperative Forestry

 (dollars in thousands) 

 Increase or Decrease FY 2007

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006

Enacted Budget Authority 

Annual Appropriations $145,394 $133,302 $377 -$11,438 $122,242 -$11,060

Emergency & Supplemental Appropriations * $37,000 $0 $0 $0 $0 $0

Total Enacted Budget Authority $182,394 $133,302 $377 -$11,438 $122,242 -$11,060

Staff Years 240 229 -54 175 -54 

Enacted Budget Authority by EBLI 

Forest Stewardship $32,320 $34,189 $132 -$441 $33,880 -$309

Forest Legacy Program $57,134 $56,536 $43 $4,936 $61,515 $4,979

Urban & Community Forestry $31,950 $28,451 $110 -$1,715 $26,846 -$1,605

Economic Action Program $19,032 $9,537 $69 -$9,606 $0 -$9,537

Forest Research Information and Analysis $4,958 $4,589 $23 -$4,612 $0 -$4,589

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $59.1 million provided for hurricane damage related projects from P.L. 108-324 

Program Description 

 

Cooperative Forestry promotes working in partnership with States, tribal governments, 

communities, and private landowners to improve management, protection, and use of forestbased goods and services in addition to building civic capacity to achieve long-term goals for 

sustainable development. State and Private Forestry will establish efficiency and outcome-based 

performance measures for all programs that will serve to focus program allocations on a priority 

basis. 

The Cooperative Forestry programs are: 

Forest Stewardship Program – The Forest Stewardship Program encourages the long term 

stewardship of private forest lands in important forest and watershed areas by strategically 

targeting needed technical assistance and providing landowners with comprehensive multiresource forest management plans. The program also assists State forest agencies and tribal 

partners with the development and production of high-quality tree and forest plant seedling stock 

for forest restoration and enrichment activities. 

Forest Legacy Program – Forest Legacy plays a unique role in maintaining the working forest 

land base and open space threatened by conversion to non-forest uses and in reducing the 

occurrence of forest fragmentation and land ownership parcelization. Encroachment of 

unplanned development on large tracts of forest, coastal areas, and in municipal watersheds has 

threatened vital forest values and functions across the nation. Forest Legacy works with State 

government and local entities to safeguard priority areas, by maintaining the working landscape 

through the purchase of conservation easements or fee simple title. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-19

Urban and Community Forestry – The Urban and Community Forestry program emphasizes 

the maintenance, restoration, and improvement of trees and tree cover in cities, suburbs and 

towns nationwide. Annually the program assists between 7,000 and 10,000 communities and 

7,000 volunteer organizations in assessing, retaining, and protecting their natural environment as 

they experience land use changes and economic development. Efforts are focused to stimulate 

communities to achieve the highest level of participation concerning the care of urban trees and 

forests, characterized by the development of comprehensive urban and community forest 

management plans, demonstrated citizen support, and local commitment to implement their 

comprehensive plan. 

Economic Action Programs – No funding is proposed for this program in FY 2007. 

Forest Resources Information and Analysis – No funding is proposed for this program in FY 

2007. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-20

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Forest Stewardship Program

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $32,320 $34,189 $132 -$441 $33,880 -$309

Emergency & Supplemental Appropriations * $20,000 $0 $0 $0 $0 $0

Total Enacted Budget Authority $52,320 $34,189 $132 -$441 $33,880 -$309

Staff Years 79 80 2 82 2 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $59.1 million provided for hurricane damage related projects from P.L. 108-324 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Non-industrial private forestlands (NIPF) under 

approved stewardship management plans 1,500,000 1,590,464 1,575,000 1,575,000 0

Number of NIPF stewardship management plans 15,400 13,244 16,250 16,250 0

Program Description 

The Forest Stewardship Program (FSP) promotes the sustainable management of America's nonFederal forests by enabling the 9.9 million non-industrial private forest (NIPF) landowners - who 

own roughly half of the nation's remaining forest area (363 million acres) - to better manage their 

natural resources. In partnership with State forest resource management agencies, the program 

provides landowners with long-term, multi-resource management plans for improving forest 

health, reducing wildfire threat, restoring riparian areas, enhancing wildlife habitat, maximizing 

the value of standing timber, and sustaining the flow of benefits and services that all healthy 

forests provide. Assistance is targeted to affect strategically important forest resource areas that 

are identified using geographic information and spatial analysis technologies. 

All FSP activities are coordinated with, and delivered through, the State forestry agency partners. 

States match each Federal program dollar on at least a one-to-one basis. State forestry personnel 

and professional forestry consultants provide site-specific, on-the-ground technical assistance to 

NIPF landowners and deliver forest management plans that address individual landowner 

objectives while also providing a variety of societal benefits. A single forest stewardship plan 

can, for example, include strategies for improving soil and water quality, assess non-wood forest 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-21

product potential, describe wildlife habitat features and improvement actions, while also 

presenting recreational opportunities and public access considerations. 

The program also sustains and improves supplies of high quality, genetically improved tree seed 

and planting stock for reforestation and forest ecosystem restoration efforts on private, State, and 

tribal land. 

FY 2005 Accomplishments 

• Provided 13,244 multi-resource forest stewardship plans to guide the long-term active 

management of 1,590,464 acres of NIPF lands with resulting improvements in the condition 

of associated forest resource elements including soil, water, biodiversity, timber, wildlife 

habitat, forest health, and recreation.

• Provided direct technical assistance to more than 163,000 landowners nationwide. 

• Coordinated and supported efforts to spatially identify high priority private forest resource 

and watershed target areas for strategic program planning and landowner outreach. 

• Revised the Forest Stewardship Program National Standards and Guidelines to: provide 

direction for defining areas of highest program potential; update management plan content 

requirements; and provide guidance for a management plan implementation monitoring 

program.

• Conducted second national program participant survey to evaluate program’s effectiveness in 

encouraging the long term stewardship of nonindustrial private forest lands. 

• Supported actions by the National Agroforestry Center to encourage the integration of trees 

and cropping systems to improve water quality, reduce soil erosion, and provide wildlife 

habitat.

• Supported the national Reforestation, Nurseries, and Genetic Resources Team; the National 

Seed Laboratory; and the Intertribal Nursery Council in successful efforts to conserve and 

produce high quality native forest seedling stock for a wide variety of public, private, and 

tribal reforestation and ecosystem restoration efforts. 

FY 2006 Program 

• Developing approximately 16,250 management plans covering more than 1,676,000 acres of 

NIPF and tribal lands, with resulting improvements in the condition of associated forest 

resource elements including soil, water, biodiversity, timber, wildlife habitat, forest health, 

and recreation.

• Coordinating and supporting continued efforts to spatially identify high priority private forest 

and watershed resource target areas to enable strategic program planning at the national and 

State levels. By the end of FY 2006, all States and territories are expected to spatially 

identify their highest-potential forest stewardship areas and to begin to focusing limited 

program resources in those areas. 

• Completing the development, promotion, and adoption of WebDET, a web based data entry 

and plan writing tool that will automate many aspects of accomplishment tracking, spatially 

relate management and planning accomplishments to associated forest landscape features, 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-22

and thus improve Forest Service’s ability to define program accomplishments in terms of 

resource outcomes with links to current issues of national concern and emphasis. 

• Encouraging the management of small diameter and underutilized wood biomass on private 

lands in order to improve forest health and reduce the risk of wildland fire and insect or 

forest pest infestations. 

• Assisting States and local nurseries to improve their supply of high-quality native and noninvasive tree seedlings to NIPF landowners for reforestation and forest restoration activities. 

• Assisting tribal governments with the production, distribution, and planting of culturally 

significant forest and riparian species. 

• Publishing and distributing brochures, newsletters, and technical notes, through the National 

Agroforestry Center, and developing national agroforestry demonstrations to encourage the 

integration of trees and cropping systems. 

FY 2007 Plans 

• Develop an additional 16,250 multi-resource management plans to guide the active 

management of approximately 1,676,000 acres of strategically important NIPF land, with 

resulting improvements in the condition of associated forest resource elements including soil, 

water, biodiversity, timber, wildlife habitat, forest health, and recreation. 

• Complete Spatial Analysis Program (SAP) geographic delineation of areas of highest 

program potential, in terms of forest resource values and threats, in each State and territory to 

enable strategic program planning and delivery. 

• Target technical and planning assistance to areas of highest potential: those areas on the 

landscape where the greatest number of real forest resource threats and opportunities 

intersect. 

• Begin plan implementation monitoring program in order to measure the program’s 

cumulative impact on landscapes within these areas of highest potential. 

• Adopt additional performance measures to demonstrate the program’s impact on high 

potential landscape areas. 

• Encourage landscape-scale, multi-landowner planning efforts in strategically important 

watersheds and wildland-urban interface areas to help protect the nation’s supply of clean 

water and counter forest parcelization and fragmentation trends. 

• Assist tribal governments with the production, distribution, and planting of culturally 

significant forest and riparian species. 

• Support the work of the National Agroforestry Center, and encourage the appropriate use of 

trees to sustain and enhance the environmental quality of range, animal production, and 

cropping systems. 

Justification of FY 2007 Program Changes 

There is no significant change from FY 2006. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-23

Budget Line Item Cooperative Forestry

Expanded Budget Line Item Forest Legacy Program

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $57,134 $56,536 $43 $4,936 $61,515 $4,979

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $57,134 $56,536 $43 $4,936 $61,515 $4,979

Staff Years 24 26 0 26 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs. 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Forest Legacy program acres acquired 224,000 46,181 230,000 130,000 -100,000

Program Description

The Forest Legacy Program (FLP) conserves environmentally important forests threatened by 

conversion to non-forest uses through the acquisition of land or interests in land. The program 

operates on a “willing buyer – willing seller” basis and is a non-regulatory, incentive-based land 

conservation program. This program ensures that both traditional uses of private lands and the 

public values of America's forest resources are protected for future generations. 

Fifty-seven percent of our Nation’s forests are privately owned, totaling 430 million acres. 

Family forest owners and timber companies are facing increasing real estate prices and 

development pressure, resulting in the parcelization of ownership and conversion of forests to 

other land uses. Changes in ownership and land use reduce public recreation opportunities, 

decrease fish and wildlife habitat, degrade water quality, weaken resource-based economies, and 

diminish general quality of life. FLP provides financial incentives to private landowners to 

conserve their forests to prevent conversion and fragmentation. 

Over 1.1 million acres of environmentally important private lands are being managed and 

protected from conversion to non-forest land uses since FLP’s authorization in 1990. The 

success and visibility of the program has garnered interest and support from States, land trusts, 

private landowners, forest industry, and others. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-24

Acquisitions are based on a project selection process that utilizes national criteria to consider 

critical resource values, development threats, unique environmental features, traditional forest 

uses, potential leverage of non-Federal funds, and the history of ongoing efforts. The States 

submit their priorities and the Forest Service, following a national competition, in turn prioritizes 

proposed acquisitions into a national FLP project list that accompanies the President’s Budget. 

The program requires cost-share participation and leverages Federal investments to accelerate 

accomplishments. 

On average, each Federal dollar leverages an equal amount in non-Federal contributions to the 

program through donated lands or interests in lands, bargain sales, or additional in-kind 

contributions from States and other partners. 

Independent Reviews 

This program has undergone independent evaluations from OIG, GAO, and the House of 

Representatives Committee on Appropriations. These investigations and surveys have identified 

issues and needs for improvement in specific areas, but have all come to indicate that the 

program is valuable and effective. In response to these reviews, and the growth and maturation 

of the program, numerous reforms have been put in place that strengthen program management, 

operations, and the ability to track performance and accountability. 

The FLP was evaluated in FY 2003 using the Program Assessment Rating Tool (PART) and 

underwent a voluntary reassessment in FY 2004. The reassessment resulted in an improved 

PART evaluation score of “moderately effective.” 

The improved rating is due to improvements implemented to track program performance in 

terms of outcomes and efficiency. The program received credit for conducting a process to 

develop a national 5-year program strategic direction that sets national program goals and 

measures performance annually, as well as for electing to undergo periodic independent 

assessments of program management effectiveness. The program operates as a competitive grant 

program that has a national project selection process using national criteria and additional 

selection factors such as the readiness of projects and State implementation performance. The 

national project selection criteria reflect the efficiencies within a national competition and State 

support for the national strategic program goals and performance measures. 

FY 2005 Accomplishments 

• Completed a total of 52 tracts that protected 46,181 acres of important forests from 

conversion to non-forest uses. 

o Acquired conservation easements on 35,368 acres from willing private forest landowners. 

o Acquired 10,813 acres through fee simple purchases. 

Completed acres were lower than anticipated, due to the following factors: 

o FLP closed a significant number of tracts (52 in total), but tracts were smaller than 

average size. Almost as much effort is needed to close smaller tracts as required by 

larger tracts. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-25

o Real estate negotiations are very unpredictable. Many closings that were anticipated to 

close in FY 2005 were delayed, resulting in a large first quarter FY 2006 accomplishment 

(FLP conserved 83,000 acres across 25 tracts in the first quarter of FY 2006) 

• Added 6 new States to the program (Arizona, Florida, Missouri, Ohio, Nevada, and Texas). 

• Hired a FLP appraiser to review appraisals, ensuring they meet Federal appraisal standards, 

and to conduct quality assurance inspections of State appraisal procedures. 

• Completed the FLP strategic direction to provide national focus and continual improvement 

of program implementation. 

FY 2006 Program 

• Accomplish 230,000 acres conserved through conservation easements and fee simple 

purchases. 

o Projects were selected by a nationally competitive process. 

o These accomplishments will rely heavily on non-Federal partners that historically match 

Federal funds beyond the 25 percent cost-share requirement and are currently leveraging 

almost 50 percent of total project costs. 

• Hire a second FLP review appraiser to conduct review appraisals, mostly in the Southern 

States, and to conduct quality assurance inspections across the country. 

• Provide technical and financial assistance to the 45 active States and territories, including 

updating their state-wide Assessment of Need (AON). One State will initiate an AON, while 

three States are anticipated to join the Forest Legacy Program in FY 2006. 

• Work with State lead agencies to identify significant projects through a process conducted 

with a broad-based State Forest Stewardship Coordinating Committee. Acquisitions are 

accomplished through Forest Service cooperation with State agencies, land trusts, other nongovernment organizations, and other partners. 

FY 2007 Plans 

• Focus on priority land acquisitions in participating States and territories. Funds will be 

distributed to support continuing Forest Legacy Program activities in active States and for 

priority land conservation projects selected through a nationally competitive process. 

• Provide technical and financial assistance to the active States and territories (estimated to be 

48), including updating their state-wide AON. 

• Conserve important forestlands in participating States in areas determined to contain 

important public benefits, strategic in terms of fitting in with a larger conservation effort, and 

in priority areas threatened by conversion. 

Justification of FY 2007 Program Changes 

FY 2007 funding will focus on land conservation for funded projects, due diligence for 

upcoming proposed projects, and updating state-wide program implementation plans. The FY 

2007 proposed funding will result in approximately the same number of tracts and acres 

conserved as the average accomplishments from the past 3 years. This funding will result in an 

estimated 130,000 acres protected for FY 2007. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-26

In addition, the Forest Service will use funds to improve program delivery capacity and 

oversight, to implement actions that address the FLP national strategic direction, and to increase 

accountability and performance. 

By ensuring that the private forest land base is protected for future forest uses, the program 

supports the agency's strategic plan by improving the capability of the Nation’s forests and 

grasslands to provide desired sustainable levels of uses, values, products, and services. 

Continual funding this program will result in the ability to protect the most threatened private 

forestlands from development and the public goods and service provided by these important 

forests. 

See the table on the following page for proposed Forest Legacy Program projects for FY 2007. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-27

FY 2007 Proposed Forest Legacy Program Projects 

(Order reflects rank in priority) 

State Project Name Funding 

ME Grafton $ 2,000,000 

RI North-South Corridor 3,000,000 

SC Pee Dee River 2,500,000 

CA Baxter Ranch 2,000,000 

MI Northern Great Lakes Forest Project 3,500,000 

HI Kealakekua Ranch 2,000,000 

ID Clifty Mountain Foothills Project 2,900,000 

FL Northeast Florida Timberlands 2,250,000 

GA Paulding County Land area 2,250,000 

VA New River Corridor 2,100,000 

ME Lower Penobscot Forest Project: Phase I 2,200,000 

NH Willard Pond 3,000,000 

TX Turkey Creek 2,045,000 

SC Savannah River 2,500,000 

AL Cumberland Mountains Preserve 1,185,000 

MT North Swan River Valley 3,000,000 

NV Ash Canyon Gateway 500,000 

MA Southern Monadnock Plateau 2,500,000 

UT Virgin River Headwaters 2,800,000 

WA Tahuya Headwaters Pope 1,880,000 

AZ Cedar Springs 880,000 

MN Sugar Hills 750,000 

DE Green Horizons 2,000,000 

IN Luke's Run 1,700,000 

KY Marrowbone Creek State Forest 1,000,000 

PA Birdsboro Waters 300,000 

NC Whitehurst Forest 1,000,000 

AS Ottoville Rainforest Preserve 500,000 

AR Moro Big Pine 500,000 

OR South Eugene Hills Phase I 460,000 

MO New State Start-Up 500,000 

 Administrative Funds 5,815,000 

Total $61,515,000 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-28

Budget Line Item Cooperative Forestry

Expanded Budget Line Item Urban and Community Forestry 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $31,950 $28,451 $110 -$1,715 $26,846 -$1,605

Emergency & Supplemental Appropriations * $17,000 $0 $0 $0 $0 $0

Total Enacted Budget Authority $48,950 $28,451 $110 -$1,715 $26,846 -$1,605

Staff Years 66 67 0 67 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* Portion of $59.1 million provided for hurricane damage related projects (P.L. 108-324) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Technical assists to communities (number of 

communities assisted) 9,600 6,998 6,200 5,800 -400

Volunteer assistance generated (days) 254,000 149,789 133,300 125,800 -7,500

Program Description 

 

The Urban and Community Forestry (U&CF) program is unique within the agency because it 

specifically addresses forestry within communities and metropolitan areas where 80 percent of 

the nation's population resides. The purpose of the program is to improve the condition and 

extent of trees and forests in cities, suburbs, and towns nationwide. This improvement is 

accomplished by providing technical, financial, educational, and research services to 

communities so they can plant, protect, and maintain their community trees and forests, and use 

the wood from these trees, to maximize environmental, economic, and social benefits. 

There is a wealth of empirical data showing that urban forests provide direct environmental 

benefits by improving air and water quality, reducing stormwater management costs, reducing 

heat island effects, reducing energy use, and maintaining dwindling wildlife habitat that is 

constantly under pressure from development. Scientific studies have shown that these 

environmental benefits provide public health benefits including a reduction in asthma and other 

respiratory illnesses, stress, and crime. Finally, homes situated within well-forested landscapes 

command higher resale values and businesses interspersed with street and park trees achieve 

greater sale volumes. 

U&CF provides technical and financial assistance to the cities, suburbs, and towns of all 50 

States, 9 U.S. territories, and affiliated Pacific Island nations, primarily through the State forestry 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-29

agencies. The second part of this delivery mechanism functions through a diverse and 

continually expanding partnership network of local governments, community organizations, and 

volunteers who establish, restore, and maintain forest cover within communities nationwide. 

U&CF works with internal agency partners, specifically Research and Development, to conduct 

national assessments of urban forests and to develop and transfer tools and technologies that are 

used by groups, individuals, and organizations to better manage their community forests. 

States report that U&CF projects routinely attract 1 million hours or more of volunteer 

participation annually. Projects supported with U&CF grants also help States and cities respond 

to changing demographics by increasing community involvement in tree planting and urban 

watershed restoration efforts and by sponsoring local environmental education targeted to 

children and adults from diverse cultural backgrounds. 

FY 2005 Accomplishments 

• The States, territories, and the District of Columbia reported nearly 7,000 participating 

communities, about 2,600 communities fewer than the target of 9,600 communities. This 

shortfall was due in part to the new performance measures that counted only those 

communities based on U.S. Census definitions that received state assistance during the 

current year, instead of the cumulative number reported in 2004 and prior years. In addition, 

State governments have begun reducing financial and technical assistance to communities in 

proportion to declining federal investment in the State-Federal U&CF partnership, in spite of 

strong local support. 

• States reported that U&CF projects leveraged nearly 150,000 days of volunteer assistance, 

which fell short of targets by about 104,000 days. This difference is lower than expected in 

part because States are beginning to reduce assistance to communities in proportion to 

funding. 

• The U&CF program and State forestry agencies responded to FY 2004 and FY 2005 

congressional direction by implementing a new Community Accomplishment Reporting 

System (CARS) for U&CF that would support both the performance-based allocation 

methodology for FY 2006 and annual agency reporting and budget processes. 

• The program has assembled a unique partnership with Research and Development and 

private partners to develop an urban forest assessment and management tool called “i-Tree.” 

Using state-of-the-art technology, i-Tree will not only help communities assess and manage 

their tree cover, but it will also provide them with a tool to help explain to decision makers 

why trees and greenspaces are a worthwhile local public investment. 

• Urban watershed stewardship activities, through the American Heritage Rivers, continued to 

receive financial support. 

• Regions and State partners provided technical assistance and grants to communities and 

tribes to undertake collaborative efforts to manage, protect, restore, and maintain natural 

resources and watersheds in their communities. 

• The Forest Service continued support to the Parks and People Foundation of Baltimore for 

“Revitalizing Baltimore,” a regional partnership working to improve urban natural resources 

in the Baltimore area. This partnership has focused on building the capacity of inner-city 

residents to care for their urban trees and natural resources and, in doing so, revitalize their 

neighborhoods. This partnership has conducted teacher training, reached over 9,000 youth in 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-30

environmental education programs, and engaged hundreds of elementary and middle school 

students in after-school programs and summer camps. 

• In direct support of the Chief’s “Four Threats” and the National Fire Plan, western regions 

continued outreach and education activities to help communities establish defensible space 

and other measures in the wildland urban interface (WUI) to reduce the risk of catastrophic 

wildfire damage to homes and communities. 

• In June 2005, the Forest Service, in cooperation with the National Urban and Community 

Forestry Advisory Council (NUCFAC), awarded $863,114 in challenge cost-share grants to 

13 organizations. The organizations will match those funds with an additional $1,001,533, 

resulting in a total investment of $1,864,647. 

• Several grants were provided to national non-profits to continue their outreach and education 

activities in support of work at the community level. Groups include the National Arbor Day 

Foundation’s Tree City USA program with over 3,000 communities participating; TreeLink - 

a website clearing house for U&CF information; the Society of Municipal Arborists, which 

provides training and support to community forestry professionals employed by local 

governments nationwide; the Alliance for Community Trees, which coordinates the efforts of 

national non-profit U&CF partners; American Forests, which provides for radio public 

service announcements and Urban Ecosystem/City Green analyses in several major cities. 

• U&CF continued work toward aligning national partner efforts more closely to reduce 

duplicated effort and streamline work conducted on a national level. The Sustainable Urban 

Forest Coalition has since been formed, and out of its efforts, the national office has funded 

several national initiatives including an effort to better educate tree care professionals in local 

governments, dissemination of information to planners and local governments about how 

trees can be used to meet EPA air quality standards, and a certification program for local 

non-profit groups so they can strengthen their base and operate more independently. 

• Urban Forest Health Monitoring (UFHM) activities continued in Maryland, Massachusetts, 

New Jersey, and Wisconsin; and new pilot studies were begun in Colorado and Tennessee. 

The program, in conjunction with its network of State partners, will explore ways to fund 

UFHM activities nationwide. UFHM is critical to the program as it provides information on 

the condition, structure, and extent of the urban forest needed to support sound resource 

management decisions. The program also participated in the National Association of State 

Foresters (NASF) UFHM Task Force. 

• In partnership with the International Society of Arboriculture (ISA), the U&CF program 

continued the Certified Arborist Scholarship Grant Program that provides training and 

certification to urban forestry professionals in communities where that expertise is lacking. 

In payment for training received, newly certified arborists must donate 80 hours of 

community service to the locality where they reside, thereby increasing nationwide 

understanding of professional tree care standards where they are typically least understood. 

At least 50 individuals participated in the scholarship program. 

• The program received emergency supplemental funds to meet the needs of communities 

ravaged by hurricanes Charlie, Ivan, Frances, and Jeanne. Florida received $15.3 million and 

Alabama $1.7 million which have been distributed to communities for damage assessments, 

hazard tree mitigation, and replanting. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-31

FY 2006 Program 

In FY 2006, the program will implement the new reporting, accountability, and allocation 

systems, to ensure that investments are meeting overall program direction. More specifically, the 

program will: 

• Focus on emphasizing community attainment of four basic measures: professional urban 

forestry staffing; urban forest ordinances and policies; urban forest inventories and 

management plans; and presence of an urban forest advocacy or advisory group. 

• Continue to provide technical and financial assistance to States, tribes, and other partners to 

enhance their ability to manage, protect, restore, and maintain their urban forests and natural 

environments. 

• Continue support for national partners that support U&CF goals and objectives, such as the 

Sustainable Urban Forest Coalition, National Arbor Day Foundation, Alliance for 

Community Trees, Society of Municipal Arborists, International Society of Arboriculture, 

and others. 

• Continue the national cost-share grant program as recommended through NUCFAC. 

• Continue support of congressional earmarks for urban and community forestry activities in 

northeast Pennsylvania; Chicago and Milwaukee street tree planting efforts; and watershed 

demonstration cooperative work in Baltimore. 

• Continue to support the activities of the U&CF National Technology Transfer Team to 

identify successful urban and community forestry best management practices and related 

research that produce tangible benefits, and disseminate that information nationwide. 

• Launch the i-Tree urban and community forestry benefits assessment and analysis software 

tool package as public domain software. 

• Refine the new Community Accomplishment Reporting System (CARS) and integrate 

performance data with GIS mapping to provide visual tracking of program activities by State 

and nationwide. 

• Continue Urban Forest Health Monitoring (UFHM) pilot studies and work closely with the 

NASF, Forestry Inventory and Analysis Program, and Forest Health Monitoring Program to 

refine UFHM methods. 

• Launch the pilot minority arborist training initiative aimed at encouraging minorities to enter 

the field of urban forestry and arboriculture. 

• Continue work started in FY 2005 through the emergency supplemental funds to restore tree 

canopy to communities in Alabama and Florida ravaged by hurricanes Charlie, Ivan, Frances, 

and Jeanne. 

• In partnership with Region 8 and several national partners, provide damage and restoration 

assessments for communities in storm damaged areas hit by hurricanes Rita and Katrina. 

• Begin working with Chicago Wilderness to determine how to export this successful model of 

community forestry for the Chicago Metropolitan area nationwide. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-32

FY 2007 Plans 

• Continue to emphasize and track the program’s foundation – helping communities attain the 

four basic measures: professional urban forestry staffing; urban forest ordinances and 

policies; urban forest inventories and management plans; and presence of an urban forest 

advocacy or advisory group. 

• Continue to provide technical and financial assistance to States, tribes, and other partners to 

enhance their ability to manage, protect, restore, and maintain their urban forests and natural 

environments. 

• Through the Sustainable Urban Forest Coalition, continue efforts to raise awareness of the 

importance of U&CF issues at the national, State, and local levels. 

• Host the first national conference to highlight the work done to date showcasing the positive 

effects of trees on human physical and mental health, bringing together researchers, 

practitioners, and community activists nation wide. 

• Provide education and training opportunities for activities such as the International Society of 

Arboriculture and Society of Municipal Arborists certification programs, National Arbor Day 

Foundation’s Tree City USA, local ordinance development, tree board and advocacy 

organization development, and community forest inventory and management plan 

development. 

• Continue support for Urban Forest Health Monitoring activities. 

• Continue to carry out performance-based allocation for distribution of funds to the regions 

and states. 

• Continue the national cost-share grant program to NUCFAC. 

• Continue dissemination, training, and technical support for the i-Tree urban and community 

forestry analysis and benefits assessment software tools. Develop measures to track the use 

and effectiveness of the tools in i-Tree in the public and private sectors. 

 

Justification of FY 2007 Program Changes 

The proposed level of funding will ensure that most communities served by the U&CF delivery 

system will continue to receive technical assistance. Maintaining funding to support U&CF 

programs in all 50 States and 9 U.S. territories and affiliated Pacific Island nations will result in 

the continued leveraging of Federal dollars to help States and localities build sustainable urban 

forest management programs. The program effort to implement the new performance-based 

funding allocation methodology, program focus, and performance measures will continue. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-33

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Economic Action Programs 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $19,032 $9,537 $69 -$9,606 $0 -$9,537

Emergency & Supplemental Appropriations* $0 $750 $0 -$750 $0 -$750

Total Enacted Budget Authority $19,032 $10,287 $69 -$10,356 $0 -$10,287

Staff Years 52 42 -42 0 -42 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 2006 funding from P.L. 109-148. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs. 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Communities under broad-based strategic plans 565 648 --- --- n/a 

Program Description

Economic Action Programs (EAP) builds capacity within communities to take strategic action 

and effectively engage in and contribute to the sustainable management of natural resources from 

the local to national level. The program roles of EAP include: 

• Enhance the ability of private enterprises to treat forestland, utilize restoration by-products, 

and meet energy resource needs. 

• Stimulate local community action to care for forests and grasslands. 

• Develop collaborative actions across ownership or agency boundaries. 

Because other USDA Rural Development programs can address priority needs in rural areas via 

several programs that assist forest-based industries, the President’s Budget proposes no funding 

for this program. These other programs include Business and Industry guaranteed loans; 

Intermediary Relending Program; and Cooperative Development Grants. In addition, the 

President’s Management Agenda calls for significant increases in stewardship contracting that 

will benefit local businesses by allowing private companies, communities and others to retain 

forest and rangeland products in exchange for the service of thinning trees and brush and 

removing dead wood. This fosters a public/private partnership to restore forest and rangeland 

health by giving those who undertake the contract the ability to invest in equipment and 

infrastructure. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-34

Program management for all Congressionally designated projects will be funded by designated 

project funds. 

RURAL COMMUNITY ASSISTANCE 

Economic Recovery 

This program helps rural communities develop local action-oriented strategic plans, use 

collaborative approaches to solve problems, coordinate activities with other agencies and 

partners, leverage Federal funding with State and private support to implement strategic plans, 

and integrate community-based goals with the stewardship of natural resources, regardless of 

ownership boundaries. 

Rural Development 

This program addresses the long-term health of rural areas, by helping communities analyze and 

access forest resource opportunities, review and maximize their local economic potential, and 

diversify their economic base. 

FOREST PRODUCTS CONSERVATION & RECYCLING 

Forest Products and Technology Transfer

This program supports a small nationwide cadre of Federal forest products specialists to provide 

independent support and scientific knowledge to small- and medium-sized industry. In addition, 

this program covers the technical transfer activities for Wood in Transportation needs across the 

country. Forest product specialists provide information for the development of local or regional 

alternatives to expand local capacity, broaden economic opportunities, diversify business 

development, and enable entrepreneurship in natural resource-based communities. The 

specialists work with researchers, practitioners, other agencies, and private industry in order to 

better assist community, tribal, and State programs to facilitate local economic activity with 

businesses and non-profits. 

FY 2005 Accomplishments 

• Provided direct assistance in several Western States to implement a “Fuels-in-Schools” 

biomass utilization program. 

• Provided direct technical and financial assistance to nearly 100 projects associated with 

biomass utilization and/or energy production. 

• Worked with and provided assistance to more than 290 rural communities and communitybased organizations associated with the wildland urban interface and/or risk of catastrophic 

wildfires through nearly 380 projects. 

• Assisted over 645 rural communities and over 590 organizations in developing or 

implementing broad-based strategic plans. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-35

• Provided direct assistance to 54 tribal communities or organizations, 41 other minority-based 

communities or organizations, and 96 underserved communities. 

FY 2006 Program 

• Continue to manage congressionally designated projects and prior-year grants. 

FY 2007 Plans 

None. 

Justification of FY 2007 Program Changes 

No funding is proposed for the Economic Action Programs in FY 2007. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-36

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Forest Resources Information and Analysis 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $4,958 $4,589 $23 -$4,612 $0 -$4,589

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $4,958 $4,589 $23 -$4,612 $0 -$4,589

Staff Years 19 14 -14 0 -14 

Program Description 

The Forest Resources Information and Analysis (FRIA) budget provides funding to support the 

implementation of the Forest Inventory and Analysis (FIA) program. FIA is the Nation’s forest 

census, reporting on status and trends in the Nation’s forested resources. State and Private 

Forestry provides FRIA funds directly to Research and Development in support of the FIA 

program. FRIA funds focus on cost-share financial assistance to States for conducting FIA. FIA 

is the only resource inventory program that monitors the extent, condition, uses, impacts of 

management, and health of forest ecosystems across all ownerships of the United States. The 

goal is to accelerate the inventory cycle in all participating States. 

Independent Reviews 

FIA program is reviewed annually by the FIA National Users Group and is convened and 

managed by the Society of American Foresters. 

FY 2005 Accomplishments 

• FIA published an annual report and implemented one new State and the Federated States 

of Micronesia, bringing the total coverage to 45 States. 

• FIA’s annual business report showed a full accounting of program funding and 

accomplishments including numbers of peer-reviewed and other publications produced 

and percent of forest under annualized inventory (the report is on-line at 

http://www.fia.fs.fed.us). Additionally, the program began an upgrade of its National 

Information Management System (NIMS) to store and process base annualized inventory 

data and add forest health data. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-37

FY 2006 Plan 

• FIA will publish an annual report and implement one new State, bringing the total to 46, 

and coverage to 79 percent of all U.S. forest land. 

• The program will finalize an upgrade of its NIMS to store and process base annualized 

inventory data and include data on forest health. The FIA inventory will provide new 

map products for forest types, biomass, and other forest resource characteristics. 

FY 2007 Plan 

• No funding is proposed for this program. 

Justification of FY 2007 Program Changes 

No funding is proposed by the Administration in this budget line item. In the past, the FIA 

program delivery has been based on funding from both Forest and Rangeland Research and State 

and Private Forestry. This funding shift consolidates the FIA program entirely under Forest and 

Rangeland Research. FS R&D will maintain 38 States of survey data available on line. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-38

Budget Line Item International Forestry 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $6,410 $6,897 $38 -$2,014 $4,921 -$1,976

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $6,410 $6,897 $38 -$2,014 $4,921 -$1,976

Staff Years 25 23 2 25 2 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of .594 and .80 percent. FY 2006 

BA includes rescission of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs. 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Acres of migratory habitat restored 130,000 130,000 130,000 130,000 0

Program Description 

International Forestry coordinates the expertise of Forest Service land managers and scientists 

with overseas assignments in technical cooperation and policy assistance. The focus is on key 

natural resource problems and issues in countries with significant forest resources and important 

forest-related trade with the United States. The program rests on three major rationales. First, as 

one of the world's largest traders in forest products, the U.S. must be present during international 

negotiations on environmental and trade issues -- both of which impact the viability of forests. 

Without this input, other countries can produce forest products for the world market without 

adequate environmental protection standards. Since their prices do not reflect the full cost of 

regeneration, countries can ‘dump’ underpriced forest products on the market, hurting 

competitiveness of U.S. industries. By fostering sustainable forest management in other 

countries, International Forestry helps to level the playing field in the international trade of forest 

products. Specifically, the Forest Service will offer policy, training, and technical assistance to 

its partners overseas in all areas of sustainable forest management—regardless of whether or not 

the partners are pursuing certification; if they are pursuing certification, assistance is provided 

regardless of which system they have independently chosen. 

Second, numerous invasive plant and animal species that were introduced from foreign countries 

pose risks to many forests, rangelands, and grasslands in the United States. The Asian longhorned beetle alone could inflict billions of dollars of loss to the U.S. economy if the pest 

spreads across the country. 

Third, habitat critical for many migratory species is diminishing worldwide, threatening their 

survival. These species and their habitat are important both ecologically and economically. In 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-39

fact, many Americans participate in outdoor recreation activities related to fish and wildlife, 

generating revenue for American businesses and communities. Much of this activity centers on 

species that migrate every year to areas outside the U.S. where riparian and wetland areas are not 

protected adequately. The U.S. is spending millions of dollars on domestic habitat work to 

reverse the decline of many species, an investment that may be lost when the winter habitat of 

these birds in other countries is unprotected. 

FY 2005 Program 

• Researched and developed mitigation and control strategies for invasive pests that are likely 

to affect the United States, as well as for species currently active in the United States, 

including the Asian long-horned beetle, hemlock woolly adelgid, beech bark scale, kudzu, 

mile-a-minute weed, Formosa termite, European bark beetle, European gypsy moth, and the 

Siberian silk moth. International teams of scientists from Russia, China, and the United 

States addressed these issues. 

• Continued ongoing programs and partnerships overseas that address habitat restoration and 

protection for U.S. threatened migratory birds and other species. Work is focused on 

research and monitoring, conservation planning, and improving migratory habitat through 

appropriate use of management tools, including fire. 

• Provided policy, training and technical assistance to partners overseas in all areas of 

sustainable forest management (including CITES, The Convention on International Trade in 

Endangered Species of Wild Fauna and Flora), as well as reduced impact harvesting and 

other area. 

• Completed 130,000 acres of migratory species habitat restoration in partner countries. 

FY 2006 Plans

• Ongoing support of management and research activities that address international issues on 

detection, eradication, and control of invasive species that are introduced, or are likely to be 

introduced, into the United States. Current introduced species include: hemlock woolly 

adelgid, sudden oak death, mile-a-minute weed, beech bark scale, gypsy moth (both 

European and Asian), and emerald ash borer. China, Russia, Mexico, and Brazil represent 

countries of interest for future collaboration. 

• Continue with ongoing programs and partnerships overseas addressing habitat restoration and 

protection for migratory birds and other species on existing and potential U.S. threatened 

species lists. Work will focus on research and monitoring; conservation education; planning; 

and improving habitats on the ground through partnerships and the appropriate use of 

management tools, including fire. 

• Ongoing policy, training, and technical assistance to partners overseas in all areas of 

sustainable forest management. 

• Complete 130,000 acres of migratory species habitat restoration in partner countries. 
FY 2007 Budget Justification USDA Forest Service

State and Private Forestry 7-40

FY 2007 Plans 

• Continue supporting management and research activities that address international issues on 

detection, eradication, and control of invasive species that are introduced, or are likely to be 

introduced, into the United States. Current introduced species include: hemlock woolly 

adelgid, sudden oak death, mile-a-minute weed, beech bark scale, gypsy moth (both 

European and Asian), and emerald ash borer. China, Russia, Mexico, and Brazil are some of 

the countries of interest for future collaboration. 

• Continue supporting ongoing programs and partnerships overseas addressing habitat 

restoration and protection for existing and potential U.S. threatened migratory birds and other 

species. Work will focus on research and monitoring, conservation education, planning, and 

improving habitats on the ground through partnerships and appropriate use of management 

tools, including fire. 

• Plan to continue support, at a reduced level, of policy, training and technical assistance to 

partners overseas in all areas of sustainable forest management. 

• Complete 130,000 acres of migratory species habitat restoration in partner countries. 

Justification of FY 2007 Program Changes

The FY 2007 President’s Budget has a program reduction of $1.976 million from the FY 2006 

enacted level of $6.897 million. Funding for International Forestry reflects the priorities of the 

Administration and is consistent with previous proposals for this program. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 

Chapter 8 

National Forest System

FY 2007 Budget Justification USDA Forest Service

National Forest System 8-1 

Appropriation National Forest System 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $1,380,806 $1,403,391 $19,618 -$24,943 $1,398,066 -$5,325

Emergency & Supplemental Appropriations* $12,153 $20,000 $0 -$20,000 $0 -$20,000

Total Enacted Budget Authority $1,392,959 $1,423,391 $19,618 -$44,943 $1,398,066 -$25,325

Staff Years 14,409 14,430 248 14,678 248 

Enacted Budget Authority by EBLI 

Land Management Planning $63,167 $58,188 $759 -$3,392 $55,555 -$2,633

Inventory & Monitoring $167,302 $167,675 $2,091 -$15,631 $154,135 -$13,540

Recreation, Wilderness & Heritage $257,343 $261,299 $3,913 -$14,332 $250,880 -$10,419

Wildlife & Fish Management $134,749 $132,866 $1,850 -$11,168 $123,548 -$9,318

Grazing Management $48,034 $48,279 $745 -$9,289 $39,735 -$8,544

Forest Products $273,247 $280,115 $4,550 $25,449 $310,114 $29,999

Vegetation & Watershed Management $189,614 $181,342 $2,340 $3,900 $187,582 $6,240

Minerals & Geology Management $55,747 $84,601 $850 -$4,209 $81,242 -$3,359

Landownership Management $92,129 $91,631 $1,294 -$8,640 $84,285 -$7,346

Law Enforcement Operations $86,014 $87,887 $1,196 $20,917 $110,000 $22,113

Valles Caldera $3,599 $5,074 $1 -$4,085 $990 -$4,084

Centennial of Service Challenge $9,861 $4,434 $29 -$4,463 $0 -$4,434

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of .594 and .80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* FY 2005 funding provided for hurricane damage related projects in P.L. 108-324 and storm damage related projects in 109-13; 

FY 2006 funding from P.L. 109-148. 

National Forest System Programs 

The National Forest System (NFS) appropriation provides funds for the stewardship and 

management of 193 million acres of Federal lands. These lands make up one of the Nation’s 

most unique public land legacies. 

Land Management Planning 

Land management plans establish a framework for conforming to laws and regulations governing 

National Forest System management. Land management planning is focused on the concept of 

sustainability under planning regulations that require national forests and grasslands to conduct 

evaluations addressing ecological, social, and economic issues of broad geographic scale. Land 

management plans may be continuously updated through amendments or revisions and are 

required by the National Forest Management Act (NFMA) to be revised on a 10 to 15 year 

schedule to address changing conditions related to natural resources, management goals, new 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-2 

science findings, and public use. A land management plan provides a framework for natural 

resource management activities and for project and activity-level planning at the forest and 

ranger district levels.

Inventory and Monitoring 

The Inventory and Monitoring budget line item (BLI) funds resource inventories, ecosystem 

assessments, monitoring, and both annual and comprehensive evaluations, management of Forest 

Service Natural Resource Applications (FSNRAs) and corporate Geographic Information 

Systems (GIS), and resource mapping activities conducted in support of the creation, revision, 

and amendment of land management plans (LMPs). It also funds the establishment and the 

general coordination costs associated with the review and audit of Environmental Management 

Systems (EMS), the collection of tabular and spatial information needed to conduct broad scale 

ecosystem assessments in support of land management planning, as well as actual broad scale 

and landscape scale ecosystem assessment activities. The Inventory and Monitoring BLI also 

funds much of the work associated with developing and managing the corporate resource 

information systems that store and allow analysis of the inventory, monitoring, and mapping of 

data. 

Resource inventories are designed to meet land management planning needs for tabular and 

spatial GIS information, which contribute towards achieving a number of the agency’s strategic 

goals and objectives. Agency monitoring and evaluation activities provide information that 

supports land management planning and the monitoring of specific resource condition 

information (i.e., visitor use and air quality monitoring) used in planning and national 

assessments. Assessments evaluate current and desired resource conditions at or above the 

watershed scale and improve the knowledge base of the agency for subsequent decision-making 

at the land management plan and project levels. Broad scale ecosystem assessments are 

conducted at forest-wide, or larger scales, and focus on analyzing and providing information that 

assists the agency in revising, creating, or amending land management plans. Landscape scale 

ecosystem assessments are conducted at the landscape or watershed scales. They are used to 

identify and prioritize projects implementing land management plans. 

Recreation, Heritage, and Wilderness 

The Forest Service Recreation program provides a wide range of recreation settings, services, 

and delivery systems available to the public that are consistent with good land stewardship. The 

agency hosted over 204.8 million visits on national forests in FY 2004, in activities such as 

camping, picnicking, winter sports, hunting, fishing, and visiting of cultural sites. Program 

components include administration and management of partnerships and tourism, interpretive 

services, recreation special uses, congressionally designated areas, and national forest scenic byways. The Recreation Enhancement program resulted from the Federal Lands Recreation 

Enhancement Act of 2005, replaced the Recreation Fee Demonstration program, supports the 

Recreation program by financing on-the-ground operations, maintenance, and improvements 

toward elimination of the recreation backlog and enhancement of recreation opportunities. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-3 

The Forest Service oversees 33 percent of the National Wilderness Preservation System 

Wilderness provides clean water and air, solitude, scenic beauty, and critical habitats for 

endangered and non-endangered plants and animals. There are approximately 33,000 miles of 

wilderness trails within national forests, and wilderness use accounts for approximately 14 

million visits per year. Wilderness management themes include education and outreach, 

wilderness inventory and monitoring, information management, and priority resource issues 

including adequate access to wilderness users and expanding the role of fire as a natural process. 

The Forest Service’s Heritage program manages approximately 318,000 known heritage 

resources on national forest lands. The program protects significant heritage resources, shares 

their value with the public, and contributes relevant information and perspectives to natural 

resource management. The program also conducts public service efforts to foster involvement, 

partnerships, and education in heritage resources through programs such as Passport in Time, 

Heritage Expeditions, and stewardship projects. These projects range from working on heritage 

projects with Indian tribes to archaeological digs and the recording of endangered rock art. 

Wildlife and Fisheries Habitat Management 

National forests and grasslands provide habitat for thousands of vertebrate, invertebrate and plant 

species. Essential work performed on national forests and grasslands includes managing habitats 

and providing the ecological conditions necessary to maintain the diversity, viability, and 

productivity of plant and animal communities, and to provide for their use and enjoyment by 

current and future generations. In addition, over 200,000 miles of fishable streams are located 

within national forest and grasslands, including over 50 percent of the Nation’s premier trout and 

salmon habitat. 

Annually, approximately 40 million visits on national forests are primarily for hunting, fishing, 

or wildlife viewing. Implementation of this program results in enhanced opportunities for 

consumptive, commercial, subsistence, and other beneficial uses of fish and wildlife resources. 

It also provides for non-consumptive uses such as wildlife viewing and photography, 

appreciation of nature, and outdoor education. 

Grazing Management 

The Grazing Management program manages a vast and diverse rangeland resource on national 

forest lands, with program goals and objectives to provide goods and services and maintain 

sustainable ecosystems on Federal lands. 

Emphasis is given to administering grazing allotments according to land management plan 

standards and guidelines, in addition to implementation of project plan decisions that are in 

accordance with biological opinions issued by the U.S. Fish and Wildlife Service. Important 

program components include restoration of watersheds affected by past livestock grazing, 

creating allotment management plans to implement decisions resulting from National 

Environment Policy Act (NEPA) analyses, and achieving adherence with grazing allotment 

NEPA schedules created in compliance with the FY 1995 Emergency Supplemental 

Appropriations Act (P.L. 104-19). 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-4 

Forest Products 

The timber sale component of the Forest Products program is an important tool for 

accomplishing vegetation management objectives on national forest lands and also provides a 

supply of forest products to society. Timber sales provide the means to accomplish changes in 

forest structure that can improve wildlife habitat conditions for species such as deer and elk, and 

also help accomplish large-scale watershed restoration needs by reducing accumulated ground 

and ladder fuels that pose an unacceptable risk of high intensity wildfire. Timber sales also 

provide employment opportunities for sustaining local communities. The Forest Products 

program also provides special forest products desired by the public, including fuelwood, 

Christmas trees, greenery, poles and posts, medicinal plants, and native species for transplanting. 

The analysis process for timber sales can take up to eight years to complete. This process 

includes project planning, public involvement, compliance with NEPA and other laws, 

transportation planning, coordination with other resources, sale layout, contract preparation, 

advertising and awarding sales, and administering contracts. 

In 2003, the Forest Service was authorized by Congress to use stewardship contracting for a 10-

year period. This legislation replaced a pilot authority for stewardship contracting. Stewardship 

contracting is another important tool for accomplishing resource management objectives, such as 

fuels reduction, while providing jobs for communities and products for the consumer. This tool 

will be important in implementing the Healthy Forests Restoration Act of 2003. The stewardship 

contracting authority provides some innovative approaches, such as the exchange of goods for 

services and the application of excess receipts from one contract to other stewardship projects. 

Vegetation and Watershed Management 

The Vegetation and Watershed Management program focuses on restoration, enhancement, and 

maintenance of watershed conditions, and includes management of soil, air, water, and forest and 

rangeland vegetation. Management of these basic biological and physical resources is the basis 

for many of the benefits derived from NFS lands, including improved wildlife and fish habitat, 

improved range and forest stand conditions, improved water quality and timing of flows, and 

cleaner air. 

This program includes reforestation and timber stand improvement treatments, which are 

important activities for restoring lands affected by wildfires; replanting following timber harvest; 

controlling stand density, species composition, and structure; and reducing woody fuels. This 

program also includes a major component of invasive plant (both aquatic and terrestrial) 

management activities across the NFS, including noxious weed management activities. 

Minerals and Geology Management 

Program emphasis for the Minerals and Geology Management program is given to inspection 

and monitoring of mineral operations; environmental review of proposed operations; providing 

professional expertise in sustainable forest management, watershed health, and public safety; and 

management of significant geologic resources. In support of the National Energy Policy, the 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-5 

energy component of the program is focused on increasing opportunities for development and 

supply, particularly with respect to eliminating the backlog of oil and gas lease nominations and 

applications for permits to drill. The geologic component provides information on geologic and 

paleontologic conditions for land management decisions and project design, evaluates resources 

such as ground water, and protects sites having scientific or educational use. 

The Environmental Compliance and Protection (ECAP) program provides for the cleanup of 

hazardous substances on national forest lands to improve and protect watershed conditions and 

human and ecological health. The Abandoned Mine Land (AML) program focuses specifically 

on cleaning up abandoned mines in high priority watersheds. In addition to cleanup projects, the 

program is establishing an environmental management system that includes environmental 

compliance audits to systematically improve environmental performance of the agency. 

This program generates net revenues to the Federal government of $600 to $800 million per year, 

which is derived from annual lease rentals, royalties on production, bonus bids for competitive 

leases, and sales. 

Landownership Management 

The Landownership Management program protects national forest lands and resources through 

legally defensible and marked land boundaries, secure title and ownership, land adjustment, and 

land use. Land consolidation through acquisition or exchange enables the agency to better 

manage Federal lands within or adjacent to national forest boundaries and to help reduce future 

management costs; respond to urban and community needs; address fragmentation; promote 

conservation; and improve aquatic, forest, and rangeland ecosystems. Administrative benefits 

are achieved by minimizing land survey and fire management costs, reducing national forest 

boundaries, protecting property rights, acquiring rights-of-way, authorizing special land uses, 

and simplifying road management. Many of these activities are essential to local economies; the 

sustainable supply of goods and services; and for the public’s enjoyment, future use, and access 

to NFS lands. 

Law Enforcement Operations 

The Forest Service Law Enforcement and Investigations program is charged with providing a 

patrol presence and prompt response to public and employee safety incidents and violations of 

laws and regulations on national forest lands, as well as protecting natural resources and other 

property under the agency’s jurisdiction. Law enforcement cooperates with other Federal, State, 

and local law enforcement agencies and other Forest Service programs to accomplish these 

goals, to conduct criminal investigations, and to reduce the production and smuggling of 

cannabis and other controlled substances on NFS lands. 

Valles Caldera National Preserve 

The Valles Caldera Preservation Act (P.L. 106-248) provided for the acquisition of the Baca 

Ranch located in the Jemez Mountains of New Mexico. The Valles Caldera Preserve was 

established to protect and preserve the scientific, scenic, geologic, watershed, fish, wildlife, 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-6 

historic, heritage, and recreational values on the Preserve, and to provide for multiple use and 

sustained yield of renewable resources within its boundaries. In addition, the Act requires the 

tract to continue to be managed as an operating ranch. 

The Valles Caldera Trust, a government corporation, assumed management of the Preserve in 

August 2002, and is responsible for its own financial management. While the Trust continues to 

become fully functional, the appropriation will be used for management of the Preserve. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-7 

Budget Line Item Land Management Planning 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $63,167 $58,188 $759 -$3,392 $55,555 -$2,633

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $63,167 $58,188 $759 -$3,392 $55,555 -$2,633

Staff Years 616 558 21 579 21 

Estimated Funding by Activity 

Maintain Land Management Plans $20,487 $22,777 $11,536 $34,313 $11,536

Create/Revise Land Management Plans $42,680 $35,411 -$14,169 $21,242 -$14,169

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Number of land management plan revisions 

or creations underway 49 48 51 31 -20

Number of land management plan 

amendments underway 37 44 33 33 0

Program Description 

The National Forest Management Act (NFMA) requires that each unit of the National Forest 

System (NFS) have a land management plan (LMP) that may be continuously amended, as 

appropriate, but is formally revised every 10 to15 years to address changing conditions and new 

information related to natural resources, management goals, and public use. These plans 

establish a framework for conforming to laws and regulations governing national forest and 

grassland management such as the Multiple-Use Sustained Yield Act, Clean Air Act, Clean 

Water Act, Endangered Species Act, and other laws. 

There are 127 land management plans that have been created under the requirements of the 

NFMA. While mostly developed for national forests, a number of plans exist for national 

grasslands and other unique units within the National Forest System (e.g., Lake Tahoe Basin 

Management Unit, Midewin Tallgrass Prairie, and Land Between the Lakes National Recreation 

Area). Under the NFMA requirements, each of these plans must be revised within 15 years of 

completion. Revisions of specific plans have been underway since the late 1980s and the first 

plan revision on the George Washington National Forest was completed in 1993. Through the 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-8 

end of FY 2005, 43 plans have been revised and 2 new plans created, which is about 35 percent 

of the total. The 51 plan revisions that will be underway in fiscal year (FY) 2006 are currently 

scheduled to be completed by the end of FY 2008. All units completing plan revisions under the 

1982 Planning Regulations are expected to be revised in FY 2006. 

On December 22, 2004, the Forest Service released the 2005 final Planning Rule that provides 

the framework for individual land management plans governing the 155 national forests, 20 

grasslands, and other unique units of the National Forest System. This rule provides policy and 

direction for developing, revising, and amending land management plans. In addition to 

streamlining the planning process, the 2005 Planning Rule introduces several new planningrelated activities and places increased emphasis on collaboration and monitoring. A complete 

cycle of land management planning now requires that a unit establish an environmental 

management system (EMS), conduct a comprehensive evaluation and report (CER) prior to 

updating a land management plan, have extensive collaboration with the public while updating a 

land management plan, incorporate the best available science in analyses and decision-making, 

and implement a focused monitoring program addressing progress towards achieving the desired 

conditions and objectives in the land management plan. 

A number of the planning-related activities identified or emphasized in the 2005 Planning Rule 

are not funded by the Land Management Planning budget line item (BLI). Land management 

plan monitoring is funded by the Inventory and Monitoring BLI. Similarly, establishing an EMS 

and conducting a comprehensive evaluation are also funded by the Inventory and Monitoring 

BLI because of their direct relationship to the monitoring, inventory, and assessment activities 

funded by this BLI. These activities are discussed more fully under the Inventory and 

Monitoring program narrative. 

The 2005 Planning Rule establishes a dynamic process to account for changing National Forest 

System conditions, emphasizes science and public, tribal, State, and local government 

involvement, and ultimately will help local forest managers provide future generations with 

healthier forests, cleaner air and water, and more abundant wildlife while sustaining a variety of 

forest uses. This rule will also help to improve how the Forest Service works with the public by 

making land management planning more open, understandable, and timely. It will enable Forest 

Service experts to respond more rapidly to changing conditions, such as wildfires, and emerging 

threats, such as invasive species. 

The 2005 Planning Rule will also make land management planning more effective and 

meaningful. The agency now has the opportunity to use all available tools to comply with the 

National Environmental Policy Act (NEPA) as they relate to land management planning. A 

determination has been made that use of a categorical exclusion when revising or amending a 

land management plan may be appropriate. This would help to reduce the time it takes to update 

a land management plan. 

Desired conditions and objectives are the key components of land management plans under the 

2005 Planning Rule. An effort is underway to determine how much consistency is needed in 

these land management plan components as well as the indicators and supporting data needed to 

determine if progress is being made towards achieving them. Standard desired conditions and 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-9 

objectives will focus planning and management around key issues related to the mission of the 

agency and meet national assessment and reporting needs. Managers will be held accountable for 

achieving objectives through established performance measures in the agency’s Performance 

Accountability System (PAS). This will make planning more relevant to on-the-ground practices 

and outcomes. 

The land management planning process provides a forum for collaborative efforts to address 

issues and make informed planning choices. Revising a land management plan involves the 

identification and consideration of issues; providing opportunities for collaboration; information 

development and interpretation; and developing plan guidance on desired conditions, objectives, 

guidelines, special areas, and the suitability of the unit for various uses. Difficult resource 

choices must be made and collaboration with tribes, states, local non-governmental 

organizations, other Federal agencies, and the public is crucial. 

LMPs also provide a framework for making future site-specific decisions and for natural 

resource management activities. Site-specific environmental analyses are needed to implement 

projects such as watershed restoration, timber sales, range improvements, and proposals for 

mineral, oil, and gas operations. 

LMPs are amended to address changes in public use; effects of natural disasters (e.g. fire, wind, 

and earthquakes); and other changes in resource conditions, such as the effects of insects, 

diseases, and invasive species. In addition, changing management practices or the need to 

address socio-economic concerns of local communities may necessitate a change in the plan. 

Independent Reviews 

In FY 2006, the Land Management Planning program will be evaluated for the FY 2008 budget 

cycle through the Program Assessment Rating Tool (PART). 

FY 2005 Accomplishments 

• Initiated four LMP revisions on the following national forests: 

Region 2: Shoshone National Forest 

Region 3: Cibola National Forest (Grasslands) and Coronado National Forest Region 4: 

Bridger-Teton National Forest 

• Completed nine LMP revisions and one new plan for the following National Forest System 

units: 

Region 2: Bighorn National Forest 

Region 5: Angeles, Cleveland, Los Padres, and San Bernardino National Forests 

Region 8: Ouachita and Ozark-St. Francis National Forests; and the Land Between the 

Lakes National Recreation Area (new plan) 

Region 9: Mark Twain and White Mountain National Forests 

• Continued revision work on 37 LMPs. 

• Completed NFMA planning regulations. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-10 

FY 2006 Program 

• Complete 20 LMP revisions for the following national forests and grasslands: 

Region 1: (4) Beaverhead-Deerlodge, Bitterroot, Flathead, and Lolo National Forests 

Region 2: (3) Cimarron-Comanche National Grasslands, Grand Mesa, Uncompahgre, 

Gunnison (GMUG), and San Juan National Forests 

Region 6: (3) Colville, Okanogan, and Wenatchee National Forests 

Region 9: (10) Allegheny, Finger Lakes, Green Mountain, Hiawatha, Hoosier, HuronManistee, Monongahela, Ottawa, Shawnee, and Wayne National Forests 

• Initiate LMP revisions on 13 National Forest System units: 

Region 3: (5) Apache-Sitgreaves, Coconino, Kaibab, Prescott, and Tonto National 

Forests 

Region 5: (3) Sequoia and Modoc National Forests, and Lake Tahoe Basin Management 

Unit 

Region 6: (2) Fremont and Winema National Forests 

Region 8: (2) George Washington National Forest (2nd round of LMP revision) 

 and Uwharrie National Forest and 

Region 10: (1) Tongass National Forest (2nd round of LMP revision) 

• Continue LMP revisions on 18 national forests and grasslands. 

 Region 1: (4) Clearwater, Idaho Panhandle, Nez Perce, and Kootenai National 

 Forests 

Region 2: (2) Shoshone and Pike-San Isabel National Forests 

Region 3: (2) Cibola National Forests (Grasslands) and Coronado National Forest 

Region 4: (6) Ashley, Bridger-Teton, Dixie, Fishlake, Humbolt-Toiyabe, and MantiLaSal National Forests 

Region 6: (3) Malheur, Umatilla, and Wallowa-Whitman National Forests 

Region 8: (1) National Forests in Mississippi 

• Complete 33 LMP amendments under the 1982 planning regulations. 

• Initiate a broad range of NEPA policy and implementation improvements in support of land 

management planning and monitoring. 

• Complete policy directives and guidance for implementing the 2005 Planning Rule 

FY 2007 Plans 

• Complete 17 LMP revisions on the following national forests and grasslands: 

Region 1: (4) Clearwater, Nez Perce, Idaho Panhandle, and Kootenai National Forests 

Region 2: (1) Shoshone National Forests 

Region 3: (2) Cibola National Forests (Grasslands) and Coronado National Forest 

Region 4: (5) Ashley, Dixie, Fishlake, Humbolt-Toiyabe, and Manti-LaSal, National 

Forests 

Region 6: (3) Malheur, Umatilla, and Wallowa-Whitman National Forests 

Region 8: (2) National Forests in Mississippi, and Uhwarrie National Forest 

• Continue LMP revisions efforts on 12 National Forest System units: 

Region 2: (1) Pike-San Isabel National Forest 

Region 3: (5) Apache-Sitgreaves, Coconino, Kaibab, Prescott, and Tonto National 

Forests 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-11 

Region 4: (1) Bridger-Teton National Forest 

Region 5: (3) Sequoia and Modoc National Forests, and Lake Tahoe Basin Management 

Unit 

Region 6: (2) Fremont and Winema National Forests 

• Continue 2nd round of LMP revisions efforts on two National Forest System units: 

Region 8: (1) George Washington National Forest 

Region 10: (1) Tongass National Forest 

• Complete 33 LMP amendments. 

• Implement a broad range of NEPA policy and implementation improvements in support of 

land management planning and monitoring. 

• Continue implementation of the 2005 Planning regulations and directives. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget has proposed a $2.6 million reduction from the FY 2006 

enacted level. The agency will balance available funding among three objectives for the FY 

2007 land management planning program: 1) completing the backlog of 51 on-going plan 

revisions by the end of FY 2008; 2) transitioning all other units to the requirements of the 2005 

Planning Regulations; and 3) completing all first-time revisions (33 remaining to be started) as 

quickly as possible. 

The agency recently completed an evaluation of the workload, performance, and needed 

resources for accomplishing all three objectives. Within current funding levels for Land 

Management Planning and Inventory and Monitoring, the top FY 2007 program priority is the 

completion of existing plan revision efforts. The total program change will allow the 51 plan 

revision efforts currently underway to make progress towards completion by the end of FY 2008. 

The backlog of revision efforts, however, will lengthen the transition for all other units to the 

continuous planning process envisioned under the 2005 Planning Rule. The 33 remaining plan 

revisions will be delayed until FY 2009. The first round of revisions will not be completed until 

the end of FY 2013. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-12 

Land Management Plan Revisions - Status and Due Dates 

The National Forest Management Act (NFMA) requires that each unit of the National Forest 

System have a land management plan (LMP) that is formally revised at least every 15 years. It 

takes an average of 5 to 6 years to develop a new land management plan or revise an existing 

land management plan under the 1982 planning regulations. Under the 2005 Planning Rule, land 

management plan revisions will take approximately 2 to 3 years, with a comprehensive 

evaluation of the land management plan to be completed every five years to ensure goals and 

objectives are met. The NFMA planning process is complex and schedules are sometimes 

determined by court decisions and direction. A national LMP revision schedule that identifies an 

even flow of LMP revision work was developed, and is periodically being updated and posted on 

the Forest Service Ecosystem Management Coordination Staff website at 

www.fs.fed.us/emc/nfma. This schedule will focus on the timing of future revision efforts 

around groups of neighboring national forests with similar ecological, social, and economic 

issues. This will enable the agency to achieve process efficiencies and improve the effectiveness 

of collaboration with the public. The national schedule will also consider current litigation and 

settlements in prioritizing revisions. 

The following exhibit displays the current status of LMP revisions for each unit according to the 

national revision schedule. In FY 2007, the agency will focus on completing on-going revisions 

and transition activities necessary to successfully implement the new planning regulations. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-13 

Land Management Plan – First Round Revision Status 

 

Northern Region 

Region 1 

13 units 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be completed 

in FY 2006 

Revisions 

expected to 

be completed 

in FY 2007 

Revisions to 

be initiated in 

FY 2007 

Revisions 

continuing in

FY 2007 

Revisions in

FY 2008 and 

beyond 

Beaverhead-Deerlodge X 

Bitterroot X 

Clearwater X 

Custer X 

Dakota Prairie Grasslands X 

Flathead X 

Gallatin X 

Helena X 

Idaho Panhandle X 

Kootenai X 

Lewis & Clark X 

Lolo X 

Nez Perce X 

Regional Total 1 4 4 0 0 4 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-14 

Land Management Plan – First Round Revision Status (Continued) 

Rocky Mountain Region 

Region 2 

 14 units 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Arapaho-Roosevelt X 

Black Hills X 

Bighorn X 

Cimarron-Comanche National 

Grassland X 

Grand Mesa, Uncompahgre, 

Gunnison X 

Medicine Bow X 

Nebraska X 

Pike-San Isabel X 

Rio Grande X 

Routt X 

San Juan X 

Shoshone X 

Thunder Basin 

National Grassland X 

White River X 

Regional Total 9 3 1 0 1 0 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-15 

Land Management Plan – First Round Revision Status (Continued) 

Southwest Region 

Region 3 

12 units 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Apache-Sitgreaves X 

Carson X 

Cibola X 

Cibola (National Grassland) X 

Coconino X 

Coronado X 

Gila X 

Kaibab X 

Lincoln X 

Prescott X 

Santa Fe X 

Tonto X 

Regional Total 0 0 2 0 5 5 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-16 

Land Management Plan – First Round Revision Status (Continued) 

Intermountain Region 

Region 4 

14 units

Revisions 

completed 

prior to FY 

2006 

Revisions 

Expected 

 to be 

completed 

 in 

 FY 2006 

Revisions 

expected to 

be completed 

in 

FY 2007 

Revisions to 

be initiated 

in 

FY 2007 

Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Ashley X

Boise X 

Bridger-Teton X 

Caribou X 

Dixie X 

Fishlake X 

Humboldt–Toiyabe X X 

Manti-La Sal X 

Payette X 

Sawtooth X 

Salmon-Challis X 

Targhee X 

Uinta X 

Wasatch-Cache X 

Regional Total 7 0 5 0 1 1
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-17 

Land Management Plan – First Round Revision Status (Continued) 

Pacific Southwest Region 

Region 5 

18 units 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Angeles X 

Cleveland X 

Eldorado X 

Inyo X 

Klamath X 

Lake Tahoe Basin X 

Los Padres X 

Lassen X 

Mendocino X 

Modoc X 

Plumas X 

San Bernardino X 

Sequoia X 

Shasta-Trinity X 

Sierra X 

Six Rivers X 

Stanislaus X 

Tahoe X 

Regional Total 4 0 0 0 3 11 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-18 

Land Management Plan –First Round Revision Status (Continued) 

Pacific Northwest Region 

Region 6 

19 units 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

 

 

 Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Colville X 

Deschutes X 

Fremont X 

Gifford Pinchot X 

Malheur X 

Mt. Baker Snoqualmie X 

Mt. Hood X 

Ochoco X 

Okanogan X 

Olympic X 

Rogue River X 

Siskiyou X 

Siuslaw X 

Umatilla X 

Umpqua X 

Wallowa-Whitman X 

Wenatchee X 

Willamette X 

Winema X 

Regional Total 0 3 3 0 2 11 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-19 

Land Management Plan – First Round Revision Status (Continued) 

Southern Region 

Region 8 

19 units 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Caribbean X 

Chattahoochee-Oconee X 

Cherokee X 

Croatan X 

Daniel Boone X 

Francis Marion X 

George Washington X 

Jefferson X 

Kisatchie X 

Land Between the Lakes NRA 

(new plan) X 

Nantahala-Pisgah X 

NFs in Alabama X 

NFs in Florida X 

NFs in Mississippi X 

NFs in Texas X 

Ouachita X 

Ozark-St. Francis X 

Sumter X 

Uwharrie X 

Regional Total 16 0 2 0 0 1
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-20 

Land Management Plan – First Round Revision Status (Continued) 

Eastern Region 

Region 9 

16 units 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Allegheny X 

ChequamegonNicolet X 

Chippewa X 

Finger Lakes X 

Green Mountain X 

Hiawatha X 

Hoosier X 

Huron-Manistee X 

Mark Twain X 

Midewin National Tallgrass 

Prairie (new plan) X 

Monongahela X 

Ottawa X 

Shawnee X 

Superior X 

Wayne X 

White Mountain X 

Regional Total 6 10 0 0 0 0 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-21 

Land Management Plan – First Round Revision Status (Continued) 

Alaska Region 

Region 10 

2 units

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

 Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Chugach X 

Tongass X 

Regional Total 2 0 0 0 0 0 

All Regions 

127 units 45 20 17 0 12 33 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-22 

Land Management Plans – Second Round of Revisions 

Intermountain 

Region 

Region 4 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Caribou Y 

Regional Total 0 0 0 0 0 1 

Southern Region 

Region 8 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Francis Marion Y 

George Washington Y 

Regional Total 0 0 0 0 1 1 

Alaska Region 

Region 10 

Revisions 

completed 

prior to FY 

2006 

Revisions 

expected to 

be 

completed in 

FY 2006 

Revisions 

expected to 

be completed 

in FY 2007

Revisions to 

be initiated 

in 

FY 2007 

Revisions 

continuing in 

FY 2007 

Revisions in

FY 2008 and 

beyond 

Tongass Y 

Regional Total 0 0 0 0 1 0 

All Regions 0 0 0 0 2 2 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-23 

Budget Line Item Inventory and Monitoring 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $167,302 $167,675 $2,091 -$15,631 $154,135 -$13,540

Emergency & Supplemental Appropriations $200 $0 $0 $0 $0 $0

Total Enacted Budget Authority $167,502 $167,675 $2,091 -$15,631 $154,135 -$13,540

Staff Years 1,565 1,538 -106 1,432 -106 

Estimated Funding by Activity** 

Conduct Core GIS Resource Mapping Projects $30,810 --- --- --- --- 

Resource Inventories for Planning & Assessments $22,023 $25,552 --- --- --- 

Manage Natural Resource Information System --- $36,664 --- --- --- 

Conduct Strategic Resource Inventories --- --- $4,062 $66,278 $4,062

Monitor & Evaluate LMPs & Resource Condition $31,442 $46,091 --- --- --- 

Conduct Land Management Plan Monitoring --- --- $30,977 $77,068 $30,977

Conduct Landscape Scale Ecosystem Assessments $70,431 $48,557 --- --- --- 

Conduct Broad Scale Ecosystem Assessments $12,596 $10,812 --- --- --- 

Conduct Ecosystem Assessments --- --- -$48,580 $10,789 -$48,580

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 2005 funding provided for hurricane damage related projects in P.L. 108-324; FY 2006 funding from P.L. 109-148. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-24 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Number of Quarter Quads Completed* 74,429 55,977 --- --- ---

Acres of inventory data collection and entry 

completed 17,265,745 29,601,977 30,273,000 --- n/a

Acres of legacy data migrated** --- --- 73,285,000 --- n/a

Acres of inventory data collected and 

acquired --- --- --- 16,362,000 n/a

Number of annual monitor and evaluation 

reports completed 118 105 90 --- n/a

Number of annual monitoring requirements 

completed --- --- --- 1,250 n/a

Number of landscape scale ecosystem 

assessments completed*** 93 102 69 --- n/a

Number of broadscale assessments 

underway*** 41 47 18 --- n/a

Number of ecosystem assessments 

completed*** --- --- --- 53 -34

* Activity tracked only in FY 2005 

** Activity tracked only in FY 2006 

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

assessments. Difference in last column in FY 2007 is FY 2007 ecosystem assessments total minus the FY 2006 

broadscale and landscape scale assessments. 

Program Description 

The Inventory and Monitoring budget line item (BLI) funds resource inventories, ecosystem 

assessments, monitoring and evaluation, annual and comprehensive evaluations, management of 

Forest Service Natural Resource Applications (FSNRAs) and corporate geographic information 

systems (GIS), and resource mapping activities conducted in support of the creation, revision, 

and amendment of land management plans (LMPs). It also funds the establishment and the 

general coordination costs associated with the review and audit of environmental management 

systems (EMS), the collection of tabular and spatial information needed to conduct broad scale 

ecosystem assessments, forest-wide inventories developed in support of landscape scale 

ecosystem assessments, and forest-wide inventories used to support multiple programs. The 

Inventory and Monitoring BLI also funds much of the work associated with developing and 

managing the corporate resource information systems that store and allow analysis of the 

inventory, monitoring, and mapping of data. 

Resource Inventories – Resource inventories are designed to meet land management planning, 

ecosystem assessment, comprehensive evaluation and multiple program needs for tabular and 

spatial information. The inventory program component includes: 

1) Information collection, data entry (including migration of legacy data), and storage in 

corporate systems; 

2) Data evaluation and analyses to identify accuracy and data classifications; 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-25 

3) The documentation and performance of quality control procedures and compilation of 

metadata; and 

4) Resource mapping activities used to plan for the management of National Forest System 

(NFS) lands and resources. 

Information needed to evaluate the context and consequences of decisions being addressed in the 

land management planning process is generated through inventory and mapping work, ultimately 

resulting in LMP revisions, creations, amendments or updates that are scientifically and legally 

defensible. Resource inventories also provide information for analyzing the status or condition 

of resources through ecosystem assessments that support the land management planning process. 

Tabular and spatial data assist the agency in improving its capability to provide sustainable levels 

of a broad spectrum of uses, values, products, and services as identified in LMPs and ecosystem 

assessments. 

Resource inventories also include the development, maintenance, and management of Forest 

Service Natural Resource Applications (FSNRAs) – corporate resource information and 

geographic information systems (GIS) that store inventory and monitoring data are other 

important components of this program. The management of FSNRAs consists of the 

development and maintenance of the Natural Resource Information System (NRIS), the 

Infrastructure and special use permit management database (Infra), the Automated Lands Project 

(ALP), and the corporate GIS, as well as the Standard Data Management System (SDMS) - the 

system that integrates the key functions of the Inventory and Monitoring Program Plans (IMPP) 

database, the Resource Mapping and Evaluation Toolkit (RMET) and the agency’s protocols 

database which are needed for inventory and monitoring program planning. This work is 

designed to achieve objectives of improving and integrating information systems, data structures, 

and information management processes as well as reduce the reliance on legacy systems. 

Development of agency standards for inventory, monitoring, mapping, storage, and interpretation 

of resource information represents an opportunity to improve long-term information management 

and to share resource information with partners and the public. 

Ecosystem Assessments (Includes: Broad Scale and Landscape Scale Ecosystem Assessments) 

Assessments evaluate current and desired resource conditions at or above the watershed scale 

and improve the knowledge base of the agency for subsequent decision-making at the land 

management plan and project levels. Broad scale ecosystem assessments are conducted at forestwide, or larger, scales and focus on analyzing and providing information that assists the agency 

in revising, creating, or amending LMPs. These assessments include determinations of 

ecological, social, and economic sustainability under existing and desired conditions. Landscape 

scale ecosystem assessments are conducted at the landscape or watershed levels. They are used 

to identify and prioritize projects implementing LMPs that result in achieving agency and forestspecific objectives related to improving and protecting watershed conditions, maintaining 

ecological conditions that sustain viable populations of plant and animal species, and restoring 

and maintaining forest and grassland ecosystems. Assessments consider information on 

ecosystem function, vegetation structure, ecosystem capabilities, and limits to sustained 

production that improves the agency’s capability to provide sustainable levels of use, values, 

products, and services. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-26 

Monitoring and Evaluation – Agency monitoring, evaluation and reporting activities funded by 

the Inventory and Monitoring budget line item provide information that supports land 

management planning and the monitoring of two specific types of resource condition information 

(i.e., visitor use and air quality monitoring) used in land management planning and national 

assessments. The monitoring and evaluation activity includes implementation and effectiveness 

monitoring required by a LMP and is directly tied to evaluation of progress toward achieving the 

desired conditions and objectives in the LMP. This activity also includes completion of the 

annual monitoring and evaluation report and the comprehensive evaluation and report that 

clearly address the requirements of Forest Service Handbook 1909.12, Chapter 10, section 12, 

Monitoring and Chapter 20, section 24, Plan Evaluation and Review. The focus in this program 

is on identifying changing conditions over time and on monitoring the implementation and 

effectiveness of LMPs. Monitoring information improves the agency’s capability to provide 

sustainable levels of use, values, products, and services; provides valuable information on the 

effectiveness of management activities; and leads to suggestions for cost-effective 

improvements. Monitoring will be conducted annually for those LMP monitoring requirements 

that need annual measurement. Other indicators may only require monitoring on longer cycles. 

The planning directives require both annual and 5-year comprehensive evaluations and reports 

either of which could result in a recommendation to amend, revise, or correct a plan. The annual 

evaluation report is intended to disclose the important results from the previous year’s 

monitoring and evaluation activities, and not necessarily address all monitoring and evaluation 

described in the plan. Annual evaluation reports are not required in years when the 

comprehensive evaluation report is prepared. Comprehensive evaluations disclose information 

on the plan’s social, economic and ecological conditions and trends that contribute to 

sustainability to determine if plan components should change. A record of the collaborative 

process used to update the comprehensive evaluation must be part of the documentation. 

Monitoring resource conditions on NFS lands includes the monitoring of approved nationally 

significant resource conditions for, and uses of, NFS lands using national monitoring protocols. 

Two specific ecological and social/economic resource conditions and uses are currently 

designated as being appropriately funded by the Inventory and Monitoring budget line item. 

Activities include the collection and analysis of data according to specified national monitoring 

protocols to generate findings concerning resource conditions or use of the land for national level 

assessments (e.g., Resource Planning Act) and strategic planning (e.g., Government Performance 

and Results Act), as well as in LMP revisions or amendments. 

Environmental Management System (EMS) – The 2005 Planning Rule established a requirement 

that every unit within the National Forest System establish an environmental management 

system (EMS). An EMS is a comprehensive approach to managing environmental issues by 

integrating environmental-oriented thinking into every aspect of our ongoing activities. An EMS 

ensures environmental considerations are a priority. EMS implementation benefits include 

reduced risks, operating costs, and better over-all environmental performance by assuring 

compliance with environmental laws and regulations. An EMS ensures that we not only have 

accountability and performance measures but also identifies solutions allowing for continual 

improvement. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-27 

The agency will focus attention on those activities that have a “significant” impact on the 

environment, recognizing that just about every activity has the potential to cause an impact on 

the environment. The significant activities are identified through a multi-staff steering 

committee using general direction and guidance provided to the field on EMS implementation. 

The agency will determine the appropriate tools, guidance and direction needed by the field to 

implement EMS requirements through a series of pilots conducted on NFS units in FY 2005 and 

2006. 

Independent Reviews 

In FY 2006, the Inventory and Monitoring program will be evaluated for the FY 2008 budget 

cycle through the Program Assessment Rating Tool (PART). 

FY 2005 Accomplishments 

• Conducted integrated inventories on 29.6 million acres. 

• Completed 102 landscape scale assessments. 

• Completed 105 LMP monitoring reports. 

• Updated the schedule for the completion of NRIS deployment and the migration of priority 

legacy data. 

• Developed guidance for completing regional inventory and monitoring program plans. 

FY 2006 Program 

• The agency will publish protocols for terrestrial and aquatic ecological unit inventory - 

streams, existing and potential natural vegetation, and multi-species inventory and 

monitoring. 

• The agency will complete protocol development and testing work on standards and protocols 

for wilderness character monitoring, soil quality monitoring, aquatic ecological unit 

inventories – lakes, and various social and economic analytical procedures supporting 2005 

Planning Rule implementation. 

• The agency is placing high priority on inventories that serve as the foundation for 

determining desired conditions and objectives in LMPs. 

• National forests are focusing on inventories to meet critical business needs. Inventories are 

being scheduled to best support upcoming LMP revisions and amendments. 

• The agency will complete the deployment of NRIS modules to most field units and continue 

to focus on migrating legacy data into corporate systems with the objective of reducing 

reliance on, and eventually eliminating, legacy systems. 

• National forests will continue work on ecosystem assessments to support LMP revisions. 

• National forests will complete LMP monitoring reports on all administrative units not 

conducting a comprehensive evaluation in advance of plan revision. 

• Units scheduled to initiate revisions in FY 2006 will be conducting comprehensive 

evaluations. 

• National Forest System units will conduct 5,745 survey days of visitor use monitoring. 

• The agency will continue use of standard data and GIS layers.
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-28 

• Agency direction for inventory and monitoring activities will be completed and include 

program management and protocol development requirements.

• The agency will complete EMS pilots in every region and incorporate lessons learned into an 

EMS policy. 

• The agency will establish an interdisciplinary steering committee to monitor progress and 

compliance and function as an approval board for any further policy, guidance or direction. 

FY 2007 Plans 

• The agency will continue to place a high priority on inventories that serve as the foundation 

for LMP and other agency business requirements. 

• National forests will continue to focus on inventories to meet critical needs. Inventories are 

being scheduled to support upcoming LMP revisions. 

• National Forest System units will work on ecosystem assessments supporting LMP revisions. 

• Over 5,905 survey days of visitor use monitoring will be conducted. 

• Annual monitoring reports will be completed on all administrative units (119). 

• The agency will continue to manage, develop, operate, and maintain corporate systems (e.g., 

FSNRAs and corporate GIS) and tools that efficiently and effectively manage natural 

resource information. 

• Establishment of EMSs on many units will begin. 

• Comprehensive evaluations will be conducted on units scheduled for initial plan revisions. 

• Monitor progress and compliance through the interdisciplinary steering committee that will 

function as an approval board for any further policy, guidance or direction. 

Justification of FY 2007 Program Changes 

The proposed funding level is approximately $13.5 million lower than the FY 2006 enacted 

level. The agency will prioritize work among activities that support the implementation of the 

2005 Planning Rule and other agency business requirements. The agency will continue to 

emphasize the need to acquire data to establish baselines for standard national and locallyspecific desired conditions and to determine progress towards meeting objectives associated with 

achieving the desired conditions as initially envisioned during the development of the 2005 

Planning Rule. 

Resource Inventories (Includes Forest Service Natural Resource Applications (FSNRAs) and 

Corporate GIS) – Focus will continue on inventorying high priority areas to support LMP 

revisions and amendments. Inventories will be conducted at larger scales of resolution needed to 

meet these business requirements. The more expensive finer scale inventories needed for 

landscape or watershed assessments and other program work will be de-emphasized. Agency 

work on FSNRA and GIS activities will remain relatively constant. Work on FSNRAs and the 

migration of legacy data is receiving increased emphasis as the agency integrates systems and 

eliminates legacy applications. Work on geospatial activities will continue to be (e.g., resource 

mapping and GIS) integrated with tabular data collection and utilization activities. 

Ecosystem Assessments – (Includes landscape scale ecosystem assessments and broad scale 

ecosystem assesments) – Broad scale ecosystem assessments are conducted in advance of the 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-29 

initiation of LMP revision efforts. The agency does not expect to conduct any broad scale 

ecosystem assessments in FY 2007 because no plan revisions will be initiated in FY 2007 and 

FY 2008. With an increase in the number of revised LMPs, the agency will focus on completing 

more landscape scale ecosystem assessments. However, with the increased priority on 

monitoring and the use of existing information for annual and 5-year evaluations, there is no 

longer a high priority on conducting ecosystem assessments for identifying projects needed to 

implement revised LMPs. 

Monitoring and Evaluation – In response to the requirements of the 2005 Planning Rule, the 

agency will place increased emphasis on monitoring, annual evalautions, and comprehensive 

evaluations and reports. It is expected that LMP monitoring will increase significantly on all 

national forests and the number of monitoring requirements that are met each year will increase 

over time as the agency standardizes the monitoring and evaluation requirements. 

Environmental Management System (EMS) – The requirements of the 2005 Planning Rule 

determine when a unit needs to have an EMS in place. Any unit amending or revising its plan 

under the 2005 Rule must have an EMS in place prior to engaging in those activities. The 

agency expects a large number of units to establish an EMS in FY 2007 in advance of revisions 

or amendments. The costs associated with establishing an EMS, as well as general review and 

audit costs, are provided by the Inventory and Monitoring program. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-30 

Budget Line Item Recreation, Heritage, and Wilderness 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $257,343 $261,299 $3,913 -$14,332 $250,880 -$10,419

Emergency & Supplemental Appropriations* $1,559 $0 $0 $0 $0 $0

Total Enacted Budget Authority $258,902 $261,299 $3,913 -$14,332 $250,880 -$10,419

Staff Years 2,873 2,878 -4 2,874 -4 

Estimated Funding by Activity** 

Operate Developed Sites $94,201 $92,345 --- --- --- 

Manage General Forest Areas $38,698 $44,916 --- --- --- 

Provide Rec Info, Interpretation, & Education $27,668 $23,400 --- --- --- 

Manage Recreation Operations --- --- -$4,674 $155,987 -$4,674

Administer Rec Special Use Authorizations $41,742 $41,868 -$1,218 $40,650 -$1,218 

Manage Heritage Resources $23,728 $25,988 -$2,002 $23,986 -$2,002

Manage Wilderness $31,306 $32,782 --- --- --- 

Manage Wilderness and Wild & Scenic Rivers --- --- -$2,525 $30,257 -$2,525

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $12.513 million provided for hurricane damage related projects from P.L. 108-324 

**Activities redefined for FY 2007. Manage Recreation Operations replaces three previous measures: Operate Developed Sites; 

Manage General Forest Areas; and Provide Recreation Information, Interpretation, and Education. Manage Wilderness and Wild 

and Scenic Rivers replaces Manage Wilderness. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Number of PAOT (persons at one time) days 

administered to standard (Developed Sites)* 78,705,457 91,728,473 80,999,000 --- n/a

Number of days managed to standard (General 

Forest Areas)* 1,057,782 1,051,921 2,223,800 --- n/a

Number of PAOT days administered to standard* n/a n/a n/a 67,700,000 

Number of recreation interpretation & education 

products provided to standard 12,767 15,062 13,460 9,200 -4,260

Number of recreation special use authorizations 

administered to standard 10,129 11,441 11,899 9,275 -2,624

Number of heritage assets managed to standard 6,522 5,797 6,531 6,250 -281

Number of wilderness areas managed to standard 69 48 99 80 -19

Number of wild & scenic river areas managed to 

standard --- --- --- 32 32

* In FY 2007, days administered to standard for developed sites and general forest area were combined into one 

activity 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-31 

Program Description 

Over 205 million national forest visits occurred on USDA Forest Service lands, waters, and 

recreation sites in fiscal year (FY) 2004. In providing outdoor recreation opportunities, the 

Forest Service offers a wide range of recreation settings, services, and opportunities to the public 

through activities such as camping, driving for pleasure, fishing, hiking, hunting, picnicking, 

visiting of cultural sites and visitor centers, and winter sports. Activities such as these contribute 

to economic diversification in rural America and national forest gateway communities, and 

improve the capability of the Nation’s forests and grasslands to provide diverse, high-quality 

outdoor recreation opportunities. The delivery of these opportunities occurs in primitive, 

dispersed, and developed settings and requires quality facilities, roads, and trails to facilitate 

access. 

The agency is also responsible for 19 National Historic Landmarks and over 318,000 heritage 

assets of which over 60,000 are significant historic properties. Management of heritage assets 

includes inventory, evaluation, preservation, and enhancement which might take the form of 

restoration and re-use as encouraged by the President’s 2003 Executive Order (E.O.) 13287 – 

Preserve America. Volunteer projects to take care of historic properties contribute to 

preservation and public education goals and account for approximately 20,000 visits a year or 

over 120,000 hours valued at $1.6 million. 

The Forest Service oversees 33 percent of the National Wilderness Preservation System. 

Wilderness provides clean water and air, outstanding opportunities for solitude and primitive 

recreation, scenic beauty, and critical habitats for threatened and endangered plants and animals. 

Wilderness accounts for approximately 14 million visits each year. Wilderness stewardship 

emphasis includes: education and outreach, wilderness inventory and monitoring, information 

management, and priority resource issues, including adequate access to wilderness users and 

expanding the role of fire as a natural process. 

The agency administers 100 of the 163 rivers in the National Wild and Scenic River (W&SR) 

System. W&SR management keeps designated rivers free-flowing, protects outstanding natural 

and cultural values, and builds partnerships among landowners, river users, tribal nations, and all 

levels of government. 

 

In addition, the Recreation, Heritage, and Wilderness Resources (RHWR) program protects 

natural resources through the overall administration and management of partnerships and 

tourism, interpretive services, recreation special uses, congressionally designated areas, national 

forest scenic byways and scenery management. This management focuses on minimizing 

impacts from uses, educating users on low impact use, and preserving special areas. The program 

also supports the President’s Healthier US Initiative through national forest visitors’ enjoyment 

of an active, outdoor based lifestyle. 

The RHWR program also facilitates effective public service and enhances benefits to people 

through implementation of the Federal Lands Recreation Enhancement Act (REA). This 

program increases effectiveness by generating user financing to enhance on-the-ground 

operations, maintenance, and improvements for the elimination of maintenance backlogs and 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-32 

enhancement of recreation opportunities (See Permanent Appropriations, Federal Lands 

Recreation Enhancement Fund). 

The Forest Service recreation program is developing a strategy to better meet the fast growing 

demand for outdoor recreation and to address the agency’s strategic goal for recreation. The 

recreation program will consider approaches that may include: 1) realigning funding to priority 

programs supported by the American people, 2) obtaining and deploying tools and authorities to 

leverage available resources, 3) aligning partnerships and volunteer programs with priority work, 

and 4) to improve performance accountability through redesigned financial and reporting 

systems. The agency will continue development of recreation site facility master planning and an 

action plan for 14,200 developed recreation sites to reduce backlog maintenance, close nonviable sites, and prioritize capital investment and reinvestment decisions. 

Independent Reviews 

In FY 2005, the Recreation, Heritage and Wilderness Resource program was evaluated for the 

FY 2007 budget cycle through the Program Assessment Rating Tool (PART). The recreation 

program received a rating of “moderately effective.” The assessment found that the program 

purpose is clear and long-term performance measures are adequate. Actions to improve program 

performance include amending the Forest Service strategic plan to include Recreation Program 

performance measures that better link improvements in program performance with achievement 

of strategic goals. The recreation program is developing and starting implementation of 

Recreation Facility Master Plans on each national forest administrative unit optimizing available 

resources by focusing on customer satisfaction, supply and demand, and improving the revenue 

and cost relationship for recreation facility operation and maintenance. These actions rely on 

improved site specific facility utilization, inventory, service delivery cost data and a nationally 

consistent management framework. 

FY 2005 Accomplishments 

Volunteers and Partnerships

• Volunteers (recreation and heritage combined) contributed $34 million (about 73 percent) of 

the agency’s $46.5 million total appraised value of volunteer work, representing 

approximately 1,381 person-years of work in recreation and heritage (approximately 79 

percent), of the agency’s 1,751 person-year total. 

• Volunteers, concessionaires, and other human resource program enrollees helped operate 

approximately 70 percent of the recreation sites. 

• Over 110 challenge cost-share projects were completed, with partners contributing over $2.5 

million in funding or in-kind services for recreation operations (see Special Exhibits, Forest 

Service Partnerships for a detailed breakdown). 

Travel Management Rule Implementation

• Published the draft travel management rule to provide a better framework for managing 

motor vehicle use on roads, trails, and areas on NFS lands. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-33 

Recreation Site Management

• Completed the analysis phase of the Recreation Sites Facilities Master Planning (RSFMP) on 

20 National Forests. 

Recreation Special Use Authorizations

• Administered 11,441 out of approximately 26,000 special permits to standard (or 44 percent), 

generating approximately $42.6 million in receipts for the Treasury. 

• Amended outfitter guide permit language to address day-to-day operational permittee issues. 

• Amended ski resort permits to clarify ownership of water rights, and established policy 

regarding the security of avalanche control explosives to address Office of Inspector General 

findings. 

Interpretation and Education

• Implemented Get Fit with US pilot programs on four national forests (Bitterroot, Lewis and 

Clark, Uinta, and Wasatch-Cache) using new style guide produced through agreement with 

Outdoor Industry Foundation and Bureau of Land Management (BLM). See 

http://www.outdoorindustry.org/programsearch.php for further information. 

• Produced an edition of the Legacy magazine completely dedicated to health, recreation and 

interpretation in cooperation with the National Association for Interpretation. 

• Snowsports Industries America joined with Get Fit with US and is working with the Forest 

Service to increase the number of forests participating in Winter Trail Day events. 

• Continued to chair the federal interagency Public Health and Recreation working group and 

developed a strategic plan to set direction for the next 3 to 5 years. 

• Developed a new interagency financial reporting format for nonprofit interpretive 

associations and published Federal Register notice requesting comments in partnership with 

the Association for Partners for Public Lands and other federal agencies. 

• Coordinated and staffed hundreds of Forest Service Centennial events around the country and 

served as "roving rangers" at the Folklife Festival on the National Mall. 

• Participated across the country as interpreters in community events such as the Lewis and 

Clark, as well as signature events, and assisted visitors, students and local residents to better 

understand cultural and natural resource issues through activities such as: an educational 

program "Living with the Forest" at the Cradle of Forestry in North Carolina; hands-on 

archeological projects at Elden Pueblo, Arizona; wilderness and Leave No Trace ethics, 

Utah; and forest biology research and forest genetics at the Eddy Arboretum, California. 

Heritage Program

• Recorded 7,600 new heritage assets through new surveys. 

• Continued to implement E.O. 13287-Preserve America: 

o Hosted 23 Heritage Expeditions (fee programs) and over 120 Passport in Time (PIT) 

volunteers projects in all nine regions. 

o Legacy data migration to Infrastructure Applications (Infra) progressed from 40 percent 

to 53 percent complete. 

o Heritage volunteers contributed $3 million (about 10 percent) of recreation’s $31 million 

total appraised value of volunteer work, representing approximately 113 person years 

(approximately 9 percent) of recreation’s 1,268 person-year total. Approximately 1/3 of 

the reported heritage volunteer contributions were through PIT. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-34 

o Heritage Opportunity Spectrum Tool (HOST) was incorporated into FS Planning 

regulations to identify opportunities for management of historic properties including 

adaptive reuse, tourism, partnerships. 

o Continued the international agreement with the Italian Ministry of Cultural Heritage & 

Activities to exchange technology and ideas on sustainable heritage tourism. 

Wilderness Management

• Collaborated with the WILD Foundation and Department of the Interior (DOI) agencies to 

host a Global Wilderness Seminar for Government Agencies, in association with the 8th

World Wilderness Congress, to foster international professional relationships that provide 

mutual assistance, expertise, and coaching in the stewardship of wilderness. 

• Collaborated with DOI and Homeland Security to facilitate enhanced Border Patrol 

operations on wilderness lands. 

• Partnered with Student Conservation Association to eradicate invasive species in the Frank 

Church River of No Return Wilderness. 

• Through the interagency Arthur Carhart National Wilderness Training Center: 

o broadcasted the film produced in 2004 titled American Values: American Wilderness, to 

enhance public awareness of the values of wilderness; 

o conducted seven interagency wilderness training courses and 16 agency-specific courses 

to enhance skill levels of wilderness managers; 

o drafted a memorandum of understanding (MOU) with the KwaZulu-Natal, South Africa 

Wilderness Action Group (WAG) to provide a framework of cooperation between the 

Center and the WAG to reinforce the capacity of each partner to conduct training and 

develop information and outreach programs for advancement of wilderness and protected 

areas; and 

o collaborated with International Programs and United Nations Development Program 

representatives to identify short- and long-term opportunities for developing training and 

education capacity for Kamchatka, Russia protected area managers including exchange 

programs, train-the-trainer, and expansion and translation of existing information. 

W&SR Management

• Linked the Forest Service candidate W&SR database to a spatial display in partnership with 

the Natural Resource Information System (NRIS). 

• Designed a computer-based information module from which to collect information about 

designated rivers and to provide program accountability. 

• Continued to chair the Interagency Wild and Scenic Rivers Coordinating Council and began 

development of training modules related to managing wild and scenic rivers, evaluating 

water resources projects under Section 7(a) of the Wild and Scenic Rivers (W&SR) Act, and 

conducting W&SR studies.

National Scenic Byways

• Completed 50 percent listing of National Forest Scenic Byways basic visitor information on 

www.byways.org through the Department of Transportation (DOT), Federal Lands 

Highways and National Scenic Byways partnership agreements. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-35 

Tourism

• Assisted the International Eco-Tourism Society and Adventure Council in the first Ecotourism in the USA Conference to deliver information on sustainable practices on Federal 

lands and joining to support greater awareness of responsible uses and eco-tourism 

opportunities on NFS lands for adventure recreation. 

• Jointly identified key areas for mutual work projects with the Western States Tourism Policy 

Council to include financial strategies to support and enhance recreation on Federal lands; 

public-private partnerships; collaborative planning and management across 

intergovernmental boundaries; and benefits of recreation on Federal lands. 

FY 2006 Program 

Travel Management Rule Implementation

• Publish a final regulation on travel management for managing motor vehicle use on roads, 

trails, and areas on NFS lands. 

• Publish proposed agency directives implementing the travel management regulation for 

public comment. 

• Develop and implement a schedule for travel planning and designation of roads, trails, and 

areas for motor vehicle use. 

• Publish motor vehicle use maps covering 25 percent of the NFS and identifying designated 

routes and areas. 

Recreation Site Management

• Expect to complete the analysis phase of RSFMP on 40 National Forests. Finalize and begin 

implementation of Action Plans on 20 National Forests. 

Recreation Special Use Authorizations

• Administer approximately 46 percent of the special use permits to standard, generating about 

$43 million in receipts for the Treasury. 

• Amend policy to address outfitter guide issues, establish regulations to cover agency costs to 

process applications, establish advertisement and sponsorship policy at resorts, and revise 

appeal regulations. 

Interpretation and Education

• Double the number of national forests with Get Fit with US projects and implement 

evaluation procedures for the projects and work with Outdoor Industry Foundation and the 

President's Council on Sports and Physical Fitness to develop prototype of "President's 

Outdoor Challenge," and launch as part of President's Council's 50th anniversary in 2006. 

• Continue to chair federal Public Health and Recreation working group and support the 

Centers for Disease Control and Prevention and the Coopers Institute with hosting a meeting 

dedicated to showcasing current research pertaining to the health benefits gained through 

outdoor recreation and nature-based physical activity. 

• Implement training opportunities and academic courses available to Forest Service 

employees through agreements with National Association for Interpretation and Stephen F. 

Austin University. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-36 

• Provide project oversight and technical review of the development of the Middle Kyle 

Canyon Visitor Center, Humboldt -Toiyabe National Forest. 

Heritage Program

• Develop Heritage Program Intranet content, including toolbox for Preserve America projects 

and grants and agreements. 

• Transfer administration of the PIT Clearinghouse to a non-profit company to enhance 

sponsorship and interagency potential. 

• Continue legacy data migration to INFRA database. 

• Develop and implement national direction on treatment of historic properties affected by the 

FS 2005 Facility Realignment & Enhancement and Act and the 2005 Energy Policy Act. 

• Continue to improve National Historic Preservation Act (NHPA) Section 110 programs in 

accordance with E.O. 13287-Preserve America. 

Wilderness Management

• Pilot test the Wilderness Character Monitoring Protocol and Technical Guide at the field 

level to monitor aspects of wilderness character at the National Wilderness Preservation 

System level. 

• Complete development of the Wilderness Restoration Workbook and post it on 

Wilderness.net to provide managers with tools needed to restore wilderness character. 

• Complete MOU with Western States Sheriff’s Association for search and rescue in 

wilderness. 

• Revise “Policies and Guidelines for Managing Fish and Wildlife on National Forest and 

Bureau of Land Management Wilderness” with the International Association of Fish and 

Wildlife Agencies. 

• In collaboration with DOI agencies, conduct a minimum of seven interagency wilderness 

training courses to enhance skill levels of wilderness managers. 

• Through the Interagency Arthur Carhart National Wilderness Training Center: 

o collaborate with the National Hispanic Environmental Council, North Cascades Institute, 

University of Washington, Alliance for Wilderness Education and Stewardship, and NFF 

to develop and implement a strategy for providing experiential learning opportunities in 

Pacific Northwest wilderness areas for Hispanic youth; 

o collaborate with Conservation Education to translate the Wilderness Views educational 

program into Spanish and distribute it with the wilderness edition of the Natural Inquirer 

to 70,000 public schools; and 

o work with the Partnership for National Trails System and Interagency Wild and Scenic 

Rivers Coordinating Council to identify opportunities to collaborate on interagency 

training. 

W&SR Management

• Implement the Forest Service W&SR information module at the field level to measure 

compliance with statutory requirements. 

• Through the Interagency Wild and Scenic Rivers Coordinating Council, complete and 

implement training modules. 

• Co-sponsor the 8th biennial symposium of the River Management Society. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-37 

National Scenic Byways

• Complete 100 percent listing of National Forest Scenic Byways basic visitor information on 

www.byways.org through DOT, Federal Lands Highways and National Scenic Byways 

partnership agreements. 

• Support a federal lands Scenic Byways liaison in America's Byways Resource Center in 

partnership with DOT/BLM and jointly host SAFETEA-LU Highway Bill training on 

funding sources. 

Tourism

• Continue to implement a Memorandum of Understanding (MOU) with the Southeast 

Tourism Policy Council for jointly identifying key areas for mutual work projects and cosponsor with DOI a forum for future work in next 5 years. 

• Continue with International Eco-Tourism Society and Adventure Council to support greater 

awareness and co-sponsor three public trade shows reaching over 60,000 urban residents. 

• Provide tourism and marketing technical assistance to the tourism industry and other partners 

through America’s Byways website and Resource Center, Recreation One-Stop and the 

National Recreation Reservation Service Interagency Office. 

FY 2007 Plans 

Travel Management Rule Implementation

• Publish final directives implementing the travel management regulation. 

• Accomplish designation of motor vehicle routes and areas according to the approved 

schedule. 

• Publish motor vehicle use maps covering 50 percent of the NFS and identifying designated 

routes and areas. 

Recreation Site Management

• Expect to complete the analysis phase of RSFMP on 40 National Forests. Finalize and begin 

implementation of action plans on 40 National Forests. 

Recreation Special Use Authorizations

• Administer approximately 37 percent of the special use permits to standard, generating about 

$43 million in receipts for the Treasury. 

• Develop new categorical exclusions for ski areas, update the ski area permit, and update 

Congress on ski fees. 

Interpretation and Education

• Continue to increase the number of Get Fit with US projects on national forests and expand 

partnership base supporting these projects. 

• Publish Federal Register notice announcing the availability and use of the new interagency 

financial reporting format for nonprofit interpretive associations. 

• Increase the number of national forests with newly updated interpretive and education plans. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-38 

Heritage Program

• Continue to expand the PIT program to include other Federal agencies. 

• Expand heritage fee programs. 

• Complete legacy data migration to INFRA database. 

• Continue to build NHPA Section 110 programs in accordance with E.O. 13287-Preserve 

America. 

Wilderness Management

• Develop a Foundation for Excellence in Wilderness Stewardship to serve as guidelines for 

interagency stewardship of the National Wilderness Preservation System. 

• Implement a national monitoring protocol to evaluate changes in wilderness character. 

• Through the Interagency Arthur Carhart National Wilderness Training Center: 

o collaborate with the National Association for Interpretation, Arizona State University and 

others to develop and implement a strategy for increasing wilderness awareness among 

professional interpreters, Hispanic youth, and public school teachers in New Mexico; and 

o develop and implement on-line training modules on visitor use management in 

wilderness and wilderness restoration. 

W&SR Management

• Develop a state of Forest Service administered W&SR report to reflect progress toward 

meeting statutory requirements. 

• Continue to chair the Interagency Wild and Scenic Rivers Coordinating Council and sponsor 

the 5th Interagency River Managers Workshop in cooperation with other river-administering 

agencies. 

National Scenic Byways

• Continue to support a Federal lands Scenic Byways liaison in America's Byways Resource 

Center in partnership with DOT/BLM. 

• Focus on quality informational signing and public safety with emphasis on partnership efforts 

with local supporting community groups to market the opportunities along the byway within 

the forest settings. 

Tourism

• Continue implementation of MOUs with the Western States Tourism Policy Council and the 

Southeast Tourism Policy Council. 

• Continue to co-sponsor public trade shows with the International Eco-Tourism Society and 

Adventure Council. 

• Continue to use the Recreation Opportunity Spectrum and the Scenery Management System 

to identify, manage and protect natural settings. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget funds activities related to the highest priority actions, including 

implementation of the travel management rule, to allow the agency to better address issues of 

unmanaged recreation. The agency will continue to implement focused recreation efforts to 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-39 

improve the settings for outdoor recreation; improve visitor satisfaction with facilities and 

services; improve educational opportunities for the public regarding the values of conservation, 

land stewardship, history, fish and wildlife, and responsible recreation; strengthen our 

relationships with private, volunteer-based, and nonprofit organizations; and establish 

professionally managed partnerships and intergovernmental cooperative efforts. Within the 

proposed President’s Budget level, the agency will encourage field units in FY 2007 to use a 

minimum of $10 million of Recreation, Wilderness and Heritage program funds to help foster 

new and expanded existing partnerships and to achieve the purposes of this budget line item. 

Available funds would be used to continue to serve the American public through activities at 

visitor centers and interpretation programs at campgrounds and centers, and through interpretive 

signing and interpretation messages in multi-language formats, especially around urban areas. 

The agency will continue to provide high quality programming, services and products across the 

country with an emphasis on resource issues such as fire, fuel reduction, invasive species, travel 

management and environmental services. In addition, the national forests will begin to update 

their interpretative and education plans to align with outcomes in their national forest facility 

management plans. Appropriate oversight of private businesses operating on national forests 

would also be provided. 

Funds would be available to accomplish the highest priority activities within the Heritage 

Strategy, including stabilization and protection of priority heritage assets and support 

opportunities for the public to help protect heritage resources. Basic custodial care will be 

provided for some heritage resources. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-40 

Budget Line Item Wildlife and Fisheries Habitat Management 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $134,749 $132,866 $1,850 -$11,168 $123,548 -$9,318

Emergency & Supplemental Appropriations* $1,104 $0 $0 $0 $0 $0

Total Enacted Budget Authority $135,853 $132,866 $1,850 -$11,168 $123,548 -$9,318

Staff Years 1,396 1,361 -15 1,346 -15 

Estimated Funding by Activity 

Provide Wildlife Interpretation & Education $9,089 $9,115 -$1,569 $7,546 -$1,569

Manage Aquatic Habitat** --- --- -$4,656 $47,342 -$4,656

Manage Stream Habitat** $38,993 $40,383 --- --- --- 

Manage Lake Habitat** $14,135 $11,615 --- --- --- 

Manage Terrestrial Habitat $72,532 $71,753 -$3,093 $68,660 -$3,093

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $12.513 million provided for hurricane damage related projects from P.L. 108-

324; FY 2006 funding is from P.L. 109-148. 

** Activities for managing stream and lake habitat combined into Manage Aquatic Habit in FY 2007. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Miles of stream enhanced 1,604 1,623 1,674 1,300 -374

Acres of lake enhanced 12,826 19,250 13,295 8,600 -4,695

Acres of terrestrial habitat enhanced 184,715 230,867 194,530 146,000 -48,530

Number of wildlife interpretation & education 

products provided 2,163 3,390 2,053 1,665 -388

Program Description 

National forests and grasslands, and their waters, provide habitat for thousands of species. 

Essential work on each national forest and grassland includes managing habitats for these species 

to maintain productivity, diversity, viability, and to provide for their use and enjoyment by 

current and future generations. This includes actions to restore, recover, and maintain habitat 

and ecosystem conditions necessary for healthy populations of fish and wildlife. 

More than 425 plant and animal species listed as threatened or endangered live in national forest 

and grassland habitats, with an additional 3,250 species considered at-risk because of concerns 

about maintaining self-sustaining populations. Providing appropriate ecological conditions for 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-41 

these species is integral and crucial to meeting the agency mission and its legal requirements to 

provide for plant and animal community diversity, prevent listing under the Endangered Species 

Act, and contribute to species recovery. 

National forests and grasslands contain over 200,000 miles of fishable streams, including over 50 

percent of the Nation’s premier trout and salmon habitat, over 2 million acres of lakes, 80 

percent of the elk and bighorn sheep habitat in the lower 48 States, 28 million acres of wild 

turkey habitat, and over 5 million acres of wetlands. In short, national forests and grasslands 

contain some of America’s most important fish and wildlife resources within 44 States and 

Puerto Rico. 

Annually, approximately 40 million visits on national forests are primarily for hunting, fishing, 

or wildlife viewing. Implementation of this program results in enhanced access to increase 

opportunities for consumptive, commercial, subsistence, and other beneficial uses of fish and 

wildlife resources. These uses include hunting, fishing, and trapping. It also provides increased 

opportunities for non-consumptive uses such as wildlife viewing and photography, general 

nature appreciation, and outdoor education related to fish and wildlife resources. 

Independent Reviews 

In FY 2006, the Wildlife and Fisheries Habitat Management program will be evaluated for the 

FY 2008 budget cycle through the Program Assessment Rating Tool (PART). 

FY 2005 Accomplishments 

• National forests and grasslands accomplished 101 percent of their target in improving stream 

habitats and 150 percent of their target in lake habitats. Examples of habitat improvements 

included: structural and non-structural in-stream, riparian, and upland treatments to reduce 

sediment input and stream bank erosion; restoration of riparian habitat functions for natural 

recruitment of large wood; creation of pools within streams that provide hiding cover for fish 

and increased spawning gravel; removal or modification of human-made barriers to allow 

free movement of aquatic life throughout the stream; and increased lake fertility. 

• National forests and grasslands accomplished 125 percent of their terrestrial habitat 

improvement target. Examples of activities included maintaining early successional habitats, 

regenerating aspen and oaks, planting and seeding areas to improve forage conditions, and 

developing water sources in arid habitats. These management actions benefited game, 

nongame, and threatened, endangered, and sensitive species and their habitats. About a 

quarter of all acres improved also reduced hazardous fuels conditions. 

• More than 2,000 partnership projects were accomplished by 2,300 partners with a partnership 

contribution value (both funding, including one land donation, and in-kind services) of over 

$37 million. Partners contributed over $750,000 to improve habitat in sagebrush-steppe 

habitat; over $225,000 to revitalize aspen habitat; more than $11 million to improve elk 

habitat; $2.0 million to improve wild turkey habitat; over $1.1 million to improve habitat for 

quail; and $9.1 million to improve habitat for 386 threatened, endangered, or sensitive 

species. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-42 

• Over 500 Eyes on Wildlife (wildlife viewing) projects were implemented, reaching nearly 

two million people. 

• Over 130 National Fishing Week events were coordinated with local communities. 

• Significant conservation actions were implemented for more than 500 sensitive, threatened, 

and endangered species. 

• Worked closely with western states and the U.S. Fish and Wildlife Service to provide 

appropriate habitat conditions for the Yellowstone area grizzly bear population which 

supported the proposal to de-list. 

• Implemented lynx conservation and recovery actions through projects and land management 

plan amendments or revisions which precluded the need for designation of critical habitat. 

• Worked closely with the U.S. Fish and Wildlife Service and State of Alabama to provide 

appropriate habitat, through prescribed burning and thinning, on the Bankhead National 

Forest which resulted in the de-listing of the federally threatened Eggert’s sunflower. 

FY 2006 Program 

• Program priorities include habitat management and restoration for a variety of aquatic and 

terrestrial species including trout, salmon, panfish, big game, game birds, and sensitive, 

threatened, and endangered species. Depending on the species and habitat prescriptions, 

project work may include prescribed burning, development of water sources in arid habitats, 

restoring degraded riparian habitats and fish passage, stabilizing stream banks, and reducing 

stream sedimentation. This work is an important element of the President’s Healthy Forests 

Initiative. 

• Stream habitat occupied by inland and anadromous fish, plus lake habitat improvements, will 

be significantly improved. Focused habitat restoration and improvement efforts targeting 

inland cutthroat trout species will continue. The inland cutthroat trout initiative is a multiregional, multi-State effort protecting native trout and their essential habitats. 

• Over 2,000 partnership projects with communities, conservation groups, and other entities 

will be used to help attain terrestrial and stream habitat improvement goals. 

• Implement over 400 significant conservation actions for sensitive species and over 150 for 

threatened and endangered species. 

• Focus attention on riparian and out-of-channel restoration and enhancement, such as tree 

planting, shrub expansion, and fencing, to improve water and habitat conditions. 

• Work with university partners to attract and mentor minority biology students in seeking 

educational programs that lead to degrees in fisheries and wildlife, and provide summer 

internship opportunities on national forests.

• Aggressively address culvert-fish passage issues with a focus on projects that will provide 

access to significant habitat. 

• Use timber harvesting to manage listed species’ habitat such as the Kirtland’s warbler in 

Michigan, scrub jay in Florida, and red-cockaded woodpecker in Mississippi. 

• Promote the Healthy Forests Restoration Act by working with internal and external partners 

to develop fire plan projects beneficial to fuels reduction and fish and wildlife habitat 

restoration and enhancement. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-43 

• Continue agency emphasis on avian habitat conservation and on integrating conservation 

recommendations from national bird plans into land management plan revisions and 

amendments. 

• Continue actions for amphibian and reptile conservation, including agency support to the 

national Partners in Amphibian and Reptile Conservation (PARC) effort. 

• Continue working with States to complete development of State Comprehensive Wildlife 

Conservation Strategies. 

• Continue agency emphasis on migratory bird habitat management and conservation, (e.g., 

Partners in Flight) and strengthen participation in the North American Bird Conservation 

Initiative (NABCI). 

• Increase attention on aquatic invasive species management, such as controlling exotic fish 

and mussels. 

FY 2007 Plans 

• Improve terrestrial habitat to meet habitat needs of game, non-game, and threatened, 

endangered, and sensitive species. Cooperative partnership projects will help attain these 

goals. 

• Improve stream habitat occupied by inland and anadromous fish, and lake habitat, with an 

emphasis on habitats benefiting native trout and anadromous fish species. Cooperative 

partnership projects will be used to help attain these goals. 

• Implement recommendations of the national programmatic review conducted by agency 

personnel in coordination with States and other fisheries and aquatic partners. 

• Focus attention on riparian and out-of-channel restoration and enhancement, such as tree 

planting, shrub expansion, and fencing, which improves water and habitat conditions. 

• Continue emphasis on long-term stream bank stabilization projects that improve habitat for 

fish and other aquatic species.

• Continue efforts to restore important habitats such as aspen, sage-steppe, riparian, and 

longleaf pine communities on units throughout the national forest system. 

• Implement significant conservation actions for sensitive species and recovery actions for 

listed species. 

• Participate in the interagency and nongovernmental organizations’ North American Bird 

Conservation Initiative that focuses on maintaining sustainable populations of common bird 

species and preventing rare species from becoming federally listed. 

• Work with internal and external partners to develop fire plan projects beneficial to fuels 

reduction and fish and wildlife habitat restoration and enhancement. 

• Coordinate with State and Federal agencies, and outdoor sport organizations, to increase 

understanding and public participation in forest travel management planning to address 

hunting and fishing access needs on national forest system lands. 

Justification of FY 2007 Program Changes 

A program decrease of approximately $9.3 million for Wildlife and Fisheries Habitat 

Management is proposed from the FY 2006 enacted level. Program priorities include habitat 

management and restoration for a variety of aquatic and terrestrial species including salmon, 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-44 

trout, panfish, big game, game birds, and sensitive, threatened, and endangered species. 

Depending on the species and habitat prescriptions, project work may include prescribed 

burning, development of water sources in arid habitats, restoring degraded riparian habitats, 

stabilizing stream banks, and reducing stream sedimentation. More attention will be focused on 

prevention and control of aquatic invasive organisms that compete with native species or degrade 

habitats. Active land management actions funded through other budget line items to implement 

the Healthy Forests Initiative will also provide additional habitat benefits. 

Partnerships with communities, conservation groups, and other entities that help collaboratively 

maintain quality habitat on national forests and grasslands will continue to be a cornerstone of 

this program. The agency will encourage field units in FY 2007 to use a minimum of $15 

million of Wildlife and Fisheries Habitat Management program funds to help foster new and 

expand existing partnerships and to achieve the purposes of this budget line item. 

This funding level will provide for timely coordination and cooperation with State agencies in 

the development of conservation agreements to achieve more effective conservation for sensitive 

species. Positive results from coordinating with others can equate to more flexibility in the 

management of national forest system lands and potentially reduce the restrictions other 

regulatory agencies might apply to private lands. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-45 

Budget Line Item Grazing Management 

 (dollars in thousands) 

 Increase or Decrease FY 2007

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006

Enacted Budget Authority 

Annual Appropriations $48,034 $48,279 $745 -$9,289 $39,735 -$8,544

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $48,034 $48,279 $745 -$9,289 $39,735 -$8,544

Staff Years 552 548 -82 466 -82 

Estimated Funding by Activity 

Manage Grazing Allotments $31,726 $32,884 -$5,856 $27,028 -$5,856

Prepare Grazing Allotment NEPA $16,308 $15,395 -$2,688 $12,707 -$2,688

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Number of allotment acres administered to 

100% of standard 22,116,544 36,503,278 23,089,000 21,517,618 -1,571,382

Number of grazing allotments with signed 

decision notices 473 543 484 321 -163

Program Description 

The Grazing Management program seeks to manage the vast and diverse rangeland resource of 

approximately 92 million acres on National Forest System (NFS) lands to maintain a sustainable 

supply of forage for livestock and wildlife. The program addresses the need to maintain open 

space across the Nation and supports our rural economies by promoting the ranch and farm 

lifestyle and associated family values. Monitoring and inspection of grazing allotments is 

undertaken using Grazing Management and other program funding. Gathering this information 

reveals the health of the rangeland ecosystem and allows for collaborative and sustained 

improvement of watershed conditions, as well as dependable quantities of water yield through 

updated and improved management plans on allotments. Similarly, grazing use of rangeland is 

assessed allowing the national forests to develop allotment management plans that present the 

means to restore or maintain rangelands in healthy conditions with reduced risk from degrading 

influences while actively engaging the local rancher (permittee) in the rangeland restoration and 

monitoring process. By creating better management plans on rangelands, improved ecological 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-46 

conditions better support sustained populations of wildlife which is important to the States and 

local communities. 

Under the Grazing Management program, proper livestock management is achieved through upto-date planning and annual letters of instructions. Livestock numbers permitted on the national 

forests have been fairly stable over the past few years as a result of high quality forages and 

environments that are available for grazing. The result of providing this level of service is the 

continued delivery of a safe and sustainable domestic food supply and associated by-products 

and services to the Nation’s urban centers. A properly managed program that the agency 

provides allows for improved high-quality recreation opportunities through the management of 

livestock location and time of use. The grazing program, in cooperation with local ranchers 

(permittees) is able to respond in short notice to catastrophic events (such as wildland fire) and 

credible threats to U.S. agriculture through strong conservation partnerships and joint permit 

administration. 

 Emphasis is given to inspecting allotments, gathering data, performing inventories, and 

monitoring grazing management on active allotments in support of agency strategic goal 5 

“Improve Watershed Condition.” This information is used in restoring rangeland ecosystems 

and watersheds affected by past livestock grazing, as well as in maintaining them in a healthy 

condition by preparing National Environment Policy Act (NEPA) analyses and making 

subsequent decisions for allotment management. NEPA documentation and decision 

information is then translated to on-the-ground instructions for range managers and permittees 

through collaboratively developed allotment management plans designed to implement decisions 

stemming from the NEPA analyses 

Performing the NEPA analyses allows the Forest Service to make decisions on grazing allotment 

management in accordance with the schedule it provided to Congress in response to the 

Rescissions Act of 1995 (P.L. 104-19, section 504). At the present time, the agency is striving to 

meet the schedule. Despite sustained efforts nationally, the agency is moving forward at a pace 

that allows for meeting only 50 percent of the work that it set out to do. The program outlined 

here is designed to speed progress towards achieving the agency’s obligations as set forth in the 

allotment update schedule. 

Independent Reviews 

The United States General Accountability Office published report GAO 05-869 “Livestock 

Grazing – Federal Expenditures and Receipts Vary, Depending on the Agency and the Purpose 

of the Fee Charged” in September 2005. 

The report provided information on: (1) the extent of livestock grazing on, and program purposes 

for, land managed by 10 Federal agencies; (2) amount spent in fiscal year 2004 by these agencies 

and other Federal agencies that have grazing-related activities, to manage livestock grazing on 

public lands; (3) total receipts collected for grazing privileges by the 10 Federal agencies with 

grazing programs and the amounts disbursed to counties, states, or the Federal government; and 

(4) grazing fees charged by the 10 Federal agencies, western states, and private ranchers, and the 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-47 

reasons for any differences among the fees. The report concluded that “an analysis of Federal 

expenditures and receipts provided by the agencies demonstrates that BLM and the Forest 

Service are spending much more on grazing than they are generating in receipts. However, the 

BLM and the Forest Service fee is set in accordance with the policy of preventing economic 

disruption and harm to the western livestock industry. The primary purpose of the fee is not to 

recover the agencies “administrative expenses.” 

FY 2005 Accomplishments 

• Managed approximately 36.5 million allotment acres to standard. These acres were visited 

during the field season and it was determined that forest plan standards and guidelines, 

project plan decisions, instructions contained within biological opinions issued by the Fish 

and Wildlife Service, and other written instructions were implemented on the ground. In 

addition, range specialists met with permittees, issued letters of annual instructions, 

performed implementation inspections of allotments, and performed prescribed monitoring. 

• Signed 543 grazing allotment decisions after completing analyses and evaluation of the 

allotments under NEPA procedures. 

• Permitted cattle, sheep, goats, horses, and other animals to graze on NFS lands for a total of 

approximately 9.0 million animal unit months, despite drought conditions shortening or 

closing the grazing season in many locations. 

• Monitored rangelands as required in decisions, biological opinions, land management plans 

(LMPs), and other documents. 

FY 2006 Program 

• Manage approximately 23.1 million acres of allotments in accordance with LMP standards 

and guidelines. 

• Continue to make decisions on 484 allotments listed in the schedule that responded to the 

Emergency Supplemental Appropriations Act of 1995 (P.L. 104-19). 

• Focus on maintaining and improving vegetative and watershed conditions of rangeland 

resources within grazing allotments. Permitees will utilize approximately 7.0 million 

animal unit months of permitted livestock grazing. If drought conditions persist for 

another year, this output is expected to be much lower. 

• Continue administering and managing grazing permits, issuing permits, billing for 

livestock authorized use on National Forest System lands, developing annual operating 

instructions and allotment management plans (AMPs), processing appeals and litigation, 

and maintaining all needed management data. 

• Focus on permit administration to implement corrective management on allotments with 

unsatisfactory vegetative and physical resource conditions and resolve conflicts between 

livestock grazing and other resource values. 

• Perform implementation monitoring in all regions to include the following: utilization, 

compliance with biological opinion terms and conditions, compliance with applicable 

forest plan standards and guidelines, and compliance with allotment management plans 

and annual letters of instructions. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-48 

• Perform effectiveness monitoring in all regions to include evaluating the outcomes of 

prescribed actions in achieving specific results outlined in management decisions and 

establishing transects to determine long-term trends in vegetation. Effectiveness 

monitoring will be preformed in conjunction with the activities of the Vegetation and 

Watershed Management budget line item. 

• Investigate methods for prioritization through the development and use of qualitative tools 

that assess rangeland health and sustainability through the use of indicators that are linked 

to existing monitoring data. 

• Consult with the Department of the Interior on an integrated and consistent framework and 

process for using monitoring and assessment information that leads to reduced allotment 

monitoring backlogs. 

• Construct new structural improvements as needed and maintain and/or reconstruct existing 

improvements where appropriate, in order to enhance or stabilize vegetative conditions, 

improve water quality, stabilize or improve riparian areas and stream banks, and conserve 

plant and animal species. 

• Emphasize activities that improve conditions of national forest system lands and support 

the Healthy Forests Restoration Act of 2003. 

FY 2007 Plans 

• Manage approximately 21.5 million allotment acres to standard in accordance with land 

management plan standards and guidelines. This is key to implementing corrective 

management on allotments with unsatisfactory vegetative and physical resource 

conditions. 

• Focus on completing NEPA work on approximately 321 allotments under the Rescissions 

Act of 1995 schedule (P.L. 104-19). 

• Develop new allotment management plans and grazing agreements in concert with NEPA 

analyses; administer and manage grazing permits and annual operating plans; and process 

appeals and litigation. 

• Maintain and improve vegetative and watershed conditions of rangeland resources within 

grazing allotments, while continuing to provide approximately 7.0 million animal unit 

months of permitted livestock grazing. 

• Perform implementation monitoring, a major program component in all regions, to 

concentrate on compliance with biological opinion terms and conditions, forest plan 

standards and guidelines, NEPA based decisions, allotment management plans, and annual 

letters of instructions. 

• Perform effectiveness monitoring in all regions. It will be used to determine if the actions 

established in decision documents and implemented through AMPs are effective in 

achieving the desired results on the ground. This activity will be coordinated with the 

effectiveness monitoring that is to occur under the Vegetation and Watershed Management 

budget line item, where the majority of this effort is focused. 

• Complete construction of essential structural and non-structural improvements that are 

prescribed in decision documents to better manage livestock, enhance or stabilize 

vegetative conditions, improve water quality, maintain riparian areas and stream banks, 

and conserve threatened or endangered plant and animal species. This construction will be 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-49 

done in coordination with the Range Betterment and Vegetation and Watershed 

Management programs. 

• Emphasize activities that improve conditions of National Forest System lands and support 

the Healthy Forests Restoration Act of 2003. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget for Grazing Management request represents a decrease of 

approximately $8.5 million from the FY 2006 enacted level. The agency will continue to 

emphasize completing environmental analyses for allotment management plans, monitoring, data 

collection, and implementation of existing decisions and allotment management plans. The 

majority of the funding will be applied to administering allotments to standard on a priority 

basis. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-50 

Budget Line Item Forest Products 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $273,247 $280,115 $4,550 $25,449 $310,114 $29,999

Emergency & Supplemental Appropriations* $1,796 $0 $0 $0 $0 $0

Total Enacted Budget Authority $275,043 $280,115 $4,550 $25,449 $310,114 $29,999

Staff Years 3,269 3,347 423 3,770 423 

Estimated Funding by Activity 

Plan and Prepare Timber Sales** --- --- $232,372 $232,372 $22,566

Plan Timber Sales** $117,424 $120,092 --- --- --- 

Prepare Timber Sales** $85,944 $89,714 --- --- --- 

Administer Timber Sales $61,272 $60,652 $6,971 $67,623 $6,971

Special Forest Products $8,607 $9,657 $462 $10,119 $462

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $12.513 million provided for hurricane damage related projects from P.L. 108-324 

** Separate activities of Plan Timber Sales and Prepare Timber Sales combined in FY 2007. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Approved timber sale NEPA documents (through 

appeal and litigation) 335 356 405 --- n/a

Timber volume offered (Hundred Cubic Feet - 

CCF) 3,141,406 3,152,956 --- --- n/a

Timber volume sold (Hundred Cubic Feet) --- --- 3,417,500 4,656,000 1,238,500

Timber volume harvested (Hundred Cubic Feet - 

CCF) 3,158,109 3,966,544 3,071,804 3,200,000 128,196

Number of special forest products permits 

administered* 146,338 145,982 165,806 ---- n/a

Number of special forest product permits issued* --- --- --- 146,000 n/a

* Activity "number of special forest products permits administered" redefined to permits issued in FY 2007. 

Program Description 

Timber sales, including sales funded through the Salvage Sale Fund, the Timber Sale Pipeline 

Restoration Fund, and the Knutson - Vandenberg (K-V) Fund, are an important tool for 

accomplishing vegetation management objectives on National Forest System lands in an 

ecologically and economically efficient manner. Much of the volume harvested comes from 

projects that have primarily a stewardship purpose. The majority of timber sales continue to be 

used to achieve multiple land management objectives in addition to fiber production. Timber 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-51 

sales help achieve resource management goals while generating revenue to offset part or all of 

their costs of implementation. While many of these projects may have costs that exceed their 

revenues, the only practical alternative to eliminating them would be the use of service contracts 

which would increase the government’s net cost of forestland management. The agency’s Forest 

Products program is also an important component to achieve the objectives of the Healthy 

Forests Initiative. 

Timber sales and stewardship projects create changes in forest stand structure and density, which 

improve vigor and health of forest stands, as well as improve wildlife habitat for multiple 

species. Additionally, timber sales and stewardship contracts may also help accomplish largescale watershed restoration needs to reduce fuels that create an unacceptable fire risk, recover 

timber value following natural disturbances and prepare those sites for regeneration, lessen insect 

and disease infestations, and improve tree growth to produce desirable timber products in the 

future. 

The timber sale and stewardship programs provide employment opportunities for sustaining local 

communities and produce a host of forest products desired by the public. The use of Salvage 

Sale Funds facilitates the accomplishment of the most urgent needs for tree removal following 

natural disturbance. Likewise, the Timber Sale Pipeline Restoration Fund provides a limited 

amount of additional funds for timber sale planning and preparation. For the first time in FY 

2006, the agency will use new authorities provided by Congress for the use of K-V funds for 

forest product sales to accomplish watershed restoration, wildlife habitat improvements, control 

of insects and disease, and for community protection activities within the region in which the 

timber sale occurred. 

The development and authorization of timber sales and stewardship contracts requires a lengthy 

process that can take up to eight years to complete. This process includes planning, compliance 

with the National Environmental Policy Act (NEPA) and other laws, providing appropriate road 

access, coordinating with other resources, laying out sales on the ground, preparing contracts, 

advertising and awarding sales, and administering the sale and other related contracts. The 

process is tracked in an electronic data format known as Timber Information Manager/Forest 

Service Activity Tracking System (TIM/FACTS). 

Products harvested through timber sale and stewardship contracts emphasize resource 

management activities called for in national forest land management plans, while providing 

material that can be turned into useful products. With the help of Research and Development 

and the Forest Products Laboratory, the Forest Service continues to explore methods to use small 

diameter material for lumber, oriented strand board, energy co-generation, ethanol additives, and 

other value-added products. 

On February 20, 2003, legislation was signed authorizing the Bureau of Land Management and 

Forest Service to use stewardship contracting over the next 10 years. This legislation replaced 

the pilot authority for stewardship contracting. Stewardship contracting is a tool that facilitates 

accomplishing resource management objectives including: reducing fuels in the wildland urban 

interface, improving forest health, and enhancing wildlife habitat. Stewardship contracting is an 

important tool for implementing the Healthy Forests Restoration Act of 2003. The legislation 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-52 

authorizes some innovative approaches, such as the exchange of goods for services and the 

application of excess receipts to other approved stewardship contracting projects. 

All of the costs of planning, preparing, and administering the regular timber sale program and 

stewardship contracts (excluding sales funded by the Salvage Sale and Timber Sale Pipeline 

Restoration Funds) are included in the Forest Products budget line item, except where the 

primary reason for the project is some other land management objective (such as improvement of 

wildlife habitat and watershed conditions, and hazardous fuels reduction). In those cases, the 

planning costs are funded by the other program. The Roads budget line item covers the cost of 

engineering support for the roads needed to conduct timber sale and stewardship contracts. 

Independent Reviews 

The United States Government Accountability Office conducted two reviews and documented 

the results in GAO-05-373 “Natural Resources – Federal Agencies are Engaged in Various 

Efforts to Promote the Utilization of Woody Biomass, but Significant Obstacles to Its Use 

Remain”; and GAO-05-741T “Natural Resources – Federal Agencies are Engaged in Numerous 

Woody Biomass Utilization Activities, but Significant Obstacles May Impede Their Efforts.” 

FY 2005 Accomplishments

• Completed 356 timber sale-related NEPA documents, 21 more than the target. 

• Offered 3,152,956 hundred cubic feet (CCF), or 1,643 million board feet (MMBF), of regular 

timber volume for sale, which was 11,550 CCF (about 6 MMBF) more than the regular 

timber volume target. 

• Sold a total of 4,599,329 CCF (2,400 MMBF) of regular and salvage timber volume. There 

was no reporting required for this in FY 2005. 

• Harvested a total of 3,966,544 CCF (2,098 MMBF) of regular and salvage timber volume, 

which was 808,435 CCF (about 404 MMBF) more than anticipated. 

• Accomplished 249,132 acres of regeneration and intermediate harvest treatments, which was 

a decrease of 14,584 acres over FY 2004. A decline in intermediate harvest treatments, 

primarily commercial thinning and sanitation, outweighed an increase in total regeneration 

treatments. 

• Administered 145,982 special forest products permits, 356 less than planned. 

• Sold $3,007,424 in non-convertible special forest products. 

• Provided an additional 36,047 CCF (about 18 MMBF) of timber valued at about $189,000, 

plus approximately $163,000 in value of special forest products under the agency’s free use 

authorities. 

• Awarded 35,478 acres of stewardship contracts and agreements, including 196,079 CCF 

(about 98 MMBF) of timber. 

FY 2006 Program 

• Sell 4,233,149 CCF (about 2,117 MMBF) of regular and salvage program timber volume. 

• Harvest about 3,100,000 CCF (about 1,550 MMBF) of total program timber volume. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-53 

• Treat about 250,000 acres using timber sales. 

• Administer 165,806 special forest products permits. 

• Sell about $3 million of non-convertible special forest products, which is approximately the 

same level as FY 2005. 

• Implement the pilot Forest Botanical program. Direction has been provided to the regions 

regarding tracking of the funds and accounts have been established for this purpose. Use of 

this program by the agency will increase as receipts from implementation begin to be realized 

(See Permanent Appropriations, Forest Botanical Products). 

• Emphasize activities that improve conditions of National Forest System lands and support 

implementation of the Healthy Forests Restoration Act. 

• Increase use of stewardship contracting to meet land management goals. 

FY 2007 Plans 

• Sell 6,009,000 CCF (about 3,005 MMBF) of regular and salvage timber volume. 

• Achieve the full Northwest Forest Plan timber offer volume in FY 2007. (See Special 

Exhibits, Northwest Forest Plan). 

• Harvest 3,200,000 CCF (about 1,600 MMBF) of regular program timber volume. 

• Treat about 250,000 acres using timber sales. 

• Issue about 146,000 special forest products permits. 

• Sell about $3.1 million of non-convertible special forest products. 

• Emphasize activities that improve conditions of National Forest System lands and support 

implementation of the Healthy Forests Restoration Act. 

• Increase use of stewardship contracting to meet land management goals. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget proposes a Forest Products program increase of $30 million 

increase over the FY 2006 enacted level. The increase is being directed to achieve the full 

implementation levels of the Northwest Forest Plan. At this funding level, our capability to sell 

regular program timber volume would increase by 739,500 CCF (about 370 MMBF), and the 

total timber volume harvested is projected to increase by about 128,000 CCF (about 64 MMBF). 

The number of special forest product permits issued would be reported for the first time. The 

value of special forest products permits sold would be expected to remain fairly level in FY 

2007. All timber sales will be administered to standard. 

The President’s Budget level includes an additional $41 million over the FY 2006 enacted 

budget for implementing the Northwest Forest Plan. This will allow the agency to offer 800 

MMBF of timber for sale to achieve full implementation of the Plan. 

On the following pages are tables showing program components and costs associated with the 

timber sales program, delineated in cubic feet and board feet. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-54 

Program Components and Costs of the Timber Sales Program, 

FY 2005 – FY 2007 

 

CUBIC FEET 2005 2006 2007

Final Programmed Estimate

National Forest System Forest Products 

 Funding (Dollars in thousands) $273,247 $280,115 $310,114

 Volume Offered (FY 2005) or Sold (FY 2006-2007) (CCF) 3,152,956 3,417,500 4,656,000

 

Salvage Sale Fund 

 Funding (Dollars in thousands) $69,436 $78,333 $70,000

 Volume Offered (FY 2005) or Sold (FY 2006-2007) (CCF) 1,617,385 815,649 1 898,000

 

Knutson - Vandenberg Funds 

 Funding (Dollars in thousands) N.A. $40,000 $23,000

 Volume Sold (CCF) N.A. 971,000 452,000

 

Timber Sales Pipeline Restoration Fund 

 Funding (Dollars in thousands; Pipeline Preparation only) $1,670 $3,172 $3,000

 

Road Construction/Reconstruction for Timber Sales and Land 

Stewardships Contracting (Dollars in thousands) 

 Forest Service Engineering Support @ $30/MBF $49,290 $51,270 $69,840

 

Total, Timber Sales Program 

 Funding (Dollars in thousands) $393,643 $452,890 $475,954

 Volume Offered (FY 2005) or Sold (FY 2006-2007) (CCF) 4,770,341 5,204,149 6,006,000

 Average unit cost ($/CCF) $82.52 $87.02 $79.25

 

Total, Timber Harvested (CCF) 2

 3,966,544 3,071,804 3,200,000

 1 Does not include approximately 520,000 CCF of salvage volume from the Emergency Supplemental. 2

Includes both regular and salvage timber volume. 

N.A. Not Applicable.
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-55 

Program Components and Costs of the Timber Sales Program, 

FY 2005 – FY 2007

 

BOARD FEET 2005 2006 2007

Final Programmed Estimate

National Forest System Forest Products 

 Funding (Dollars in thousands) $273,247 $280,115 $310,114

 Volume Offered (FY 2005) or Sold (FY 2006-07) (MMBF) 1,643 1,709 2,328

 

Salvage Sale Fund 

 Funding (Dollars in thousands) $69,436 $78,333 $70,000

 Volume Offered (FY 2005) or Sold (FY 2006-07) (MMBF) 888 408 1

 449

 

Knutson -Vandenberg Funds 

 Funding (Dollars in thousands) N.A. $40,000 $23,000

 Volume Sold (MMBF) N.A. 492 226

 

Timber Sales Pipeline Restoration Fund 

 Funding (Dollars in thousands; Pipeline Preparation only) $1,670 $3,172 $3,000

 

Road Construction/Reconstruction for Timber Sales and Land

Stewardships Contracting (Dollars in thousands) 

 Forest Service Engineering Support @ $30/MBF $49,290 $51,270 $69,840

 

Total, Timber Sales Program 

 Funding (Dollars in thousands) $393,643 $452,890 $475,954

 Volume Offered (FY 2005) or Sold (FY 2006-07) (MMBF) 2,531 2,609 3,003

 Average unit cost ($/MBF) $155.53 $173.59 $158.49

 

Total, Timber Harvest (MMBF) 2

 2,098 1,534 1,600

 1

Does not include approximately 260 MMBF of salvage volume from the Emergency Supplemental. 

2 Includes both regular and salvage timber volume. 

N.A. Not Applicable.
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-56 

Budget Line Item Vegetation and Watershed Management 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $189,614 $181,342 $2,340 $3,900 $187,582 $6,240

Emergency & Supplemental Appropriations* $6,691 $0 $0 $0 $0 $0

Total Enacted Budget Authority $196,305 $181,342 $2,340 $3,900 $187,582 $6,240

Staff Years 1,817 1,721 137 1,858 137 

Estimated Funding by Activity 

Improve Forest Vegetation** $61,244 $37,875 $6,112 $43,987 $6,112

Establish Forest Vegetation** --- $39,848 $1,394 $41,242 $1,394

Manage Rangeland Vegetation $24,517 $24,387 -$2,399 $21,988 -$2,399

Maintain and Improve Watershed Conditions $56,952 $52,530 $22 $52,552 $22

Manage Noxious Weeds and Invasive Plants $17,920 $21,983 $1,276 $23,259 $1,276

Manage Air Quality $4,740 $4,719 -$165 $4,554 -$165

Manage Environmental Compliance and 

Protection/Abandoned Mine Lands 

(ECAP/AML)*** $24,241 --- --- --- --- 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $12.513 million provided for hurricane damage related projects from P.L. 108-324 

** In FY 2006, "Establish Forest Vegetation" has been re-established as a separate activity from "Improve Forest Vegetation" to

distinguish reforestation as separate from other forest vegetation improvement activities. 

*** In FY 2005, ECAP/AML activities were funded as part of the NFVW BLI. Beginning in FY 2006, ECAP/AML is funded 

through the NFMG BLI. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Acres of forest vegetation improved* 73,349 369,109 42,901 80,914 38,013

Acres of forest vegetation established* --- --- 61,256 57,952 -3,304

Acres of rangeland vegetation improved 1,886,109 1,521,286 1,650,000 1,804,660 154,660

Acres of watershed improved 13,804 13,510 12,406 12,200 -206

Acres of noxious weeds and invasive plants treated 75,456 120,040 80,800 115,702 34,902

Number of air quality services provided 265 241 322 330 8

Planned ECAP/AML activities completed** 197 229 --- --- n/a

* In FY 2006, "...forest vegetation established" was identified as a separate output measure from "...forest vegetation improved". 

** Activity not tracked after FY 2005 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-57 

Program Description 

Vegetation and watershed management of national forests and grasslands is a fundamental 

agency responsibility, focusing on the restoration, enhancement, and maintenance of watershed 

conditions including soil, water, air, and forest and rangeland vegetation. Management of these 

basic physical and biological resources provides the foundation for providing healthy, viable 

ecosystems and multiple benefits to people derived from national forest system lands. Such 

benefits include improved wildlife and fish habitat, improved range and forest stand conditions, 

improved water quality, quantity, and timing of stream flows; and cleaner air. Implementation of 

this program reduces risks associated with wildfires; noxious weed and invasive plant infestation 

and spread; and mitigates the effects of droughts, floods, past land use practices, permitted 

livestock grazing use, wild horse and burro overuse, and insect and disease infestations. 

Watershed management programs directly improve forest and rangeland health by accomplishing 

landform improvements designed to restore watershed conditions, such as reducing soil erosion 

and surface runoff, preventing the loss of topsoil, ameliorating compacted soils, and reshaping 

gullied lands to support forests or grasslands for multiple uses. 

More than 60 million people from 3,400 communities in 43 states obtain at least a portion of 

their drinking water from watersheds located on national forest system lands. Agency 

hydrologists provide technical assistance to many of these communities in delineating areas that 

are the source of this water, as well as assessing pollution risks from various types of land use, 

atmospheric deposition, and, since September 11, 2001, terrorism threats. 

Watershed management includes reforestation and timber stand improvement treatments. These 

treatments support a number of ecosystem management needs by protecting the soil and water 

resource, providing habitat for desired species, and improving forest health. These treatments 

also improve the capability of the Nation’s forests to provide desired levels of uses, values, 

products, and services; and improve the delivery of services to urban communities. 

Reforestation includes treatments such as seeding, planting, and preparing sites to encourage 

natural regeneration. Timber stand improvement activities include release treatments to remove 

competing vegetation; pre-commercial thinning to regulate stand density, composition, and 

structure; pruning treatments to reduce ladder fuels and improve future product quality; and 

fertilization treatments that provide for maintaining and improving soil productivity. 

Air resource programs are managed to protect sensitive areas from air pollution effects and to 

mitigate effects of management activities. The Forest Service operates a national monitoring 

network for air quality related values which includes visibility, aerosol sampling, lake and stream 

chemistry, lichen sampling, deposition, vegetation damage plots, and meteorological conditions. 

This information is necessary for implementation of the Clean Air Act and the basis for agency 

responses to hundreds of applications annually for private sector development, particularly in 

energy related industries. The weather and climate program provides information and training, 

particularly related to prescribed fire and fire suppression activities, to natural resource 

managers. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-58 

Management of invasive plants and noxious weeds, a key component of Vegetation and 

Watershed Management, emphasizes activities to prevent, detect, contain, and eradicate 

infestations across aquatic and terrestrial habitats. Coupled with other management activities in 

other agency programs to control non-native invasive vertebrates, invertebrates, and pathogens, 

program invasive plant and noxious weed management activities support the Forest Service 

Strategic Plan goal for invasive species. Targeted species and infestations are prioritized for 

treatment through local project plans. All invasive plant and noxious weed management 

activities are guided by agency policy and the USDA Forest Service National Strategy and 

Implementation Plan for Invasive Species Management. 

The agency’s rangeland resource, whether as understory lands in forested areas or as open 

meadows and grasslands, are managed under Vegetation and Watershed Management. 

Rangelands are managed to provide public uses and products for both rural and urban 

populations; in addition to maintaining valuable open space. Rangeland improvements are 

accomplished through seeding, removal of encroaching shrub and tree vegetation, management 

of wild horse and burro populations, and maintenance or enhancement of riparian and upland 

environments. This program area also provides for collecting and storing data on rangelands in 

an electronic data format. Rangelands are cooperatively monitored at the local level to 

determine conditions and trends over the long-term. Short-term implementation monitoring 

standards, conducted through this program, are verified as correct or are modified if necessary by 

measurement of long-term conditions and trends on those sites. 

Wild horse and burro management is achieved through up-to-date planning and periodic 

monitoring in cooperation with the USDI Bureau of Land Management. Wild horse and burro 

population numbers fluctuate over time, but continue unchecked if not properly managed at 

appropriate levels. A wild horse or burro territory managed to standard provides high quality 

protection and maintenance of the natural resource associated habitat. 

Independent Reviews 

The United States Government and Accountability Office prepared GAO-05-185 “Invasive Species 

– Cooperation and Coordination are Important for Effective Management of Invasive Weeds and 

GAO-05-374 “Forest Service – Better Data are Needed to Identify and Prioritize Reforestation and 

Timber Stand Improvement Needs” during FY 2005. 

In FY 2004, a Program Assessment Rating Tool (PART) assessment was conducted on the invasive 

species portion of this program for the FY 2006 budget cycle. The assessment provided a positive 

response on program management and strategic planning; however the Forest Service ultimately 

received a score of “results not demonstrated” due to the program’s lack of outcome-based 

performance measures that directly portray the purpose of the program. In response, the Forest 

Service has undertaken steps to address the recommendation identified within the PART assessment. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-59 

FY 2005 Accomplishments 

Forest Vegetation

• Reforested 145,326 acres, including use of appropriated funds, Reforestation Trust Fund, KV, and those accomplished from all other funding sources. 

• Accomplished timber stand improvements on 223,813 acres, including the Reforestation 

Trust Fund, K-V fund, and those accomplished from all other funding sources. 

Rangeland Vegetation

• Improved vegetation on over 1.5 million acres of rangelands as a result of implementing 

project decisions. 

• Transferred $1.5 million to the Bureau of Land Management (BLM) for removal, 

preparation, and adoption of excess wild horses and burros from western national forests. 

Noxious Weeds and Invasive Plants

• Noxious weeds management accomplishments included control of invasive plants on 

120,040 acres using Vegetation and Watershed Management funds. 

Watershed Condition 

• Assisted hundreds of communities in completing source water assessments required by the 

Safe Drinking Water Act. These will help drinking water suppliers identify risks of pollution 

and vulnerability natural events such as wildfires and storms. 

• Reached settlements on disputed water rights claims for six wild and scenic rivers and the 

Hells Canyon National Recreation Area within the Snake River Basin of Idaho. 

• Aided the Environmental Protection Agency in amending their Clean Water Act guidelines to 

States regarding best management practices, allowing the use of Forest Service Best 

Management Practices to replace Total Maximum Daily Loads, resulting in streamlining of 

restoration of (2,624 streams) impaired waters on national forests and grasslands. 

• Streamlined soil database management and administration between the Natural Resources 

Information System (NRIS) and the NRCS National Soil Information System (NASIS -

2007). 

Air Quality Services

• Managed air quality monitoring program within 88 Class I wilderness areas. 

• Reviewed Prevention of Significant Deterioration (PSD) permits to protect Class I wilderness 

areas from effects of air pollution. 

• Continued deployment and support of the Advanced Weather Interactive Processing System 

technology at Geographic Area Coordination Centers for weather data, products, and 

forecasts in support of pre-fire suppression, fire suppression, and smoke management 

activities. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-60 

FY 2006 Program 

Forest Vegetation

• Reforestation is planned on 61,256 acres using appropriated funds. An additional 57,078 

acres of reforestation are planned using the Reforestation Trust Fund. Additional 

accomplishments using the Knutson-Vandenberg (K-V) Fund are described in that section. 

• Timber stand improvement is planned on 42,901 acres using appropriated funds. An 

additional 54,482 acres of timber stand improvement are planned using the Reforestation 

Trust Fund. Additional accomplishments using the K-V Fund are described in that section. 

Rangeland Vegetation

• Approximately 1.65 million acres of rangelands are expected to show improved vegetation as 

project decisions are implemented. 

• Provide up to $1.75 million to the BLM for removal of excess wild horses and burros from 

several national forests in the Western United States. 

Noxious Weeds and Invasive Plants

• Improve invasive plant information management (data management in NRIS, FACTS, etc.) 

capabilities for field-level personnel by developing user-friendly, spatially-oriented, data 

software applications and hardware for inventory and treatment. 

• Noxious weed and invasive plant management activities to prevent, control, and eradicate 

infestations are expected on 80,800 acres across the National Forest System with 

appropriated funds. 

• Conduct an independent invasives program review as per the CY 2004 PART assessment. 

Watershed Condition

• Reduce soil erosion, restore soil stability and productivity, and improve watershed conditions 

on national forests. 

• Coordinate efforts within large-scale watershed projects to reestablish riparian forests and 

native grasslands, treat noxious weeds, and restore wetlands. 

• Implement the new Ground Water program to assist regions, forests, and local communities 

in resolving ground water resource issues. 

• Work with States, tribes, other Federal agencies and local water users to resolve water uses 

and rights conflicts in appropriate legal venues. 

• Continue agency water rights claim work in 41 river basins within nine western states, in 

partnership with the Justice Department, the USDA Office of General Counsel, and other 

Federal agencies. 

• Develop a cohesive interagency strategy to complete soil resource inventory and terrestrial 

ecological unit inventory on all lands of the United States. 

Air Quality Services 

• Review PSD permits to protect Class I wilderness areas from effects of air pollution. 

• Manage air quality monitoring programs within 88 Class I wilderness areas. 

• Operate approximately 400 remote, surface-based weather observation stations nationally for 

development of national fire danger ratings. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-61 

• Continue weather forecasts in support of fire suppression and smoke management activities. 

FY 2007 Plans 

 

Forest Vegetation

• Reforestation will be planned on 57,952 acres using appropriated funds. Accomplishments 

using the Reforestation Trust Fund will add 40,339 acres. Additional accomplishments using 

the K-V Fund are described in that section. 

• Timber stand improvement will be planned on 80,914 acres using appropriated funds. There 

will not be any accomplishments using the Reforestation Trust Fund because those funds will 

be prioritized to reforestation. Additional accomplishments using the K-V Fund are 

described in that section. 

• Emphasize activities that improve conditions of National Forest System lands and support the 

Healthy Forests Restoration Act of 2003. 

Rangeland Vegetation

• Approximately 1.8 million acres of rangelands are expected to show improved vegetation 

conditions as project decisions are implemented. 

• Provide approximately $2 million to the BLM for removal of excess wild horses and burros 

from several national forests in the Western United States. 

Noxious Weeds and Invasive Plants

• Continue to implement the National Strategy and increase capabilities to conduct early 

detection and rapid response for new infestations of invasive plants (including noxious 

weeds) and other categories of invasive species affecting national forest system watersheds. 

• Conduct noxious weed and invasive plant management activities (prevention, control, and 

eradication) on 115,702 acres of national forest system lands. Additional accomplishments 

using the K-V Fund are described in that section. 

Watershed Condition

• Continue emphasis on rehabilitation of the highest priority areas identified within burned 

areas from recent fires as part of the National Fire Plan. 

• Reduce soil erosion, restore soil stability and productivity, and improve watershed conditions 

on about 12,200 acres within the national forests and grasslands. 

• Continue coordination of efforts within large-scale watershed projects to reestablish riparian 

forests and native grasslands, and to restore wetlands. 

• Implement the Ground Water program to assist regions, forests, and local communities in 

resolving ground water resource issues and respond to growing demands for ground water 

withdrawals. 

• Begin implementation of NASIS 2007. 

• Continue to resolve water rights issues throughout Western States. 

Air Quality Services

• Manage air quality monitoring programs within 88 Class I wilderness areas. 

• Implement the National Soils Management Action Plan. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-62 

• Continue weather forecasts in support of fire suppression and smoke management activities. 

Justification of FY 2007 Program Changes

The FY 2007 President’s Budget has proposed a funding increase of approximately $6.2 million 

over the FY 2006 enacted level and will result in the following program accomplishments. In 

addition, the agency will encourage field units in FY 2007 to use a minimum of $5 million of 

Vegetation and Watershed Management program funds to help foster new and expand existing 

partnerships and to achieve the purposes of this budget line item. 

The Vegetation and Watershed Management program will work to meet management objectives 

of the Northwest Forest Plan by addressing reforestation needs of recent large forest fires and 

meeting precommercial thinning needs of existing stands. 

Forest Vegetation – Combined reforestation and timber stand improvement treatments will 

increase by about 34,709 acres from those planned in FY 2006, using only appropriated funds. 

This increase is a reflection of the increasing need for reforestation following several years of 

significant wildfire activity.

Rangeland Vegetation – Accomplishments for improving rangeland vegetation will increase by 

154,660 acres. Inventory and analysis performed on rangelands will be used to assess conditions 

of the resource and provide information for use in the environmental analysis process required by 

section 504 of the Rescissions Act of 1995. 

Maintain and Improve Watershed Conditions – Level funding will ensure that watershed 

accomplishments continue to significantly contribute to improved watershed conditions, 

including water quality. 

Manage Noxious Weeds and Invasive Plants – The agency’s noxious weed and invasive plants 

program will continue to emphasize prevention, early detection and eradication, and control of 

terrestrial noxious weeds to directly achieve the agency’s strategic goals. Accomplishments for 

the treatment of noxious weeds will increase by 16,815 acres; however, as the agency increases 

focus on priority treatment acres as opposed to number of acres treated, acres could decrease due 

to implementation of more intensive and costly treatment measures. Existing infestations will be 

better confined and programmatic and site-specific environmental analysis coverage will be 

expanded. 

Managing Air Quality – The Forest Service will continue to protect sensitive areas from air 

pollution effects and provide mitigation for management activities consistent with the strategic 

goals. At this funding level, the agency would continue to monitor Class I areas in partnership 

with a variety of State and Federal agencies and will maintain a relatively constant permit review 

level. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-63 

Budget Line Item Minerals and Geology Management 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $55,747 $84,601 $850 -$4,209 $81,242 -$3,359

Emergency & Supplemental Appropriations* $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $55,747 $84,601 $850 -$4,209 $81,242 -$3,359

Staff Years 592 625 17 642 17 

Estimated Funding by Activity 

Administer Mineral Operations $27,642 $28,220 -$3,620 $24,600 -$3,620

Process Mineral Applications $20,054 $22,412 $7,028 $29,440 $7,028

Manage Geologic Resources & Hazards $8,051 $8,918 -$3,570 $5,348 -$3,570

Mitigate Abandoned Mine Lands (AML) 

Safety Risk Features** --- --- $400 $400 $400

Manage Environmental Compliance*** --- $7,611 -$5,436 $2,175 -$5,436

Manage Environmental Restoration*** --- $17,441 $1,838 $19,279 $1,838

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

 

** New activity starting in FY 2007 

*** In FY 2005, ECAP/AML activities were funded as part of the NFVW BLI. Beginning in FY 2006, ECAP/AML is funded 

through the NFMG BLI. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-64 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Number of mineral operations administered 13,069 13,712 13,256 12,533 -723

Number of mineral applications processed* 6,446 8,017 6,548 6,587 39

Number of geological resources or hazard 

assessments completed** 760 549 1,051 0 n/a

Number of geologic resource and hazard sites 

managed*** --- --- --- 561 n/a

Percent of inspections/audit findings 

addressed  --- --- 10% --- n/a

Percent of total sites identified where no further 

response (remedial or removal) action is required 

(NFRAP)** ** 

--- --- 11% --- n/a

Number of AML safety risk features mitigated to 

"no further action" --- --- 312 960 648

Number of administrative units where audits were 

conducted --- --- 17 195 178

Number of sites which have been mitigated --- --- 25 80 55

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

** Activity not tracked in FY 2007 

*** Activity not tracked prior to FY 2007 

**** Activity tracked in FY 2006 only 

Program Description 

The Minerals and Geology Management program is responsible for the management of mineral 

and geologic resources in a manner that contributes to increasing sustainability, restoring healthy 

watersheds, minimizing impacts of invasive species, and ensuring public health and safety. The 

program includes working to: process and administer energy and non-energy mineral operations; 

identify and manage geologic resources and hazards; mitigate physical hazards on abandoned 

mine lands; and to cleanup and restore natural resources damaged by hazardous materials. 

Emphasis in the minerals component is on completion of thorough and timely environmental 

review of proposed mining operations (processing), and on the inspection and monitoring 

(administration) of existing mineral operations. The geology program provides for the protection 

and preservation of paleontologic resources; and the management and evaluation of groundwater 

resources and geologic hazards in the national forests for appropriate land management, wiseuse, and public safety. The Environmental Compliance and Protection and Abandoned Mine 

Lands (ECAP/AML) program focuses on the cleanup of hazardous materials and restoration of 

natural resources damaged by hazardous materials and the mitigation of safety hazards at 

abandoned and/or inactive mines on national forest system (NFS) lands. 

The Energy Policy Act of 2005 (P.L. 109-58), signed into law on August 8, 2005, sets forth a 

long-range, national energy strategy for the 21st century. It tasks Federal agencies to: provide 

energy from resources within the U.S. borders consistent with economic growth and 

environmental responsibility; designate new energy transmission corridors; create and improve 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-65 

uses for renewable fuels; conserve energy use at government facilities; and work to improve 

energy use and efficiency from traditional sources, such as oil, gas and coal. As mandated by the 

Energy Policy Act of 2005, the energy component of the program is focused on increasing 

opportunities for development and supply of oil and gas, coal, and geothermal resources from 

federal lands. The Act direct agencies to emphasize efficiencies in facilitating processing energy 

leasing and permit applications, particularly with respect to eliminating the backlog of oil and 

gas lease nominations and applications for permits to drill (APDs). 

In support of the Healthy Forests Restoration Act of 2003, the geology program evaluates 

groundwater resources, identifies geologic hazards, and offers geologic services to other resource 

program areas. It provides information needed for watershed protection, and resource data and 

support for improved implementation and monitoring of best management practices. 

The ECAP/AML program ensures compliance with the major environmental laws; and provides 

policies and strategies resulting in capability to achieve mission success while cleaning up and 

restoring damaged land to a productive state. The ECAP/AML program consists of three major 

components: 1) cleanup and restoration of NFS lands impacted by hazardous materials and/or 

mining activities; 2) mitigation of safety hazards associated with inactive/abandoned mine lands; 

and 3) environmental compliance audits of Forest Service operations, facilities, and permitted 

activities. 

ECAP/AML projects are selected through a national priority setting process based on their 

potential impacts on human health and the environment, partnerships with State and Federal 

agencies and non-governmental organizations, contributions to watershed restoration efforts, and 

linkages to USDA and Forest Service strategies. The ECAP/AML program competes for and 

receives funds from the USDA Central Hazardous Materials Management Appropriation for use 

only on Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) 

and Resource Conservation and Recovery Act (RCRA) cleanup projects. The agency leverages 

the appropriated funds through cooperative efforts with other government agencies, and by 

pursuing potentially responsible parties to conduct or fund cleanup actions. 

Cleanup projects are typically initiated under requirements of one of the following Federal 

regulations: CERCLA; RCRA; or the Clean Water Act (CWA). The majority of projects include 

cleanup of abandoned or inactive mines, landfills, or administrative sites to correct legacy 

releases of hazardous substances, pollutants, or contaminants that could adversely affect human 

health or the environment. The Forest Service estimates that there are over 39,0001 of these sites 

on national forest system lands, with at least 2,000 sites requiring cleanup of some type. Projects 

range in size and complexity, with costs ranging from under $100,000 to over $85 million. At 

historic funding levels, it is anticipated that it will take at least 130 years to clean up all the 

identified legacy release sites on NFS lands. 

 

1

 OIG Audit Report No. 08601-1-AT, Forest Service Management of Hazardous Materials at Active and Abandoned 

Mines. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-66 

Independent Reviews 

In FY 2005, a Program Assessment Rating Tool (PART) was conducted on the Energy program 

for the FY 2007 budget cycle. The Energy program received a rating of “adequate.” To improve 

performance, the Forest Service will: refine performance measures to include compliance and 

remediation; improve coordination to enhance program efficiency; and reduce the backlog of 

lease applications by implementing authorities provided by the Energy Policy Act of 2005. 

In FY 2007, the agency will initiate a comprehensive energy program evaluation by an 

independent consultant to focus on the processing of oil and gas lease nominations, applications 

for permit to drill (APDs) and on the administration of oil and gas operations. 

The U.S. Department of Agriculture annually conducts three ECAP/AML program reviews. 

Participants include the USDA Hazardous Materials Management Group, the Washington Office 

and Regional Office of the General Counsel, and Washington Office and regional office 

personnel. Environmental compliance audits and environmental management system 

implementation progress are reported to the Office of the Federal Environmental Executive and 

the President’s Management Council. 

FY 2005 Accomplishments

• Exceeded $2 billion in total revenues from mineral production on NFS lands. 

• Provided over $210 million in mineral receipts from coal lease sales, and over $40 million 

from oil and gas lease sales to the Treasury. 

• Processed 88 percent of backlogged oil and gas APDs and 18 percent of leasing requests on 

file as of June 30, 2003. 

• Processed 59 percent of new APDs and 25 percent of leasing requests within established 

timeframes. 

• Completed coordination with Phase II inventories under the Energy Policy and Conservation 

Act (EPCA). 

• Began implementation of the Energy Policy Act of 2005, including joint sessions with 

agencies of the Department of the Interior (DOI) to meet specific sections of Title II 

(Renewable Energy) and Title III (Oil and Gas) of the Act. 

• Completed interagency memorandum of understanding (MOU) for pilot program under 

Section 365 for improving energy permit coordination on Federal lands. 

• Coordinated revision of Oil and Gas Onshore Order No. 1 with the Bureau of Land 

Management (BLM) on the approval of oil and gas onshore lease operations. 

• Implemented the national mineral materials (salable) minerals Infra database system. 

• Continued to support the watershed improvement program as an outgrowth of Clean Water 

Act issues associated with inactive/abandoned mine lands cleanup and restoration. 

• Eliminated 372 dangerous safety hazards at 70 abandoned mine sites in 12 States with 

appropriated funds and State partners’ funding. Accomplished 138 closures over that which 

was planned by combining efforts with State operated abandoned mine land programs. Most 

of this work consisted of filling vertical shafts and closing underground mine entrances. It 

also included reshaping of open pits, trenches and waste rock piles, and removal of 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-67 

explosives and abandoned buildings. Closures were designed to avoid adverse impacts to 

wildlife (bats), cultural resources, and to maintain access where needed for mining or 

exploration purposes. 

• Accomplished 77 site characterization and enforcement activities; 11 cleanup plans; and 28 

cleanups with appropriated funds and USDA Central Hazardous Materials Management 

funds. 

• Completed eight environmental compliance audits by the National Environmental Audit 

Team (NEAT). 

• Completed an interagency policy statement with EPA and DOI on guidance for development 

of hardrock mine joint ownership mine waste repositories. 

• Completed 18 MOUs, Interagency Agreements, and settlements in cooperation with the 

USDA Office of General Counsel Pollution Control Team, representing nearly $3,000,000 in 

past cost recovery and $3,000,000 to cover future costs associated with CERCLA activities. 

FY 2006 Program 

• Energy Policy Act of 2005 Implementation

 

o Develop joint MOUs with DOI for timely processing geothermal, oil, and gas permits 

applications and permits. 

o Assign specialists to four BLM pilot offices to facilitate processing oil & gas leasing 

and drilling applications and permits. 

o Begin implementation of new administrative and statutory categorical exclusions for 

the exploration and development of oil and gas resources. 

o Initiate joint development with BLM of a national GIS-based database tracking 

system for oil, gas, and geothermal applications and permits. 

• Continue to expedite and facilitate energy mineral projects on NFS lands in accordance with 

the Energy Policy Act, the agency strategic plan, and USDA priorities. 

• Continue to process new APDs within the established timeframes. 

• Continue to process backlogged oil and gas APDs and leasing requests. 

• Continue coordination with Phase III and IV inventories under the Energy Policy and 

Conservation Act (EPCA). 

• Implement Oil and Gas Onshore Order No. 1 on the approval of oil and gas onshore lease 

operations on NFS lands. 

• Manage geologic resources, hazards, and services under the newly revised Forest Service 

Manual (FSM) section 2880, emphasizing significant geologic and paleontologic sites, and 

ensuring public and employee protection from geologic hazards. 

• Continue to protect paleontological resources and minimize fossil theft on NFS lands. 

• Continue increased emphasis on managing and evaluating NFS groundwater resources. 

• Complete full implementation of the national mineral materials database system. 

• Release national locatable minerals database system. 

• Mitigate 312 physical safety hazards with appropriated FS funds and funding from State 

partners. Most of this work will consist of filling vertical shafts; closing underground mine 

entrances; reshaping of open pits, trenches and waste rock piles; and removal of explosives 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-68 

and abandoned buildings. Closures will be designed to avoid adverse impacts to wildlife 

(bats), cultural resources, and to maintain access where needed for mining or exploration 

purposes. 

• Process 88 site characterization and enforcement activities, 19 cleanup plans, and 25 

cleanups with appropriated funds and USDA Central Hazardous Materials Management 

funds. 

• Complete 8 environmental compliance Quality Assurance/Quality Control audits by NEAT; 

complete one internal and one external pilot audits in each region per the requirements in 

Executive Orders 13148 and 12088, Department Manual (DM) 5600-001, FSM 1480, and 

OMB Circular A-11. 

• Implement and enhance the USDA Center for Environmental Excellence (CEE) to manage 

and track cleanup and restoration activities. 

• Continue to pursue potentially responsible parties to fund or perform cleanup work, as well 

as seek cooperative agreements with other government agencies to maximize project 

effectiveness. 

FY 2007 Plans 

 

• Continue implementation of Energy Policy Act of 2005 mandates. 

• Continue to expedite and facilitate energy mineral projects on NFS lands in accordance with 

the Energy Policy Act, the agency strategic plan, and USDA priorities. 

• Continue interagency coordination with agencies of the DOI to meet specific sections of Title 

II (Renewable Energy) and Title III (Oil and Gas) of the Act. 

• Continue to process new lease applications and APDs within the established timeframes. 

• Continue to manage geologic resources, hazards, and services under the revised FSM 2880, 

emphasizing ground water and significant geologic and paleontologic sites, and ensuring 

public and employee protection from geologic hazards. 

• Continue to protect paleontological resources and minimize fossil theft on NFS lands. 

• Continue emphasis on management and evaluation of NFS groundwater resources. 

• Mitigate 960 physical safety hazards at AML sites with appropriated funds, and funding from 

State partners. Most of this work will consist of filling vertical shafts; closing underground 

mine entrances; reshaping of open pits, trenches and waste rock piles; and removal of 

explosives and abandoned buildings. Closures will be designed to avoid adverse impacts to 

wildlife (bats), cultural resources, and to maintain access where needed for mining or 

exploration purposes. 

• Complete 80 site characterization and enforcement activities, 30 cleanup plans, and 80 

cleanups with appropriated and USDA Central Hazardous Materials Management funds,. 

• Complete 9 environmental compliance quality assurance/quality control audits by NEAT per 

the requirements in Executive Orders 13148 and 12088, Department Manual (DM) 5600-

001, FSM 1480, and in OMB Circular A-11. 

• Provide program oversight for activity-conducted internal environmental compliance audits 

on each national forest. 

• Conduct external environmental compliance audits on one-fifth (1/5) of the national forests. 

• Initiate corrective action follow-up on audit findings. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-69 

• Continue to implement and enhance the USDA Center for Environmental Excellence (CEE) 

to manage and track cleanup and restoration activities. 

• Continue to pursue potentially responsible parties to fund or perform cleanup work, as well 

as seek cooperative agreements with other government agencies to maximize project 

effectiveness 

• Conduct a comprehensive energy program evaluation by an independent consultant. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget request for Minerals and Geology Management is $3.3 million 

below the FY 2006 enacted level. The program will increase the “process mineral operations” 

activity by $7.5 million to meet the high priority objective of processing energy mineral 

applications. The agency will continue to emphasize the processing of applications for permits 

to drill and lease requests, and the initiation and completion of several major oil and gas 

environmental impact statements. This increased emphasis would result in substantial bonus 

bids from new lease offerings, as well as a steady stream of royalties from existing energy 

mineral operations. Actual revenues to the Treasury are dependent on market-driven forces and 

the Bureau of Land Management sales offering schedule. There will be a significant 

redistribution of funding of the remaining activities from the FY 2006 enacted levels. The 

ECAP/AML program proposed funding level will continue emphasis on cost recovery; and 

efficient, and effective utilization of partnerships in order to achieve established targets. In FY 

2007, the ECAP/AML activities have been restructured to better identify the AML safety 

component of the program. In addition, actual performance and progress of cleanups and other 

mitigation have been modified to the number of sites, and will include physical features that have 

been restored. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-70 

Budget Line Item Landownership Management 

 (dollars in thousands) 

 Increase or Decrease FY 2007

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006

Enacted Budget Authority 

Annual Appropriations $92,129 $91,631 $1,294 -$8,640 $84,285 -$7,346

Emergency & Supplemental Appropriations * $1,443 $0 $0 $0 $0 $0

Total Enacted Budget Authority $93,572 $91,631 $1,294 -$8,640 $84,285 -$7,346

Staff Years 982 952 -64 888 -64 

Estimated Funding by Activity 

Adjust Land Ownership $18,060 $17,565 -$2,895 $14,670 -$2,895

Protect Land Ownership Title $10,190 $10,592 -$1,746 $8,846 -$1,746

Locate Land Boundaries $23,470 $23,729 -$2,974 $20,755 -$2,974

Administer Land Use Authorizations $20,552 $22,263 -$1,326 $20,937 -$1,326

Process Land Use Proposals $19,857 $17,483 $1,594 $19,077 $1,594

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $12.513 million provided for hurricane damage related projects (P.L. 

108-324); FY 2006 funding is from P.L. 109-148. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Number of acres acquired or conveyed* 20,653 48,216 20,824 9,523 -11,301

Land ownership title cases resolved through 

litigation or processed through administrative 

procedure** 348 406 274 --- n/a

Number of title management cases resolved 

or completed to standard** --- --- --- 230 -44

Miles of boundary line marked/maintained 2,352 2,365 2,241 1,851 -390

Number of land use authorizations 

administered to standard 8,237 6,740 6,373 6,350 -23

Number of land use proposals and 

applications processed 1,858 4,083 1,725 1,785 60

* Activity redefined in FY 2007 from "Land ownership acres adjusted" 

** Activity redefined in FY 2007 and not comparable between FY 2006 and FY 2007 

Program Description 

More than 193 million acres of public land are managed as national forests and grasslands, 

equating to over 12 percent of the continental United States. The protection of these lands and 

resources is a fundamental Forest Service responsibility. The Landownership Management 

program provides the Forest Service with public lands and resources to manage and protect the 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-71 

ownership rights and interests of the public estate known as the national forest system (NFS). 

The Landownership Management program provides for land acquisition and conveyances, 

administration of authorized uses, encroachment and title claim resolution, and the survey and 

location of NFS property lines and other special land boundaries. 

Land consolidation secures land through acquisition or exchange to help reduce future 

management costs, respond to urban and community needs, reduce ownership fragmentation, and 

promote conservation through improved aquatic, forest, and rangeland ecosystems. Many areas 

within or immediately adjacent to existing national forests contain important resources that, if 

acquired, will help the agency meet critical national, regional, and local objectives. Over the 

next several years, key opportunities will be evaluated for beneficial exchange or purchase of 

lands from industry and other private landholders for NFS purposes. 

Special use authorizations provide the authority for use of Federal lands for a wide variety of 

purposes, including facilities and/or activities necessary for public health, welfare, safety, and 

national security. Authorizations may be short- or long-term duration, and may be issued to 

individuals; companies; organized groups; or other Federal agencies, State or local levels of 

government. Approximately 46,000 land use authorizations have been issued for more than 100 

different types of special uses. Many of these uses facilitate the delivery of energy resources, 

including hydropower facilities, oil and gas pipelines, and electric and other energy transmission 

facilities which are critical to the Nation’s infrastructure for the generation and transmission of 

energy. These uses are important in facilitating the development and transmission of affordable, 

reliable energy, in addition to supporting economic development and promoting the public health 

and safety of populations within or in proximity to national forests throughout the country. 

The Energy Policy Act of 2005 (P.L. 109-58), signed August 8, 2005, sets forth a long-range, 

national energy strategy for the 21st century. It tasks Federal agencies to do a number of 

important things: provide energy from resources within the U.S. borders consistent with 

economic growth and environmental responsibility; designate new energy transmission 

corridors; create and improve uses for renewable fuels; conserve energy use at government 

facilities; and work to improve energy use and efficiency from traditional sources, such as oil, 

gas and coal. Starting in FY 2006 the Forest Service will collaborate with other Federal agencies 

to establish standards for streamlining review and issuing permits for access to Federal land. The 

Act also requires nationally revised rental fees within one year and coordination with other 

Federal agencies to perform environmental reviews in the designation of corridors for oil, gas 

and hydrogen pipelines within the 11 Western states by August 2007 and incorporate them into 

Forest plans. For the remaining states, the Act requires that the corridor designation be 

completed by August 2009. 

The agency continues to face challenges in maintaining over 144,000 miles of previously marked 

boundary lines among the 249,000 miles of existing NFS boundaries. Title claims, 

encroachments, and trespass on NFS lands continue to increase due to large areas of fragmented 

ownership, the increasing relocation of the public into the rural landscape, and the rapidly 

expanding wildland-urban interface. It is estimated that access is not adequate for approximately 

30 percent of NFS land, and there are many locations where limited access prohibits effective 

land management or public use. The Forest Service will continue to work towards reducing 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-72 

unauthorized uses, occupancies, and claim of ownership while aggressively securing public 

access to all NFS lands. 

Independent Reviews 

In FY 2004 the Office of Inspector General (OIG) began a “Survey of Controls Over Assessing 

Environmental Liabilities” looking at the effectiveness of management controls over USDA 

agency assessments for environmental liabilities prior to the acquisition or disposal of land. The 

survey results are documented in the March 2005 Audit Report No. 50099-17-AT. OIG 

informed the agencies that there are effective controls in place, and “The results of the 

compliance testing disclosed that the Department and its agencies complied with the policies and 

procedures for assessing environmental liabilities and properly applied the requirements for land 

transactions prior to acquiring or disposing of land.” 

FY 2005 Accomplishments 

 

• Conducted 22 National Landownership Adjustment Team (NLAT) reviews of complex land 

exchanges to ensure accountability, and consistency and compliance with Forest Service 

policy, laws, and regulations, including ensuring appropriate skills and methodologies are 

being employed in implementing new authorities. 

• Acquired 229 rights-of-way in support of critical resource activities, including fuels 

reduction, fire suppression efforts, and improving public access. 

• Continued emphasis on processing applications for Ditch Bill easements and the 

development of a multi-year strategy to complete the processing of all applications for such 

easements within a specified period of time. 

• Submitted for publication appraisal guidelines, regulations, and policy revisions pursuant to 

the Cabin User Fee Fairness Act of 2000 (CUFFA). 

• Continued to work with the Department of Commerce and other Federal agencies towards 

interagency consistency and streamlining in the processing of proposals for broadband 

facilities on Federal lands (telecommunications and fiber-optics). 

• Completed rules and regulations, including completion of the training manual, to implement 

cost recovery for the administration and monitoring of special use authorizations on NFS 

land. 

• Completed the national instream flow technical support contract, and continued training and 

technical transfer in the use, application, and interpretation of instream flow project 

assessment techniques. 

• Completed recordation of Landownership Declarations for Forest Lieu Selection cases 

totaling 14,977 acres (192 parcels) that will protect the public’s right to access and use of 

NFS lands. 

• Completed 15 Small Tract Act (STA) cases related to encroachments involving 35,000 acres. 

• Maintained 1,991 miles of existing marked property lines and marked 374 miles of critical 

new property line, emphasizing areas that support hazardous fuel reduction activities in the 

wildland-urban interface and restoring ecosystems to fire-tolerant conditions, while 

protecting the public’s right to access and use of NFS lands. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-73 

FY 2006 Program 

• Continue emphasis on improving exchange activities to facilitate conservation and 

stewardship objectives, including national oversight reviews. 

• Continue emphasis on acquiring rights-of-way in support of critical resource activities, 

including fuels reduction, fire suppression efforts, and improving public access. 

• Continue emphasis on maintaining existing marked boundary lines, as well as marking 

critical new property lines, especially in areas that support hazardous fuels treatment and the 

improvement of condition class. 

• Place priority on the processing of proposals and applications for energy and energy-related 

projects, such as oil and gas pipelines, electric transmission lines, and proposals for the 

sighting of alternative energy sources on NFS lands.

• Prepare and publish regulations to revise nationally scheduled rental fees. 

• In coordination with other Federal agencies, perform environmental reviews for utility rightsof-way corridor designation of the 11 Western states. 

• Continue to give priority to the processing of applications associated with statutory rights 

(Ditch Bill easements, ANILCA access cases), to applications for energy and energy related 

projects, and to processing Ditch Bill easement application cases pursuant to the 2004 

management direction and strategy. 

• Publish final Cabin User Fee Fairness Act (CUFFA) regulations and update policy for 

managing recreation residences. 

• Publish cost recovery regulations, including the establishment of customer service standards 

for processing special use applications, and begin training agency personnel in cost recovery 

activities. 

• Continue emphasis on hydropower licensing to ensure full compliance with the National 

Energy Plan. 

• Continue training and technical transfer in the use, application, and interpretation of instream 

flow project assessment techniques. 

• Continue critical case resolutions, including three priority Native American tribal title claims. 

• Continue data entry into the Automated Lands Program (ALP) which supports the 

recordation of land status. 

• Emphasize protecting and maintaining the existing marked boundary lines, especially in high 

land value areas with significant wildland-urban interface problems. 

• Continue to collect and process geo-referenced survey information to assist the forest 

mapping program and support the BLM in collecting and processing GPS information for the 

development of the Geographic Coordinate Database. 

• Assist in the environmental cleanup of mining claims by recovering and mapping the mineral 

survey corners and providing the control to map the location of claims and ground 

contamination. 

FY 2007 Plans 

• Continue emphasis on improving exchange and conveyance activities to facilitate strategic 

plan objectives and implement the Facilities Realignment and Enhancement Act. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-74 

• Complete the designation of utility rights-of-way corridors for oil, gas and hydrogen 

pipelines in 11 western states, incorporating these into forest plans, and begin work necessary 

to designate corridors in the remaining states. 

• Continue emphasis on maintaining existing marked boundary lines, as well as marking 

critical new property lines, especially in areas that support hazardous fuels treatment and the 

improvement of condition class. 

• Emphasize the processing of new energy-related land use applications and eliminating the 

backlog of pending applications and expired authorizations in order to get the production on 

line and to markets, resulting in an estimated $2 to $3 million increase in revenues. 

• Implement the special uses cost recovery regulations at all administrative units, with the goal 

of demonstrating measurable improvement in the timely processing of proposals and 

applications. 

• Implement CUFFA regulations to include performing new appraisals and establishing new 

base fees. 

• Pursue cooperative and joint land survey opportunities and Challenge Cost Share agreements 

with other land management agencies and adjoining landowners in order to maximize cost 

efficiencies. 

• Continue development of cadastral geospatial information to support the automation of 

agency land records for use in land and resource management planning in a geospatial 

information system (GIS) environment to an established national standard. 

Justification of FY 2007 Program Changes 

The proposed funding for the Landownership Management program is approximately $7.3 

million below the FY 2006 enacted level. Emphasis in landownership activities will be as 

follows:

Landownership Adjustment – The agency will continue focusing on the conveyance of 

administrative sites and adjacent administrative land that reduce administrative costs, such as 

facility deferred maintenance and boundary management. For lands exchanges and rights-ofway acquisition priority will placed on those acres that protect high priority watersheds, provide 

public access, and conserve the integrity of undeveloped lands and habitat quality. The agency 

will continue the national oversight review of land exchanges and conveyances to improve 

efficiency and ensure accountability, consistency, and compliance with Forest Service policy and 

laws and regulations. 

Special Uses - Emphasis will be placed on administering special uses that are currently 

authorized and processing applications associated with statutory rights and energy related uses, 

including those applications prompted by the expiration of the existing authorization using fees 

collected from applicants pursuant to the agency’s cost recovery regulations and procedures. 

Accomplishing the requirements of the Energy Policy Act of 2005 will be given highest priority 

and ongoing efforts with other agencies will continue in the identification and designation of 

utility rights-of-way corridors to better facilitate the timely processing of rights-of-way 

authorizations for energy transmission and production facilities. Additionally, the agency will 

work with the Bureau of Land Management and other Federal agencies to develop interagency 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-75 

rights-of-way authorizations that include rights, privileges, and tenure commensurate with the 

capital investment in the expected longevity of energy generation and transmission facilities. 

Title Protection - Resolution of title claims and trespasses affecting landownership activities, 

such as land exchanges, purchases, and/or donations, will be emphasized for land management 

actions such as fire restoration and securing public access. However, with the increasing 

relocation of the public into the rural landscape and the rapidly expanding wildland-urban 

interface, these demands continue to exceed the agency’s ability to protect the public estate. 

Boundary Management - The agency will focus on maintaining existing marked boundary lines, 

as well as marking critical new property line locations as needed, especially in areas that support 

hazardous fuel reduction activities in the wildland-urban interface and projects that restore 

ecosystems to fire-tolerant conditions. A special focus in FY 2007 will be the continued 

development of cadastral geospatial information to support the automation of agency land 

records for use in land and resource management planning in a GIS environment to an 

established national standard. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-76 

Budget Line Item Law Enforcement Operations 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $86,014 $87,887 $1,196 $20,917 $110,000 $22,113

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $86,014 $87,887 $1,196 $20,917 $110,000 $22,113

Staff Years* 695 880 -57 823 -57 

Estimated Funding by Activity 

Enforce Laws & Regulations $52,469 $53,611 $13,282 $66,893 $13,282

Investigate Crime $33,545 $34,276 $8,831 $43,107 $8,831

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* Change in staff years in FY 2006 reflects full payment of indirects costs by LE&I program. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Enforcement capability 55% 60% 60% 65% 5%

Investigative capability 63% 75% 75% 78% 3%

Program Description

The Forest Service Law Enforcement and Investigations (LEI) program is charged with 

protecting the public, employees, and the Nation’s natural resources on approximately 193 

million acres of National Forest System (NFS) lands in 44 States through cooperation with 

Federal, State, and local law enforcement agencies and other Forest Service programs. The LEI 

staff also: 

 Provides high visibility uniformed patrol presence and prompt response to public and 

employee safety incidents and violations of law and regulation; 

 Conducts criminal and civil investigations; 

 Maintains strong relationships with cooperating law enforcement agencies, the Offices of the 

United States Attorney, and the Federal Court System; 

 Works to reduce the production of domestic cannabis and other controlled substances and 

smuggling of illegal drugs through NFS lands in support of the President’s National Drug 

Control Strategy; 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-77 

 Coordinates and conducts activities related to homeland security to provide a secure 

environment for the public and employees and to protect resources and the public in 

impacted international border areas; and 

 Develops and applies new technologies and techniques for use in enforcement and 

investigative activities. 

Program Evolution and Priorities – Increased recreation on NFS lands has led to an increase in 

visitation and urban encroachment, causing significant impacts on NFS lands, thereby increasing 

risks to public and employee health and safety. Consequently, the demands on agency law 

enforcement personnel continue to increase significantly. 

Increased visitation has also led to increased criminal activity. From FY 2004 through FY 2005, 

violations against people and their property increased by 15 percent across the national forest 

system. No longer are law enforcement personnel just handling minor infractions, petty 

offenses, and misdemeanors; they are asked to respond to: 

• Unplanned incidents including environmental protests, threats and assaults on employees 

and government property, domestic terrorist activity, large group events, gang activity, 

and fire emergencies; 

• Crimes such as rape, homicide, domestic disputes, assault, robbery, and other serious 

felony crimes; 

• Calls to assist in traffic accidents, search and rescue, medical/emergency assistance, 

hazardous materials spills, and other first responder incidents; and 

• Deployment of over 100 officers at a time to support major national emergencies such as 

the shuttle disaster and hurricane Katrina. 

The LEI staff is made up of approximately 695 full time positions (FY 2005), with 110 being 

classified as special agents assigned primarily to completing investigative work and 467 law 

enforcement officers assigned primarily to providing patrol work on national forests and who are 

usually the first points of contact for the public. The remaining 118 are assigned to performing 

direct and indirect support to officers and agents and business management services. 

Current workforce planning efforts respond to evolving issues such as meeting Homeland 

Security needs, providing intelligence analysis and information sharing, increasing personnel on 

national forests along international borders, increasing facility and field project security, 

protecting critical assets and employees, and aggressively investigating domestic terrorist 

incidents. 

Alaska Subsistence – The Alaska National Interests Lands Conservation Act (ANILCA) 

mandates Federal subsistence enforcement responsibilities to the Forest Service on NFS lands. 

This requires enforcing all Federal subsistence hunting and fishing regulations on 22.6 million 

acres of remote geography in Alaska, including 75 navigable waterways, all navigable lakes, and 

vast expanses of Prince William Sound and the islands of southeast Alaska. The responsibility 

for protecting subsistence resources, investigating violations and maintaining the subsistence 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-78 

priority lifestyle for rural and native Alaskans rests solely with LEI, constituting approximately 

40 percent of the LEI workload in Region 10. 

Use of Technology 

Expanded Electronic Government – As a means of increasing productivity and accountability, 

LEI has implemented the Law Enforcement Investigations Management Attainment Reporting 

System (LEIMARS). This software manages information relevant to investigations and 

enforcement using a variety of sophisticated security protocols. In addition, it provides 

geographic information system (GIS) functionality to facilitate the display of where activities are 

occurring in relation to national forest lands and resources. 

LEIMARS is an incident reporting and case tracking program that provides LEI personnel with 

investigative support and statistical information. LEIMARS allows the ability to query for repeat 

offenders and/or associated vehicles in order to aid in the determination on how to handle current 

situations and to provide investigative support. It also provides a wide variety of management 

reports. 

Land-based Border Security – Autonomous, image-based remote sensing systems that can be 

placed in potential terrestrial access corridors will be developed for the northern and southern 

international borders for use by Forest Service law enforcement personnel. The enforcement and 

deterrent efforts of other agencies on the illegal entry problem has created a host of unlawful use 

and occupancy issues for the Forest Service. Illegal entry corridors are being shifted to remote 

sections of the national forests, and while the Department of Homeland Security (DHS), 

Customs, and the Border Patrol are responsible for the detection and arrest of the illegal entrants, 

the Forest Service is left with serious environmental damage, heavily overused areas, serious 

sanitation problems, threats to legitimate users, illegal roads and trails, and illegal incursions into 

sensitive areas (such as wilderness). The remote sensing systems could detect a possible border 

intrusion, as well as capture and transmit image and location information of the event to a central 

location via a wireless communication device. The technology developed for remote monitoring 

can also be applied to monitoring of aviation facilities. 

Development – The Forest Service Engineering Remote Sensing Applications Center (RSAC); 

Geospatial Service and Technology Center (GSTC); and Technology Development Centers 

located at San Dimas, CA (SDTDC), and Missoula, MT (MTDC), will collaborate to conduct 

development, testing, and implementation of detection and monitoring systems. The centers will 

work in partnership with LEI throughout the project. The Forest Service LEI staff will 

coordinate this project with other agencies supporting homeland security and U.S. border 

surveillance. Multiple airtanker bases are operated by Forest Service Fire and Aviation 

Management (F&AM) staff across the county. F&AM will collaborate in evaluating the needs 

for enhanced on-ground protection of aircraft. 

Facilities and Developed Site Security – The Forest Service will contract with two physical 

security specialist teams to conduct threat assessments and mitigation strategies for Forest 

Service sites and facilities located at or near northern and southwest borders. Each physical 

security survey will be based on a predetermined risk analysis and threat assessment, which 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-79 

addresses the risk; cost; and what, who, or where the threat is coming from. Air-tanker bases, 

aircraft facilities, and aircraft will be included. 

Independent Reviews 

The LEI program is expected to participate in the CY 2006 PART assessment of agency goal six 

“mission related work in addition to that which supports the agency goals.” 

FY 2005 Accomplishments 

• Opened 829 serious misdemeanor and felony level investigations for timber and other forest 

product thefts, archeological violations, wildland fire, controlled substances, and other 

resource and property related crimes, and closed 2,593 cases. 

• Recorded 167,692 incidents and enforcement actions for offenses such as damaging 

government property and natural resources; vehicle and off-road vehicle violations; and 

wilderness, fire, and forest product violations. 

• Eradicated over one million marijuana plants from NFS lands and seized 3,432 pounds of 

processed marijuana being smuggled into the U.S. through NFS lands, resulting in 204 

prosecutions. 

• Entered into 481 cooperative and drug enforcement agreements with State and local law 

enforcement agencies to enforce State and local laws on national forests, and made over 1 

million public contacts, ranging from providing general information, obtaining information 

on criminal matters, assisting with visitors’ problems, and search and rescue efforts. 

• Investigated 136 internal and hotline complaints against agency employees and programs.

• Deployed over 100 officers to the southeastern U.S. from across the country to support 

emergency response to the national disasters resulting from hurricanes Katrina and Rita. 

FY 2006 Program 

• Emphasize public and employee safety on National Forest System lands and/or associated 

facilities and programs. 

• In support of the National Fire Plan, LEI will continue to prioritize arson investigations and 

assign all necessary resources to this very high profile crime. 

• The Drug Enforcement Program will continue to work with the Office of the National Drug 

Control Policy (ONDCP) on addressing rising marijuana production, methamphetamine 

manufacturing, drug smuggling activities, and associated risks to the public, employees, and 

natural resources on NFS lands throughout the country. 

• Increase law enforcement officer positions in critical locations, particularly on units that have 

no Federal law enforcement presence. 

• Continue to increase staffing, consistent with funding, to enforce Alaska Subsistence 

regulations for traditional hunting and fishing rights. 

• Continue to acquire and provide personal protective equipment, technical investigative 

equipment, and other critically needed items so that law enforcement employees can apply 

best law enforcement practices.
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-80 

FY 2007 Plans 

• In cooperation with Forest Service Research and the National Sheriff’s Association, continue 

crime prevention efforts through the use of printed materials and ongoing surveys of national 

forest users. 

• Continue to work with the Chief’s Office, Regional Foresters, line officers, and other internal 

partners to better integrate law enforcement and natural resource management. 

• In support of the National Fire Plan, LEI will continue to prioritize arson investigations and 

assign all necessary resources to this very high profile crime. 

• The Drug Enforcement Program will continue to work with the ONDCP on addressing rising 

marijuana production, methamphetamine manufacturing, drug smuggling activity, and 

associated risks to the public, employees, and natural resources on NFS lands throughout the 

country. 

• Continue to increase staffing, consistent with available funding, to enforce Alaska 

Subsistence regulations for traditional hunting and fishing rights. 

• Continue to improve communication in areas where none exists or is extremely poor. 

• Acquire personal protective equipment, technical investigative equipment, and other 

critically needed items. 

• Identify and incorporate recommendations from OIG findings, GAO reports, and NAPA 

reports done of the program. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget includes $110 million for LEI, which is an increase of $22.1 

million over the FY 2006 enacted level. However, per the Administrative provisions in the FY 

2006 Appropriations Act for the Forest Service, funds were transferred from other accounts into 

Law Enforcement such that Law Enforcement is now paying its appropriate share of all costs 

including overhead. Thus, agency law enforcement would be provided at approximately the 

same level as FY 2006, and personnel would continue to prioritize response to emergency and 

life-threatening situations. A detailed description of the change, including before and after 

funding tables, is provided in a Law Enforcement Funding of Cost Pools special exhibit. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-81 

Budget Line Item Valles Caldera National Preserve 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $3,599 $5,074 $1 -$4,085 $990 -$4,084

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $3,599 $5,074 $1 -$4,085 $990 -$4,084

Staff Years 1 1 -1 0 -1 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

Program Description

The Valles Caldera Preservation Act of 2000 (P.L. 106-248) provided for the acquisition of the 

Baca Ranch located in the Jemez Mountains of New Mexico. The Act designated the Baca 

Ranch as the Valles Caldera National Preserve and provides for the management of the 88,900-

acre tract as a unit of the National Forest System. The Preserve was established to protect 

various natural resources within its boundaries, and for providing multiple-use and sustainedyield of renewable resources within the Preserve. In addition, the Act requires the tract to 

continue to be managed as an operating ranch. 

The Act requires management of the Preserve by The Valles Caldera Trust (VCT), a government 

corporation subject to the Government Corporation Control Act. The Act provides for interim 

management of the Preserve by the Forest Service with appropriated funds until, under the terms 

of the Act, the Trust assumes full responsibility for the Preserve. The Trust assumed 

management authority over the Preserve in August 2002. 

The funding for the VCT contributes to the management of the Valles Caldera National 

Preserve’s resources to protect grasslands, watersheds, and forest vegetation through the practice 

of sound range, watershed, and forest management. The Valles Caldera program also provides 

recreation opportunities such as hiking and hunting by permit, as well as protecting and 

interpreting cultural and historic resources. 

Independent Reviews 

In November 2005, the Government Accountability Office (GAO) conducted a review. The 

GAO recommended that the Board of Trustees develop: (1) a strategic and performance plan that 

identifies measurable goals and objectives for protecting and preserving the Preserve; (2) a plan 

for becoming financially self-sustaining; (3) periodic performance monitoring and reporting that 

enable Congress and the Trust to track progress in achieving program goals; and (4) a plan to fill 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-82 

vacant positions. In commenting on the draft report, the Board generally agreed with GAO’s 

recommendations. 

FY 2005 Accomplishments 

• Printed and distributed the final Framework and Strategic Guidance for Comprehensive 

Management. 

• Continued the heifer replacement and conservation stewardship programs, incorporating 

lessons learned from the 2004 program. 

• Conducted the 2005 elk hunt in compliance with the New Mexico residence quotas imposed 

by the State, and continue to develop hunting on the Preserve as a high quality experience 

and revenue generation source for the Trust.

• Expanded the public recreation programs to include trails for winter cross-country skiing, 

summer hiking and equestrian activities on the Preserve. 

• Integrated the Stewardship Action Record System (STARS) process into the overall project 

management approach within the staff to create greater project accountability. 

• Continued to develop outside funding opportunities for Preserve research. 

• Approved the Valles Caldera Fire Management Plan for inclusion into the Santa Fe Zone 

Fire Action Plan. The Trust is participating as a member of the zone board. 

• Continued mechanical thinning efforts in the southwest corner of the Preserve. 

• Initiated mechanical thinning in the old growth forest surrounding the Preserve headquarters 

area. 

• Finalized the master plan for interpretation for the Preserve. 

• Phase 2 was started for a water distribution system for the headquarters area of the Preserve. 

• Continued upgrade of the VC02 road (formerly B Road) on the Preserve. 

• Retreated infested areas on the Preserve for noxious weeds. 

FY 2006 Program 

• Distribute the Framework and Strategic Guidance for Comprehensive Management. 

• Research the possibilities of a different grazing system, e.g. Steer Program versus existing 

programs. 

• Conduct the 2006 elk hunt in compliance with the New Mexico residence quotas imposed by 

the State, and continue to develop hunting on the Preserve as a high quality experience and 

revenue generation source for the Trust.

• Expand the public recreation program to include additional trails for winter cross-country 

skiing, summer hiking, and equestrian activities on the Preserve. 

• Continue to integrate the STARS process into the overall project management approach 

within the staff to create greater project accountability. 

• Continue to develop baseline inventory data for the Preserve. 

• Continue integrating monitoring activities more closely with program goals. 

• Continue to develop outside funding opportunities for Preserve research. 

• Complete a prescribed burn on the Valle Toledo. 

• Continue developing a Preserve-wide strategic plan. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-83 

• Conduct survey/design for upgrading VC09 (formerly F Road). 

• Install a central propane distribution system for the headquarters area. 

• Conduct a wireless survey to enhance communications on the Preserve. 

• Continue maintenance of the Trust’s web site. 

• Initiate a process on collection of information towards a comprehensive public access 

management plan. 

• Initiate a process on collection of information towards a comprehensive facilities 

management plan. 

• Upgrade facilities for public and staff use. 

• Connect all buildings in operation with a one mile distribution line to provide potable water. 

FY 2007 Plans 

• Continue limited resource inventories. 

• Continue limited planning for comprehensive management of the Preserve. 

• Conduct the 2007 elk hunting program. 

• Conduct the 2007 livestock grazing program. 

• Continue maintenance of the Trust’s web site. 

Justification of FY 2007 Program Changes 

The funding level for Valles Caldera National Preserve will assist the Valles Caldera Trust to 

continue a level of management that protects ecosystem health as it moves toward complete selfsufficiency as envisioned in the authorization. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-84 

Budget Line Item Centennial of Service Challenge 

 (dollars in thousands) 

 

Increase or 

Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $9,861 $4,434 $29 -$4,463 $0 -$4,434

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $9,861 $4,434 $29 -$4,463 $0 -$4,434

Staff Years 51 21 -21 0 -21 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

Program Description 

The Forest Service saw the 100th anniversary of its creation, which commenced in January 2005, 

as an opportunity to broaden public understanding and appreciation for our Nation’s forests, 

expand partnership capacity, and enhance natural resource stewardship capabilities nationwide. 

The centennial marked the 1905 transfer of the forest reserves from the General Land Office in 

the Department of the Interior to the newly named Forest Service in the Department of 

Agriculture. At its inception, President Theodore Roosevelt convened the Joint Conservation 

Congress to provide guidance to the Forest Service as it formed the multiple-use mission which 

continues to guide the agency today. 

The Forest Service has a long and proud history of service to the American public including 

forestry, watershed, conservation, outdoor recreation, habitat protection, science research and 

development, wildfire management, and rural development. In honor of this centennial, 

Congress has provided a total of $14,295,000 (after rescissions) over fiscal years 2005 and 2006 

for use by the National Forest System and partners to fund cost-shared projects which enhance 

conditions of forests, watersheds, habitat and recreational services to the American public. 

These funds are in addition to, and in complementary fashion with, the challenge cost share 

program. 

Centennial of Service Challenge budget line item, along with partners’ matching contributions, 

funds cost-shared projects which enhance conditions of forests, watersheds, terrestrial and 

aquatic habitat, and recreational services to the American public. Funds provided complement 

the agency’s existing challenge cost share projects accomplished with other appropriations. 

Centennial of Service Challenge funds increase the agency’s opportunities to increase agency 

partnership capacity and strengthen existing and develop new partnerships. In addition to having 

multiple resource benefits, projects provide job stimulus through local contracting, and improves 

community economic development. 
FY 2007 Budget Justification USDA Forest Service

National Forest System 8-85 

FY 2005 Accomplishments 

• A total of 245 forest and rangeland projects were funded using $9.8 million from Centennial 

of Service Challenge funds. The Centennial funds were matched by over $20 million in 

either cash or in-kind contributions by partners with the Forest Service. 

• Centennial funds were used for the following types of projects: 

 78 Fish and wildlife improvement projects 

 61 Trails or wilderness projects 

 36 Interpretation and education projects 

 20 Invasive species projects 

 18 Watershed restoration projects 

 16 Campground improvement projects 

 16 Heritage resource projects 

• Prepared the FY 2005 Centennial Service Challenge Accomplishment Report displaying by 

region the accomplishments and matching funds by partners for the 245 projects completed 

with these funds. Report has been shared with staff of the House and Senate Interior 

Appropriations Committee. 

FY 2006 Program 

• Over 140 projects will be funded from the $4.4 million provided in FY 2006, with emphasis 

on expansion of partnerships and outreach to new audiences for Forest Service programs as 

requested at the Centennial Congress. 

FY 2007 Plans 

No funding is proposed under this budget line item. Challenge cost share projects will continue 

subject to funding availability through other budget line items. Partnership projects will continue 

within the regular programs of work subject to availability of Forest Service and partnership 

funding as displayed under Special Exhibits, Forest Service Partnerships. Within the FY 2007 

President’s Budget, the agency will encourage field units to use a minimum of $15 million of 

Wildlife and Fisheries Habitat Management program funds, $10 million Recreation, Wilderness 

and Heritage program funds, $5 million of Vegetation and Watershed Management program 

funds, and $5 million of Trails program funds to help foster new and expand existing 

partnerships. 

Justification of FY 2007 Program Changes 

No funding is proposed in this program for FY 2007. 

FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 

Chapter 9 

Wildland Fire Management

FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-1 

Appropriation Wildland Fire Management 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $1,703,016 $1,753,214 $18,304 -$3,323 $1,768,195 $14,981

Emergency & Supplemental Appropriations* $425,471 $7,906 $0 $0 $0 -$7,906

Total Enacted Budget Authority $2,128,487 $1,761,120 $18,304 -$11,229 $1,768,195 $7,075

Staff Years 11,527 11,787 123 11,910 123 

Enacted Budget Authority by EBLI 

Preparedness $676,470 $666,068 $8,744 -$18,925 $655,887 -$10,181

Fire Operations - Suppression $648,859 $690,186 $5,422 $50,568 $746,176 $55,990

Hazardous Fuels $262,539 $281,793 $3,620 $6,379 $291,792 $9,999

Fire Rehabilitation $12,819 $6,188 $63 -$4,271 $1,980 -$4,208

Fire Research & Development $21,719 $22,877 $242 -$2,998 $20,121 -$2,756

Joint Fire Sciences $7,889 $7,882 $0 -$3,922 $3,960 -$3,922

Forest Health Management - Federal Lands $14,792 $14,780 $198 -$8,176 $6,802 -$7,978

Forest Health Management - Coop Lands $9,861 $9,852 $12 -$5,312 $4,552 -$5,300

State Fire Assistance $40,179 $45,816 $3 -$16,704 $29,115 -$16,701

Volunteer Fire Assistance $7,889 $7,772 $0 $38 $7,810 $38

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* Includes $394,443,000 for fire suppression (P.L. 108-108), $30,000,000 for San Bernardino NF hazardous fuels 

(P.L.108-287), and $1,028,000 for hurricane damage related projects (P.L. 108-324) 

Program Description 

This appropriation funds the USDA Forest Service Wildland Fire Management program. This 

program is managed under: 

• President’s Healthy Forests Initiative 

• Federal Wildland Fire Management Policy adopted by the Secretaries of the Interior and 

Agriculture in January 2001, and the June 2003 Implementation Strategy 

• 10-Year Comprehensive Strategy: A Collaborative Approach for Reducing Wildland Fire 

Risks to Communities and the Environment, and the May 2002 Implementation Plan

• National Fire Plan 

Program implementation recognizes the importance of integrating fire as a critical natural 

process into land and resource management plans and activities on a landscape scale. The 

program’s design recognizes that wildfire management must occur across landownership 

boundaries as these ownership boundaries do not confine wildfires, and that the program apply 

the best available science. The program’s objective is to protect life, property, and natural 

resources on the 193 million acres of National Forest System (NFS) land and an additional 20 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-2 

million acres of adjacent State and private lands protected through fee or reciprocal protection 

agreements in an efficient, cost-effective manner. 

The following sections describe each of the Wildland Fire Management program’s past and 

projected accomplishments. Program performance is measured annually and then compared 

with past and future targets. Programs, such as suppression and preparedness, are aligned with 

the agency’s strategic plan’s goals and objectives. These goals and objectives support the overall 

agency mission, including forest and rangeland management, which allows for optimizing the 

reduction of risk associated with wildland fires. 

The Wildland Fire Management appropriation also funds the President’s Healthy Forests 

Initiative and the National Fire Plan. Descriptions of the Healthy Forests Initiative and the 

National Fire Plan are included in Section 4 of the FY 2007 Budget Justification. 

Independent Reviews 

Program Assessment Rating Tool (PART) 

In FY 2002, the Wildland Fire Management program of the Forest Service was one of many 

Federal programs selected for the first round of assessments using the PART. The FY 2002 

assessment concluded that the purpose and design of the Wildland Fire Management program 

was clear and well focused. However, the overall PART rating for the Wildland Fire 

Management was “Results Not Demonstrated,” due to the following challenges in meeting its 

long term goals: 

• Costs of wildland fire suppression were rapidly rising and there was no apparent systematic 

cost containment strategy in place; 

• More work was needed to demonstrate that fuel reduction activities are adequately targeted 

and efficiently managed; and 

• The long-term goals developed as part of the 10-Year Comprehensive Strategy still required 

baseline data, annual and long-term targets, and clear prioritization. 

Under the direction of the Wildland Fire Leadership Council, the Forest Service and the 

Department of Interior Bureaus are taking steps to improve the Wildland Fire Management 

program in response to the FY 2002 assessment, including linking strategic plan goals and 

objectives directly to the four primary goals in the 10-year Comprehensive Strategy and 

Implementation Plan and linking hazardous fuels reduction goals to the Healthy Forests 

Restoration Act of 2003 (HFRA). 

In calendar year 2006, the Wildland Fire Management Program will undergo a PART 

reassessment for the FY 2008 budget cycle. New and improved performance measures will be 

developed in consultation with the Department of the Interior, to better measure program 

accomplishments. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-3 

Continuing Management Improvements

Based on various program challenges, the Forest Service is continuing its work to improve the 

Wildland Fire Management program by: 

• Continuing to implement the goals and strategies recommended and updated by the Wildland 

Fire Leadership Council (WFLC) at semi-annual meetings. 

• Analyzing and prioritizing the many recommendations on cost containment received from 

the numerous audits, studies, and reports, and then implementing those recommendations that 

will make a difference in containing costs on large fires. A contractor has been hired to 

prioritize and report on the recommendations relative to implementation cost and potential 

savings. Their report will be provided in early 2006. 

• Limiting Forest Supervisors’ Wildland Fire Situation Analysis (WFSA) authority to $10 

million and Regional Foresters’ authority to a range of $10 million to $50 million, while also 

engaging the Executive Leadership and the Chief, in the suppression decision-making 

process. 

• Demonstrating a real-time obligations system to improve the accountability of incident 

financial management and the accuracy of incident obligations. 

• Continue implementing actions identified in the Interagency Strategy for the Implementation 

of the Federal Wildland Fire Policy, June 2003. 

• Implementing a stratified suppression cost model that will identify a range of suppression 

costs relative to physical, environmental, and social factors. This data will then be evaluated 

to assist the decision making process. 

• Completing Phase I development and planning for implementation of an interagency fire 

management planning and budget model, Fire Program Analysis (FPA), to support cost 

effective allocation of preparedness resources to achieve resource and fire management 

objectives. 

• Enhancing and expanding the interagency applicability of the web based WFSA to facilitate 

the transfer of information and application (WFSA) consistency between units and agencies. 

• Developing the Wildland Fire Decision Support System (WFDSS) to assist decision makers 

in analyzing the appropriate management response for wildland fires. 

• Continuing our partnership with Department of the Interior (DOI) and the National 

Association of State Foresters (NASF) to implement “LANDFIRE”, a long-term geospatial 

fire planning project. 

• Integrating Fire Program Analysis, the WFDSS, and LANDFIRE; including data, objectives, 

and outputs. 

• Developing a standard, interagency, science-based methodology to maximize the 

effectiveness of fuel and other vegetation management on reducing problem fire behavior 

and effects at landscape scales. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-4 

Budget Line Item Preparedness 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $676,470 $666,068 $8,744 -$18,925 $655,887 -$10,181

Emergency & Supplemental Appropriations* $742 $0 $0 $0 $0 $0

Total Enacted Budget Authority $677,212 $666,068 $8,744 -$18,925 $655,887 -$10,181

Staff Years 6,678 5,725 503 6,228 503 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* FY 2005 funding is a portion of $1,028,000 provided for hurricane damage related projects (P.L. 108-324) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Chains per hour 15,130 13,764 15,130 14,820 -310

Percent of wildland fires suppressed during initial 

attack (less than 300 acres) 99% 99% 99% 99% 0%

Program Description 

Wildland Fire Management – Preparedness program objectives are to protect life, property, and 

natural resources on approximately 193 million acres of National Forest System (NFS) lands 

along with 20 million acres of adjacent State and private lands protected through fee or 

reciprocal protection agreements. The agency conducts fire preparedness actions with the 

highest regard for public and firefighter safety. 

Preparedness activities include planning, prevention, detection, information and education, preincident training, equipment and supply purchase and replacement, and other such actions. 

Preparedness activities are implemented in cooperation with the Department of the Interior and 

the states. 

To distribute preparedness funds efficiently, the Forest Service calculates a Firefighting 

Production Capability (FFPC) based on the level of funding provided. FFPC equates to a 

specific number and mix of resources (e.g. personnel and equipment) identified in units’ fire 

management planning and budget analysis. FFPC represents the total fireline building capability 

of all firefighters and equipment if all were deployed at one time. Fireline building capability is 

measured in chains per hour, where one chain equals 66 feet. 

For FY 2007, the agency will maintain a level of readiness comparable to that planned in FY 

2006. This will be achieved through efficiencies implemented in the program leadership 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-5 

functions and agency-wide overhead. This level of readiness will be maintained consistent with 

firefighter safety as the primary consideration in all aspects of the wildfire suppression 

management program including training, deployment, suppression, and demobilization. 

Wildland Fire Management Preparedness Resources, FY 2005-2007 

Resource 

FY 05 

Actual 

FY 06 

Projected 

FY 07 

Planned 

Firefighters 9,385 10,010 9,810 

Prevention Technicians 419 399 399 

Smoke Jumpers 277 277 277 

Type I Interagency Hot Shot Crews 66 67 67 

Engines 899 950 930 

Water Tenders 38 63 47 

Dozers & Tractor Plow Units 143 152 146 

Type I, II, and II helicopters for local mobilization 83 86 84 

Type II helicopters for national mobilization 7 7 7 

Maintain capability of pre-2004 airtanker fleet through: 

 Airtankers 

 Type 1 helitankers/helicopters* 

17 

15 

16 

15 

Up to 20 

Up to 20 

* 15 ships under contract at 16 locations. 

FY 2005 Accomplishments 

• Successfully suppressed 99 percent of unwanted wildfires during initial attack. 

• Deployed an increased number of available non-military airtankers from 8 in 2004 to 17 in 

2005. All 17 airtankers were in compliance with the National Transportation Safety Board 

(NTSB) recommendations listed in the April 23, 2004 letter to the Secretary. 

• Trained 24 aviation maintenance inspectors, in partnership with the Federal Aviation 

Authority (FAA), to meet NTSB airworthiness inspection standards listed in the April 23, 

2004 letter to the Secretary. 

• Trained 658 students at the Wildland Firefighting Apprenticeship Academy (WFAA) in 

California. 

• Completed initial development of Phase I of the Fire Program Analysis (FPA) system in 

conjunction with the Department of Interior. Trained approximately 600 interagency 

personnel and prototyped the model with 27 Fire Planning Units; targeted two-thirds of the 

135 Fire Planning Units to complete an analysis in Fall of 2005. Initiated development of 

Phase II. 

• Initiated and completed a wildland fire management aerial application study on the costeffectiveness of Type I airtankers and helicopters for initial attack and incident management 

support to facilitate future aviation planning. 

• Completed Office of Inspector General (OIG) audit of national crew contracts; 

recommendations are being adopted using a strategy to maintain a national program at a level 

conducive to successful management. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-6 

• Continued using Wildland Fire Simulator training and re-certification for all agency Type III 

Incident Commanders. 

• Continued Fire Leadership training for fireline supervisors. 

• Completed development of fire management plans for all National Forest Systems lands 

under the interagency template. 

• Initiated a Government Accountability Office (GAO) study to review suppression cost 

relative to actions taken to reduce cost, issues relative to containing cost, and cost 

comparison. 

• Requested that OIG study large fire costs. They reviewed four large fires in 2005 and 

reviewed six historical fires from 2003 and 2004. Draft report is due spring of 2006. 

• Received an Independent Large Fire Cost Review Panel report for the 2004 fire season which 

identified two areas for emphasis, fire loss (durable goods and supplies) and implementation 

of cost share agreements. 

• Initiated a Panel to review two 2005 fires. 

• Hired a contractor to prioritize the many cost containment recommendations from OIG, GAO 

and other audits and report early 2006 on those recommendations that will gain the agency 

the most savings. 

• Implemented recommendations from commissioned studies and program initiatives identified 

in the National Academy of Public Administration (NAPA) report on wildfire suppression 

(Strategies for Containing Costs) and the OIG audit findings that include the following: 

o The report recommended implementing a comprehensive fuels reduction strategy and a 

community responsibility strategy. The agency has developed these strategies and 

measures of success through the Strategic Plan performance measures. 

o The report recommended the agency increase Incident Management Efficiency and 

Accountability. In response, the agency enhanced the existing WFSA and initiated 

development of a more comprehensive decision support system WFDSS, and evaluated 

the options associated with the universal deployment of an automated business 

management system, I-SUITE, to ensure management continuity on fires. 

o Fully implemented eight of the nine recommendations made by the OIG regarding 

firefighting safety. A negotiated strategy for implementing Recommendation #8 

(administrative investigations) was drafted for implementation in FY 2006. 

o Completed more than half of the 27 open hazard abatement action items identified by 

OIG and established realistic completion dates for the remaining open items. 

o Refined and enhanced the system used to track firefighter safety recommendations and 

designated the Director of Fire and Aviation Management (FAM) as the oversight official 

in response to OIG’s recommendation. 

o Developed safety performance standards for all firefighting personnel in response to 

OIG’s recommendation. 

• Continued implementation of and support to National Wildfire Coordinating Group (NWCG) 

incident management systems, including 

o Completed implementation of Phase I of the Resource Order and Status System (ROSS); 

transitioned Phase I to operations and maintenance. ROSS Phase II Charter developed. 

o Initiated Phase II of the Incident Based Automation (IBA) project to analyze business 

requirements for future automation. 

• Provided assistance to the Department of Homeland Security (DHS), Federal Emergency 

Management Agency (FEMA) including: 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-7 

o Support to Louisiana, Texas, Mississippi, Alabama, and Florida hurricane disaster 

recovery efforts. 

o Implementation of the National Response Plan (NRP) and the National Incident 

Management System (NIMS). 

o Created a position for the NIMS integration team to improve agency participation and 

fully integrate with all Federal agencies involved in disaster response. 

• Completed final phase of 3-year plan to purchase new generation fire shelters. 

• Initiated development of the WFDSS as a replacement decision tool for the WFSA. WFDSS 

will improve analyses of wildland fire management alternatives to enhance decision-making 

and facilitate cost containment. 

• Initiated development of a data warehouse project to enhance the applicability and 

interrelationships of fire data in the National Interagency Fire Management Integrated 

Database (NIFMID). 

• Converted the FireStat application (fire reporting system) to a web-based interface to 

enhance its use and maintenance and provide more accurate and responsive reporting. 

• Awarded contract for NWCG Incident Cache Business System Re-engineering (ICBS-R) 

project. 

FY 2006 Program 

• Commit to successfully suppressing 99 percent of unwanted wildfires during initial attack. 

• Refine delivery timeline of FPA 

• Continue support for the WFAA in California to assure quality and professional wildland fire 

training to enhance safety and leadership skills and to facilitate development of a 

representative workforce. 

• Collaborate with DOI and States to continue development of internet course modules that 

will assist rural fire departments in meeting National Fire Protection Administration 1051 

and NWCG qualifications. 

• Continue implementation of OIG national crew recommendations and maintain a program 

consistent with the agency’s ability to manage successfully. 

• Implement the negotiated strategy for recommendation #8 made by the OIG regarding 

firefighting safety. 

• Conduct two regional program activity reviews and two fire planning and budgeting reviews. 

• Complete Phase I (alternatives analysis) of the WFDSS and initiate Phase II development. 

The System will replace WFSA and improve analyses of wildland fire suppression 

alternatives to enhance decision-making and facilitate cost containment. 

• Follow-up on any recommendations from Office of Management & Budget (OMB) on the 

2002 Wildland Fire Management PART, and work with OMB on new performance measures 

for the FY 2006 PART reassessment. 

• Continue using the Wildland Fire Simulator training and re-certification for Type III Incident 

Commanders. 

• Continue Fire Leadership training for fireline supervisors. 

• Continue interagency development and implementation of the FPA system including 

completing a Phase I analysis for all interagency Fire Planning Units and continuing 

development of Phase II. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-8 

• Initiate Phase II, business management enhancements, of the NWCG, ROSS project. 

• Complete Phase I of the NWCG, IBA project, which will result in stabilization of the current 

I-Suite Application. Accept the recommendations from Phase II; a strategic planning 

document outlining interagency automation recommendations for improving the 

effectiveness of tools used at the incident. In addition, initiate Phase III which will begin 

implementation of prioritized recommendations from Phase II. 

• Continue validating and adjusting business processes for the NWCG, ICBS-R project. 

Complete a pilot test of the re-engineered application. 

• Participate in a NWCG effort regarding Interagency Fire Statistics improving quality and 

user access to statistical fire data. 

• Implement the Automated Flight Following (AFF) application nationally. This application 

replaces a labor-intensive manual process and enhances aviation safety throughout the entire 

US. 

• Participate in the national implementation of the Interagency Qualifications Certification 

System (IQCS). 

• Continue development of the Data Warehouse to enhance the applicability and 

interrelationships of fire data in the NIFMID. 

• Provide support to the WFLC chartered project concerning the establishment of the National 

Wildland Fire Enterprise Architecture (NWFEA) within the next 18 months. 

• Continue implementation and refinement of the Department of Homeland Security, FEMA’s 

NRP. 

FY 2007 Plans 

The Preparedness program is comprised of four primary components or cost centers; mission 

delivery, indirect costs, overhead and one-time costs. Each of these is described below: 

o Mission delivery costs include Fire and Aviation program capability to respond to 

wildland fire incidents and Forest, Regional, National program leadership and oversight. 

The capability delivered will be 9,810 firefighters with a Fire Fighter Production 

Capability (FFPC) of 14,820; as well detailed listing of resources that follows, at a cost of 

$391.9 million. Leadership is comprised of approximately 1,190 positions at the 

Forest/Regional level at a cost of $150.6 million and approximately 151 positions at the 

National level at a cost of $20.8 million. Mission delivery costs include support costs 

such as dispatch and coordination centers, training, unemployment, and workman’s 

compensation. 

o Indirect costs are defined separately in the budget justification. These costs are necessary 

for the operation of the Forest Service as an organization, but cannot be directly traced to 

a specific output. These include information resource, budget and financial management 

and personnel management staffs, along with rents and utilities and the facility 

maintenance assessments. This amount is $67.5 million. 

o Overhead costs include program elements essential to mission success and advancement, 

e.g., technology and development centers, application development and maintenance, 

program analysis and reviews and off-the-top law enforcement expenses. This amount is 

$35.2 million. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-9 

o One-time costs include those program components that incur a significant cost for a 

period not to exceed two years. The threshold for consideration is an annual expenditure 

of $2 million. There are no one-time projects currently planned in FY 2007. 

• Commit to successfully suppressing 99 percent of unwanted wildfires during initial attack. 

• Collaborate with DOI and States to continue development of internet course modules that 

will assist rural fire departments in meeting National Fire Protection Administration 1051 

and NWCG qualifications. 

• Continue full implementation of recommendations contained in the FY 2002 Wildland Fire 

Management PART. 

• Implement the FPA delivery timeframe agreed to in FY 2006. 

• Complete Phase II (develop initial prototype) of the WFDSS improve analyses of wildland 

fire suppression alternatives to enhance decision-making and facilitate cost containment. 

• Maintain a national crew contract program consistent with the agency’s ability to manage 

successfully. 

• Conduct two regional program activity reviews and two fire planning and budgeting reviews. 

• Maintain the NWCG, ROSS system and add new capabilities for tactical aviation resources, 

contracts and agreements, and interfacing with other systems. 

• Continue with Phase III of NWCG, IBA project. This phase will implement high priority 

recommendations from the Phase II of the Strategic Planning Project. 

• Cooperate with Business Operations to initiate business process reengineering (BPR) for 

automation of the aviation use data; Emergency Equipment Rental Agreement (EERA) and 

casual payments and standardization & automation of EERA solicitation and award. 

• Implement the re-engineered NWCG Incident Cache Business System. 

• Complete the WFLC chartered project to establish the NWFEA. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget proposes $655.9 million for Preparedness; a decrease of $10.2 

million from the FY 2006 enacted level. However, approximately $3.1 million dollars will be 

generated through indirect cost savings, thereby reducing the net decrease to $7.1 million. These 

savings provide funding for fire fighter capability. At this level of funding, the agency will 

maintain capability comparable to that planned in FY 2006. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-10 

Budget Line Item Fire Operations - Suppression 

 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $648,859 $690,186 $5,422 $50,568 $746,176 $55,990

Emergency & Supplemental Appropriations* $394,443 $0 $0 $0 $0 $0

Total Enacted Budget Authority $1,043,302 $690,186 $5,422 $50,568 $746,176 $55,990

Staff Years 2,113 3,350 -253 3,097 -253 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* Supplemental funding for fire suppression (P.L. 108-108) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Gross fire suppression costs per acre $846 $1,084 $676 $676 $0

$1,084 in FY 2005 includes approximately $76 million of FEMA support 

FY 2006 and 2007 are based on acres burned and non-inflated cost of suppression 

Program Description 

Suppression: Suppression operations provide the funding to suppress wildland fires on or 

threatening National Forest System (NFS) lands, and other Federal and non-Federal lands under 

fire protection agreements. Suppression operations also support non-fire emergency 

management activities conducted in support of the Department of Homeland Security (DHS), 

Federal Emergency Management Agency (FEMA) through Forest Service participation in the 

National Response Plan (NRP) and other activities authorized by the Stafford Act 42U.S.C. 5121 

(as amended).

Annual expenditures include Forest Service firefighter salaries and equipment maintenance in 

suppression activities. Additionally, suppression expenditures include payments to (1) nonfederal firefighting resources mobilized to assist in suppression of wildland fires; (2) contracts 

for suppression resources and equipment; (3) contracts for support activities such as catering and 

other incident management camp necessities; (4) the military in support of large fire suppression; 

and (5) non-wildland fire emergency operations of national significance as authorized by the 

Stafford Act. 

In general, the annual cost of suppression of wildland fires depicts an upward trend; in FY 2005 

there was an increase cost per acre burned. The FY 2007 President’s Budget continues funding 

for cost containment measures aimed at reversing the general upward trend. Wildland fire 

suppression costs increases are related to, (1) costs associated with the increased complexity of 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-11 

suppressing fires in the wildland-urban interface (WUI) including those areas of fire suppression 

in high hazardous fuel loads; (2) costs associated with large aircraft and helicopter operations; 

(3) national mobilization; and (4) the increased level of support for operations under the Stafford 

Act. The Forest Service implemented several program evaluations and management initiatives in 

FY 2005 to address increasing costs and efforts have continued in these areas, which are 

discussed under fiscal year sections. 

Burned Area Emergency Response: Wildfire often leaves behind a hazardous environment that 

endangers natural and cultural resources, life, and property. Burned Area Emergency Response 

(BAER) actions may be needed to prevent or minimize unacceptable threats to life and property, 

erosion and loss of soil productivity, deterioration of water quality and downstream damage, 

changes to ecosystem structure and function, establishment of invasive species, and degradation 

of cultural and natural resources. 

Fire Operations - Suppression funds BAER activities. The agency approves BAER funds on a 

per-project basis. Activities may begin before final suppression of a wildfire and cannot exceed 

one year after containment of the fire. BAER efforts must begin quickly to respond to 

emergency conditions. Trained specialists are assigned to large burns to survey, plan, 

implement, monitor, and maintain BAER treatments. 

Not all wildland fires that occur on NFS lands are of the size, location, and severity that require 

emergency response work. BAER program activity varies widely from year to year, depending 

on the values at risk after a fire. Some individual treatments can be very expensive, but annually 

average only about five percent of the total suppression costs. 

Severity Funding: In limited circumstances, the agency also uses Fire Operations – Suppression 

funds to increase the level of fire preparedness when predicted or actual burning conditions 

exceed those planned for, when wildland fire ignitions are predicted, or for extended fire 

seasons. 

FY 2005 Accomplishments 

• In collaboration with Federal, State, and local wildland firefighting agencies, the Forest 

Service participated in the suppression of approximately 66,000 wildland fires that burned 

approximately 8.6 million acres. Approximately 6,800 of the wildland fires burned 

approximately 637,000 acres of national forest land and protection land. 

• The agency permitted wildfires to burn 251,000 acres under Wildland Fire Use (WFU) 

activities, which provided a means to accomplish resource management needs. This total 

represents an increase over FY 2004 but a comparable program to FY 2003. The long term 

objective is to increase the utilization of wildland fire use. 

• Implemented safety, cost containment, and program action items from the Large Fire Cost 

Reduction Plan, the Fire and Aviation Management 2005 Operations Action Plan and outside 

audit findings that include the following: 

o Implemented an Aviation Action Plan to supplement the large airtanker fleet with 

other aviation resources to maintain capability. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-12 

o Developed a software program for dispatchers that compares helicopter cost and 

performance resulting in better, less costly decisions when selecting helicopters for 

fires. 

o Reaffirmed Agency Administrator financial oversight, which cannot be delegated. 

o Continued policy that requires an Incident Business Advisor (IBA) to be assigned to 

any fire with projected suppression costs of more than $5 million to ensure focused 

cost oversight activities. 

o Supported OIG audit on large fire costs. A report will be issued in Spring 2006. 

o Developed Cost-Effective Application of Science, Technology, and Information 

Management such as Phase I of the Fire Program Analysis system (FPA). 

o In response recommendations by the Government Accountability Office (GAO), 

completed a scientific analysis to explore an alternative method for accurately 

estimating annual suppression costs; initiated management analysis of findings. 

o Initiated assessment of seven cost action items identified by the Wildland Fire 

Leadership Council (WFLC). 

• In response to congressional direction, prepared a report of planned interagency suppression 

cost performance measures for implementation in FY 2006. Initiated development through 

Research, a stratified index of FY 2005 fires relative to cost, size, intensity, location and 

proximity to communities; report due early 2006. Additionally, developed for 

implementation in FY 2006, a method for identifying and reporting the Most Cost Effective 

(MCE) Wildland Fire Situation Analysis alternative; effective FY 2006 will report the 

percent of incidents utilizing the computer decision support system (WFSA) that adopt the 

MCE alternative. 

• Continued the incident obligation reporting process. This process allows for daily recording 

into the agency’s financial system of incident costs for large fire activity, all risk incidents 

such as FEMA support to hurricane response and aviation resources on all incident activity. 

• Completed implementation of the National Wildfire Coordinating Group’s (NWCG), 

Resource Ordering and Status System (ROSS) Phase I, in all dispatch and coordination 

centers. 

• Immediately following wildland fires, conducted BAER treatments, as required, for the 

protection of people, property and the environment. 

FY 2006 Program 

• Continue aggressive initial attack on unwanted and unplanned ignitions.

• Emphasize and increase wildland fire use in the revision of land and resource management 

plans and their application. 

• Continue to use WFU as prescribed in land and resource management plans and as 

appropriate with fire conditions. These wildland fire use accomplishments will be reported 

in the annual performance report. 

• Finish implementing program action items addressed in the FY 2002 Program Assessment 

Rating Tool (PART). Complete FY 2006 PART reassessment of wildland fire program.

• Continue to emphasize safety and cost containment through the Large Fire Cost Reduction 

Plan and the Annual Fire and Aviation Management 2006 Operations Action Plan, similar to 

those implemented in FY 2005 as addressed above. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-13 

• Simplify the accrual, payment and accounting process for aviation assets by developing an 

integrated electronic payment system. 

• Work with states to improve cost-share agreements to ensure costs are appropriately shared 

between the Federal Government and State or local jurisdictions. Incorporate findings from 

the FY 2005 GAO review and 2004 Independent Large Fire Cost Review Panel report as 

appropriate. 

• Emphasize findings (fire loss and cost share agreements) from the 2004 Large Fire Cost 

Review Panel report. Analyze findings from the 2005 fire season Large Fire Cost Review 

Panel report and implement as appropriate. 

• Continue to conduct national cost containment reviews on selected incidents. In addition, 

continue to implement recommendations contained in the Consolidated Large Fire Cost 

Report of 2003, which address suppression cost containment issues raised during reviews in 

FY 2003 and 2004 and provide oversight to ensure that cost containment measures are 

implemented. 

• Continue work on the NWCG, Incident Based Automation (IBA) Project including 

enhancements for the incident obligation reporting process. 

• Improve efficiency of vendor and casual employee accruals and payments by implementing 

an integrated electronic payment system which utilizes data from ROSS and I-Suite. 

• Continue implementing the appropriate recommendations contained in NAPA’s report, 

Wildfire Suppression: Strategies for Containing Costs, and other cost containment strategies, 

including:

o Development of a process to stratify wildfire incidents by scope and extent to provide a 

range of alternatives for each stratum on the basis of risk assessment. 

o Cost containment performance measures as well as actions, together with targets and 

milestones. 

o Timely completion of updated fire management plans linked to the National Fire Plan 

Operations & Reporting System (NFPORS) database that will facilitate increases in the 

annual number of wildland fire use fires and acres treated by wildland fire use. 

o Completion and deployment of an interim interagency performance measure system 

related to stratification of suppression cost. 

o Implementation and monitoring of suppression cost performance measures and the Most 

Cost Effective alternative for escaped fires. In response to congressional direction, 

implement interagency suppression cost performance measures action items identified in 

the FY 2005 report. Report a stratified index of FY 2005 fires relative to cost, size, 

intensity, location and proximity to communities. Report the percentage of FY 2006 

incidents escaping initial attack that adopt the Most Cost Effective alternative through the 

WFSA computer decision support system. 

• In response to recommendations by the GAO, complete management analysis of the 

alternative method for estimating annual suppression costs. 

• Continue to evaluate methods of supply analysis, including the filling of three acquisition 

positions supplemented as needed with contractors, specifically assigned to perform a supply 

chain analysis. Several groups are currently working on methods of supply analysis in 

relationship to suppression procurement activities. A strategic group initiated by the cache 

managers is looking at opportunities for centralized procurement, inventory, and delivery 

methods. The acquisition management staff is assessing efficiencies through standardization 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-14 

of processes and practices. Findings from the Office of the Inspector General (OIG) audit of 

procurement practices will be considered in the method of supply analysis as well. 

• Complete assessment of the seven WFLC cost action items and implement as appropriate. 

FY 2007 Plans 

• Continue aggressive initial attack on unwanted and unplanned ignitions while emphasizing 

wildland fire use where they align with National Forest Land Management Plans.

• Continue to use WFU as prescribed in land and resource management plans and as 

appropriate with fire conditions. These wildland fire use accomplishments will be reported in 

the annual performance report.

• Continue to emphasize safety, cost containment, and program action items from the FY 2002 

PART, the Large Fire Cost Reduction Plan and the Fire and Aviation Management Annual 

Operations Action Plan.

• Continue to provide cost oversight and monitoring of suppression cost through interagency 

cost performance measures, the MCE alternative and WFLC cost action items. 

• Implement suppression cost savings incentives by allocation not less than 50 percent of 

suppression to the regions and allowing them to use year-end un-obligated balances for 

vegetative treatments to improve the condition class of National Forest System lands. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget proposes a $56.0 million increase above the FY 2006 enacted 

amount for Suppression, which represents the most recent 10-year average for suppression costs 

adjusted for inflation. This level of funding will decrease the likelihood of having to transfer 

funds from other programs to cover additional suppression costs. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-15 

Budget Line Item Fire Operations-Other 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $377,687 $396,960 $4,138 -$34,966 $366,132 -$30,828

Emergency & Supplemental Appropriations * $30,286 $0 $0 $0 $0 $0

Total Enacted Budget Authority $407,973 $396,960 $4,138 -$34,966 $366,132 -$30,828

Staff Years 2,736 2,712 -127 2,585 -127 

Enacted Budget Authority by EBLI 

Hazardous Fuels $262,539 $281,793 $3,620 $6,379 $291,792 $9,999

Fire Rehabilitation $12,819 $6,188 $63 -$4,271 $1,980 -$4,208

Fire Research & Development $21,719 $22,877 $242 -$2,998 $20,121 -$2,756

Joint Fire Sciences $7,889 $7,882 $0 -$3,922 $3,960 -$3,922

Forest Health Management - Federal Lands $14,792 $14,780 $198 -$8,176 $6,802 -$7,978

Forest Health Management - Coop Lands $9,861 $9,852 $12 -$5,312 $4,552 -$5,300

State Fire Assistance $40,179 $45,816 $3 -$16,704 $29,115 -$16,701

Volunteer Fire Assistance $7,889 $7,772 $0 $38 $7,810 $38

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* FY 2005 funding includes funding for San Bernardino NF hazardous fuels (P.L.108-287), and hurricane damage related 

projects (P.L. 108-324) 

National Fire Plan Activities 

The FY 2007 budget request for Wildland Fire Management maintains funding for priority 

National Fire Plan activities including funding for programs of Wildland Fire Management, State 

and Private Forestry and Forest and Rangeland Research. Funded National Fire Plan Activities 

include: 

• Research and Development 

• Rehabilitation and Restoration 

• Forest Health Management-Federal Lands 

• Forest Health Management-Cooperative Lands 

• Cooperative Fire Protection-State Fire Assistance 

• Cooperative Fire Protection-Volunteer Fire Assistance 

Upon enactment of the FY 2007 Appropriations Act, the agency will transfer funds provided by 

Congress for all activities of Fire Operations – Other to the parent appropriation for distribution 

to the field. 

The individual National Fire Plan components, within the Fire Operations-Other category, are 

described separately in this section. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-16 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Hazardous Fuels 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $262,539 $281,793 $3,620 $6,379 $291,792 $9,999

Emergency & Supplemental Appropriations* $30,286 $0 $0 $0 $0 $0

Total Enacted Budget Authority $292,825 $281,793 $3,620 $6,379 $291,792 $9,999

Staff Years 2,344 2,370 -95 2,275 -95 

Estimated Funding by Activity 

Non Wildland-Urban Hazardous Fuel Projects $79,089 $92,868 $2,348 $95,216 $2,348

Wildland-Urban Hazardous Fuels Projects $183,450 $188,924 $7,652 $196,576 $7,652

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* FY 2005 funding includes $30,000,000 for San Bernardino NF hazardous fuels (P.L.108-287) and $286,000 for hurricane 

damage related projects (P.L. 108-324) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Acres of non-wildland/urban interface hazardous 

fuels mitigated 519,000 476,042 417,000 411,000 -6,000

High-priority acres treated in the wildland/urban 

interface 1,281,000 1,187,854 1,383,000 1,539,000 89,000

Acres of hazardous fuels reduction obtained 

through other land management activities 700,000 1,057,976 1,275,000 1,275,000 0

Program Description 

The objective of the hazardous fuels reduction program, as called for in the President’s Healthy 

Forests Initiative (HFI), is to reduce the undesired effects of large, destructive wildfires by 

reducing the volume of hazardous fuels on forests, woodlands, shrublands, and grasslands. The 

fuel treatment program focuses on reducing the risk of wildland fire and long-term damage to 

resources and property in high priority areas through fuel treatment. The desired outcome of the 

hazardous fuels program, as stated in the HFI, is to reduce the risk of unplanned and unwanted 

wildland fire to communities and to the environment. Often two or three treatments are required 

before obtaining the desired condition in areas with a greater amount of fuel than normal for a 

healthy fire resilient ecosystem (areas in Condition Class 2 or 3). Fuel treatment measures 

program performance in acres treated and by changes in vegetative condition otherwise known 

as changes in Condition Class. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-17 

Program objectives include: 

• Reduce the undesired effects of high intensity wildland fires that threaten public and 

firefighter safety, particularly near communities; 

• Reduce fire suppression costs through a decrease in high intensity fires; and 

• Reduce wildfire damage to forest and rangeland health, protect assets and improvements, and 

minimize degradation of air quality from large wildfires. 

An important piece of meeting the fuels reduction objectives of the HFI is the Forest Service’s 

integration of the hazardous fuels reduction program with other vegetative treatment programs. 

This integration allows the agency to increase the effectiveness of fuel and vegetation treatments 

on National Forest System (NFS) lands on a landscape scale. 

To better manage the reduction of hazardous fuels and track efforts to reduce fuel in more 

populated areas, hazardous fuels reduction is divided into two components: the reduction of 

hazardous fuels in the wildland-urban interface (WUI) and the reduction of hazardous fuels on 

other NFS lands. As provided under the Healthy Forests Restoration Act (HFRA), WUI areas 

are delineated in a Community Wildfire Protection Plan (CWPP) or equivalent collaborative 

process involving Federal, State and local stakeholders to describe areas where NFS lands are 

near or adjacent to communities that may be adversely impacted by wildland fire or meet the 

other definitions of WUI as outlined in HFRA. 

Funds provide for planning, implementing, and supporting hazardous fuels management 

activities. These activities include inventorying and mapping, prioritizing areas for treatment, 

analyzing treatment alternatives, determining and applying appropriate fuel treatment, managing 

fuel treatment effects, and monitoring and evaluating fuel treatment accomplishments. Fuel 

treatment methods include thinning, prescribed fire, mechanical removal of biomass, or chemical 

treatment. The type of treatment used depends on the characteristics of the area to be treated and 

management objectives. The land and resource management plans of each forest identify those 

objectives. 

The hazardous fuels program will continue to be coordinated with Federal and non-Federal 

partners. Specifically, coordination with other Federal agencies, through the implementation of 

the 10-Year Comprehensive Strategy Implementation Plan, and State and local communities, 

through the Cooperative Fire program, provides an effective means to protect communities and 

natural resources. The need for coordination is especially relevant on projects that cross agency 

boundaries and within the complex ownership patters found in the WUI. Close coordination is 

essential to accomplishing the program objectives. 

Additional benefits of fuel reduction may include restoration and maintenance of fire adapted 

ecosystems, increased availability of woody material for fiber and energy production, better 

water quality and yield, improved establishment and growth on reforestation sites, improved 

recreation opportunities, increased grazing opportunities, mitigation of smoke from wildland 

fires, improved ecosystem health, enhanced wildlife habitat, and decreased tree mortality due to 

insects and diseases. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-18 

FY 2005 Accomplishments 

• Implemented the President’s Healthy Forests Initiative, Healthy Forest Restoration Act of 

2003, and the 10-Year Comprehensive Strategy and Implementation Plan in collaboration 

with the Department of the Interior and State and local partners.

• Treated 1.66 million acres of hazardous fuels through the Hazardous Fuels Reduction 

program to protect communities and reduce flammability of forests, woodlands, shrublands, 

and grasslands. Field units responded to national program focus by treating 1.19 million 

acres within the WUI.

• Treated an additional 1.06 million acres as a secondary benefit of other land management 

activities that reduce hazardous fuels or contribute to an improvement in condition class, 

including Wildland Fire Use of 251,000 acres, and acres treated through State Fire 

Assistance hazard mitigation grants.

• Expended, nationally, 63 percent of the Hazardous Fuels Reduction program funding in the 

WUI.

• Included in the total treatments were also 371,980 acres in Condition Class 2 or 3 outside the 

WUI in Fire Regimes 1, 2, or 3. 

• Moved 2,002 acres to a better Condition Class, per million dollars of gross investment.

• Implemented joint performance measures with the Department of Interior to track the level of 

risk reduced by treatments. These measures reflect interagency efforts to increase 

accountability of the Federal wildland fire management program.

• Continued work with the Department of the Interior and The Nature Conservancy to further 

develop the Fire Learning Network.

• Continued a program initiated in FY 2002 to reduce fire hazards on adjacent non-Federal 

lands and protect communities from hazardous fuels reductions using prescribed fire on 

adjacent National Forest lands. Results of this effort are included in the total program 

accomplishments.

• Completed the LANDFIRE rapid assessment process for the continental United States. 

Three western map zones were completed with full LANDFIRE data and products available.

• Awarded $4.4 million in biomass utilization grants to 20 small businesses, community 

groups, and other enterprises to increase the use of small diameter woody material that is the 

byproduct of hazardous fuels reduction activities on NFS lands. Projects served to reduce 

management costs by increasing the value of woody biomass and other forest products; 

creating incentives and/or decreasing business risk for increased use of woody biomass from 

national forests; and instituting projects that target and help remove economic and market 

barriers in using small-diameter trees and woody biomass.

• Conducted nine Integrated Landscape Design pilots to assist with the development of the 

Strategic Placement of Treatments (SPOTS). 

• Developed the standardized SPOTS, a nationally consistent, interagency, integrated decision 

support process. This process uses a combination of available data and analysis tools in a 

collaborative setting to evaluate treatment options and provide better information to decision 

makers on how best to allocate resources to create treatment patterns that will hamper the 

spread of unplanned, unwanted fire at the landscape scale. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-19 

FY 2006 Program 

• Increase the use of authorities under the Healthy Forest Initiative, Healthy Forest Restoration 

Act of 2003, and Stewardship Contracts to treat hazardous fuels acres near communities and 

high priority non-WUI lands. 

• Guide priorities by the Healthy Forests Initiative, the Healthy Forests Restoration Act, and 

the 10-Year Comprehensive Strategy and Implementation Plan. 

• Complete and implement revisions to the 10-Year Implementation Plan of the National Fire 

Plan in coordination with Department of the Interior, Western governors, State Foresters, and 

other collaborators. 

• Treat 1.8 million acres of hazardous fuels through the Hazardous Fuels Reduction program to 

reduce flammability of forests, woodlands, shrublands, and grasslands, including 1.4 acres in 

WUI areas and 417,000 acres in non-WUI areas. 

• Reduce hazardous fuels on an additional 1.275 million acres as a secondary benefit of other 

vegetation management activities, and estimated acres treated through: Wildland Fire Use 

events, Hazard Mitigation Grants awarded under the State Fire Assistance program, and 

activities of the Southern Nevada Public Lands Management Act. 

• Treat 235,000 acres in Condition Class 2 or 3 outside the WUI in Fire Regimes I, II, or III 

(included in the 1.8 million acre total). 

• Improve Condition Class of 468,000 acres in Fire Regimes I, II or III as a result of hazardous 

fuels reduction treatments 

• Move over 1,800 acres to a better Condition Class per million dollars of gross investment. 

The Forest Service will strive to exceed these planned acres with the efficiencies created in 

the Healthy Forests Initiative and Healthy Forests Restoration Act.

• Select Wildland Fire Use as a tool when unplanned ignitions meet land management 

planning goals. When used properly, this tool can contribute significantly to fuel reduction 

objectives.

• Coordinate with tribal, State, and local governments, and other Federal agencies to focus 

treatment on high priority communities at risk. On Federal lands, emphasize short-interval 

fire adapted ecosystems to protect communities and natural resource values. 

• Coodinate treatments across the landscape with other landowners to maximize treatment 

effectiveness. 

• Increase emphasis on hazardous fuels reduction and changing Condition Class through 

integration with other Forest Service vegetative treatment programs. 

• Continue grant program to assist small forest products businesses, community leaders, 

entrepreneurs, non-profits, and others convert small diameter and underutilized wood species 

into marketable forest products, including energy and fuel from biomass. 

• Continue a program initiated in FY 2002 to reduce fire hazards on adjacent non-Federal lands 

and protect communities when hazard reduction burning poses a risk to lands adjacent to 

National Forests. Total projected program accomplishments are inclusive of this effort. 

• Complete development and initiate implementation of the standardized Strategic Placement 

of Treatments (SPOTS) begun in FY 2005. 

• Complete a new strategic allocation process that acknowledges past performance, resource 

needs, and community protection objectives. Criteria and process will be agreed to and 

tested in FY 2006 for implementation in FY 2007 allocation. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-20 

FY 2007 Plans 

• Increase the use of authorities under the Healthy Forest Initiative and Healthy Forest 

Restoration Act of 2003 to treat hazardous fuels acres near communities and high priority 

non-WUI lands. 

• Coordinate with other Federal, State, tribal and local agencies to ensure more effective 

treatments across the landscape. 

• Maximize integration with other Forest Service vegetative management and State assistance 

programs to maximize accomplishment of agency objectives. 

• Treat hazardous fuels on 1,950,000 acres of NFS lands, including 1,539,000 acres in WUI 

areas and 411,000 acres in non-WUI areas.

• Reduce hazardous fuels on an additional 1.275 million acres as a secondary benefit of other 

vegetation management activities, and estimated acres treated through: Wildland Fire Use 

events, Hazard Mitigation Grants awarded under the State Fire Assistance program, and 

activities of the Southern Nevada Public Lands Management Act.

• Move over 1,900 acres to a better Condition Class per million dollars of gross investment. 

The Forest Service will strive to exceed these planned acres under the efficiencies created in 

the Healthy Forests Initiative and Healthy Forests Restoration Act.

• Continue national implementation of the SPOTS process. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget proposes $291.8 million for Hazardous Fuels Reduction, an 

increase of $10 million above the FY 2006 enacted level. The increase will allow the agency to 

shift 7 percent more outputs into WUI acres compared to FY 2005. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-21 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Rehabilitation 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $12,819 $6,188 $63 -$4,271 $1,980 -$4,208

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $12,819 $6,188 $63 -$4,271 $1,980 -$4,208

Staff Years 88 46 -31 15 -31 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Rehabilitation projects completed 100 137 20 20 0

Program Description 

The Rehabilitation program restores forests and rangelands and protects communities from postfire damage. Prior to rehabilitation work, Burned Area Emergency Response (BAER) actions 

may be undertaken to prevent or minimize threats to life or property, or to prevent unacceptable 

degradation to natural resources resulting from the effects of a wildfire. The BAER program is 

funded through fire suppression. Emergency treatments must be completed within one year of 

the fire. BAER projects include road and trail treatments, mulching and seeding, and noxious 

weed treatments. 

The Rehabilitation program includes both short- and long-term efforts to improve lands unlikely 

to recover naturally from wildland fire damage, or to repair or replace minor facility damage by 

fire. Rehabilitation projects are funded with National Fire Plan and other appropriated dollars. 

The program focuses on significantly burned areas in watersheds and may include some 

treatments outside the burned area. This provides for comprehensive restoration efforts to 

restore overall watershed conditions. 

Projects consist of planning, implementation, and monitoring for up to three years following 

control of the wildland fire. Projects eligible for rehabilitation with FY 2007 funding are limited 

to those involving areas that burned in FY 2005 and later. Projects focus on restoring watershed 

function, including protection of soil, water resources, biological communities, and prevention of 

invasive species. Both biological and mechanical rehabilitation methods may be used to carryout 

a wide range of activities. These include: aquatic lake habitat restoration, abandoned mine 

restoration, developed recreation facility replacement, grazing management, heritage site 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-22 

restoration, insect and disease suppression, invasive plant treatment, land line location, planning, 

reforestation, road restoration, terrestrial habitat restoration, trail restoration, water sanitation 

systems, and watershed restoration. Accomplishments are quite diverse and activities are 

measured in acres treated, miles, and number for each individual project. 

FY 2005 Accomplishments

• Completed 137 rehabilitation projects across 35,669 acres in 13 States. Projects included 

reforestation, road and trail restoration, invasive plant treatment, heritage site restoration, 

grazing management, watershed restoration, and planning for these activities. This work 

included new projects from fires in 2005 and a continuation of project work begun in FY 

2004. 

• Rehabilitated and restored burned areas through reforestation; invasive plant treatments; 

seeding; insect and disease treatment; and rehabilitation and restoration of streams, roads, 

and trails. 

• Continued the Interagency Program to Supply and Manage Native Plant Materials, a longterm strategy to improve nursery and plant material center infrastructure, monitoring of 

restoration effects, and public/private partnerships. 

• Continued to reforest burned areas through a 5-year cost-share agreement with American 

Forests for Wildfire ReLeaf. 

• Developed a strategy with the Department of the Interior to establish monitoring protocols to 

evaluate the effectiveness of post-fire treatments 

FY 2006 Program

• Implement rehabilitation projects in the highest priority areas identified within areas burned 

during the fires of 2003, 2004, and 2005, and fund these projects from previously 

appropriated funds and other appropriate National Forest System budget line items. 

• Continue implementation of the Interagency Program to Supply and Manage Native Plant 

Materials. 

• Continue to implement the agreement with American Forests for Wildfire ReLeaf to enhance 

reforestation on burned areas. 

FY 2007 Plans 

• Continue to implement the agreement with American Forests for Wildfire ReLeaf. 

• Continue to implement the Native Plant Materials program for burned areas. 

Justification of FY 2007 Program Changes 

This funding level represents a program reduction of $4.2 million from the FY 2006 enacted 

budget. The Forest Service will continue working on highest priority projects. Critical new 

needs in response to wildfire will be prioritized along with regular National Forest System needs 

to ensure the highest priority work is accomplished using available rehabilitation and other 

National Forest System available funding. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-23 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Fire Research and Development 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $21,719 $22,877 $242 -$2,998 $20,121 -$2,756

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $21,719 $22,877 $242 -$2,998 $20,121 -$2,756

Staff Years 176 167 -1 166 -1 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Percent of R&D products and services that meet 

customer expectations 80% 78% 72% 72% 0%

Program Description 

The Forest Service Fire Research, Development and Application program (Fire R&D) supports 

five areas of inquiry and science application. These five areas are managed under an evolving 

Fuels and Fire Strategy developed as a collaborative effort between fire managers and 

researchers. The five areas and their associated elements are: 

• Core fire science: Improved understanding of combustion processes, fuels, fire weather, 

fire behavior, and transitions. 

• Ecological and environmental fire science: Interactions among fire, other natural 

disturbance processes, and the physical and biological components of ecosystems and the 

environment. 

• Social fire science: Social and economic dimensions of fire and fuels management. 

• Integrated fire and fuels management research: Landscape analysis and integrated 

interdisciplinary research to quantify the interacting effects of management strategies on 

ecology, environment, and society. 

• Application: Development and delivery of knowledge and tools to policy-makers, 

wildland fire managers, and communities. 

Investing in these areas helps 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 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-24 

programs to speed the adoption of fire-safe construction and landscaping practices. 

Fire R&D is key to carrying out all titles of the Healthy Forests Restoration Act of 2003 

(HFRA). Fire R&D activities by HFRA Title include: 

• Title I – Hazardous fuels reduction on Federal lands, by evaluations of condition classes 

on Federal lands; 

• Title II – Biomass, through improved management and utilization of small diameter 

species; 

• Title III – Watershed Forestry Assistance, by coordinated research on best management 

practices; 

• Title IV – Insect Infestations and Related Diseases, by National level research on native 

and non-native pests and diseases such as the hemlock woolly adelgid, emerald ash borer, 

various pine beetles, sudden oak death, and white pine blister rust; and 

• Title VI – Miscellaneous needs related to forest inventory and monitoring, detection and 

response to environmental threats to forest ecosystem health on Federal, State and private 

lands. 

FY 2005 Accomplishments 

The FY 2005 program continued emphasis on the four key point areas of the National Fire Plan: 

1) Fire Fighting, 2) Rehabilitation and Restoration, 3) Hazardous Fuels Reduction, and 4) 

Community Assistance. Seventy-two teams around the country were engaged in NFP research 

and development activities in 2005. 

1. Firefighting 

• Predicting continental-scale trends in fire risks and impacts - Because fire managers 

across the United States need better predictions of fire risks and fire impacts, researchers 

are producing maps linking weather conditions and fire occurrence since 1895. They are 

using this information to develop 3- to 12-month fire forecasts. These short-range 

predictions allow agencies to increase their fire preparedness by better anticipating 

firefighting needs.

• Improving the prediction of fire behavior in New Jersey’s volatile fuel type - 

Researchers are taking a multidisciplinary approach to improve the volatile pine barrens 

fuel model by enhancing fire weather monitoring in the region, analyzing historic fire 

climate records, and monitoring prescribed burns over a range of climate and humidity 

conditions. This information will enable the National Fire Danger Rating System 

(NFDRS) to be more useful to New Jersey’s wildfire management community. 

• Helping managers devise effective strategies for wilderness fire and fuels - This 

research project uses ecological and social science and is focused on three areas: 1) 

understanding natural fire regimes and their alteration by land management practices, 2) 

developing information and tools to improve fire and fuel management planning, and 3) 

anticipating consequences of management alternatives. Results from this research are 

helping managers devise effective strategies for managing fire and fuels across the full 

spectrum of lands extending from wilderness to the wildland-urban interface. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-25 

2. Rehabilitation and Restoration 

• Providing managers with improved alternatives for vegetation treatments - By 

monitoring the effects of fuel reduction and restoration treatments on the spread of 

weeds, researchers are providing managers with improved information on the relative 

risks of choosing alternative vegetation treatments. They have adapted and developed 

landscape invasive plant sampling methods in Oregon’s upper Grande Ronde River basin 

study area. 

• Developing techniques to prevent weedy species invasions - The proliferation of fireadapted species, such as cheatgrass in the Great Basin, is negatively impacting 

ecosystems by increasing fire frequency, intensity, and size. In response, researchers have 

developed improved equations for determining fuel loads for Great Basin woodland trees. 

They have also developed techniques for safely conducting small-plot burns in Great 

Basin shrub and woodlands. 

• Measuring the effectiveness of post-fire emergency rehabilitation actions - While 

expenditures for post-fire rehabilitation—including contour felled logs, surface raking, 

and native grass seeding—have increased dramatically in recent years, little quantitative 

information exists on the effectiveness of these treatments in reducing sediment 

movement and water output from burned areas. Researchers are therefore conducting 

studies to measure runoff and sediment production from watersheds receiving various 

emergency rehabilitation treatments. This information will help managers select 

emergency treatments most likely to be effective. 

3. Hazardous Fuels Reduction 

• Developing fuel and fire hazard mapping techniques - Researchers are developing 

techniques for monitoring and assessing fuels, mapping fuel characteristics, and 

validating fuel information using remote sensing. This information enables managers to 

more effectively assess fire hazard conditions as well as implement effective actions to 

reduce these hazards. 

• Exploring alternatives to prescribed fire for reducing fuels inside high-risk WildlandUrban Interfaces - California’s forested urban-interface is an explosive zone of high fuel 

loadings, droughty conditions, and high population densities. Using prescribed fire to 

reduce fuel buildup at the forest/urban interface is often impractical. Researchers are 

therefore examining a variety of fuel treatments as alternatives to fire to reduce fuel 

buildups, enhance soil properties, and improve carbon storage. Findings will help guide 

managerial decisions about treating fuels in a zone of extremely high risk. 

• Maximizing the value from small diameter crooked timber - Currently, much of this 

type of material is felled and left on the ground—or chipped and burned. To encourage its 

harvest and use, researchers are working to develop marketable products from forest 

undergrowth and underutilized timber by developing new sawing and drying processes. 

4. Community Assistance 

• Mapping the Wildland-Urban Interface across the United States and projecting its 

growth to 2030 - Because we actually know very little about the wildland-urban interface 

location, extent, and change over time, scientists are developing valid methods for 

estimating housing density at a fine scale over a long time period (1940-2030) across the 

United States. Through this comprehensive effort, it will be possible to clearly delineate 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-26 

wildland-urban interface areas and track their growth and change over time. This 

information will allow policy makers and fire professionals to better coordinate and 

prioritize hazard mitigation projects, and will also assist States and communities in their 

efforts to reduce the wildland fire vulnerability of homes and communities. 

• A web-based encyclopedia of Southern fire science and management knowledge - The 

Encyclopedia of Southern Fire Science is organizing and synthesizing the southern 

United States’ large body of fire science and translating this information into an Internetbased encyclopedia system. Researchers at the Southern Station are cooperating with a 

variety of research institutions and land management agencies across the South to 

compile literature and write original syntheses on a broad range of topics. These 

syntheses will be available to the public in a fully-linked and searchable encyclopedia 

hypertext system via the Internet, making access to this information universal, 

convenient, and free. 

• Preventing residential fire disasters at the wildland-urban interface - Scientists are 

examining and investigating what specific home design factors contribute to home 

ignitions in the wildland-urban interface. This information is critical to the development 

of “Firewise” homes and communities. 

FY 2006 Program 

The NFP Research program will continue to address priority needs of the fire and resource 

management through implementation of a new Fire R&D Strategic Plan. Based on the 

recommendations in this plan, NFP Research has been restructured, and is now managed in 11 

national areas that were identified through an intensive strategic planning process to meet the 

anticipated needs of managers through 2015. 

• As part of national efforts to restore healthy forest and rangeland conditions and protect 

communities from catastrophic wildland fire, FS R&D scientists and collaborators will 

develop tools or strategies that will (a) improve the ability of agencies, organizations, 

communities, and citizens to work together collaboratively to reduce the risks of wildland 

fire, and (b) enhance the long-term social capacity of communities to address wildfire 

risk. Researchers will capture and share current local and programmatic "lessons learned" 

concerning Community Wildlfire Protection Plans (CWPP) processes and outcomes and 

develop a system for continuously sharing new lessons as they emerge to facilitate 

planning and implementing fuel reduction projects. 

• Fire R&D will complete the western regional prototype application to validate its use in 

providing real-time predictions of smoke movements from wild and prescribed fires over 

extensive areas of the Western United States. The BlueSky smoke modeling framework 

was developed under National Fire Plan funding and expanded through numerous other 

collaborators (see www.fs.fed.us/bluesky). It is designed to provide incident command 

teams, air quality regulators, smoke forecasters, fire/fuel planners and managers, and 

affected publics essential information about smoke generation and dispersal from wild 

and controlled fires. 

• Fire R&D, in cooperation with the Wallowa-Whitman, Malheur, and Umatilla National 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-27 

Forests, and the Oregon Department of Forestry, will produce the Integrated Mapping 

and Assessment (IMAP) project for landscape models and analyses on the Blue 

Mountains. The landscape models will integrate natural disturbances (e.g. wildfire, 

insects, and disease) and management activities to project historical and potential future 

conditions under various management scenarios. These models are being adopted by 

ODF for its 10-year statewide forest assessment and will be used for National Forest land 

management plan revisions. 

• Fire R&D will complete several projects on the Biodiversity Initiative. These projects 

have been chosen as the result of requests and input from a large and diverse group of 

natural resource management practitioners. In June 2006, a major conference on 

managing for biodiversity will be convened in Portland, which will address many of the 

issues brought forward by clients, and deliver scientific concepts, tools, and strategies for 

achieving diverse biodiversity management objectives. 

• Fire R&D will enhance the FireMapper thermal imaging system by increasing its imaging 

resolution. Improvements to the system will include accurate location of fire fronts and 

quick delivery of the imagery to the Internet where they will be readily accessible to fire 

managers and others. FireMapper imagery will be used to test a fire spread risk process. 

• Researchers will use a detailed analysis of chaparral fuels data to better describe 

chaparral fuels for use in fire spread models. The basis for current description of 

chaparral fuels is extremely limited and is part of the cause for limited success of the 

current fire spread model in these fuels. 

• Research will continue on hazardous fuel reduction and small diameter materials; 

assessments of effectiveness, economics, and impacts of thinning and prescribed fire, and 

wildfire costs. 

• LandFire, a multi-partner effort, will continue to generate information to help land 

managers make decisions about fuels treatment and fire behavior. 

FY 2007 Plans 

• Fire R&D will continue to develop new knowledge and provide products in support of 

the National Fire Plan. This work will support a broad range of fire management 

operations with emphasis on programmatic fire planning, decision support for appropriate 

management response to wildland fires, fuel management and ecosystem restoration, 

rehabilitation and restoration of severely burned landscapes. 

• Researchers will continue working to improve fire fighting preparedness through tools 

and models developed to predict wildfire behavior, aggression, intensity, and effects, as 

well as smoke transport and fire-weather forecasting. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-28 

• Fire R&D will continue to help managers apply appropriate and cost-effective restoration 

and postfire rehabilitation treatments and develop improved procedures for monitoring 

treatment effects. 

• Fire R&D will continue to work toward improving understanding of community attitudes 

and beliefs and develop new approaches to work in partnership with communities to 

enhance preparedness and decrease the negative social and economic impacts from 

wildland fires. 

Justification of FY 2007 Program Changes 

The proposed level will fund research and development across the five areas. Recommendations 

for priorities related to research and development will be made by the Fire Research Strategic 

Program Area Team which includes national and Research Station personnel. Final decisions are 

reserved for the Deputy Chief for Research and Development. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-29 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Joint Fire Science Program 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $7,889 $7,882 $0 -$3,922 $3,960 -$3,922

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $7,889 $7,882 $0 -$3,922 $3,960 -$3,922

Staff Years 0 0 0 0 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

Program Description 

The Joint Fire Science Program (JFSP) develops science-based knowledge and tools to support 

Federal agencies and their partners in mapping, managing and monitoring fuels, restoring fireadapted ecosystems, post-fire rehabilitation, and addressing needs of fire and land managers for 

local research information. JFSP is an interagency program that has been supported since 1998 

by matching funds from the Department of the Interior (DOI) and the Forest Service (FS). A 

governing board made up of representatives from five DOI bureaus (Bureau of Land 

Management, National Park Service, U.S. Fish and Wildlife Service, Bureau of Indian Affairs, 

and U. S. Geologic Survey) and five Forest Service representatives manages the program. 

Combined DOI and Forest Service funding for the JFSP in FY 2006 total $14 million. 

JFSP-funded research is producing new information, knowledge synthesis, and tools for use by 

fire and fuels managers, agency administrators, and decision makers. The program focuses 

strongly on collaborating with managers in designing and carrying out research and on delivery 

of research products to end users. Areas of research include rapid response to assess fuel 

consumption and smoke production under a variety of moisture and fire conditions, modeling 

changes to canopy conditions to assess ecological and management implications, optimizing 

landscape treatment alternatives, assessing the historic role and contemporary uses of prescribed 

fire, effects of fire and rehabilitation seeding on wildlife habitat, and the consequences and 

correlates of fire in wetlands. The information obtained from JFSP demonstration sites and the 

tools developed through the program greatly improve the ability of local managers and citizens 

to make scientifically based, site-specific decisions regarding fire and fuels management and fire 

protection lands managed by Federal agencies and cooperators. 

The program selects projects for funding through a competitive process that addresses priority 

needs. JFSP research projects complement and build on other Federal research programs, such as 

those in Forest Service Forest and Rangeland Research and National Fire Plan (NFP) Research. 

The JFSP requires Federal agency participation in all projects and strongly encourages the 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-30 

inclusion of land managers on project teams. Because of this competitive funding process, the 

JFSP has a unique capability to quickly customize research to respond to the needs of policy 

makers and fire and land managers. 

FY 2005 Accomplishments 

JFSP funding supported 56 projects in 2005. A requirement of every project is Federal agency 

participation. Partnerships between managers and scientists, combined with a focus on making 

results available on the ground, are key ingredients for award of project funding and future 

success of implementation. 

• National Studies: JFSP completed the first phase of a major national study on the effects 

of prescribed fire and mechanical treatments in forest types characterized by frequent, 

low-severity fires. This study has used a common treatment design on 13 experimental 

sites located in ponderosa pine, mixed conifer, southern pine, and hardwood types across 

the United States. The JFSP also initiated support of a similar large-scale study of the 

effects of fire and other treatments on sagebrush and juniper sites in the Great Basin, as 

well as an integrated national study to evaluate the most successful collaborative 

processes in developing and implementing community wildfire protection plans and 

enhancing social capacity. 

• New guidelines for firefighter safety: New guidelines developed through JFSP-funded 

research consider not only the size of the safety zone, but also how the presence of 

multiple firefighting crews and their equipment and vehicles will affect the safety zone’s 

effectiveness as a safe haven from fire injury. Recommendations have already been 

incorporated into the incident response pocket guide and current wildland firefighting 

training curriculum. 

• Exploring improved wind models: Fire behavior models have typically assumed constant 

wind direction and speed. JFSP scientists adapted commercial fluid-dynamics software 

to predict wind flow over complex terrain. The new WindWizard tool was applied on 50 

wildland fires nationwide from 2003–2005. The complex wind fields generated by this 

tool can substantially improve the accuracy of spatial fire behavior simulations with 

FlamMap and FarSite. This new tool helps incident commanders allocate critical 

resources and improves their ability to manage fires safely and efficiently. 

• Integrating Databases for Fire and Fuel Managers: While there are several models and 

systems available for analyzing effects of fuel treatments at stand to landscape scales, 

there is no overall framework to aid project specialists in selecting or implementing the 

best tools for comparing fuel treatment scenarios. Researchers in La Grande, OR are 

developing ARCFUELS to facilitate the integration of corporate databases with 

commonly used software--such as the Fire and Fuels Extensions of the Forest Vegetation 

Simulator, Stand Visualization Simulator, and FlamMap and FarSite fire modeling 

systems--and to interpret model outputs. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-31 

• An analysis of JFSP Science Delivery: JFSP commissioned an examination of the 

program’s success at integrating new scientific findings and tools into management 

practices. This analysis will focus on evaluating the impediments to integrating new 

information into practice; describing changes in operations that will improve integration 

of new information; and recommending ways to manage the science integration process 

that uses successful existing practices and institutes ways to test and adopt new ones. 

• Enhancing Science Delivery: JFSP not only supports new research, but funds the 

development and support of science delivery projects. The program enhances and builds 

on existing successful applications. Three existing applications that fire and fuel 

managers depend on are BehavePlus, FlamMap, and FarSite. The JFSP funded the 

creation of additional training materials, online help and tutorials, and training 

presentations. 

The first research results from the JFSP were delivered in 2001. Since that time, practical 

research products have helped managers make informed decisions in the Departments of 

Agriculture and Interior, State agencies, and local communities. Research projects supported by 

the JFSP that fire and fuel managers and decision makers rely on everyday include: 

• The Fire Regime Condition Class System, which is being used nationally for evaluating 

fuel treatment priorities and effectiveness, and is an integral component of LandFire.

• Southern Utah Fuels Management Demonstration Project, which served as a 15 

million acre prototype and proof of concept for LandFire. 

• The Fire and Fuels Extensions (FFE) to the Forest Vegetation Simulator that enable 

managers to predict changes in fire behavior and effects in response to thinning and other 

fuel treatments for most forested United States ecosystems. 

• Stabilizing Post-Fire Sediments: JFSP and NFP rapid-response research on 

effectiveness of post-fire BAER treatments has led to substantial reductions in the use of 

contour felling, saving tens of millions of dollars, and shifted treatment choices to 

mulches, which are often more effective. 

FY 2006 Program 

New Research and Tool Development: In FY 2006, specific funding of new projects will be 

determined on May 1, 2006 after a peer review of proposals submitted in December 2005 in 

response to an announcement for proposals issued in October. Priority topics for FY 2006 

funding include: 

• A new program to fund research to build on or extend results of past JFSP research, remeasure past study sites or experimental plots, or evaluate and test models or modeling 

systems. 

• Rapid response studies on the behavior and effects of wildland fires (especially where 

previous land management treatments can be documented), effectiveness of post fire 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-32 

rehabilitation treatments, and decision processes related to determining appropriate 

management response to wildland fires. 

• Research addressing needs of managers to fill locally important or ecosystem specific 

knowledge gaps associated with planning and implementation of wildland fire and fuels 

management or post-fire treatments. 

• Research to enhance understanding past, current and future fire regimes in ecosystems or 

regions where such information is lacking. 

• Studies assessing the cumulative effects of wildland fuels treatments, and developing 

guidance for maintenance of fuel treatments on site and landscape scales. 

Performance accountability: The JFSP governing board will use the results of the science 

application evaluation commissioned in FY 2005 to guide revisions in the Program’s strategy for 

developing the science that managers need and moving that science into application. 

Starting in FY 2006, JFSP will pilot a new set of performance metrics for the program. The 

information will be reported both to the FS and to DOI. 

1) Regional or National use of JFSP products 

a) Output: Number of completed projects that have produced information or tools 

which are being used regionally or nationally by managers or policy makers. 

b) Output: Number of completed projects of regional or national scope 

c) Outcome: Percent of completed projects that have produced information or tools 

which are being used regionally or nationally by managers or policy makers. 

2) Scientific impact: 

a) Output: Number of peer-reviewed publications. 

b) Outcome: Percent of peer-reviewed publications cited in the science citation index 

within 2 years of publication. 

c) Outcome: Average number of citations per publication/year in peer-reviewed 

publications (as provided by the P.I. using Science Citation Index) within 5 years of 

publication. 

The governing board will continue to work with users to identify needs and incorporate them 

into the priority-setting process, and will evaluate the appropriate JFSP role in addressing DOI 

and FS strategic plans for wildland fire R&D, as well as strategic priorities identified by the 

White House Committee on Environment and Natural Resources. 

FY 2007 Plans 

• The program will continue to emphasize science application and technology transfer, 

balancing meeting local needs of managers with developing knowledge and tools with 

more national applications, and better integration across funded studies. 

• Research and science application funded under the JFSP will continue to be funded 

through a competitive process and to focus on addressing needs of the National Fire Plan, 

the Healthy Forests Restoration Act of 2003, and other priorities established by Congress 

and stakeholders from the management and policy communities. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-33 

• Adequacy of the pilot performance measures will be evaluated and they will be adjusted 

as necessary. 

• JFSP will work with participating agencies and other partners to complete a new 

Strategic Plan to guide the Program through 2012. 

Justification of FY 2007 Program Changes 

A decrease of $3,922,000 will provide funding in support of the JFSP projects targeted to the 

highest priorities by the governing board. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-34 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Forest Health Management – Federal Lands 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $14,792 $14,780 $198 -$8,176 $6,802 -$7,978

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $14,792 $14,780 $198 -$8,176 $6,802 -$7,978

Staff Years 118 120 0 120 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Federal acres treated under NFP - Invasives --- --- 1,641 1,895 254

Federal acres treated under NFP - Native 

plants --- --- 43,632 21,653 

Forest health acres treated on Federal lands 

(acres) 25,358 70,438 --- --- n/a

 

Program Description 

An overview of program activities is presented under the same program heading in the State and 

Private Forestry appropriation. The funding included in the Wildland Fire Management 

appropriation is specifically for implementation of the National Fire Plan. National Fire Plan 

funding provides technical assistance to help manage and control invasive insects and diseases, 

and to evaluate forest and tree health in areas of high risk of wildland fires and in previous 

burned areas. The program targets Federal lands close to cooperative lands to control damaging 

pest populations that have the potential to affect neighboring lands, including those of rural 

communities. This program enhances our ability to control and manage insect and disease 

outbreaks. It uses the products of Forest Health Management – Federal Lands program such as; 

digital aerial survey and computer population risk models that are available to interested Federal 

and non-Federal land managers to increase project efficacy. 

FY 2005 Accomplishments 

• Conducted native and non-native invasive insect and disease suppression, and prevention 

projects on 70,438 acres. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-35 

• Provided emphasis on restoration and suppression of bark beetle-caused infestations and 

mortality. Bark beetles caused particular problems in areas with fire-weakened trees and in 

areas at risk to wildland fires, including the wildland-urban interface. 

• Provided funds for the Evaluation Monitoring component of the Forest Health Monitoring 

program. Evaluation Monitoring investigates forest health issues identified from Forest 

Health Monitoring plot and survey data. The agency uses the information to determine the 

Federal lands in greatest need of protection and which acres will be part of the annual target 

and accomplishment. 

• Focused on invasive species suppression, prevention, and restoration efforts to support the 

goals of the Healthy Forests Restoration Act of 2003. 

FY 2006 Program 

• Conduct native and non-native invasive insect and disease suppression, and prevention 

projects on approximately 45,273 acres. 

• Provide emphasis on restoration and suppression of bark beetle-caused infestations and 

mortality. Bark beetles cause particular problems in areas with fire-weakened trees and in 

areas at risk to wildland fires, including the wildland-urban interface. 

• Provide funds for the Evaluation Monitoring component of the Forest Health Monitoring 

program. Evaluation Monitoring investigates forest health issues identified from Forest 

Health Monitoring plot and survey data. The agency uses the information to determine the 

Federal lands in greatest need of protection and which acres will be part of the annual target 

and accomplishment. 

• Focus on invasive species suppression, prevention, and restoration efforts to support the 

goals of the Healthy Forests Restoration Act of 2003. 

FY 2007 Plans 

• Continue to focus native and non-native invasive insect and disease suppression and 

prevention projects in areas of high risk of wildland fires and in previously burned areas. 

The budget request result in treatments on approximately 23,548 acres. 

• Provide emphasis on restoration and suppression of bark beetle-caused infestations and 

mortality. Bark beetles cause particular problems in areas with fire-weakened trees and in 

areas at risk to wildland fires, including the wildland-urban interface. 

• Provide funds for the Evaluation Monitoring component of the Forest Health Monitoring 

program. Evaluation Monitoring investigates forest health issues identified from Forest 

Health Monitoring plot and survey data. The agency uses the information to determine the 

Federal lands in greatest need of protection and which acres will be part of the annual target 

and accomplishment. 

• Focus on invasive species suppression, prevention, and restoration efforts to support the 

goals of the Healthy Forests Restoration Act of 2003. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-36 

Justification of FY 2007 Program Changes 

FY 2007 President’s Budget proposes a $7,978,000 decrease from the FY 2006 enacted level. 

Within the Forest Service budget proposal, funding for National Fire Plan – Forest Health 

Management of Federal lands reflects the priorities of the Administration, is consistent with 

previous proposals, and will allow the agency to meet most of the high prority needs for insect 

and disease management. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-37 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Forest Health Management – Cooperative 

Lands 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $9,861 $9,852 $12 -$5,312 $4,552 -$5,300

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $9,861 $9,852 $12 -$5,312 $4,552 -$5,300

Staff Years 8 7 0 7 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs. 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Forest health acres treated on cooperative 

lands 181,180 161,751 --- --- n/a

Acres treated on cooperative lands under NFP 

- Invasives --- --- 205,355 88,876 -116,479

Acres treated on cooperative lands under NFP 

- Natives --- --- 2,364 5,712 3,348

Program Description 

An overview of program activities is presented under the same program heading in the State and 

Private Forestry (S&PF) appropriation. The funding included in the Wildland Fire Management 

appropriation is specifically for implementation of the National Fire Plan. The National Fire 

Plan funding provides technical and financial assistance to States and Territories to conduct 

forest insects, pathogens, and invasive plant detection; monitoring; evaluation; prevention; and 

suppression on forestland owned by States, local governments, private organizations, and private 

individuals. Program focus will be on activities in areas at high risk to wildland fires, including 

communities in the wildland urban interface, and in previously burned areas. 

FY 2005 Accomplishments 

• Supported suppression and prevention of insect and disease on 161,751 acres of cooperative 

lands. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-38 

• Supported invasive plant control programs on State and private lands to controlling and 

managing invasive plant species on 154,106 acres. 

• Continued cooperative efforts with States to survey, detect, and evaluate insect and disease 

outbreaks and invasive plant species spread. 

• Projects targeted areas where fuels reduction projects are needed for prevention and 

restoration projects on lands of all ownership. 

• Provided technical assistance in support of Early Detection and Rapid Response activities for 

invasive plants. 

• Focused on invasive species suppression, prevention, and restoration efforts to support the 

goals of the Healthy Forests Restoration Act of 2003. 

FY 2006 Program 

• Support suppression and prevention of native and invasive insect and disease on 

approximately 207,719 acres of cooperative lands. 

• Support invasive plant control programs on State and private lands to control and managing 

invasive plant species on 146,600 acres. 

• Continue cooperative efforts with States to survey, detect, and evaluate insect and disease 

outbreaks and invasive plant species spread. 

• Projects will target areas where fuels reduction projects are needed for prevention and 

restoration projects on lands of all ownership. 

• Provide technical assistance in support of early detection and rapid response activities for 

invasive plants. 

• Focus on invasive species suppression, prevention, and restoration efforts to support the 

goals of the Healthy Forests Restoration Act of 2003. 

• Expand the ability to prioritize treatments using risk maps. 

FY 2007 Plans 

• Continue to focus technical and financial support for suppression and prevention of insect 

and disease on 94,588 acres of cooperative lands in areas at high risk to wildland fires, 

including communities in the wildland urban interface, and in previously burned areas. 

• Support invasive plant control programs on State and private lands to control and 

management invasive plant species on 66,897 acres. 

• Continue cooperative efforts with States to survey, detect, and evaluate insect and disease 

outbreaks and invasive plant species spread. 

• Projects will target areas where fuels reduction projects are needed for prevention and 

restoration projects on lands of all ownership. 

• Provide technical assistance in support of Early Detection and Rapid Response activities for 

invasive plants. 

• Focus on invasive species suppression, prevention, and restoration efforts to support the 

goals of the Healthy Forests Restoration Act of 2003. 

• Develop more effective bio-control agents to combat invasive species. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-39 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget has proposed a $5,300,000 decrease from the FY 2006 enacted 

level. Within the Forest Service budget proposal, funding for National Fire Plan Forest Health 

Management of Cooperative Lands reflects the priorities of the Administration and will allow the 

Forest Service to meet most of the high priority needs for insect, disease, and invasive plant 

management. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-40 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item State Fire Assistance 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $40,179 $45,816 $3 -$16,704 $29,115 -$16,701

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $40,179 $45,816 $3 -$16,704 $29,115 -$16,701

Staff Years 2 2 0 2 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs. 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Communities at risk from wildfire assisted - 

NFP 9,344 11,413 10,763 6,765 -3,998

 

Program Description 

Over 1 billion acres of State and private lands are under the protection of State and local fire 

agencies. Much of this land is adjacent to Federal lands and is a part of the wildland-urban 

interface (WUI). State Fire Assistance focuses funds in two areas, preparedness and hazard 

mitigation, with the majority of the funds focused toward hazard mitigation. Specifically, hazard 

mitigation efforts provide technical and financial assistance to States for grants to communities 

to implement fire protection activities such as hazardous fuel treatment, fire prevention and 

education campaigns, personnel training, equipment, personnel availability, and community 

planning. This program is the primary contributor to the national interagency Firewise program. 

The focus of this funding support is to ensure that State and local agencies can work to reduce 

hazardous fuels in and around communities and deliver a uniform, coordinated suppression 

response to wildfire. The Firewise Communities/USA program encourages communities and 

homeowners to take responsibility for hazard mitigation through land use planning, building 

codes, landscaping codes, zoning, and community fire protection planning. It focuses on 

individual and community acceptance of responsibility for protection of homes and infrastructure 

from catastrophic wildfire. State Fire Assistance is critical for building firefighting capacity and 

preparedness of State and local fire departments. This need is demonstrated by the recent 

extreme fire conditions on the Southern Great Plains in December 2005 and January 2006 where 

State and local fire departments provide wildland fire protection. 

All expenditures address the objectives of the National Fire Plan’s 10-Year Comprehensive 

Strategy Implementation Plan and the Federal Wildland Fire Management Policy and Program 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-41 

Review. Efforts are made to ensure that Federal policies are uniform and programs are 

cooperative and consistent across the landscape. Use of these funds will provide critical support 

to States and communities to reduce the losses of resources and property from wildfire. 

These funds, as well as the funding for this program within the State and Private Forestry 

appropriation, directly support implementation of the National Fire Plan 10-Year Comprehensive 

Strategy and are critical to protecting communities and resources from catastrophic wildland fire. 

FY 2005 Accomplishments 

• State Fire Assistance used 35 percent of its funds to improve the fire management capacity of 

the States. The program distributed the remaining 65 percent to States, through a competitive 

process, for high-priority hazard mitigation projects in communities at risk. 

• Total number of assists to communities was 11,413. Grants to communities provided funds 

to plan and implement the treatment of hazardous fuels, especially those in southern 

California. Hazard mitigation projects included fuel removal, improvement in water systems, 

Firewise training, community planning, and community-wide demonstration projects. 

• The national Firewise Communities/USA program continues to foster local collaboration and 

help facilitate community action to reduce wildfire hazards on private lands that are outside 

the scope of Federal and State land management agencies. As of August 1, 2005, more than 

118 communities in 29 States have earned Firewise Communities/USA recognition. This is 

up 900 percent from the 12 pilot communities in 2002. These local communities have 

invested more than $4.8 million on their own for mitigation efforts. 

• Projects emphasized high priority areas to reduce resource losses and enhance protection of 

the WUI. Activities will include training for local fire agencies, wildland-urban hazard and 

risk assessments, and improved cooperation among Federal, State, and local fire agencies to 

provide a coordinated response. 

• National Firewise efforts supported States and local Federal units in the delivery of Firewise 

education. 

FY 2006 Program 

• Efforts will continue to emphasize protection priorities in the WUI and place greater 

emphasis on community-based hazard mitigation. Besides a strong focus on hazard 

mitigation, technical and financial assistance will go toward building wildland firefighting 

capacity of State and local fire organizations to protect non-Federal wildlands and 

communities in the interface. The program will emphasize training and fire planning to 

deliver an efficient and effective fire suppression response. 

• The program will distribute funds as they were in FY 2004 and FY 2005, continuing the 

development of a more competitive process, rewarding accomplishment and cost sharing. 

Program priority will be to implement optimal wildfire risk mitigation projects in critical 

high-risk WUI communities. 

• States and cooperators will promote partnerships, community action plans, hazard reduction 

projects, improved building codes, fire resistant landscapes, and provide collaborative 

Firewise education and information workshops. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-42 

FY 2007 Plans 

• Efforts will continue to emphasize protection priorities in the WUI and place greater 

emphasis on community-based hazard mitigation and planning. Besides a strong focus on 

hazard mitigation, technical and financial assistance will go toward building capacity of State 

and local fire organizations to protect non-Federal wildlands and communities in the 

interface. The program will emphasize training and fire planning to deliver an efficient and 

effective fire suppression response. Funding for Community Wildfire Protection Plans is a 

priority. 

• The Forest Service, in collaboration with the State Foresters, is developing an allocation 

methodology that focuses funding on priority community wildfire protection planning and 

cooperative hazardous fuels treatments to reduce the danger of catastrophic wildfire. 

Program priority will be to implement optimal wildfire risk mitigation projects in critical 

high-risk WUI communities. 

• States and cooperators will promote partnerships, community action plans, hazard reduction 

projects, improved building codes, fire resistant landscapes, and provide collaborative 

Firewise education and information workshops. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget has proposed a $16.7 million decrease in program funds from 

the FY 2006 enacted level. Within the Forest Service budget proposal, funding for State Fire 

Assistance reflects the priorities of the Administration and is consistent with previous proposals 

for State Fire Assistance. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-43 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Volunteer Fire Assistance 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $7,889 $7,772 $0 $38 $7,810 $38

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $7,889 $7,772 $0 $38 $7,810 $38

Staff Years 0 0 0 0 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs. 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Volunteer fire departments assisted - NFP 

(number) 3,800 5,377 3,800 3,800 0

Program Description 

The Volunteer Fire Assistance program provides technical and financial assistance through the 

States for grants to rural communities for the protection of State and private lands and 

improvements. The program targets volunteer fire departments that protect communities with 

populations of less than 10,000. Local fire agencies are often the first line of defense in meeting 

the expanded protection needs for WUI areas threatened by wildfire. The National Fire 

Protection Association estimates there are more than 24,000 local fire agencies nationwide, with 

over 658,000 volunteer firefighters. Volunteer fire departments protect an estimated 43 percent 

of the population in the United States. Small rural fire departments provide initial attack on rural 

fires throughout the nation, contributing significantly to decreasing overall suppression costs. 

The Volunteer Fire Assistance program supports local fire suppression efforts by providing 

grants for equipment, training programs, and assistance in organizing fire departments. The 

State Forester in each State delivers the program. Grants are matched dollar-for-dollar by the 

recipients to leverage the value of the Federal investment. The Volunteer Fire Assistance 

program promotes safe and effective initial attack in WUI areas by focusing on training, 

equipping, and organizing volunteer fire departments. 

These funds complement the Volunteer Fire Assistance program funded through the State and 

Private Forestry appropriation, significantly expanding the benefits to the same target group. In 

addition, both of these funds directly support implementation of the National Fire Plan and are 

critical to protecting communities and resources from catastrophic wildland fire. 
FY 2007 Budget Justification USDA Forest Service

Wildland Fire Management 9-44 

FY 2005 Accomplishments 

• The program assisted State Foresters in meeting the equipment and training needs of 

approximately 5,377 volunteer fire departments. 

• The Forest Service and State Foresters continued to emphasize the need to prioritize 

assistance to those departments in locations at greatest risk from wildland fire, in the WUI. 

• Funds enabled the organization of 28 new fire departments. 

FY 2006 Program 

• The program, through grants, continues to support the critical needs of approximately 3,800 

rural volunteer fire departments and communities. The program will emphasize optimal 

wildfire risk mitigation for priority communities at greatest risk from wildland fire, along 

with providing for training and equipment needs. 

• Funds will also give priority to the training of rural fire departments in National Incident 

Management System (NIMS) training for rural fire departments in order to allow 

departments to more effectively coordinate with State and national wildfire and emergency 

organizations. 

FY 2007 Plans 

 

• The program will continue to work with the states to provide grants in support of the critical 

needs of approximately 3,800 rural volunteer fire departments and communities. 

• The program will emphasize optimal wildfire risk mitigation for priority communities at 

greatest risk from wildland fire, and funding for essential training and equipment. 

• Funds will give priority to rural fire departments in NIMS training for rural fire departments 

in order to allow departments more effectively coordinate with State and national wildfire 

and emergency organizations. 

• Funds will also assist rural fire departments in providing local leadership in the completion of 

community wildfire protection plans. 

Justification of FY 2007 Program Changes 

No change from FY 2006 is proposed. 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 

Chapter 10 

Capital Improvement and Maintenance

FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-1

Appropriation Capital Improvement and Maintenance 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $514,701 $434,687 $4,206 -$56,292 $382,601 -$52,086

Emergency & Supplemental Appropriations* $84,565 $7,000 $0 $0 $0 -$7,000

Total Enacted Budget Authority $599,266 $441,687 $4,206 -$56,292 $382,601 -$59,086

Staff Years 3,711 3,191 -336 2,855 -336 

Enacted Budget Authority by EBLI 

Facilities $198,769 $124,815 $768 $4,557 $130,140 $5,325

Roads $226,396 $222,181 $2,328 -$41,722 $182,787 -$39,394

Trails $75,707 $74,882 $1,045 -$15,586 $60,341 -$14,541

Deferred Maintenance $13,829 $12,809 $65 -$3,541 $9,333 -$3,476

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* Includes $50,815 for hurricane damage related CI&M projects and $10,000 for wildfire management training facility in San 

Bernardino Co., CA (P.L. 108-287), and $24,390 in southern California flood damage funds (P.L. 109-13); FY 2006 funding 

from P.L. 109-148 

Capital Improvement and Maintenance Programs 

The Capital Improvement and Maintenance program provides funding for maintenance and 

decommissioning of recreation developed sites; maintenance and decommissioning of fire, 

administrative, and other (FA&O) buildings and facilities, including recreation visitor centers, 

research facilities, telecommunication facilities, towers, and dams that are $250,000 or greater in 

cost; capital improvement and acquisition of recreation developed sites, FA&O buildings and 

facilities; and maintenance and capital improvement of the National Forest Road System (NFRS) 

and National Forest System (NFS) trails for recreation, fire, administrative, and other uses. 

Facilities 

The Facilities budget line item supports a multi-billion dollar infrastructure program. The 

infrastructure is necessary to carry out the mission of the Forest Service. Recreation facilities 

have the capacity to serve over 330 million visitors annually. Administrative facilities are 

needed to provide working space for over 36,000 employees, fire crews, and fire support 

personnel. 

Facilities includes developed recreation sites, such as campgrounds and day-use sites; fire 

facilities such as air tanker bases, lookouts, airports, heliports, and fire management centers; 

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

offices, regional offices, and research stations and labs), and other facilities such as employee 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-2

and family housing, service and storage buildings, telecommunication facilities, towers, and 

dams. 

Maintenance for recreation developed sites and FA&O facilities maintenance greater than 

$250,000 will be provided within this budget line item. Maintenance includes normal repairs, 

preventative maintenance, replacement of parts and structural components, and other activities 

needed to provide acceptable service and achieves the facility’s expected life. Maintenance may 

include demolition, dismantling, and disposing of unneeded facilities. Large deferred 

maintenance projects (greater than $250,000) typically include major rehabilitation or 

replacement of a facility with the same capacity and purpose. 

Capital improvements and acquisition for recreation developed sites and FA&O facilities are 

funded by this budget line item. Capital improvement projects include survey, design, contract 

preparation, contract administration, and construction costs. Capital improvements include 

construction of new facilities, alteration of existing facilities to change function, and expansion 

of facilities to change capacity to meet needs that are different from the original intent. 

Improvements are often required to expand public service capability or recreational 

opportunities. In many cases, capital improvements eliminate deferred maintenance. 

 

Roads 

The Roads program provides for the maintenance, capital improvement, decommissioning, and 

management of 375,000 miles of National Forest System roads and 6,500 bridges. The program 

also provides for the engineering support for planning; designs, plans, and estimates; and 

construction administration for roads needed for timber sale and land services contracts. The 

NFRS is an integral part of the rural transportation network and is operated and maintained to 

provide safe access for resource program activities. All resource and utilization programs are 

dependent upon the NFRS for access. 

Trails 

The Trails program funds the operation, maintenance, and rehabilitation of trails. The NFS 

contains approximately 133,000 miles of trails, 33,000 miles of which are inside wilderness 

areas. The NFS trails system accommodates over 50 million annual recreation visitor days of 

use with a variety of recreational activities including hiking, horseback riding, cross-country 

skiing, mountain biking, and off-highway vehicle use. 

Deferred Maintenance and Infrastructure Improvement

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 includes the repair, 

rehabilitation or replacement of infrastructure. It can include work needed to meet laws, 

regulations, codes, best management practices, and other applicable standards. It can also 

include demolition, dismantling, and disposing of unneeded infrastructure. 

 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-3

Infrastructure improvement can include the construction of new infrastructure, alteration of 

existing infrastructure to change its function, and the expansion of existing infrastructure to 

increase capacity. This program emphasizes infrastructure improvement projects that minimize 

or eliminate deferred maintenance. 

Program Assessment Rating Tool (PART) 

For the FY 2004 President’s Budget, Capital Improvement and Maintenance (CI&M) was one of 

many Federal programs selected to utilize the Program Assessment Rating Tool (PART). The 

CI&M program received an “adequate” score. Under PART, Federal programs are reviewed 

using a standardized set of performance management criteria. Using standardized criteria, the 

PART is designed to provide a consistent evaluation process by which agencies can evaluate the 

effectiveness of their programs. 

The assessment of the CI&M program found the program faces challenges in meeting its longterm goals, most of which appear to be management challenges. Specific actions to improve 

program performance include: 

• Utilizing enhanced disposal authority to reduce the number of excess facilities; aligning the 

road system with available resources; and assessing projects for efficiency improvements. 

• Continuing facility and developed recreation site master planning efforts to identify optimum 

locations, sizes and numbers of facilities to reduce future maintenance needs. 

• Continuing facility assessments to optimize utilization, reduce costs, and improve the facility 

condition index by reducing facility deferred maintenance by at least 25 percent by 2010. 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-4

Budget Line item Facilities 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $198,769 $124,815 $768 $4,557 $130,140 $5,325

Emergency & Supplemental Appropriations* $19,805 $0 $0 $0 $0 $0

Total Enacted Budget Authority $218,574 $124,815 $768 $4,557 $130,140 $5,325

Staff Years 1,024 583 79 662 79 

Estimated Funding by Activity 

Maintain Facilities $80,408 $50,764 $18,702 $69,466 $18,702

Improve Facilities $118,361 $74,051 -$13,377 $60,674 -$13,377

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* Includes $10,000 for wildfire management training facility in San Bernardino Co., CA and $9,195 for hurricane 

damage related CI&M projects from P.L. 108-287 and $610 from P.L. 109-13. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Facilities condition index* 86.5% 88.0% 87% 87% 0%

Percent of facilities with "Good" or "Fair" 

condition rating** --- --- 47% 67% 20%

Number of recreation sites whose Facility 

Condition Rating is good or fair*** [10,271] n/a [9,865] 9,460 -405

Number of projects completed 96 89 51 50 -1

* FA&O and research facilities are now maintained under the facilities maintenance multi-program assessment (Cost Pool 9) - 

see special exhibit on this subject for more information 

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

completed condition survey (92% completed) and does not represent anticipated improvements to overall facility condition. 

*** Activity used as output measure starting in FY 2007. Bracketed values in FY 2005 and FY 2006 provide trend data. 

Program Description 

The Facilities program provides for the maintenance, capital improvement, and program 

operations for a multi-billion dollar infrastructure related to facilities used for recreation, 

research, fire support, administrative, and other purposes to carry out the mission of the Forest 

Service. 

Beginning in FY 2006, Congress authorized a multi-program assessment for maintenance of fire, 

administrative, and other (FA&O) facilities, including recreation visitor centers. Appropriated 

funds from Research, State and Private Forestry, National Forest System, Wildland Fire 

Management, Capital Improvement and Maintenance appropriations, along with eligible 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-5

Permanent and Trust Fund accounts will be assessed up to $35 million. FA&O facilities include 

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

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

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

other facilities, such as telecommunication facilities, towers, and dams, and recreation visitor 

centers. In FY 2006, facility maintenance projects of less than $250,000 will be funded from 

this assessment. 

Maintenance projects for recreation developed sites, such as campgrounds and day-use sites, and 

FA&O facilities greater than $250,000 will be provided within this budget line item. 

Maintenance of Forest Service owned visitor centers with a replacement value in excess of $1 

million, is also funded by the facility maintenance assessment. The Recreation program 

maintains a total of 13,626 recreation sites and has the capacity to serve the recreation needs of 

more than 330 million visitors annually. The recreation infrastructure has a current replacement 

value of almost $3 billion. 

Capital improvement for all projects costing over $250,000 is included in this request. 

Improvement is defined as funding the construction, installation, or assembly of a new fixed 

asset, or the significant alteration, expansion, or extension of an existing fixed asset to 

accommodate a change of purpose. 

The facility project list is provided at the end of this section and includes both maintenance and 

capital improvement projects with a total cost of more than $250,000. A list of projects with 

estimated costs of less than $250,000 is available upon request. 

Maintain Facilities – Maintenance is defined as the act of keeping fixed assets in acceptable 

condition. It includes normal repairs, preventive maintenance, replacement of parts and 

structural components, and other activities needed to preserve a fixed asset so that it continues to 

provide acceptable service and achieves its expected life. Maintenance excludes activities aimed 

at expanding the capacity of an asset or otherwise upgrading it to serve needs different from, or 

significantly greater than, those originally intended. Maintenance funds are used for any needed 

contract preparation, contract administration, and program management or maintenance 

activities. 

Annual maintenance includes work performed to preserve the serviceability of a facility such as 

preventive maintenance, repairs, and replacement of damaged or unusable components. It 

includes work needed to meet laws, regulations, codes, best management practices, and other 

applicable standards, as long as the original intent or purpose of the facility remains unchanged. 

Maintenance may include demolition, dismantling, and disposing of unneeded facilities. Proper 

maintenance provides efficient public service and maintains the value of the government’s 

infrastructure investment. 

Maintenance that is not performed as needed or scheduled is defined as deferred maintenance. 

Deferred maintenance causes deterioration of facility performance, increased repair costs, and a 

decrease in facility value. Large deferred maintenance projects (greater than $250,000) typically 

include major rehabilitation or replacement of a facility when it is more cost effective, more 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-6

environmentally sound, or in the best interest of the Government to rehabilitate or replace an 

asset with the same capacity and purpose. Replacement of an asset usually occurs when it nears 

or has exceeded its useful life. Both rehabilitation and replacement actions are taken to reduce or 

eliminate deferred maintenance. Forest Service recreation sites currently have a deferred 

maintenance backlog of approximately $328 million dollars, excluding roads and trails. 

Improve Facilities – The improve facilities activity includes capital improvements for FA&O 

facilities, visitor information centers, and developed recreation sites. The facilities provide 

public service and recreational benefits to a diverse population. Capital improvement projects 

include survey, design, contract preparation, contract administration, and construction costs. 

Capital improvements include construction of new facilities, alteration of existing facilities to 

change function, and expansion of facilities to change capacity to meet needs that are different 

from the original intent. Improvements are often required to expand public service capability or 

recreational opportunities. In many cases, capital improvements eliminate deferred maintenance. 

FY 2005 Accomplishments 

• Focused the maintenance program on high-priority maintenance needs to reduce deferred 

maintenance backlog. Priority was given to correcting critical health and safety conditions. 

• Focused the capital improvement program on replacing obsolete facilities and constructing 

mission-critical facilities to accommodate consolidation and public service needs. 

• All field units completed revision of their facility master plans, which identified fire, 

administrative, research, visitor center, and other facilities for decommissioning, retention, 

alternate use, or acquisition. These plans will be used to manage the facility inventory, 

reduce the deferred maintenance backlog, and decommission unneeded facilities. 

• Completed the analysis phase of Recreation Site Facility Master Planning (RSFMP) on 20 

national forests. 

• Used volunteers, concessionaires, and other human resource program enrollees to operate 

approximately 70 percent of the recreation sites, allowing forest personnel to provide 

program administration and supervision with available funds. 

• Began implementation of internal program review results to enhance efficiency, prioritize 

facility projects to support national objectives, and better demonstrate program results for the 

program. This internal review was performed in response to OMB’s PART evaluation of the 

National Forest Improvement and Maintenance program. OMB Circular A-11 was used as 

the primary reference to guide the internal program review. 

• Implemented 11 fire facilities capital improvement and maintenance projects across the 

Nation. Projects focused on deferred maintenance and health and safety needs. Projects 

included rehabilitation and improvement of fire lookouts, crew quarters, radio towers, engine 

storage facilities, warehouses, fire stations, helibases, and airtanker bases.

• Continued to process the FY 2002 - FY 2005 pilot conveyance projects authorized in the FY 

2002 – FY 2005 Interior and Related Agencies Appropriations Acts. Seven of the FY 2002 

authorized sales have been completed. Conveyance of these projects reduced the deferred 

maintenance backlog by approximately $5 million and provided approximately $20 million 

for maintenance and construction of new facilities. 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-7

• Provided $4.3 million for maintenance of research facilities. Projects focused on highpriority maintenance and minor improvements, especially the backlog of maintenance 

projects. Priority was also given to correcting critical health and safety conditions. 

• The research facilities capital improvement program focused on high priority capital 

improvements and addressed $6.9 million of deferred maintenance backlog needs, 

emphasizing critical health and safety and mission-critical needs. 

• Implemented research station facility master plans and completed remaining station facility 

master plans. 

• Continued to address security assessments of all research station offices and field 

laboratories.

FY 2006 Program 

• Through Facility Master Planning and RSFMP, the agency is beginning to make headway by 

identifying for decommissioning capital assets which no longer contribute to the 

accomplishment of its mission. RSFMP is also prioritizing facilities for closure where 

resources are not available to operate them to standard. 

• Complete the analysis phase of RSFMP on 40 national forests. Finalize and begin 

implementation of action plans on 20 national forests. 

• Focus on high-priority maintenance emphasizing critical health and safety needs. 

• Focus on high-priority capital improvement and deferred maintenance backlog needs with 

emphasis on critical health, safety and mission-critical needs. 

• Use volunteers, concessionaires, and other partners to enhance recreation experiences and to 

help maintain campgrounds. These arrangements allow forest personnel to more efficiently 

provide program administration and supervision. 

• Continue implementation of the action plan resulting from internal program review of facility 

program management procedures and practices to enhance efficiency, prioritize facility 

projects to support national objectives, and better demonstrate program results. Implement 

program modifications to respond to the PART evaluation. 

• Complete the sale of the FY 2002 pilot conveyance projects and continue processing the FY 

2003 and FY 2004 projects for sale. Select 10 projects under the FY 2005 authority. 

• Provide $5.0 million to the research facilities maintenance program. Projects will focus on 

high-priority maintenance and minor improvements, with emphasis on annual, cyclical, and 

deferred maintenance needs. Emphasis will also be placed on critical health and safety 

needs. 

• Continue to focus the research facilities capital improvement program on high-priority 

capital improvements, and address $2.2 million of deferred maintenance backlog needs with 

emphasis on addressing critical health and safety and mission-critical needs. 

• Implement completed research station facility master plans and complete remaining station 

facility master plans. 

• Continue addressing security needs at station offices and field laboratories. 

• Begin preparation of portfolio reviews of capital assets to determine alignment with agency 

mission needs and potential reconciliation with existing capabilities, priorities, and resources. 

• Identify conveyance projects to initiate in FY 2006 and FY 2007, begin processing 

conveyances, and identify the appropriate use of any proceeds obtained. 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-8

FY 2007 Plans 

 

• Continue to focus the developed recreation site maintenance program on high-priority 

maintenance emphasizing critical health and safety needs. 

• Continue to focus on high-priority capital improvement and deferred maintenance backlog 

needs with emphasis on addressing critical health and safety and mission-critical needs. 

• Emphasize drinking water and sanitation system deferred maintenance projects. 

• Use volunteers, concessionaires, and other partners to enhance recreation experiences and to 

help maintain campgrounds. This arrangement allows forest personnel to be available for 

program administration and supervision with available funds. 

• Complete the analysis phase of RSFMP on 40 additional forests. Finalize and begin 

implementation of action plans on 40 national forests. 

• Complete implementation of identified changes to facility program management based upon 

the results of internal review. 

• Continue implementation of the FY 2002 – FY 2005 pilot conveyance authority. 

• Continue to focus the research facilities capital improvement program on high-priority 

capital improvements that will address deferred maintenance backlog needs with emphasis 

on addressing critical health and safety and mission-critical needs, including the Forest 

Products Laboratory modernization project. 

• Continue emphasis on security needs at research station offices and field laboratories. 

• Implement all facility master plans. 

• Identify conveyance projects to initiate in FY 2008, as well as the appropriate use of 

proceeds, and continue processing projects initiated in FY 2006 and FY 2007. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget proposes a $5.3 million program increase in Facilities from the 

FY 2006 enacted budget. Additionally, the President’s Budget includes a request to continue 

authority for a multi-program assessment for facility maintenance for FA&O facilities, including 

recreation visitor centers with a replacement value in excess of $1 million. 

The agency will continue to focus funding primarily on addressing the deferred maintenance and 

capital improvement backlog at exisiting facilities and disposing of unneeded facilities to 

optimize the use of future funding. 

On the following pages, facility improvement projects are listed by region and station. Projects 

costing more than $250,000 to complete are listed individually, while projects valued under 

$250,000 are aggregated under the title “minor facility projects.” 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-9

 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 253 100 53 100 5,009 752 All All Regionwide Minor Construction ** 3,240 1,105 2,135 54 1,005 214 R101 MT 1 Custer Jimmy Joe Campground Reconstruction N 277 55 222 307 146 R102 MT 1 Lewis & Clark Renovate District Offices for Security N 500 200 300 505 R103 ID 1 Nez Perce Grangeville Air Center Office N 728 611 117 45 150 REGION 1 TOTAL 4,998 $ 2,016 $ 417 $ 2,243 $ 322 $ 406 $ - $ 1,806 $ 5,223 $ 752 $ - $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 440 100 120 70 150 103 6 4,807 789 150 All All Regionwide Minor Construction ** 109 109 50 111 200 All All Regionwide Prior Year Project Contract Admin. & Modification 18 18 R201 WY At-large Bighorn Hunter Campground & Trailhead N 248 248 111 111 850 5 5 5 R202 WY At-large Medicine Bow-Routt Brush Creek WC Rehab N 510 510 52 30 R203 Neb 3 Nebraska SO Addition/Pine Ridge RD N 755 675 80 20 25 R204 WY At-large Medicine Bow-Routt Saratoga Shop Building N 304 304 48 20 R205 WY At-large Shoshone Falls Campground N 756 756 251 17 340 20 R206 CO 3 San Juan Cayton Campground N 495 495 349 100 - - R207 CO 3 Rio Grande North Clear Creek Falls Overlook N 219 184 35 55 70 R208 SD At-large Black Hills Deerfield Campground N 421 421 57 250 R209 CO 5 Pike-San Isabel, CC Squirrel Creek Recreation Area N 389 178 211 76 29 180 7 3 1 R210 CO 3 Grand Mesa, Uncomp, Gunnison Roper Landscaping N 108 108 R211 KS 1 Pike-San Isabel, CC Elkhart Purchase N 268 268 R212 WY At-large Shoshone Wind River Storage Y 1,899 1,669 230 97 30 R213 WY At-large Big Horn Boulder Park Campground N 349 40 309 124 122 380 20 8 8 REGION 2 TOTAL 7,288 $ 3,124 $ 940 $ 1,324 $ 1,900 $ 1,121 $ 451 $ 2,587 $ 4,964 $ 805 $ 164 $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Facilities Funds Breakout Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost FY 2007 FY 2007 Facilities Projects REGION 2 - ROCKY MOUNTAIN REGION Facilities Funds Breakout FY 2007 Facilities Projects REGION 1 - NORTHERN REGION (In thousands of dollars) Construction Cost Beyond FY 2007 OUTYEAR COST (In thousands of dollars) OUTYEAR COST Construction Cost Beyond
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-10

 

 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 446 300 46 100 7,011 2,126 All All Regionwide Minor Construction ** 529 132 397 816 299 R301 NM 3 Lincoln Sacramento Administrative Site N 1,952 1,952 297 1,445 215 R302 AZ 1 Prescott Thumb Butte Picnic Ground N 460 92 368 194 117 R303 AZ 3 Kaibab Jacob Lake Campground N 911 911 515 554 R304 NM 2 Lincoln Deerhead Campground N 642 642 250 476 R305 NM 3 Santa Fe San Antonio Campground N 889 889 291 565 R306 NM 1 Cibola Capulin Snow Play Area N 508 167 341 50 85 REGION 3 TOTAL 6,337 $ 2,384 $ - $ 702 $ 3,251 $ 2,413 $ - $ 3,541 $ 7,226 $ 2,126 $ - $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 113 35 25 53 52 2,150 720 R401 UT 2 Uinta Little Mill Campground Reconstruction N 989 989 976 1,000 R402 ID 2 Sawtooth Redfish Lake Complex Deferred Mtc. Reduction Phase 1 N 391 391 311 307 138 350 REGION 4 TOTAL 1,493 $ 35 $ 25 $ - $ 1,433 $ 1,339 $ - $ 1,307 $ 2,288 $ 1,070 $ - $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost FY 2007 Facilities Projects REGION 4 - INTERMOUNTAIN REGION (In thousands of dollars) FY 2007 Facilities Funds Breakout FY 2007 Facilities Projects REGION 3 - SOUTHWESTERN REGION (In thousands of dollars) OUTYEAR COST Construction Cost Beyond OUTYEAR COST Construction Cost Beyond FY 2007 Facilities Funds Breakout
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-11

 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS CA All Regionwide Planning & Design * 594 100 250 100 144 7,614 442 CA All Regionwide Minor Construction ** 735 443 292 649 R501 CA 25 Angeles Santa Clara Mohave RD Office N 743 743 495 490 R502 CA 25 Inyo Inyo NF Food Storage Lockers N 373 373 40 R503 CA 2 Lassen Chester Helibase Y 586 586 489 R504 CA 2 Lassen Almanor Group Campground N 760 760 408 93 1,230 R505 CA 1 Six Rivers Ship Mountain Lookout Y 267 267 41 41 R506 CA 2 Plumas Challenge Barracks Y 555 555 46 R507 CA 44 San Bernardino Keenwild Helibase Y 527 527 440 R508 CA 2 Shasta-Trinity McCloud River Complex Phase II N 287 287 215 31 86 R509 CA 21 Sequoia Peppermint WC Expansion Y 548 548 40 240 R510 CA 19 Sierra Pine Point and Pine Slope Rehabilitation N 350 350 80 42 735 R511 CA 4 Tahoe Hobart WC Fire Station Y 527 527 - R512 CA 4&1 LTBMU Pope Beach Toilet Replacement N 425 425 355 REGION 5 TOTAL 7,277 $ 4,296 $ 250 $ 1,152 $ 1,579 $ 1,319 $ 166 $ 4,801 $ 7,614 $ 442 $ - $ *Planning and design for projects costing more than $250,000. **Projects costing less than $250,000. Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 495 300 95 100 3,475 200 All All Regionwide Minor Construction ** 1,505 1,089 416 1,513 R601 OR 2 Malhuer Forest Headquarters Office N 2,970 2,770 200 297 R602 WA 4 Okangon-Wenatchee Salmon La Sac II N 626 626 504 R603 OR 3 Mt. Hood MTH Historical Structures II N 495 495 450 R604 OR 4 Rogue River-Siskiyou Scenic Illinois Reconstruction II N 248 214 34 224 36 223 R605 WA 4 Okanogan-Wenatchee 25 Mile Boathouse and Dock N 495 495 445 REGION 6 TOTAL 6,834 $ 4,654 $ 295 $ 630 $ 1,255 $ 521 $ 36 $ 3,135 $ 3,475 $ 200 $ - $ **Projects costing less than $250,000. Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost Facilities Funds Breakout *Planning and design for projects costing more than $250,000. FY 2007 Facilities Projects REGION 5 - PACIFIC SOUTHWEST REGION Facilities Funds Breakout FY 2007 (In thousands of dollars) (In thousands of dollars) REGION 6 - PACIFIC NORTHWEST REGION OUTYEAR COST Construction Cost Beyond FY 2007 FY 2007 Facilities Projects OUTYEAR COST Construction Cost Beyond
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-12

 

 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 1,084 700 184 100 100 380 11,160 All All Regionwide Minor Construction ** 446 446 350 All All Regionwide Prior Year Project Contract Admin & Modifications 297 70 30 47 150 300 R801 FL 6 Florida Ocala Helibase Y 248 248 50 R802 TN 1 Cherokee Paint Creek Corridor - Recreation Rehabilitation N 327 327 233 300 R803 FL 3 Florida Clearwater Lake Recreation Area Bathhouse N 495 495 25 418 R804 AR 3 Ozark-St.F Ozark-St. Francis Supervisors Office - Phase 2 N 1,782 591 1,191 1,250 R805 FL 8 Florida Lake Dorr Recreation Area Bathhouse N 287 287 16 263 R806 AR 4 Ouachita Ouachita Supervisors Office Build- out N 1,663 1,663 - R807 TX 2 Texas Ratcliff Lake Recreation Area - Water/Sanitation N 257 257 257 R808 AR 1 Ozark-St.Francis Blanchard Swim Beach - Bathhouse Rehabilitation N 337 337 282 R809 MS 3 Mississippi Turkey Fork Recreation Area - Rehabilitation N 465 465 385 650 500 R810 NC 11 North Carolina Dry Falls Recreation Area - Rehabilitation N 644 644 881 350 300 950 R811 AR 3 Ouachita Shady Lake Recreation Area - Bathhouse Rehabilitation N 312 312 225 REGION 8 TOTAL 8,644 $ 3,272 $ 1,405 $ 593 $ 3,374 $ 922 $ - $ 4,743 $ 12,410 $ 1,450 $ - $ *Planning and design for projects costing more than $250,000. **Projects Costing less than $250,000. Facilities Funds Breakout FY 2007 Facility Deferred Maintenance Eliminated by FY 2007 Cost FY 2007 Facilities Projects (In thousands of dollars) REGION 8 - SOUTHERN REGION OUTYEAR COST Construction Cost Beyond
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-13

 Cong Fire FA&O FA&O Rec Rec ID State District Forest Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Regionwide Planning & Design * 297 297 50 3,980 500 All All Regionwide Prior Year Project Contract Admin & Modifications ** 856 800 56 99 R901 IL 19 Shawnee Vienna Administrative Site N 3,297 3,144 153 396 3,312 R902 IN 4 Hoosier Brownstown Administrative Site, Land Purchase N 495 495 3,000 500 R903 WI 7 Chequamegon-Nicolet Rhinelander Office Purchase & Renovation N 891 316 575 50 R904 NH 2 White Mountain White Mountain Adiministrative Site - Phase 1 N 2,295 2,295 743 829 6,336 250 REGION 9 TOTAL 8,131 $ 7,347 $ 784 $ - $ - $ 1,338 $ - $ 4,141 $ 13,316 $ 1,250 $ - $ *Planning and design for projects costing more than $250,000. **Projects Costing less than $250,000. FA&O FA&O Rec Rec FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS AK At Large Regionwide Planning & Design * 959 500 350 50 59 223 173 6,286 1,300 675 AK At Large Regionwide Minor Construction ** 986 326 660 343 AK At Large Regionwide Prior Year Project Contract Admin & Modifications 220 80 20 60 60 R1001 AK At Large Chugach Upper Russian Lake Cabin N 292 292 20 R1002 AK At Large Chugach Kenai Lake Trailer Park Flex Housing N 3,082 3,082 347 R1003 AK At Large Chugach Tenderfoot Campground Reconstruction N 1,129 339 790 234 719 R1004 AK At Large Tongass Thomas Bay Crew Quarters N 534 200 334 106 R1005 AK At Large Tongass SE Alaska Discovery Center Lighting Safety N 671 671 350 R1006 AK At Large Tongass Remote Site Alternative Energy N 287 287 - 580 REGION 10 TOTAL 8,160 $ 4,475 $ 704 $ 1,401 $ 1,580 $ 804 $ 173 $ 1,538 $ 6,866 $ 1,300 $ 675 $ *Planning and design for projects costing more than $250,000. **Projects Costing less than $250,000. Facilities Funds Breakout Facilities Funds Breakout FY 2007 Facilities Projects REGION 10 - ALASKA REGION (In thousands of dollars) Construction Cost Beyond OUTYEAR COST Construction Cost Beyond Project Name ID Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost FY 2007 OUTYEAR COST Fire Fac? FY 2007 State Cong District Forest (In thousands of dollars) FY 2007 Facilities Projects REGION 9 - EASTERN REGION
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-14

 Cong Fire FA&O FA&O Rec Rec ID State District Location Project Name Fac? FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS All All Servicewide Planning & Design * 410 350 60 4,680 All All Servicewide Minor Construction ** N 824 824 110 832 S001 WI 2 Forest Products Lab FPL Modernization, Phase I N 15,144 15,144 600 31,521 S002 CA 4 Pacific Southwest Mirov Lab Safety Upgrade N 1,810 200 1,610 1,500 S003 CA 1 Pacific Southwest Redwood Science Laboratory Building Upgrade N 827 827 600 S004 WI 2 Forest Products Lab Replace Roof, B29 N 666 666 529 S005 WV 1 Northern Research Morgantown Greenhouse Addition N 1,197 1,197 - S006 CT 3 Northern Research Ansonia Lab Test Facility N 366 366 - RESEARCH TOTAL 21,244 $ 18,908 $ 2,336 $ - $ - $ - $ - $ 3,339 $ 37,033 $ - $ - $ Note: North Central and North East Research Station merge to become Northern Research Station, Oct 1, 2006 *Planning and design for projects costing more than $250,000. **Projects Costing less than $250,000. Facility Funds Breakout FA&O FA&O Rec Rec FACILITIES Const. Maint. Const. Maint. ROADS TRAILS FACILITIES ROADS TRAILS Total Regions 59,162 $ 31,603 $ 4,820 $ 8,045 $ 14,694 $ 10,183 $ 826 $ 27,599 $ 63,382 $ 9,395 $ 839 $ Total Stations 21,244 $ 18,908 $ 2,336 $ - $ - $ - $ - $ 3,339 $ 37,033 $ - $ - $ Subtotal 80,406 $ 50,511 $ 7,156 $ 8,045 $ 14,694 $ 10,183 $ 826 $ 30,938 $ 100,415 $ 9,395 $ 839 $ WO Program Management -- Facilities Project List 2,909 $ 1,827 $ 259 $ 291 $ 532 $ TOTAL - Facilities 83,315 $ 52,338 $ 7,415 $ 8,336 $ 15,226 $ (In thousands of dollars) SUMMARY (In thousands of dollars) FY 2007 Facilities Projects RESEARCH STATIONS OUTYEAR COST Facility Deferred Maintenance Eliminated by FY 2007 Cost Facility Deferred Maintenance Eliminated by FY 2007 Cost Construction Cost Beyond FY 2007 OUTYEAR COST Construction Cost Beyond FY 2007 Facilities Funds Breakout FY 2007 Facilities Projects
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-15

 Budget Line Item Roads 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $226,396 $222,181 $2,328 -$41,722 $182,787 -$39,394

Emergency & Supplemental Appropriations * $55,544 $0 $0 $0 $0 $0

Total Enacted Budget Authority $281,940 $222,181 $2,328 -$41,722 $182,787 -$39,394

Staff Years 1,824 1,766 -232 1,534 -232 

Estimated Funding by Activity 

MaintainPassenger Car Roads $106,272 $107,261 -$27,474 $79,787 -$27,474

MaintainHigh Clearance & Closed Roads $30,035 $29,624 -$17,124 $12,500 -$17,124

Decommission Roads $8,450 $9,003 -$8,503 $500 -$8,503

Improve Roads $81,639 $76,293 $13,707 $90,000 $13,707

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

*FY 2005 includes $33,204 for hurricane damage related CI&M projects from P.L. 108-287 and $22,340 from P.L. 109-13; FY 

2006 includes $3,107 from P.L. 109-148. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Miles of passenger car roads receiving 

maintenance 30,657 42,896 39,043 22,000 -17,043

Miles of high clearance and closed roads receiving 

maintenance 31,692 25,094 26,465 8,000 -18,465

Miles of roads decommissioned 770 938 355 350 -5

Miles of road reconstruction and capital 

improvement 824 333 548 450 -98

Program Description 

The Roads program provides the resources necessary for management of the national forest road 

system (NFRS) through maintenance and capital improvements. The NFRS provides motor 

vehicle access needed to achieve the agency’s strategic plan goals and objectives. It also 

provides the access necessary for management, public use, and protection of national forest 

system (NFS) lands. Virtually all activities on the lands require travel over the road system to 

destinations where activities take place. Over 90 percent of NFRS use is by recreationists, who 

annually make over 205 million visits to recreation opportunities accessed by the road system. 

On November 9, 2005, the final travel management rule was published. Over the next few years, 

most national forests will engage the public and governmental agencies in travel planning to 

identify those roads, trails, and areas to be designated for motor vehicle use. 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-16

The Roads program provides for the management, planning, maintenance, and capital 

improvement of 6,500 bridges and 375,000 miles of national forest system roads. Twenty 

percent of the roads are open without restriction to all vehicle types (including passenger cars), 

58 percent are open to pickups and other high-clearance vehicles, and 22 percent are closed. 

Maintain Roads – This activity includes the maintenance and operation of national forest road 

system roads including bridges, and terminal facilities, such as parking lots, trailhead parking, 

camping spurs, and truck turnarounds. 

Maintenance - This activity includes maintenance of the travel surface; roadside vegetation; 

drainage facilities; structures, including bridges; and traffic control devices, such as signs and 

gates. Operational maintenance levels 1 and 2 are assigned to roads intended for use by high 

clearance vehicles. The requirements of the Highway Safety Act do not apply. Maintenance 

level 2 roads are open to vehicle traffic. Maintenance level 1 roads are physically blocked to 

vehicular traffic, including Forest Service administrative vehicles, for periods of at least 1 

year between uses. Maintenance levels 3, 4, and 5 are assigned to roads open and maintained 

for travel by passenger cars and other State highway legal vehicles. The requirements of the 

Highway Safety Act apply. Maintenance of the road system supports agency goals by 

perpetuating safe and efficient access over existing roads. These roads provide access for 

emergency responders and are sometimes the only escape routes for recreationists and local 

residents in the event of wildfire or other emergency situation. 

Operations – This activity includes road management and transportation planning activities. 

Road management activities meet agency goals of ensuring effective public service by 

providing information about roads to users, coordinating conflicting activities on roads, 

ensuring that commercial users perform or pay for maintenance made necessary by their use, 

making annual road maintenance plans, and, most importantly, keeping roads safe. 

Transportation planning supports agency goals by providing transportation alternatives to 

decision makers. These activities are particularly important today. Transportation planning 

helps identify opportunities to reduce the number of open roads and the service levels of 

roads remaining open to what can be sustained in a safe and environmentally acceptable 

manner with available funding. This ensures compliance with safety requirements, 

environmental protection laws, and critical access needs. 

Decommission Roads – Decommissioning terminates a road’s utilization. Road 

decommissioning activities meet agency goals by eliminating the environmental effects of 

unneeded roads and by restoring land occupied by roads to a more natural state. Roads to be 

decommissioned include both NFS roads that are no longer needed for national forest 

management and unauthorized roads that exist on NFS lands. Decommissioning of roads is not 

an allowable use of appropriations under the authorizing statute. However, since FY 1991, 

language in annual appropriations bills has authorized use of a portion of appropriated Roads 

funds for decommissioning (up to $15 million in FY 2005). 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-17

Improve Roads – This activity provides for capital improvements of national forest system roads 

including bridges, and terminal facilities, such as parking lots and campground spurs. Capital 

improvements include adding new miles to the transportation system through new construction, 

reclassifying unclassified roads, and rights-of-way acquisition; changing the function of existing 

roads to accommodate different user types, such as a logging road to a recreation road; and 

increasing capacity of an existing road, such as changing a single lane road or bridge to a two 

lane road or bridge. Capital improvements meet agency goals by reducing the deferred 

maintenance backlog. This activity includes providing engineering support for commercial 

timber sales, fuel treatment and land stewardship contracts. 

FY 2005 Accomplishments 

• Maintained 42,896 miles of passenger car roads. Of that, 30,529 miles (39 percent of all 

passenger car roads) met applicable standards at year-end. 

• Constructed 112 miles of new roads which includes 80 miles under timber sale and land 

stewardship contract provisions. 

• Reconstructed 788 miles of road as a capital improvement and included 511 miles under 

timber sale and land stewardship contract provisions. 

• Restored 2,850 miles of roads damaged by storms in California and the southeast United 

States with emergency supplemental appropriations. 

• Repaired 55 bridges and constructed 28 new bridges. 

• Removed 47 bridges from the deficient bridge list. 

• Decommissioned 938 miles of national forest system roads. 

FY 2006 Program

• Maintain approximately 39,000 miles of road intended for use by passenger cars. About 25 

percent of all passenger car roads will be maintained to applicable standards as a result of the 

work. 

• Maintain approximately 26,000 miles of road intended for use by high clearance vehicles. 

About 20 percent of the roads will be considered maintained to applicable standards either as 

a result of the work or as a result of having been properly stabilized for future project use. 

• Construct approximately 100 miles of new road. 

• Reconstruct approximately 448 miles of roads. 

• Increase planning, location, and design in support of proposed increased timber offering, 

stewardship acres, and fuels contract acres in FY 2007. Planning, location, and preliminary 

road design work should be completed at least 1 fiscal year prior to timber sale offer for 

satisfactory compliance with NEPA process requirements. 

• Construct, repair, or replace approximately 80 bridges. 

• Decommission approximately 355 miles of national forest system roads. 

• Publish motor vehicle use maps covering 25 percent of the NFS and identify designated 

routes and areas. 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-18

FY 2007 Plans 

• Increase engineering support of the Forest Products program. 

• Maintain approximately 22,000 miles of road intended for use by passenger cars. About 10 

percent of passenger car roads will be maintained to applicable standards as a result of the 

work. 

• Maintain approximately 8,000 miles of road intended for use by high clearance vehicles. 

About 15 percent of the roads will be considered maintained to applicable standards either as 

a result of the work or as a result of having been properly stored for future project use. 

• Construct approximately 90 miles of new road. 

• Reconstruct approximately 360 miles of existing roads. 

• Construct, repair, or replace approximately 50 bridges. 

• Decommission approximately 350 miles of national forest system roads. 

• Publish motor vehicle use maps covering 50 percent of the NFS and identifying designated 

routes and areas. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget proposes $183 million for Roads, a program decrease of 

approximately $39 million from the FY 2006 enacted level. The agency will focus maintenance 

funds on implementing the travel management rule and on evaluating roads open to traffic so 

that open roads meet standards for public safety, resource protection, and critical access needs to 

support the agency’s mission. To the extent practicable, roads naturally closed by landslides, 

floods, or other natural events will remain closed. 

 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-19

Budget Line Item Trails 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $75,707 $74,882 $1,045 -$15,586 $60,341 -$14,541

Emergency & Supplemental Appropriations* $9,216 $0 $0 $0 $0 $0

Total Enacted Budget Authority $84,923 $74,882 $1,045 -$15,586 $60,341 -$14,541

Staff Years 809 793 -173 620 -173 

Estimated Funding by Activity 

Maintain Trails $38,471 $41,382 -$5,873 $35,509 -$5,873

Improve Trails $37,236 $33,500 -$8,668 $24,832 -$8,668

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

* FY 2005 includes $8,416 for hurricane damage related CI&M projects from P.L. 108-287 and $800 from P.L. 109-13; FY 2006 

includes $1,455 from P.L. 109-148 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Miles of trails maintained to standard 20,612 25,208 20,577 12,700 -7,877

Miles of trail improved to standard 1,025 1,378 1,076 980 -96

Program Description 

This program funds the maintenance, operations, and capital improvements of National Forest 

System (NFS) trails. It advances strategic goals by providing opportunity for high quality 

backcountry recreation and by maintaining trail systems. The NFS contains about 133,000 miles 

of trails, accounting for over half of the Nation’s inventoried trails. Approximately 100,000 

miles of trails occur outside of wilderness areas, while approximately 33,000 miles are found 

inside wilderness areas. Forest Service trails include several historic and scenic trails. 

The NFS trails system accommodates over 50 million recreation visitor days of cross-country 

skiing, hiking, horseback riding, mountain biking, and off-highway vehicle use a year. The NFS 

trails program helps support private sector annual outdoor product sales of $10 billion (including 

footwear, backpacks, etc.). 

Trails serve a wide constituency at a relatively low cost and are available for multiple uses, 

including: biking, hiking, motorcycling, riding all-terrain vehicles, and snowmobiling. Trails 

provide important transportation routes for firefighters, law enforcement, and other 

administrative personnel, in addition to recreation service partners and outfitter-guides operating 

on NFS lands. Publication of the Forest Service’s final travel management rule on November 9, 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-20

2005 ushers in a new era of planning for motor vehicle use on national forests and grasslands. 

Over the next few years, most national forests will engage the public and governmental agencies 

in travel planning to identify those roads, trails, and areas to be designated for motor vehicle use. 

Trail maintenance protects capital investments by keeping trails open for access and protecting 

soil, vegetation and water quality, thus ensuring continued promotion of ecosystem health. Work 

includes clearing encroaching vegetation and fallen trees and repairing or improving trail signs, 

treadways, water drainage, and bridges. 

The trails budget line item consists of two activities: Maintain Trail System (both annual and 

deferred maintenance) and Improve Trail System. 

FY 2005 Accomplishments 

• Volunteers (recreation and heritage combined) contributed $34 million (about 73 percent) of 

the agency’s $46.5 million total appraised value of volunteer work, representing 

approximately 1,381 person years of work in recreation and heritage (approximately 79 

percent), of the agency’s 1,751 person-year total. Volunteers in the Trails program are the 

majority of the recreation and heritage program involvement. 

• In partnership with other Federal agencies, tribal governments, States and local government 

and non-governmental organizations, the Forest Service continued efforts to construct 

additional miles of new trail, maintained existing trail segments, and surveyed and prepared 

projects for future trail work. 

• Approximately 70 challenge cost-share projects were completed, with partners contributing 

over $4.8 million in funding or in-kind services for trail operations (see Special Exhibits, 

Forest Service Partnerships for a detailed breakdown). 

• Published the draft travel management rule to provide a better framework for managing 

motor vehicle use on roads, trails, and areas on NFS lands. 

• Coordinated numerous trail projects with individuals, local clubs and organizations, and 

national partners and assisted local units with partner coordination. 

• Participated in the national Adventure and Travel Tourism show in Washington, D.C. 

• Worked with the American Hiking Society to cosponsor the nationally recognized annual 

Trails Day on public lands. 

• Published the proposed interim directive for Forest Service Trail Accessibility and revised 

Forest Service Manual 2350 in the Federal Register on February 17, 2005. 

• Completed review and refinement of Infrastructure Applications (Infra) Trails data 

requirements, and initiated needed refinements to the Infra Trails Module. 

• Developed a national trail sampling process to be used beginning FY 2006, for the 

assignment of trail condition surveys. This replaces the previous 20 percent trail miles/year 

target. 

• Worked with the Bureau of Land Management (BLM), the National Park Service (NPS), and 

the Fish and Wildlife Service (FWS), to complete definitions of technical data parameters for 

Interagency Trail Data Standards (ITDS). 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-21

FY 2006 Program 

• Emphasize the physical and mental health attributes of trail use and work by the Forest 

Service and interest groups in continued support of the President's Healthier US initiative. 

• Strengthen partnerships with other Federal agencies, tribal governments, States and local 

government and non-governmental organizations to provide trail surveys, trail maintenance, 

and improvement projects. 

• Publish a final regulation on travel management for managing motor vehicle use on roads, 

trails, and areas on NFS lands. 

• Publish proposed agency directives implementing the travel management regulation for 

public comment. 

• Develop and implement a schedule for travel planning and designation of roads, trails, and 

areas for motor vehicle use. 

• Publish travel management maps covering 25 percent of the NFS that identify designated 

routes and areas. 

• Finalize development of Infra Trails Access & Travel Management (ATM), and support 

training development and initial implementation in coordination with Roads ATM. 

• Begin development and testing of eTRACS prototype, an electronic portable device for 

compiling trail condition information in the field. 

• Update the Trail Assessment and Condition Surveys (TRACS) User Guide and collaborate 

with San Dimas Technology and Development Center in the development of TRACS Field 

Guide. Deliver 1-week national TRACS train-the-trainer session. 

• Participate on the ITDS Team to coordinate and implement ITDS tasks with geographic 

information system (GIS) community. Implement an interagency pilot test in the greater 

Yellowstone area. 

• Participate in the 18th National Trails Symposium in Iowa and Illinois. 

• Work with the Interagency Trails Council [NPS, BLM, Federal Highways Administration 

(FHWA), and FWS] and other partners including the Rails-to-Trails Conservancy on specific 

issues related to national, scenic, and historic trails. Renew the memorandum of 

understanding (MOU) with other agencies for interagency coordination and cooperation on 

National Scenic and Historic trails. 

• Revise and enhance the MOU between the Forest Service and the International Mountain 

Biking Association. 

• Work with the American Hiking Society to cosponsor the national trails day events on NFS 

lands. 

• Continue to work with forests in the Gulf Coast Region in rehabilitation of trails impacted by 

hurricanes. 

FY 2007 Plans 

• Emphasize protection and management of the national scenic and historic trails and enhance 

opportunities to work with partners in trail stewardship. 

• Strengthen partnerships with other Federal agencies, tribal governments, States and local 

government, and non-governmental organizations to provide for trail surveys, trail 

maintenance, and improvement projects.
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-22

• Publish final directives implementing the travel management regulation.

• Accomplish designation of motor vehicle routes and areas according to the approved 

schedule. 

• Publish travel management maps covering 50 percent of the NFS that identify designated 

routes and areas. 

Justification of FY 2007 Program Changes

The FY 2007 President’s Budget proposes a reduction of $14.5 million from the FY 2006 

enacted level. The agency will encourage field units in FY 2007 to use a minimum of $5 million 

of Trails program funds to help foster new and expand existing partnerships to achieve the 

purposes of this budget line item. 

The program will focus activities on the highest priority projects. The Forest Service will target 

work to implement the travel management rule; improve the settings for outdoor recreation; 

improve visitor satisfaction with NFS trails and services; improve educational opportunities for 

the public about the values of conservation, land stewardship, and responsible recreation; 

strengthen relationships with private entities and volunteer-based and non-profit organizations; 

and establish professionally managed partnerships and intergovernmental cooperative efforts. 

The program will continue to focus on management and protection of the national scenic and 

historic trails. The agency recognizes these trails are increasingly important to Congress and the 

Amercian public and will continue to enhance opportunities to work with partners in trail 

stewardship. 

There will also be an increased emphasis on performance measures and accountability for the 

trails program. A primary goal will be to use new technology and training to evaluate the 

condition of the NFS trails. 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-23

Budget Line Item Deferred Maintenance and Infrastructure 

Improvement 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $13,829 $12,809 $65 -$3,541 $9,333 -$3,476

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $13,829 $12,809 $65 -$3,541 $9,333 -$3,476

Staff Years 54 49 -10 39 -10 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescission of 0.476 percent and 1.0 percent. 

Program Description 

This program complements the Facilities, Roads, and Trails budget line items and directs the use 

of funds specifically toward reducing the backlog of deferred maintenance. The program 

supports the agency’s goals by assisting the respective Capital Improvement and Maintenance 

(CI&M) program in providing safe, secure, and appropriate access to National Forest System 

(NFS) lands and services while protecting water quality and ecological conditions. 

In FY 2006, the Forest Service Facility Realignment and Enhancement Act (Title V, 

Appropriations Act, P.L. 109-54) was enacted. This Act will support the agency goal of 

reducing the facilities backlog 25 percent by 2010 and create incentives to further reduce the 

backlog. This legislation authorizes the sale of unneeded administrative sites and the use of 

receipts for acquisition, maintenance, reconstruction and construction. Additionally, the FY 

2006 appropriation bill authorized the agency to assess all funds available to the agency for the 

purpose of performing facilities maintenance on Fire, Administrative and Other (FA&O) and 

major visitor center facilities (Title III, Administrative Provisions, P.L. 109-54). (See Special 

Exhibit, Deferred Maintenance Backlog, for more discussion). 

Deferred Maintenance – Maintenance that is not performed as needed or scheduled is referred to 

as deferred maintenance. Deferred maintenance leads to deterioration of performance, increased 

costs to repair, and a decrease in the value of the infrastructure. Deferred maintenance work can 

include the repair, rehabilitation, or replacement of infrastructure. It can include work needed to 

meet laws, regulations, codes, best management practices, and other applicable standards. It can 

also include demolition, dismantling, and disposing of unneeded infrastructure. 

 

Infrastructure Improvement – Capital improvements can include the construction of new 

infrastructure, alteration of existing infrastructure to change its function, and the expansion of 

existing infrastructure to increase capacity. Improvements are often required to maintain public 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-24

service capability or recreational opportunities. Capital improvement projects eliminate deferred 

maintenance and provide mission-critical infrastructure. 

FY 2005 Accomplishments 

• Directed funds towards critical health, safety, and maintenance projects and infrastructurerelated resource mitigation throughout the NFS, as well as at research stations. 

• Corrected deficiencies in buildings, campgrounds, and water and wastewater systems. 

Projects addressed needs such as security, fire alarms, and sprinkler systems; radon and lead 

paint abatement; asbestos removal; electrical and mechanical systems; roofs; doors; 

windows; toilet facilities; water and wastewater treatment and distribution systems; 

accessibility; and demolition of unsafe or unneeded infrastructure. 

• Roads projects included bridge and guardrail replacements, safety turnouts for major 

recreation developments, assessment of culverts for fish passage, signing and marking for 

user safety, major culvert repairs, and road surfacing. 

• Trails projects included major trail reconstruction, including bridges for cross-country skiing, 

snowmobiles, horses, and hikers; rehabilitation of historic and scenic trails; and replacing 

trail structures such as waterbars and drain dips. 

• A $6.9 million earmark for Regions 5 and 6 was used to replace the most critical fish passage 

barrier culverts with more suitable structures such as bottomless arches, box culverts, and 

bridges; resetting perched culverts at stream grade; and eliminating inlet and outlet 

restrictions. 

• Examples of FY 2005 projects funded with Deferred Maintenance and Infrastructure 

Improvement funds include: 

o ORV Trail Maintenance, Wayne National Forest, OH – Repaired ORV trails damaged by 

flooding caused by Hurricanes Ivan and Francis in 2004. 

o Brevoort Dam, Hiawatha National Forest, MI - Eliminated approximately $71,000 of 

critical deferred maintenance and reduced annual maintenance cost by several thousand 

dollars. Replaced the dam’s walkway which serves as a trail bridge with a safe American 

Disability Act (ADA) approved structure. 

o Snider Water System, Olympic National Forest, WA – Replaced a 37-year old redwood 

water tank and the 58-year old water distribution lines. 

o Scout Mountain Road, Caribou-Targhee National Forest, ID – Reconstructed the last 2.9 

miles of road using recycled asphalt surface. 

o Libby Creek Phase 2, Kootenai National Forest, MT - Protected the water quality in the 

stream important to bull trout spawning, which also provided a higher degree of user 

safety. 

o Meadow Fork Culvert Replacement, Malheur National Forest, OR – Improved fish 

passage to enhance spawning areas for Bull Trout. Replaced two 48” culverts and a 

overflow culvert with a 50 foot modular bridge. 

o Sleepy Hollow Culvert Removal, Olympic National Forest, WA - Decommissioned 8.9 

miles of road and converted to a trail. Removed several culverts, including ones that 

were a barrier to Cutthroat Trout, restoring 1.4 miles of habitat. 
FY 2007 Budget Justification USDA Forest Service

Capital Improvement and Maintenance 10-25

FY 2006 Program 

Similar to the FY 2005 program, the FY 2006 program will continue to focus on critical deferred 

maintenance pertaining to health and safety deficiencies. The program includes the following 

typical projects: 

• Facility health and safety projects will include roof repairs, structural repairs, radon and lead 

based paint abatement, asbestos removal, mechanical and electrical system repairs, security 

improvements, and accessibility improvements. Additionally, efforts will be made under this 

program to dispose of or decommission facilities for which the backlog of maintenance has 

increased to a point where it is no longer economically feasible to keep the facility 

operational. 

• Water and wastewater systems projects will address those systems that do not currently meet 

Clean Water Act, Safe Drinking Water Act, state, or industry standards for protecting public 

health. 

• Roads projects will include guardrail replacement, slope stabilization, bridge repairs, and 

road resurfacing in order to protect public users. Efforts may also include decommissioning 

roads that can no longer be economically maintained. 

• Trails projects will include reconstruction and repair of multi-use trails and bridges in order 

to protect both users and the watersheds. These projects will include drainage and erosion 

control, elevating sections across flood prone areas, and redefining trails where multiple trails 

now exist. 

• Dam projects will focus on “high hazard” dams to ensure adequate spillway capacity and to 

meet current seismic standards. 

• A $1.9 million earmark will further reduce barriers to fish and other aquatic organism 

passage in Regions 5 and 6. In addition to the earmark, infrastructure investment funds will 

be used to eliminate the most critical fish barriers across the Nation. While some of the most 

critical problems are being eliminated, a large backlog of inadequately sized and placed 

drainage structures will remain across the national forest road and trail system. 

FY 2007 Plans

• The program will address approximately 100 of the most critical health and safety and 

infrastructure related improvements.

Justification of FY 2007 Program Changes 

 

The FY 2007 President’s Budget request proposes a decrease of approximately $3.4 million 

below the FY 2006 enacted level. The FY 2007 program of work will focus on the most critical 

health and safety infrastructure projects to improve the overall condition of existing Forest 

Service facilities, roads, and trails. Reducing the deferred maintenance backlog will continue to 

be funded through the other Capital Improvement and Maintenance budget line items. In FY 

2006, the Forest Service Facility Realignment and Enhancement Act (Title V, Appropriations 

Act, P.L. 109-54) was enacted. This Act will support the agency goal of reducing the facilities 

backlog 25 percent by 2010 and create incentives to further reduce the backlog. 

FY 2007 Budget Justification USDA Forest Service

Land Acquisition 

Chapter 11 

Land Acquisition

FY 2007 Budget Justification USDA Forest Service 

Land Acquisition 11-1

Appropriation Land Acquisition 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations $61,007 $41,875 $232 -$17,032 $25,075 -$16,800

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $61,007 $41,875 $232 -$17,032 $25,075 -$16,800

Staff Years 120 118 -16 102 -16 

Estimated Funding By Activity 

Land Acquisition Management* $12,819 $12,317 -$4,020 $8,297 -$4,020

Purchase Land* $48,188 $29,558 -$12,780 $16,778 -$12,780

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

* Purchase Land includes critical inholdings, including wilderness protection and land equalization cash payments. In budget 

justifications prior to FY 2006, cash equalizations were reported under land acquisition management. 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Number of acres acquired or donated* 52,775 48,216 37,345 20,620 -16,725

*Activity "National Forest System acres acquired" redefined for FY 2007 

Appropriation Acquisition of Lands for National Forests 

 Special Acts 

 (dollars in thousands) 

 Increase or Decrease FY 2007

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006

Enacted Budget Authority 

Annual Appropriations $1,054 $1,053 $0 $1 $1,053 $0

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $1,054 $1,053 $0 $1 $1,053 $0

Staff Years 0 0 0 0 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 
FY 2007 Budget Justification USDA Forest Service 

Land Acquisition 11-2

Appropriation Acquisition of Lands to Complete Land Exchanges 

 (dollars in thousands) 

 Increase or Decrease FY 2007

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006

Enacted Budget Authority 

Annual Appropriations $231 $231 $80 -$79 $231 $0

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $231 $231 $80 -$79 $231 $0

Staff Years 2 0 0 0 0 

Annual Appropriations Acts - FY 2005 budget authority (BA) includes rescissions of 0.594 and 0.80 percent. 

FY 2006 BA includes rescissions of 0.476 percent and 1.0 percent. 

Program Description

The Land Acquisition program allows the Forest Service to acquire lands, waters, and related 

interests within the National Forest System (NFS) for public access for outdoor recreation; 

timber production; mineral extraction; conservation of wildlife and threatened and endangered 

species habitat; acquisition of wetland and riparian areas; the protection of water quality and 

supply, air quality, significant cultural resources; and rare ecological areas that promote 

biological diversity. It is a commitment to working with partners to protect important lands, to 

conserve open space and to preserve special forests and coastal areas. Lands acquired through 

the Land and Water Conservation Fund (L&WCF) help to reduce future management costs, 

respond to urban and community needs, and conserve the integrity of undeveloped lands and 

their conversion to incompatible uses. There are many non-profit conservation partners that 

annually assist local communities and the Forest Service to ensure that these public benefits are 

being served. 

The Land Acquisition program is comprised of the following activities: 

• Acquisition management funds, a sub-activity within the Land Acquisition program, are used 

to cover expenses needed to complete land acquisitions, including costs associated with title 

search, appraisals, land acquisition surveys, legal document preparation, and personnel costs 

associated with those employees who perform these tasks. Acquisition management funds 

are also used for the administrative costs associated with exchanges and donations when the 

land acquired through these methods are within an approved project area. 

• Land Purchase funds are used for payment of the cost of purchased lands. 

• Cash Equalization funds are used for payments for those exchanges that would otherwise 

qualify for purchase. 

Acquisition of Lands for National Forests, Special Acts provides for the acquisition of lands for 

watershed protection, minimizing soil erosion, and rehabilitation on specified national forests in 

Nevada, Utah, and California. 
FY 2007 Budget Justification USDA Forest Service 

Land Acquisition 11-3

Acquisition of Lands to Complete Land Exchanges provides for the use of funds collected from 

the exchange or sale of National Forest System lands with State, county, or municipal 

governments; public school authorities; or non-Federal parties, when in the public interest to do 

so. 

Independent Reviews 

The Forest Service Land Acquisition program was evaluated using the Program Assessment 

Rating Tool (PART) for FY 2005 and was reassessed for the FY 2007 budget cycle. The 

reassessment resulted in a rating of “adequate.” The new improvement plan includes 

establishing national priorities for the allocation of funds, linking the agency strategic plan with 

land acquisition goals and establishing new efficiency measures. 

FY 2005 Accomplishments 

• Finalized a joint long-term national plan with the Department of the Interior that identifies 

acreage goals and conservation objectives for Federal land acquisitions pursuant to House 

Report 108-195. 

• Acquired 48,216 acres of land. Highlights of some of the major acquisitions include: 

Rye Creek, Bitterroot National Forest, Region 1 

Allocation: $3,600,000 

Acreage: 5,750. 68 

This acquisition blocks up the last of the large “checkerboard” private inholding on the 

Bitterroot National Forest within the headwaters of the Rye Creek, Little Sleeping Child and 

Sleeping Child drainages and provides continued public access for an array of recreational 

activities, to include but not limited to, hunting, hiking, fishing, sight seeing, and horseback 

riding. The Sleeping Child drainage contains resident populations of both cutthroat and bull 

trout. These populations are considered an important part to the statewide conservation 

strategy to maintain a viable population of these respective species within their historic 

range. This acquisition is within a critical elk migration corridor and provides important elk 

and deer winter range at lower elevations. 

Schwend Ranch, Custer National Forest, Region 1 

Allocation: $1,920,000 

Acreage: 959.49 

This acquisition secured a private inholding within the Pryor Mountains in the Sage Creek 

drainage. Three major ecological land provinces converge in the Pryor Mountains which is 

considered an ecological hot spot for habitat and species diversity ranging from semi-desert 

to subalpine setting. About 50 rare plant species in Montana are known to occur in the Pryor 

Mountains. The Pryor Mountains are an important recreational resource and backyard 

destination for Billings – the largest city in Montana. Through this acquisition, public access 

has been secured for an array of recreational activities, i.e., hiking, backpacking, wildlife 

viewing, spelunking, cross country skiing, birding, wildflower viewing, firewood collection, 

fishing and hunting. 
FY 2007 Budget Justification USDA Forest Service 

Land Acquisition 11-4

Olliffe Ranch, Beaverhead-Deerlodge National Forest, Region 1 

Allocation: $1,977,500 

Acreage: 1,521 

The Olliffe Ranch is centrally located between the Lee Metcalf Wilderness Area, the 

Yellowstone National Park and the Wall Creek State Wildlife Management Area. The 

objectives of the conservation easement are to protect, and enhance critical wildlife habitat 

for elk and grizzly bears; maintain streams, ponds and open space; and to provide additional 

public access within a traditional ranching community. 

Mesita Blanca, Santa Fe National Forest, Region 3 

Allocation: $2,310,000 

Acreage: 796.35 

The Santa Fe National Forest and the Pueblo of Jemez border this 796-acre parcel. The 

majority of the property is located on a high mesa overlooking the valley to the South, West 

and North. It is highly visible to Forest visitors traveling along New Mexico State Highway 

4 on their way to visiting the nearby Jemez National Recreation Area. The purchase protects 

a dramatic and scenic backdrop from potential residential development. This property 

contains significant archeological sites. Cursory surveys have indicated this area has similar 

site densities as adjacent national forest lands where the number of sites per acre is 

considered the highest density of any area on the Santa Fe National Forest. These important 

archeological sites are now protected. 

Camp Armistead Purchase, Cherokee National Forest, Region 8 

Allocation: $219,520 

Acreage: 27.44 

The Cherokee National Forest recently acquired the actual site of a historic location known 

as Camp Armistead and includes a portion of the Unicoi Turnpike. The Camp Armistead 

site is the location of the only Federal military installation located in the Cherokee Nation 

prior to the Trail of Tears. Tragically, it was also used as a primary stockade and holding 

area along the Trail of Tears, and is a centerpiece for the Unicoi Turnpike/Trace, which runs 

from South Carolina to Tennessee. Camp Armistead, and the Unicoi Turnpike, marks the 

early history of this country, and much of its prehistory. The private landowner's plans 

included having this tract surveyed and subdivided. The acquisition of this historic site will 

allow for preservation and management of this rare and endangered resource. 

The Roan Mountain/Big Ridge Tract, Region 8 

Allocation: $259,064 

Acreage: 199.28 

This in-holding lies on the slopes of Big Ridge in the Roan Mountain area of Carter County, 

Tennessee, on the headwaters of Doe River near the NC/TN state line. The slopes and peaks 

of this tract are covered with a mixed hardwood forest, with elevations that range from 2,600 

to 4,000 feet. The property ties together fragmented and isolated national forest ownership 

and adjoins Roan Mountain State Park, one of Tennessee’s premier state parks which enjoys 

a high visitor count and features camping, cabin rentals, a historic farm, trout fishing, hiking 

trails, and vistas. Nearby is the 6,285-foot summit of Roan Mountain, an environmentally 

sensitive highlands area known for its unique flora, including scenic rhododendron gardens 
FY 2007 Budget Justification USDA Forest Service 

Land Acquisition 11-5

amid spruce-fir forests and grassy balds. Views from and to the property are outstanding. 

This property was in danger of being sold for private development, complicating national 

forest management and limiting public benefits and uses. 

Stony Creek Tract, Cherokee National Forest, Region 8 

Allocation: $206,100 

Acreage: 48.81 

This tract is a total in-holding bounded on all four sides by national forest land and is situated 

along State Highway 91 on the headwaters of Stony Creek and adjoins the Stony Creek 

Scenic Area. The acquisition of this tract accomplished goals and objectives of the Forest 

Plan by consolidating national forest lands, eliminating approximately 1.2 miles of boundary 

line, 4 corners and providing protection to the Stony Creek Scenic Area. The acquisition of 

this tract also provided protection and enhancement to the headwaters and upper watershed 

of Stony Creek, and will also provide additional out door recreational opportunities. Several 

smaller tributaries originate within the Cherokee National Forest and then flow across and 

converge on the subject property to form Stony Creek, a major stream and prominent trout 

fishery in Carter County. This purchase protects forest resources, provides enhanced public 

recreational opportunities, helps reduce or eliminate impacts form invasive species, as well as 

protects wildlife resource values, and a critical watershed and fishery. 

Trust for Public Land, Great Lakes/Great Lands, Michigan, Region 9 

Allocation: $1,610,000 

Acreage: 2,742.78 

Several threatened and endangered species are known to use this property. The area has the 

highest density of wolves anywhere within the Ottawa National Forest. Unique bluffs and 

cliffs provide excellent habitat for peregrine falcons and high potential for several rare plants. 

Bald eagles nest near the property and several streams flow through the property. This 

acquisition provides critical snowmobile trail connectors, which provides economic benefits 

to the surrounding communities. This acquisition also provides corridors between blocks of 

public land, which would most likely be lost to fragmentation if the lands were not owned by 

a public agency. 

FY 2006 Program

• Work is underway to acquire 24 projects as displayed on Table A. Highlights of some of the 

major acquisitions include: 

Blackfoot Challenge, Lolo and Helena National Forests, Region 1 

Allocation: $9,861,000 

Acreage: 12,039 

The Blackfoot River watershed serves as a buffer and linkage zone for wildlife moving in 

and out of the Bob Marshall/Scapegoat Wilderness Area complex and the Mission Mountain 

Wilderness, to the lower Clark Fork drainage and the Garnet and Sapphire Ranges. This 

movement is facilitated by the Blackfoot River's rich vegetative and aquatic diversity and 

relatively unfragmented public and private ownership. Fragmentation of large private 

ownerships from subdivision and development is a primary threat to habitats and social 
FY 2007 Budget Justification USDA Forest Service 

Land Acquisition 11-6

structure changes in the watershed. This ecosystem supports the largest population of grizzly 

bears in the lower 48 States. The Blackfoot River and its tributaries provide habitat for 

native westslope cutthroat trout and bull trout. Associated with the Blackfoot are numerous 

wetland, riparian, and forestland vegetation associations. The rich raptor habitat provides 

seasonal and year-long foraging and nesting for bald eagles, golden eagles, osprey, red-tailed 

hawks, and great horned owls. In addition to hunting and fishing, the area is popular for 

swimming, rafting, picnicking, camping, hiking, and snowmobiling. 

Swan Valley Conservation Project, Flathead NF, Region 1 

Allocation: $3,000,000 

Acreage: 1,500 

The Upper Swan Valley Project Plan is part of a multi-year program to acquire critical lands 

within a checkerboard land ownership pattern. With input and assistance from local groups 

and public agencies, The Trust for Public Land, the Flathead National Forest, and Plum 

Creek Timberlands have compiled a long-range plan that involves the public acquisition of 

an average of 1,500 acres per year for the next 5 years. The plan provides a protection 

strategy for the most critical lands and addresses ecological, recreational, and economic 

resources. The acquisitions will ensure more consistent land management and greatly reduce 

the threat of development and accelerated land fragmentation in a high-risk wildland fire 

environment resulting in reduction of risk and loss from catastrophic wildland fire for future 

communities. 

Goose Creek-Smith River, Six Rivers National Forest, Region 5 

Allocation: $1,000,000 

Acreage: 1,500 

The Smith River, on California’s north coast, is the state’s only major un-dammed river 

system. The river’s, clear and cold waters flow through redwood and Douglas fir forests, 

supporting the State’s healthiest wild runs of Chinook salmon, steelhead, and coastal 

cutthroat trout. Over 75 percent of the Smith River watershed lies within the Smith River 

National Recreation Area. The purchase would complement the recreation and scenic state 

and local parks in the area including California’s Jedediah State Park and both Redwood 

State and National Parks. The property has retained much of its natural appearance and is an 

integral part of the surrounding National Forest contributing multiple recreation opportunities 

including hiking, camping, fishing, hunting, horseback riding, snowmobiling and observing 

wildlife. In addition to recreational opportunities associated with the property itself, 

acquisition will also secure needed public access to adjacent NFS lands now blocked by this 

large inholding. The Goose Creek parcel will also promote effective management of a critical 

spawning and rearing stream habitat which is now divided between the private land owner 

and the Forest Service. 

FY 2007 Plans

• Initiate acquisition on 17 projects displayed on Table B. 

• Emphasize acquisition on the highest priority lands that provide public access for highquality outdoor recreational opportunities on NFS land and reduce the conversion of forests, 

grasslands, and aquatic and riparian ecosystems to incompatible uses in order to improve and 
FY 2007 Budget Justification USDA Forest Service 

Land Acquisition 11-7

maintain ecological conditions for Federally listed and candidate species, species of 

concerns, and species of interest. 

• Emphasize the acquisition of lands through land exchange and rights-of-way acquisitions. 

Justification of FY 2007 Program Changes 

The FY 2007 President’s Budget has proposed a decrease of $16.8 million below the FY 2006 

enacted level. This budget will provide approximately $16.8 million for land acquisition projects 

and $8.3 million for acquisition management. At this level of funding, the agency will 

concentrate on the acquisition of lands in backlog from previously appropriated funding. 

Emphasis on new acquisitions will be placed on a limited number of critical projects that will 

provide public access for outdoor recreation and improve and maintain ecological conditions for 

threatened and endangered species on NFS lands. 

Funding is not being requested for cash equalization or inholdings from private landowners. If a 

cash equalization payment by the United States is needed for a recreation or wildlife purpose, 

funds from those programs under the NFS account would be used. The agency will make every 

effort to configure exactly equal land exchanges; although this may not always possible. 

Tables for the proposed land acquisitions programs for FY 2006 and FY 2007 are found on the 

following pages. 
FY 2007 Budget Justification USDA Forest Service 

Land Acquisition 11-8

Table A 

FY 2006 Proposed Land Acquisition Program 

(Dollars in Thousands) 

Project Forest State 

Performance 

Objective(s) 

1/

Amount 2/

Arkansas Forests Multiple AR 3.1,5.1,6.3 $985 

Blackfoot River Community Project Helena/Lolo MT 3.1,5.1,6.3 $5,911 

Bonneville Shoreline Trail Multiple UT 3.1,5.1,6.3 $1,478 

Columbia River Gorge Multiple OR/WA 3.1,5.1,6.3 $1,478 

Delta National Forest Delta MS 3.1,5.1,6.3 $1,478 

Daniel Boone Daniel Boone KY 3.1,5.1,6.3 $739 

Minnesota Wilderness Chippewa/Superior MN 3.1,5.1,6.3 $123 

Greater Yellowstone Area Multiple MT/ID 3.1,5.1,6.3 $985 

Green Mountain National Forest Green Mountain VT 3.1,5.1,6.3 $493 

Goose Creek-Smith River Six Rivers CA 5.1,6.3 $985 

High Elk Corridor White River CO 3.1,5.1,6.3 $493 

High Uintas Wasatch-Cache UT 3.1,5.1,6.3 $690 

Hoosier Unique Areas Hoosier IN 3.1,5.1,6.3 $247 

I-90 Corridor Okanogan/Wenatchee WA 3.1,5.1 $960 

Illinois Disappearing Habitat Shawnee IL 5.1, 6.3 $247 

Lady C Ranch Black Hills SD 3.1, 6.3 $739 

Middle Yuba-Baker Pass Tahoe CA 3.1,5.1,6.3 $493 

Pacific Crest Trail Multiple CA/OR/WA 3.1,6.3 $493 

Spring Hill Helena MT 3.1,5.1,6.3 $591 

Selway Valley Preserve Beaverhead/Deerlodge MT 5.1,6.3 $985 

Swan Valley Flathead MT 5.1,6.3 $2,956 

Thunder Mountain Payette ID 3.1,5.1,6.3 $985 

Wayne National Forest Wayne OH 5.1,6.3 $591 

Wisconsin Wild Waterways 3.1,5.1,6.3 $2,956 

 Total Purchase $28, 080 

Acquisition Management 

Critical Inholdings/Wilderness 

Protection 

Land Exchange Equalization Payment 

 

Multiple 

Multiple 

 $12,317 

$985 

$493 

 Total $41,875 

1/ Performance objectives referred to are from the USDA Forest Service Strategic Plan for Fiscal Years 2004-08. 2/ Includes rescission of 0.476 percent. Numbers may not add due to rounding. 
FY 2007 Budget Justification USDA Forest Service 

Land Acquisition 11-9

Table B 

FY 2007 Proposed Land Acquisition Program 

(Dollars in Thousands) 

Project Forest State 

Performance 

Objective(s) 

1/

Amount 

Cartwright Ranch Tonto AZ 3.1,5.1,6.3 $1,000 

Cascade Checkerboard 

Mt Baker-Snoqualmie/ 

Wenatchee WA 

3.1,5.1,6.3 

$1,000 

Columbia River Gorge Multiple OR/WA 3.1,5.1,6.3 $1,000 

Georgia Mountains Chattahoochee-Oconee GA 3.1,5.1,6.3 $1,500 

Great Lakes/Great Lands 

Huron-Manistee/Ottawa/ 

Hiawatha MI 

3.1,5.1,6.3 

$678 

Greater Yellowstone Area Multiple MT, ID, WY 3.1,5.1,6.3 $606 

Hoosier Unique Areas Hoosier IN 3.1,5.1,6.3 $1,000 

Lady C Black Hills SD 3.1,5.1,6.3 $500 

Little Missouri River (Ebert Ranch/ 

Horse Creek) Dakota Prairie Grasslands ND 

3.1,5.1,6.3 

$4,500 

Minnesota Wilderness Chippewa/Superior MN 3.1,5.1,6.3 $500 

Ophir Valley Uncompahgre CO 3.1,5.1,6.3 $850 

Oregon Dunes Siuslaw OR 3.1,5.1,6.3 $500 

Pacific NW Streams Multiple OR/WA 3.1,5.1,6.3 $1,000 

Packard Ranch Coconino AZ 3.1,5.1,6.3 $500 

Salado Canyon Bridal Veil Falls Lincoln NM 3.1,5.1,6.3 $544 

Tejon Ranch (Pacific Crest Trail) Angeles/Los Padres CA 3.1,5.1,6.3 $600 

Wayne Select Lands Wayne OH 3.1,5.1,6.3 $500 

 Total Purchase $16,778 

Acquisition Management 

Critical Inholdings/Wilderness 

Protection 

Land Exchange Equalization Payment 

 

Multiple 

Multiple 

 $8,297 

0 

0 

 Total $25,075 

1/ Performance objectives referred to are from the USDA Forest Service Strategic Plan for Fiscal Years 2004-08. 

. 

 

FY 2007 Budget Justification USDA Forest Service

Other Appropriations 

Chapter 12 

Other Appropriations

FY 2007 Budget Justification USDA Forest Service 

Other Appropriations 12-1 

Range Betterment Fund 

 (dollars in thousands) 

 Increase or Decrease FY 2007

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006

Enacted Budget Authority 

Annual Appropriations $2,472 $3,130 $19 $783 $3,932 $802

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $2,472 $3,130 $19 $783 $3,932 $802

Staff Years 16 19 0 19 0 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

Annual Output Measure Plan Actual Plan Plan FY 2006 

Structures Improved 600 422 600 590 -10

Program Description 

The Range Betterment Fund is a self-generating fund derived from 50 percent of moneys 

received during the prior fiscal year from grazing fees within the 16 Western States pursuant to 

section 401 of P.L. 94-579 as amended. The Range Betterment program provides for range 

improvements (including seeding) to improve forage conditions; construct water developments 

to aid in livestock distribution; build fences to control livestock use patterns or protect sensitive 

resources; and make other improvements to or on the land. Funds may also be used to treat 

noxious weeds that are present as a result of permitted livestock grazing. The work is carried out 

on the ranger districts of national forest lands; six percent or less of the funding may be used for 

administrative expenses. Accomplishments for the Range Betterment program are not accounted 

for separately, but rather in conjunction with the Vegetation and Watershed Management and 

Grazing Management Budget Line Items. Fiscal year (FY) 2006 and 2007 planned 

accomplishments are estimates for the Range Betterment portion of the funding. 

FY 2005 Accomplishments 

• Constructed approximately 422 structural improvements to manage livestock use patterns or 

to protect national forest lands. 

FY 2006 Program 

• Construct approximately 600 structural improvements to manage livestock use patterns or to 

protect national forest lands. 
FY 2007 Budget Justification USDA Forest Service 

Other Appropriations 12-2 

FY 2007 Plans 

• Construct approximately 590 structural improvements to manage livestock use patterns or to 

protect national forest lands. 
FY 2007 Budget Justification USDA Forest Service 

Other Appropriations 12-3 

Gifts, Donations, and Bequests for Forest and Rangeland Research 

 (dollars in thousands) 

 Increase or Decrease FY 2007

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006

Enacted Budget Authority 

Annual Appropriations $64 $63 $0 $0 $63 $0

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $64 $63 $0 $0 $63 $0

Staff Years 3 0 0 0 0 

Program Description 

For FY 2005, donations were received from individuals as well as businesses for the use of 

research work units and other organizational sub-units to further their research and development 

programs. The funds were used to purchase supplies and equipment, and to offset travel to 

training and seminars. 

For FY 2007, funds will be used for the same purposes as FY 2005 and FY 2006. 
FY 2007 Budget Justification USDA Forest Service 

Other Appropriations 12-4 

Management of National Forest Lands for Subsistence Uses 

 (dollars in thousands) 

 Increase or Decrease FY 2007

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006

Enacted Budget Authority 

Annual Appropriations $5,879 $4,993 $33 $285 $5,311 $318

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $5,879 $4,993 $33 $285 $5,311 $318

Staff Years 26 24 2 26 2 

Program Description

The 1980 Alaska National Interest Lands Conservation Act (ANILCA) Title VIII provides rural 

Alaskan residents a subsistence priority to harvest fish and wildlife on Federal lands over sport 

and commercial uses. The statute is in direct conflict with the Alaska State Constitution, which 

prohibits granting subsistence priority to rural residents. As a result, the Federal government 

assumed responsibility for subsistence management on Federal public lands in 1990 and 

expanded its responsibility to federally-reserved navigable waters in Alaska on October 1, 1999. 

Federal subsistence is a joint effort of the United States Department of the Interior (DOI) and the 

United States Department of Agriculture (USDA), with management on National Forest System 

(NFS) lands the responsibility of the Forest Service. 

Enforcement of Federal subsistence hunting and fishing regulations requires protecting the 

subsistence priority and conserving healthy fish and wildlife populations. The Alaska Region 

must now focus on enforcing these regulations on 22.6 million acres of NFS lands, 

approximately 75 waterways, navigable lakes, and areas of Prince William Sound. 

More than 143,000 rural residents in Alaska harvest and consume nearly 40 million pounds of 

wildlife and fish annually. This includes an average of 20,000 deer, 9,000 caribou, 7,000 moose, 

and a large variety of other wildlife and fish species. There are no alternative food sources for 

many rural Alaskan villages. 

Federal subsistence hunting and fishing regulations must be reviewed yearly to ensure a 

sustained supply of wild food resources. Annually, the Forest Service receives approximately 

120 proposed changes to the regulations that require the collection and analysis of a considerable 

amount of information. Failure to adequately address subsistence management responsibilities 

could result in increased litigation, unnecessary restriction of subsistence and non-subsistence 

uses of wildlife and fish on NFS lands, and an increase in the likelihood of wildlife and fish 

conservation problems. 
FY 2007 Budget Justification USDA Forest Service 

Other Appropriations 12-5 

FY 2005 Accomplishments 

• Completed 35 management analyses for proposed subsistence hunting and fishing 

regulations, with accompanying biological and social impact analysis. The proposed hunting 

and fishing subsistence regulations that were analyzed by Forest Service staff included 

establishing or revising seasons, revising methods and means of harvesting, revising harvest 

limits, revising harvest areas, and establishing or revising customary and traditional use 

determinations. 

• Completed various monitoring projects such as 5 river system salmon escapement counts, 6 

fish distribution surveys, 16 salmon stock assessments, and 8 population surveys for moose, 

deer, caribou, and mountain goats. 

• Completed a comprehensive cooperative planning process for deer harvest on Prince of 

Wales Island under the auspices of the Southeast Regional Advisory Council, a federally 

chartered committee that advises the Federal Subsistence Board. 

• Continued development of State and Federal protocols for sharing information, fisheries inseason management, coordination of regulations, developing and adopting management 

plans, and salmon escapement goals. 

• Sixteen Forest Service law enforcement officers and agents spent approximately 7,500 hours 

patrolling and monitoring important subsistence use areas on foot, by vehicle, boat, and 

aircraft. They also reviewed numerous proposals and provided education programs for 

subsistence users. 

• Provided law enforcement presence where user conflicts were a concern, and in areas where 

the taking of fishing and hunting resources were restricted to subsistence use. 

• Provided management analyses and recommendations to the Federal Subsistence Board and 

to the Under Secretary of Agriculture for Natural Resources and Environment, to assert 

extraterritorial jurisdiction to regulate an Alaska commercial salmon fishery to protect the 

rural Alaska subsistence priority. 

FY 2006 Program

• Complete management analyses for 25 of the more than 60 proposed changes to Federal 

regulations statewide on the Tongass National Forest in the manner mandated in ANILCA, 

Title VIII.

• Continue to evaluate and update wildlife and fisheries management plans, perform wildlife 

and fisheries resource assessments and monitoring projects, and perform law enforcement 

activities in support of these annual regulatory activities. 

• Initiate a comprehensive planning process for Wildlife Information Services, and a young 

growth management strategy on Prince of Wales Island. 

• Work with local communities and organizations to mitigate potential or actual law 

enforcement conflicts between subsistence fisheries users and the sportfish and commercial 

fishing industry.
FY 2007 Budget Justification USDA Forest Service 

Other Appropriations 12-6 

FY 2007 Plans 

• Complete management analysis for 40 of the more than 100 proposed changes in Federal 

subsistence hunting and fishing regulations that are anticipated in FY 2007 in the manner 

mandated in ANILCA, Title VIII. 

• Evaluate and update wildlife and fisheries management plans, perform wildlife and fisheries 

resource assessments and monitoring projects, and conduct law enforcement activities in 

support of these annual regulatory activities. Expand the wildlife information services 

program specific to subsistence resources on the national forests in Alaska. 

Justification of FY 2007 Program Changes 

Funding requested for FY 2007 will allow subsistence uses to continue at slightly above the 

FY 2006 level. It will also allow the agency to continue implementation of a small but important 

wildlife information services program, and full funding of the fisheries information services 

program. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 

Chapter 13 

Permanent Appropriations

FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-1 

Permanent Appropriations 

Including Working Funds and Payments to States 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations (Receipts) $598,592 $662,240 $2,241 -$23,629 $640,852 -$21,388

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $598,592 $662,240 $2,241 -$23,629 $640,852 -$21,388

Staff Years 1,737 1,885 30 1,915 30 

Permanent Appropriations: Working Funds 

 (dollars in thousands) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

 Final Enacted Budget FY 2006 

Brush Disposal 

 New Budget Authority ($000) $12,643 $12,500 $13,000 $500

 Program Level ($000) $12,003 $17,145 $13,000 -$4,145

 Staff Years 130 135 140 5 

Licensee Programs 

 New Budget Authority ($000) $95 $70 $70 $0

 Program Level ($000) -$38 $75 $75 $0

 Staff Years 0 0 0 0 

Restoration of Forestlands and Improvements 

 New Budget Authority ($000) $7,824 $3,000 $3,000 $0

 Program Level ($000) $678 $1,750 $1,750 $0

 Staff Years 2 4 4 0 

Recreation Fee Collection Costs 

 New Budget Authority ($000) $380 --- --- --- 

 Program Level ($000) $92 --- --- --- 

 Staff Years 2 --- --- --- 

Federal Lands Recreation Enhancement Fund 

 New Budget Authority ($000) $50,245 $52,850 $54,850 $2,000

 Program Level ($000) $45,622 $61,186 $50,462 -$10,724

 Staff Years 513 520 520 0 

Federal Lands and Facilities Enhancement Fund 

 New Budget Authority ($000) $211 $37,000 $48,000 $11,000

 Program Level ($000) $579 $22,409 $38,044 $15,635

 Staff Years 2 49 81 32 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-2 

 (dollars in thousands) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

 Final Enacted Budget FY 2006 

Timber Roads--Purchaser Election Program 

 New Budget Authority ($000) $6,800 $6,800 $4,000 -$2,800

 Program Level ($000) $779 $6,800 $4,000 -$2,800

 Staff Years 1 0 0 0 

Timber Salvage Sales 

 New Budget Authority ($000) $71,185 $60,000 $58,000 -$2,000

 Program Level ($000) $69,436 $78,333 $70,000 -$8,333

 Staff Years 785 791 791 0 

Stewardship Contracting Retained Receipts 

 New Budget Authority ($000) [$2,039] $5,926 $5,000 -$926

 Program Level ($000) [$1,005] $2,367 $4,079 $1,712

 Staff Years 0 0 0 0 

Timber Pipeline Restoration Fund 

 New Budget Authority ($000) $4,914 $4,500 $4,500 $0

 Program Level ($000) $2,226 $4,229 $4,000 -$229

 Staff Years 61 111 111 0 

Roads and Trails (10 Percent Fund) 

 New Budget Authority ($000) $15,712 $18,850 $18,850 $0

 Program Level ($000) $14,004 $14,000 $15,000 $1,000

 Staff Years 60 60 64 4 

Midewin Tallgrass Prairie--Rental Fees 

 New Budget Authority ($000) $287 $400 $400 $0

 Program Level ($000) $408 $500 $500 $0

 Staff Years 0 0 0 0 

Midewin Tallgrass Prairie--Restoration Fund 

 New Budget Authority ($000) $0 $5 $5 $0

 Program Level ($000) $0 $0 $0 $0

 Staff Years 0 0 0 0 

Operations and Maintenance of Quarters 

 New Budget Authority ($000) $7,377 $8,000 $8,000 $0

 Program Level ($000) $7,706 $8,792 $8,000 -$792

 Staff Years 47 54 48 -6 

Land Between The Lakes Management Fund 

 New Budget Authority ($000) $3,571 $3,600 $3,600 $0

 Program Level ($000) $2,613 $4,401 $3,600 -$801

 Staff Years 9 16 16 0 

Administration of Rights-of-Way and Other Land Uses 

 New Budget Authority ($000) $497 $1,300 $3,625 $2,325

 Program Level ($000) $187 $903 $3,380 $2,477

 Staff Years 2 3 5 2 

Forest Botanical Products 

 New Budget Authority ($000) $1,396 $1,800 $1,850 $50

 Program Level ($000) $0 $1,500 $1,600 $100

 Staff Years 0 22 24 2 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-3 

 (dollars in thousands) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

 Final Enacted Budget FY 2006 

Valles Caldera Fund 

 New Budget Authority ($000) $109 $500 $500 $0

 Program Level ($000) -$209 $600 $600 $0

 Staff Years 0 0 0 0 

PERMANENT APPROPRIATIONS 

 New Budget Authority ($000) $183,246 $217,101 $227,250 $10,149

 Program Level ($000) $156,086 $224,990 $218,090 -$6,900

 Staff Years 1,614 1,765 1,804 39 

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget Authority is higher due 

to unobligated prior-year receipts.

Program Level: Actual obligations in FY 2005 and planned obligations for FY 2006 and FY 2007. 

Permanent Appropriations: Payments to States 

 (dollars in thousands) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

 Final Enacted Budget FY 2006 

Payments and Transfers from National Forest 

Fund 

 Payment to Minnesota $2,102 $2,102 $2,102 $0

 Payments to States, Act 1908 $7,227 $6,653 $7,000 $347

 SRS Act of 2000* 

 Payments to States, Title I and III $50,926 $75,352 $120,000 $44,648

 Transfers to Forest Service, Title II 

 New Budget Authority $33,009 $33,642 $34,000 $358

 Program Level $38,342 $58,120 $35,000 -$23,120

 Staff Years 123 120 111 -9 

Payments from Treasury 

 SRS Act of 2000* 

 Payments to States Titles I & III $309,915 $295,912 

 Amended SRS Act $242,000 -$53,912

Payments from National Grasslands and Land 

 Utilization Projects 

 Payments to Counties $6,834 $7,000 $7,500 $500

Payments and Transfers $415,346 $445,139 $413,602 -$8,059 

Staff Years 123 120 111 -9 

* Secure Rural Schools and Community Self-Determination Act of 2000 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-4 

Brush Disposal 

 

Program Description 

This program is authorized by Section 6 of the Act of August 11, 1916 (Ch. 313, 39 Stat. 446, as 

amended; 16 U.S.C. 490). It provides for the disposal of brush and other debris resulting from 

cutting operations on timber sale areas to protect and maintain national forest resources. Timber 

harvest activities can increase fire hazards because of the dry fuel that accumulates as logging 

slash. Slash can also impair reforestation, contribute to the buildup of insect populations, damage 

stream channels, look unsightly, and limit recreational uses. Crushing, chipping, burning, or a 

combination of these methods disposes of brush. 

Brush disposal is required as a provision of the timber sale contract. The timber sale operator 

has the option of performing the work or requesting the Forest Service complete this work by 

making deposits of funds to cover these costs. 

The allocation of brush disposal funds responds to each region’s request for authority to spend 

deposited funds for necessary treatments. 

The fiscal year (FY) 2007 planned level would allow for brush disposal on approximately 50,000 

acres, which represents an increase of approximately 5,000 acres from what is programmed for 

FY 2006. This increase reflects a greater need in FY 2007 for brush disposal on timber sale 

areas following timber harvest and corresponds to the upward trend in acres treated through 

timber harvest in recent years. 

Independent Reviews 

None. 

FY 2005 Accomplishments 

• Brush disposal was completed on 32,047 acres. 

FY 2006 Program 

• Approximately 45,207 acres are programmed for treatment. 

FY 2007 Plans 

• Approximately 50,000 acres are projected to be treated. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-5 

Licensee Programs (Smokey Bear and Woodsy Owl) 

Program Description 

Fees for the use of the Smokey Bear and Woodsy Owl characters by private enterprises are 

collected under regulations formulated by the Secretary of Agriculture. They are available to 

support: 

• Smokey Bear: to further the nationwide forest fire prevention campaign (16 U.S.C. 580 p-2) 

(31 U.S.C. 488a, 488b-3, 488b-6). 

• Woodsy Owl: to promote wise use of the environment and programs that foster maintenance 

and improvement of environmental quality (16 U.S.C. 580 p-1) (18 U.S.C. 711, 711a). 

Major Program Activities of the Smokey Bear Program 

This program supports national initiatives, programs, and products that help increase public 

awareness in regard to wildfire prevention. 

The Smokey Bear licensing program receives approximately $100,000 yearly from royalties, of 

which 35 percent are paid to the licensee contractor for its fees. 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 

USDA Forest Service has discretionary authority to use money from royalties in special projects 

that support the Smokey Bear fire prevention message. 

FY 2005 Accomplishments 

• Worked with licensee contractor to strengthen the program. 

• Produced a DVD for the story of Smokey Bear. 

• Partnered Disney’s Bambi and Smokey Bear on a fire prevention campaign including 

licensed products. 

• Supported the Junior Forester Ranger program revision. 

FY 2006 Program 

• Support the Smokey Bear Fire Prevention Campaign with the Ad Council. 

• Support the National Ag Library project to catalog, maintain, and restore the resource 

library of Smokey Bear campaign materials. 

• Develop graphics for the new Smokey billboard campaign. 

• Re-introduce the Smokey Bear campaign poster series by producing the first poster 

through the National Symbols Cache. 

• Collaborate with the National Icons Museum coordinators in Kansas City, Kansas, by 

providing information necessary to develop a Smokey Bear exhibit in the museum. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-6 

• Support efforts for the national launch of the Junior Forest Ranger program. 

FY 2007 Plans 

• Continue efforts for Smokey’s presence at the National Icons Museum in Kansas City, 

Kansas.

• Release the new TV/Radio Smokey Bear fire prevention public service campaign. 

Major Program Activities of the Woodsy Owl Licensing Program 

This program supports national initiatives, programs and products that help increased public 

awareness of activities and issues related to improvement and maintenance of environmental 

quality. 

FY 2005 Accomplishments 

• Established seven licensees in the Woodsy Owl Licensing Program. 

• Continued working with Head Start and distributed Woodsy’s ABCs book through this 

partnership. 

• Continued working with Head Start on incorporating Woodsy Owl in the curriculum. 

• Completed the first draft for the renewal of Woodsy Owl Recreation Tips booklet. 

• Developed the Woodsy Owl ABC website with activities and downloadable products for 

teachers. 

• Enhanced partnership with the National Garden Clubs Inc., for the national poster contest 

highlighting Woodsy Owl and the USDA Forest service centennial celebration. 

FY 2006 Program

• Hire a contractor to manage the licensing of Woodsy Owl. 

• Use royalties to cover all of the expenses generated by the licensing contractor. 

• Attend one national licensing conference. 

• Develop and implement communication plan for the enhancement of the partnership with 

the Head Start Bureau. 

• Complete research module to monitor progress on the revamping efforts of the Woodsy 

Owl program initiated in FY 2001. 

• Define scope and purpose of the Woodsy Owl Recreation Tips pamphlet. 

• Initiate procedures to revise the Junior Snow Ranger program. 

• Hire a web designer to improve the http://www.woodsyowl.gov site. 

• Support the presence of Woodsy Owl in the upcoming National Icons Museum in Kansas 

City, Kansas. 

• Hire an education specialist to assist in improving the educational value of the Cache 

products. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-7 

FY 2007 Plans 

• Bring ten more licensees to the licensing program. 

• Enhance partnership with the Head Start Bureau and the National Garden Clubs, Inc. 

• Enhance partnership with ski areas for the distribution of the Junior Snow Ranger 

program. 

• Develop and distribute the Woodsy Owl recreation product in partnership with Leave No 

Trace and Tread Lightly. 

• Partner with the Environmental Protection Agency and the U.S. Department of Energy 

for the use of Woodsy Owl for their energy conservation program. 

• Develop a partnership plan with federal agencies’ conservation programs. 

• Conduct a national Woodsy Owl survey to identify progress of the program’s revamping 

efforts. 

• Continuation of efforts for Woodsy’s presence at the National Icons Museum in Kansas 

City, Kansas. 

 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-8 

Restoration of National Forest Lands and Improvements 

Program Description 

This program covers the cost to the Forest Service of any improvement, protection, or 

rehabilitation work that becomes necessary due to damages, claims for the Government, or 

failure of a contractor, permittee, or timber purchaser to perform as agreed. The Restoration of 

National Forest Lands and Improvements Act (16 U.S.C. 579c) provides for the recovery of any 

monies received by the Forest Service with respect to lands under its administration as a result of 

the 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 as a result of a judgment, compromise, or settlement of any claim, 

involving present or potential damage to lands or improvements. 

The recovered funds cover the Government’s cost of completing the work that is necessary to 

return national forest lands to optimum production. Funds received as settlement of a claim are 

used for the improvement, protection, or rehabilitation work made necessary by the action 

leading to the cash settlement. 

Most receipts are used to reimburse programs under a Comptroller General decision allowing 

direct reimbursement to benefiting funds, rather than requiring all funds to be deposited and used 

from the permanent appropriation. The proposed funding level is based on field projections of 

anticipated work. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-9 

Recreation Enhancement Fund

Program Description 

Under the Federal Lands Recreation Enhancement Act (REA) signed by the President on 

December 8, 2004, the USDA Forest Service has 10-year authority for the recreation fee 

program. Fees may be collected from use of facilities, visitor centers, equipment, and services. 

Available funds can be used to pay for on-the-ground operation, maintenance, and improvements 

to eliminate backlogs and enhance recreation opportunities, visitor experiences, and related 

habitat. 

Forest Service fee collection projects are authorized to retain 80 percent of any new fees 

collected. The regions have been delegated authority to decide distribution of the remaining 20 

percent. Regions have decided to allow local projects to retain 90-100 percent of revenues, with 

the remainder available for region-wide use. 

A complete and detailed explanation of the plans, accomplishments, and proposals for further 

implementation will be provided every three years beginning May 1, 2006 in an Interagency 

Report to Congress. 

REA provides tighter guidelines for the recreation fee program, including minimum criteria for 

charging fees. In addition, the language directs the establishment of recreation resource advisory 

committees that will provide direct public involvement and comment on recreation fee programs 

across the country. The Federal agencies have established interagency teams to coordinate 

consistent implementation guidelines. The Forest Service issued interim implementation 

guidelines in April 2005. As a result of the REA, approximately 350 recreation fees were 

dropped from the recreation fee program because they do not meet the minimum criteria for 

charging a fee. Some recreation sites that operated under repealed or different authorities, such 

as campgrounds and rental cabins, have been added to the recreation fee program under REA. 

Independent Reviews 

The General Accountability Office (GAO) is conducting an assessment of the agency’s 

implementation of the REA. Information gathering and employee surveys are scheduled for 

January 2006 with report completion by March 2006. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-10 

Land and Facility Enhancement Fund 

Program Description 

Numerous Federal statues authorize the Secretary of Agriculture to retain proceeds from the 

conveyance of land and excess structures, and expend the revenues to acquire or develop land 

and improvements for administrative purposes. 

Land and Facility Conveyances Under Special Legislation – This program, which operates under 

many authorizations, enables specific national forests to convey land or facilities and use the 

proceeds to acquire, construct, or improve land and facilities within the same national forest or 

State. Revenues received from the sale of land or structures are deposited into the Sisk Act Fund 

and are available without further appropriation. 

Administrative Site Conveyances Program – In fiscal year (FY) 2002, Public Law 107-63, 

Section 329, of the Interior and Related Agencies Appropriations Act, as amended by P.L. 108-7, 

P.L. 108-108, and P.L. 108-447, authorized the Forest Service to implement a pilot program that 

allows the agency to retain proceeds from the conveyance of excess structures and expend the 

receipts for building maintenance, rehabilitation, and construction. Under this authority, only 40 

projects were authorized for conveyance. In FY 2005, the Forest Service Facility Realignment 

and Enhancement Act (FSFREA), Title V of the 2006 Interior Appropriations Act, provided the 

Forest Service with authority to convey an unlimited number of administrative sites and retain 

the proceeds for building maintenance, rehabilitation, and construction provided certain criteria 

contained in Title V were met. Under this authority, the Forest Service notifies Congress of 

projects it intends to pursue and projects initiated under the pilot authority can continue under the 

new authority. However, no new projects may be initiated under the pilot authority beyond the 

40 projects already approved. 

The Forest Service currently owns approximately 20,000 administrative and research buildings. 

A large number of these facilities do not meet the agency’s needs. More than 60 percent of 

Forest Service facilities are more than 30 years old and more than half have exceeded their 

design life. Without major and often costly renovations, these structures frequently fail to meet 

administrative needs due to inadequate space, improper location, high maintenance costs, and 

failure to meet current health, safety, and accessibility codes. 

Independent Reviews 

For the FY 2004 President’s Budget, Capital Improvement and Maintenance (CI&M) was 

evaluated through the Program Assessment Rating Tool (PART). The program rating was 

“adequate” with long-term performance measures generally good. Specific findings and agency 

actions are identified under the Capital Improvement and Maintenance appropriation. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-11 

FY 2005 Accomplishments 

• Published interim directives related to conveyances. 

• Provided training for conveyances to realty staff and line officers. 

• Completed four land and/or facility conveyance projects under special sales authorities 

resulting in collections of $4 million, as follows: 

o Region 5 – Faraway Ranch, $154,000 

o Region 6 – Bend Pine Nursery, $3,503,676 

o Region 8 – Fairgrounds Ball Field, $171,551 

o Region 9 – Green Mountain National Forest project, $154,350 

• Completed eight pilot conveyance projects resulting in collections of $2.2 million, as 

follows: 

o Region 1 – Noxon Administrative Site, $850,001 

o Region 2 – Kremmling, $236,500; Sheridan $297,500 

o Region 4 – Lamoille Dwelling, $166,000 

o Region 6 – Forks Residence, $225,000; Mill City Residence, $250,086; Sweet Home 

 Residences, $139,100 

o Region 8 – Cherokee National Forest project, $72,005 

FY 2006 Program 

• Implement facility master plan recommendations to reduce the number and size of facilities 

maintained in the agency’s inventory. 

• Implement sales strategy plans for marketing, staffing and funding project work, maximizing 

use of proceeds and contracting opportunities for program efficiency. 

• Initiate over 100 administrative site conveyances with projected collections of approximately 

$77 million, although collections will not be fully realized until FY 2008 or FY 2009. 

• Continue to provide training for conveyances to realty staff and line officers. 

• Publish Forest Service Handbook (FSH) 5509.11, Chapter 26, Special Act Sales. 

FY 2007 Plans 

• Implement facility master plan recommendations to reduce the number and size of facilities 

maintained in the agency’s inventory. 

• Implement sales strategy plans for marketing, staffing and funding work. 

• Initiate 70 administrative site conveyances with projected collections of approximately $25 

million, although collections will not be fully realized until FY 2008 or FY 2009. 

As directed in the FY 2006 Conference Report 109-188, the following tables display a list of 

proposed Forest Service conveyances, including anticipated revenues, for fiscal years 2006 and 

2007: 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-12 

 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-13 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-14 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-15 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-16 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-17 

Timber Purchaser Election Road Construction 

Program Description 

This program, which was established by the National Forest Management Act of 1976 (16 

U.S.C. 472a(i)), supports construction of roads included as “specified roads” in timber sale 

contracts. When a timber sale is sold to a qualifying small business, the law allows the purchaser 

to pay the Forest Service to construct or reconstruct permanent roads or bridges required by the 

sale. The agency contracts for the construction work and administers the contract. To qualify for 

this program, a timber purchaser must be a small business and the estimated cost of road 

construction and reconstruction must exceed $50,000. The use of funds under this program can 

vary greatly from year-to-year and is difficult to predict. Based on past use, an estimated 2 to 20 

miles of road may be constructed, and an estimated 10 to 100 miles of road may be 

reconstructed. 

The expenditure under this program was less than $1 Million in FY 2005. With the proposed 

full implementation of the Northwest Forest Plan, it is anticipated that this program may increase 

substantially. Due to this increase in FY 2007, the estimated expenditure under this program is 

$4 Million. 

FY 2005 Accomplishments 

• Constructed 12.4 miles of roads. 

• Reconstructed 34.7 miles of roads. 

FY 2006 Program 

• An estimated 15 miles of roads are programmed for construction. 

• An estimated 40 miles of roads are programmed for reconstruction. 

FY 2007 Plans 

• An estimated 20 miles of roads are planned for construction. 

• An estimated 50 miles of roads are planned for reconstruction. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-18 

Timber Salvage Sales 

Program Description

The National Forest Management Act of 1976 (16 U.S.C. 472a(h)) authorizes the Secretary of 

Agriculture to require purchasers of salvage timber to make monetary deposits, as a part of the 

timber payment, to cover the cost for design, engineering, and supervision of the construction of 

needed roads and the cost for sale preparation and supervision of the harvesting of salvage 

timber. Deposits of money are to be available until expended. 

Forest Service timber salvage sales are one tool that is used to restore, maintain, and improve the 

health of forestland ecosystems. Removing damaged, diseased, or insect-infested forest 

vegetation is effective in recovering some timber value while reducing the hazards that would be 

caused if the timber were not removed in a timely manner. 

The fiscal year (FY) 2007 planned level provides for the preparation and offer of approximately 

898,000 hundred cubic feet (CCF) (about 449 million board feet (MMBF)) of salvageable 

timber. This compares to the FY 2006 budget level of 815,649 CCF (about 408 MMBF). The 

FY 2006 figures do not include any additional salvage as a result of the 2005 hurricanes, because 

those salvage volume estimates are not well enough defined at this time to be included. 

This FY 2007 salvage estimate represents the agency’s best prediction of salvage based on recent 

trends. Since salvage program activity responds to natural events that cause tree mortality, it is 

difficult to accurately predict the events that will most significantly influence FY 2007 salvage 

needs. 

FY 2005 Accomplishments 

• Salvage volume totaling 1,617,385 CCF (888 MMBF) was offered for sale. 

FY 2006 Program 

• The agency intends to sell 815,649 CCF (about 408 MMBF) of salvage volume.

FY 2007 Plans 

• The agency plans to offer for sale approximately 898,000 CCF (about 449 MMBF) of 

salvage volume. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-19 

Stewardship Contracting 

Over the past 2 decades, the Federal timber sale program has declined, but the need to maintain 

and improve the health of the national forests has increased. As a key component of the 

President’s Healthy Forests Initiative, stewardship contracting helps accomplish forest 

restoration work. Section 323 of the Consolidated Appropriations Resolution of FY 2003 (P.L. 

108-7), grants the Forest Service and Bureau of Land Management (BLM) authority until 

September 30, 2013, to enter into stewardship contracting projects with private persons or public 

or private entities, by contract or agreement, to perform services to achieve land management 

goals for the national forests or public lands that meet local and rural community needs. 

The legislation authorizes some innovative approaches, such as applying receipts from timber 

towards resource work. Other authorities provided in the legislation allow the Forest Service to 

use best value contracting and contracts that extend to 10 years. In addition, the stewardship 

contracting legislation allows the Forest Service to treat more acres of the national forests and 

grasslands by improving efficiency through the use of “bundled” contracts and the treatment of 

vegetation at a landscape scale. Collaboration with local and rural communities is an integral 

part of each stewardship contract or agreement. 

Stewardship contracting is a tool that will facilitate accomplishing resource management 

objectives including: reducing fuels in the wildland urban interface, improving forest health, and 

enhancing wildlife habitat. Stewardship contracting is an important tool for implementing the 

Healthy Forests Restoration Act of 2003. 

We are finding that successful stewardship projects are highly related to good community 

collaboration. The agency’s stewardship contracting successes are being shared with internal 

and external stakeholders on several websites, and at presentations and training sessions around 

the country. 

FY 2005 Accomplishments 

• Awarded stewardship contracts and agreements covering 35,478 acres, which included 

196,079 CCF (about 98 MMBF) of timber.

• Treated 29,324 acres of wildland urban interface high priority fuels. 

• Moved 19,605 acres of hazardous fuels in fire regimes 1, 2, or 3 to a better condition class. 

• Improved 4,988 acres of terrestrial wildlife habitat. 

• Restored or enhanced 42 miles of streams. 

• Decommissioned 90 miles of road. 

• Treated 2,769 acres of noxious weeds. 

FY 2006 Program 

• Expect stewardship contracting to continue to play a key role in implementing the Healthy 

Forest Initiative and land management plans. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-20 

• Award approximately 80,000 acres of work under stewardship contracts/agreements. 

• Develop a multi-year baseline of performance reflecting accomplishment of land 

management activities through increased efficiencies resulting from the use of the 

stewardship contract authority. 

FY 2007 Plans 

• Expect stewardship contracting to continue to play a key role in implementing the Healthy 

Forests Initiative and land management plans. 

• Award approximately 100,000 acres of work under stewardship contracts/agreements. 

• Stewardship contracts and agreements will continue to reduce hazardous fuels, improve 

wildlife habitat, treat invasive species, and supply additional forest products. 

• The agency believes that by FY 2007 most units will have experience with stewardship 

contracting. Therefore, in FY 2007 the agency will use performance measures in the national 

allocation of funds and the selection, implementation, and oversight of projects that utilize 

stewardship contracting authority. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-21 

Timber Sale Pipeline Restoration Fund

Program Description 

This permanent appropriation was established by Section 327 of the Omnibus Consolidated 

Rescissions and Appropriations Act of 1996 (P.L. 104-134) to provide for the preparation of 

future non-salvage timber sales by restoring the timber sale preparation pipeline and to reduce 

the backlog of unfunded recreation projects. 

Any revenues received from sales released under Section 2001(k) of the FY 1995 Supplemental 

Appropriations for Disaster Assistance and Rescissions Act (P.L.104-19), minus the funds 

necessary to make payments to States or local governments that are in excess of $37.5 million, 

shall be deposited in either the Agriculture Fund administered by the Forest Service or the 

Interior Fund administered by the Bureau of Land Management (BLM). From the monies 

deposited in the funds, 75 percent shall be available for the preparation of non-salvage timber 

sales, and 25 percent shall be available to expend on the backlog of recreation projects, without 

fiscal year limitation or further appropriation. Revenues received from any timber sale prepared 

using these funds, minus the amounts necessary for State and local governments and necessary 

deposits, shall be deposited in the funds for continued use for the same purposes until such time 

as either the Secretary of Agriculture or of the Interior finds that sales sufficient to achieve the 

total allowable sales quantity for their respective agency have been prepared. 

Alternative timber volume for suspended Section 2001(k) timber sales has not yet been fully 

prepared, and in some cases, has not yet been identified. Modifying the current contracts 

requires full National Environmental Policy Act compliance, as well as conformance with all of 

the standards and guidelines found in the Northwest Forest Plan. Until such time as this work is 

completed, the full potential of this fund cannot be realized from the deposit of qualifying timber 

sale receipts for timber sale pipeline preparation and backlog recreation development. 

For the first time in FY 2001, receipts were collected from qualifying timber sales that were 

funded from deposits to the Timber Sale Pipeline Restoration Fund. 

Independent Reviews 

None. 

FY 2005 Accomplishments 

• Approximately 160,000 hundred cubic feet (CCF) (about 80 million board feet (MMBF)) of 

timber volume was offered for sale. 

• About $1.1 million in recreation backlog work was accomplished with funding from prior 

years. 

• Approximately $2.6 million was allocated to the national forests for new timber sales and 

approximately $1.0 million for backlog recreation projects. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-22 

FY 2006 Program 

• About 150,000 CCF (about 75 MMBF) of timber volume is planned for offer.

• About $1.1 million in backlog recreation projects is planned.

• About $4.5 million in net revenues is anticipated.

FY 2007 Plans 

• About 290,000 CCF (about 145 MMBF) of timber volume is planned for offer.

• About $1.1 million in backlog recreation funding is anticipated.

• About $4.5 million in net revenues is anticipated. 

 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-23 

Roads and Trails (10 Percent) Fund

Program Description 

Under the Act of March 4, 1913 (16 U.S.C. 501), 10 percent of national forest receipts are made 

available to build and maintain roads and trails within national forests in the States where the 

receipts were collected. For several years prior to FY 1996, appropriation language required that 

these funds be transferred to the General Fund, but since that time this requirement has been 

omitted. In FY 1999, the authority was expanded with the Omnibus Appropriations Act (P.L. 

105-277, General Provision 332) to make use of deposited funds for the purpose of improving 

forest health conditions, including repair or reconstruction of roads and bridges on National 

Forest System lands in the wildland-urban interface where there is a high risk of fire. 

An estimated $14 million from FY 2006 receipts will be available for expenditure in FY 2007. 

As in previous years, these funds will be directed towards correcting road and trail deficiencies 

that are adversely affecting ecosystems. 

FY 2005 Accomplishments 

• Reconstructed approximately 90 miles of existing roads. Typical work included 

reconstructing stream crossings to replace deteriorated culverts or to allow for fish passage, 

surfacing roads to reduce sediment, and improving public road access to national forest 

system land. 

• Trail projects included providing access to important lakes and streams and the replacement 

of wilderness trail bridges to restore safe trail access.

• Examples of actual FY 2005 projects funded include:

o East Fork Sevier Tributary Fish Passage, Dixie National Forest, UT – replaced stream 

crossing to provide passage for all aquatic biota species, and reduced road damage 

and stream sedimentation.

o Key Bridge Phase 1, Sumter National Forest, SC – Repaired a 250 ft steel truss and 

timber bridge to connect Turkey/Stevens Creek with parking and canoe launch on the 

opposite side. 

o Emergency Bridge Repair, National Forests of Alabama and Florida – Repaired 23 

bridges and 1 major culvert damaged by Hurricanes Ivan and Frances in September of 

2004. 

o Hale Brook Culvert, White Mountain National Forest, NH - Replaced culvert to 

restore fish passage for wild brook trout in Hale Brook. 

o Anan Creek Trail Reconstruction, Tongass National Forest, AK – reconstructed 1/2-

mile of trail. 

o Veteran’s on the Lake Watershed Improvement, Superior National Forest, MN – 

Halted on-going erosion and stabilized shore land habitat. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-24 

FY 2006 Program 

• Projects will focus on restoration and maintenance of roads and trails that are causing 

resource problems through erosion and sedimentation, or are obstructing the passage of fish 

and other aquatic organisms. 

• Priority will be given to projects in heavily used watersheds. 

• Priority will also be given to national forest road and trail projects that will have high public 

benefit through access improvements. 

• Priority will also be given to projects involving partnership contributions, in order to leverage 

funds and enhance public involvement. 

FY 2007 Plans

• Projects will focus on restoration and maintenance of roads and trails that are causing 

resource problems through erosion and sedimentation, or are obstructing the passage of fish 

and other aquatic organisms. 

• Priority will be given to projects in heavily used watersheds. 

• Priority will also be given to national forest road and trail projects that will have high public 

benefit through access improvements. 

• Priority will also be given to projects involving partnership contributions, in order to leverage 

funds and enhance public involvement. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-25 

Midewin National Tallgrass Prairie Rental Fee Fund 

Program Description 

The Illinois Land Conservation Act of 1995 (Title XXIX of Public Law 104-106) established the 

Midewin National Tallgrass Prairie (MNTP) to be managed as part of the National Forest 

System. As authorized by the Act, two accounts were created; one to cover the cost of prairie 

improvements at Midewin and one for restoration and administrative activities on the Midewin 

National Tallgrass Prairie. 

Under section 2915(c) of the Act, after appropriate payments to the State of Illinois and affected 

counties, receipts from rental fees for use of MNTP land for agricultural purposes can be used to 

cover the cost of restoration, prairie improvement, and administrative activities in the Rental 

Fees Account. These funds may be used without fiscal year limitation. 

FY 2005 Accomplishments 

• Restored and managed approximately 1,200 acres of prairie and wetland habitat. 

• Controlled invasive species and noxious weeds to maintain native plant communities and 

grassland bird habitat. 

• Constructed, repaired, and maintained fencelines to manage cattle for grassland bird habitat 

and protect native plant seed production area. 

• Collected $304,225 in agriculture use revenues. 

• Completed installation of seed processing equipment; collected and processed native seed for 

restoration projects. 

FY 2006 Program

• Continue restoration and management of approximately 1,400 acres of prairie and wetland 

habitat. 

• Conduct prescribed fires on restored project areas to control weeds and enhance native plant 

growth. 

• Continue controlling invasive species and noxious weeds to maintain native plant 

communities and grassland bird habitat. 

• Construct, repair, and maintain fences to graze cattle for maintenance of grassland bird 

habitat. 

• Continue large scale conversion of agriculture fields to native prairie habitats. 

• Continue production of native plant seed for restoration projects. 

• Collect agriculture receipts for deposit into rental fee account. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-26 

FY 2007 Plans

• Continue restoration and management of prairie and wetland habitat. 

• Continue prescribed fires. 

• Continue controlling invasive species and noxious weeds. 

• Continue fence maintenance for cattle grazing. 

• Collect receipts from agriculture use for deposit into rental fee account. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-27 

Midewin National Tallgrass Prairie - Restoration Fund 

Program Description 

The Illinois Land Conservation Act of 1995 (Title XXIX of Public Law 104-106) established the 

Midewin National Tallgrass Prairie (MNTP) to be managed as part of the National Forest 

System. As authorized by the Act, two accounts were created, one to cover the cost of prairie 

improvements at Midewin and one to cover restoration and administrative activities on the 

Midewin National Tallgrass Prairie. 

Under section 2915(f) of the Act, receipts from user fees, sales of surplus equipment, and the 

salvage value proceeds from the sale of any facilities and improvements can be used to cover the 

cost of restoration; construction of a visitor center, recreational facilities, and administrative 

office; prairie improvement; and operation and maintenance activities. 

FY 2005 Accomplishments 

• An agreement was reached with a local contractor for the removal of power and telephone 

poles from Midewin NTP. The contractor will remove the poles, dispose of all waste, fill the 

holes left by the poles, and pay Midewin $4.10 for each salvageable pole removed. 

Contractor actions have been very slow and little if any revenue was realized from this 

material salvage in FY 2005. 

FY 2006 Program

• Removal of power and telephone poles will continue throughout FY 2006 during periods of 

appropriate weather. 

• Negotiations for removal of the lumber-framed warehouses by local contractors will 

continue. 

FY 2007 Plans

• Continue MNTP site cleanup and restoration by evaluating and advertising salvageable 

materials for sale and removal, thus generating revenue for the MNTP Restoration Fund. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-28 

Operation and Maintenance of Quarters 

Program Description 

Under authority of P.L. 98-473, as amended (5 U.S.C. 5911), a permanent fund was established 

for deposit of Forest Service employee payroll deductions for quarters rental. The collected 

funds are used in addition to the facilities appropriation to operate and maintain employee 

housing, furthering the agency’s goal of providing effective public service. The funds provide 

for the cost of maintenance, operation, and management of employee housing facilities, 

including associated utility systems. 

The funds are directed toward addressing health and safety issues such as lead-based paint, 

asbestos, and radon, as well as to address accessibility, equal gender, energy efficiency, and 

annual maintenance needs. The proposed funding level is based on estimated receipts. 

FY 2005 Accomplishments 

• Funds were used to provide operation and maintenance of employee housing. The funds 

were directed towards health and safety issues such as asbestos, radon, lead-based paint, 

access for disabled persons, and energy and water conservation. Nationally, funds collected 

in this account were approximately $7.7 Million. 

FY 2006 Program 

• Funds will continue to provide operation and maintenance of employee housing. The funds 

will be directed towards health and safety issues, such as asbestos, radon, lead-based paint, 

access for disabled persons, and energy and water conservation. The agency expects to 

collect approximately $8 million in FY 2006. 

FY 2007 Plans 

• Funds will continue to provide operation and maintenance of employee housing. The funds 

will be directed towards health and safety issue, such as asbestos, radon, lead-based paint, 

access for disabled persons, and energy and water conservation. The agency expects to 

collect approximately $8 million in FY 2007. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-29 

Land Between The Lakes Management Fund 

Program Description 

The Land Between The Lakes Protection Act of 1998 was enacted by Congress under Public 

Law (P.L.) 105-277 to transfer management of the Land Between The Lakes National Recreation 

Area (LBL) from the Tennessee Valley Authority (TVA) to the Secretary of Agriculture 

effective as of October 1 of the first fiscal year for which Congress did not appropriate to TVA at 

least $6 million for the LBL or, if the Act was enacted during a fiscal year for which Congress 

did not make such an appropriation, effective as of the date of enactment of the Act. 

Administrative jurisdiction over the LBL is transferred to the Secretary of Agriculture from TVA 

through P.L. 105-277, Section 541, 16 U.S.C. 460111-41. 

All amounts received from charges, use fees, and natural resource use, including timber and 

agricultural receipts, shall be deposited into a special fund in the Treasury of the United States to 

be known as the “Land Between The Lakes Management Fund.” Amounts in the Fund shall be 

available to the Secretary of Agriculture until expended, without further act of appropriation, for 

management of the LBL, including payment of salaries and expenses. 

The Forest Service estimates receipts to stay level from FY 2005 to FY 2007. 

FY 2005 Accomplishments 

• LBL began implementation of the land management plan, including actions which: 

o Treated 1,621 acres with prescribed fire for hazardous fuels reduction 

o Dramatically improved the existing customer and financial information program to 

provide timely, accurate, and comprehensive data to allow for effective and efficient 

management decisions. 

o Cooperated with the Federal Highway Administration and the Kentucky 

Transportation Cabinet to finalize a decision regarding the improvements to Highway 

68/80. 

o Continued the successful school grant program, serving more than 4,000 students. 

o Evaluated the seasonal camping program. 

o Offered first Forest Service regular timber sale. 

o Developed the site plan for a new nature watch area 

o Reviewed all recreation sites to assure delivery of the right capacity, type and levels 

of service. 

FY 2006 Program

• Continue implementation of the land and resource management plan, including actions which 

will: 

o Implement first nature watch area (including trails). 

o Implement oak-grasslands vegetation treatments. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-30 

o Evaluate consolidation of dispersed recreation sites in an effort to improve efficiency 

and amenities that customers desire. 

o Implement a new refuge management plan for the Long Creek area. 

o Complete the first aerial ignition prescribed fire treatment at LBL. 

FY 2007 Plans 

• Continue implementation of the land and resource management plan, including actions which 

will: 

o Reduce unneeded infrastructure. 

o Complete the transition of the Turkey Bay off-highway vehicle area to a designated 

trail system through restoration projects and signing. 

o Expand forest management treatments in oak-grassland demonstration area. 

• Begin analysis and treatment of short leaf pine ecosystem area in Tennessee portion of LBL. 

• Begin an analysis and design study in order to prioritize and schedule replacement of 

deteriorated buildings at Intern Village. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-31 

Administration of Rights-of-Way and Other Land Uses 

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 such authorizations and to monitor those 

authorizations. Those authorities include the Independent Offices Appropriations Act of 1952, 

Mineral Leasing Act of 1920, as amended (in 1973), and Federal Land Policy and Management 

Act of 1976. 

The administrative fees collected pursuant to these authorities are known as “special uses cost 

recovery fees.” The Forest Service is currently promulgating regulations to implement the 

statutory authorities to assess and collect cost recovery fees for both recreation and nonrecreation special uses. The regulations are anticipated to be published in the Federal Register 

and implemented later during calendar year 2006. 

Special Use Application Processing and Permit Monitoring Fees 

Section 331 of the fiscal year (FY) 2000 Interior and Related Agencies Appropriations Act (P.L. 

106-113) authorized the Secretary of Agriculture to develop and implement a 5-year pilot 

program to assess, collect, and expend, without further appropriation, cost recovery fees during 

FY 2000 through FY 2004. This authority was extended through September 30, 2006 pursuant 

to the FY 2006 Interior, Environment and Related Agencies Appropriations Act (P.L. 109-54). 

This program is designed to improve customer service to applicants and holders of special land 

use authorizations. Moreover, this program is intended to reduce the agency’s backlog of expired 

authorizations (approximately 15,000) by making available appropriated funds now being used 

to process and monitor these authorizations. The program will also establish interagency 

consistency with the Bureau of Land Management, particularly in those situations involving 

projects that occupy Federal lands managed by both agencies. 

Commercial Filming Special Uses Land Rent 

Public Law 106-206, enacted on May 26, 2000, authorizes the Secretaries of the Departments of 

the Interior and Agriculture to regulate still photography and commercial filming activities on 

Federal lands. This Act supersedes previous statutes for authorizing still photography and 

commercial filming activities, and in doing so, establishes certain limitations on the type of still 

photography activities that will require a special use authorization and the conditions under 

which the authorization will be needed. 

Pursuant to P.L. 106-206, the Forest Service has the authority to collect and deposit land use fees 

for still photography and commercial filming in accordance with the formula and purposes 

established for the Recreation Fee Demonstration Pilot Program (P.L. 104-134). The Forest 

Service is authorized to collect administrative fees to process applications and monitor still 

photography and commercial filming under special use authorizations. All fees collected and 

costs recovered remain available until expended. 

 The distribution and use of the land use fees retained is as follows: 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-32 

• Eighty percent of land use fees from still photography and commercial filming activities will 

be primarily used for managing these activities and streamlining issuance of commercial use 

authorizations. 

• Ten percent of land use fees from still photography and commercial filming authorizations 

will be used to cover the unit’s cost of collecting still photography and commercial filming 

land use fees. 

• Ten percent of land use fees from still photography and commercial filming authorizations 

will be used in developing policies and procedures for the management of these activities. 

Half of these fees (5 percent) will be available to the regional forester and the other half (5 

percent) to the Washington Office. 

 

Organizational Camp Fees 

The Organizational Camp Program was authorized by the “National Forest Organizational Camp 

Fee Improvement Act of 2003” (P.L. 108-7, 16 U.S.C. 6231, 117 Stat. 294) under Title V of the 

2003 Consolidated Appropriations Resolution. This Act authorizes the Secretary of Agriculture 

to establish a fee system that provides for an equitable return to the Federal Government for the 

occupancy and use of National Forest System (NFS) lands by organizational camps that serve 

young people or individuals with a disability. Under the new “Organizational Camp Program,” 

organizations, such as Boy Scouts, Girl Scouts, faith-based and community-based groups, obtain 

national forest land use permits to conduct camp sessions for young people or disabled persons. 

Pursuant to P.L. 108-7, the Forest Service has the authority to collect and deposit fees collected 

for organizational camp activities and expend the funds for program administration, monitoring 

special use authorizations, interpretive programs, environmental analysis and restoration 

activities, and similar purposes. All fees collected remain available until expended.

Independent Reviews 

None. 

FY 2005 Accomplishments 

• Collected $297,638 in land use fees for still photography and commercial filming and 

expended approximately $166,211 of those collections to draft regulations and train agency 

personnel in commercial filming activities. 

• Collected $199,117 in organizational camp fees. 

FY 2006 Program 

• Publish cost recovery regulations, including the establishment of customer service standards 

for processing special use applications, and begin training agency personnel in cost recovery 

activities. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-33 

• Implement revisions to the Special Uses Data System (SUDS) to provide the capability to 

implement billing of cost recovery fees, track established customer service standards and 

validate field level accomplishments in the processing of special use applications and the 

administration of authorizations. 

• Coordinate with the Department of the Interior to establish and implement a schedule or set 

of land use fees/rates for still photography and commercial filming activities on NFS lands. 

• Assess and collect an estimated $750,000 in cost recovery fees on NFS lands. 

• Collect an estimated $350,000 in land use fees for still photography and commercial filming. 

• Collect an estimated $200,000 in organizational camp fees. 

FY 2007 Plans 

• Implement special uses cost recovery regulations at all administrative units, with the goal of 

demonstrating measurable improvement in the timely processing of proposals and 

applications.

• Assess and collect an estimated $3 million in cost recovery fees on NFS lands. 

• Collect an estimated $400,000 in land use fees for still photography and commercial filming. 

• Collect an estimated $225,000 in organizational camp fees. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-34 

Forest Botanical Products 

Program Description 

Section 339 of the Omnibus Consolidated Appropriations Act of FY 2000 (P.L. 106-133), as 

amended by Section 335 of the Interior and Related Agencies Appropriations Act of FY 2004 

(P.L. 108-128), directs the Secretary of Agriculture to pilot test a program for the sale and 

harvest of forest botanical products. 

The pilot program objectives are: 

• Maintain, enhance, or restore forest ecosystems to desired conditions; and 

• Provide forest products within the capability of ecosystems in a manner that complies with 

environmental standards and contributes to meeting the nation’s demand for these goods and 

services. 

This authority provides a mechanism for funding environmental analyses and administrative 

tasks (inventory, analysis, sustainability determination for harvest levels, permit issuance and 

administration, and monitoring) to facilitate the botanical products pilot program. The Act 

requires the Forest Service to charge and collect a portion of the fair market value of the 

harvested forest botanical products. In addition, the Act also requires the Forest Service to charge 

and collect a portion of the costs associated with granting, modifying, or monitoring the 

authorization for harvest of the forest botanical products. Examples of Forest Botanical Products 

include: bark, needles, cones, mushrooms, wildflowers, roots, Christmas trees, etc. 

Funds collected under this authority through fiscal year (FY) 2009 will be placed in a designated 

account. The Act specifies that retained funds shall be available, without further appropriation, 

for expenditure on the previously mentioned environmental analysis and administrative tasks 

through September 30, 2010. These deposits may only be expended on units of the National 

Forest System in proportion to the charges and fees collected at each unit. 

In FY 2005, financial procedures were developed to track collections and expenditures 

authorized by the Act. Collected funds will replace or supplement that portion of the Forest 

Products budget line item that has been used in the past to fund the sale of forest botanical 

products. 

In FY 2006, regulations will be drafted for the sale and harvest of forest botanical products along 

with an update of the Forest Service handbook to accompany the new regulations. Full 

implementation is expected after public review. 

In FY 2007, the pilot program will be fully implemented with collections and expenditures for 

the elements authorized by the Act. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-35 

Valles Caldera Fund 

Program Description 

The Valles Caldera Preservation Act of 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 

acquired lands as the Valles Caldera National Preserve and created the Valles Caldera Trust to 

manage the 88,900-acre tract, which is part of the National Forest System. The Preserve was 

established to protect and preserve the scientific, scenic, geologic, watershed, fish, wildlife, 

historic, heritage, and recreational values of the Preserve, and to provide for multiple use and 

sustained yield of renewable resources within the Preserve. In addition, the Act requires the tract 

to continue to be managed as an operating ranch. 

The Act requires management of the Preserve by Valles Caldera Trust, a Government 

corporation subject to the Government Corporation Control Act. The purposes of the Trust are 

to: 

• Provide management and administrative services for the Preserve, 

• Establish and implement management policies that will best achieve the purposes and 

requirement of the Valles Caldera Preservation Act, 

• Receive and collect funds from private and public sources and to make disposition in 

support of the management and administration of the Preserve, and 

• Cooperate with Federal, State, and local governments, along with Indian tribes and 

pueblos to further the purposes for which the Preserve was established. 

The Valles Caldera Trust prepares annual budgets with the goal of achieving a financially selfsustaining operation within 15 full fiscal years after the date of acquisition of the Preserve, which 

took place on July 25, 2000. The Trust, having assumed management of the Preserve in August 

2002, has developed a comprehensive management plan for the Preserve. To facilitate financial 

independence, the Act also created the Valles Caldera Fund, an interest-bearing account to hold 

and manage Preserve receipts. The Fund will be available without further appropriations for any 

purpose consistent with management of the Preserve. All monies received from the management 

and operation of the Preserve, notwithstanding sections 1341 and 3302 of Title 31 of the United 

States Code, will be retained and consequently available without further appropriation for the 

administration, preservation, restoration, operation, maintenance, improvement, repair, and 

related expenses under the Trust’s management jurisdiction. 

The Act allows for a variety of approaches to generate revenue for the Fund in support of the 

management and administration of the Preserve and to carry out the duties of the Trust. The 

Trust will strive to optimize the generation of income based on existing market conditions and 

program development, while not unreasonably diminishing the long-term scenic and natural 

values of the preserve or the multiple use and sustained yield capabilities of the land. 

Fund revenue options include: 

• Accepting individual, foundation, and corporate donations; 

• Collecting funds from public and private sources; 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-36 

• Collecting appropriate fees for livestock grazing, forest products, filming, etc.; and 

• Charging reasonable admission fees, use and occupancy fees, and recreational activity 

fees implemented after public notice and a period of not less than 60 days for public 

comment. 

Independent Reviews 

In November, 2005 the Government Accountability Office (GAO) completed a review of the 

Valles Calera. GAO found the Valles Caldera Trust has made progress in meeting its goals to 

preserve and protect the Preserve for future generations but still has much work to do to meet its 

goals, including achieving a financially self-sustaining operation. GAO found that the Trust has 

not yet developed strategic and performance plans with measurable goals and objectives; plans to 

manage program risks; or mechanisms for monitoring progress. GAO recommended that the 

Board of Trustees develop: (1) a strategic and performance plan that identifies measurable goals 

and objectives for protecting and preserving the Preserve, providing recreation, sustaining yield, 

and becoming financially self-sustaining; (2) a plan for becoming financially self-sustaining; (3) 

periodic performance monitoring and reporting that enable Congress and the Trust to track 

progress in achieving program goals; and (4) a plan to fill vacant positions. GAO also 

recommended that the Board obtain the required financial audit for 2005 and report on the status 

of the audit in its 2006 annual report to Congress. In commenting on the draft report, the Board 

generally agreed with GAO recommendations. 

FY 2005 Accomplishments 

• A total of $653,691 in receipts was collected from donations and recreational and other uses 

of the Preserve. An amount of $641,604 was expended from the Trust’s Treasury account to 

further attain the goals for which the Preserve was established. 

FY 2006 Program 

• Continue collection of receipts for the Valles Caldera Trust. An estimated $500,000 in 

receipts will be collected from management and operation of the Preserve. 

• Use the Fund for the deposit and expenditure of funds collected from recreational and other 

uses of the Preserve, along with grants and donations, to further the goals for which the 

Preserve was established. 

FY 2007 Plans 

• Continue collection of receipts for the Valles Caldera Trust. An estimated $500,000 in 

receipts will be collected from management and operation of the Preserve. 

• Use the Fund for the deposit and expenditure of funds collected from recreational and other 

uses of the Preserve, along with grants and donations, to further the goals for which the 

Preserve was established. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-37 

Payment Funds 

Payment to Minnesota 

This program provides a special annual payment to the State of Minnesota for lands in the 

Boundary Waters Canoe Area in St. Louis, Cook, and Lake Counties, as specified by law. 

At the close of each fiscal year, the State of Minnesota is paid three-fourths of one percent of the 

appraised value of certain Superior National Forest lands in the Counties of St. Louis, Cook, and 

Lake for distribution to these counties (16 U.S.C. 577g). The land value is reappraised every 10 

years as required by law. 

Payments to Counties—National Grasslands Fund 

This program provides an annual payment to counties in which Title III—Bankhead-Jones 

Acquired Lands are located for funding public schools and roads. 

Of the net revenues received for use of Title III—Bankhead-Jones Farm Tenant Act lands, 25 

percent is paid to the counties in which such lands are located for public school and road 

purposes (7 U.S.C. 1012). 

Payments to States 

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393) 

provides stable education and road maintenance funding through predictable payments to 

counties, job creation in those counties, and other opportunities associated with the restoration, 

maintenance, and stewardship of Federal lands. 

Under P.L. 106-393, counties may elect one of two methods to calculate payments they receive: 

1) Counties can choose to continue receiving funds established by P.L. 60-136 (Twenty-Five 

Percent Fund Act of May 23, 1908) to benefit public schools and public roads of the county 

based on 25 percent of all moneys received within that county by the national forest where the 

county is located, or 2) Counties can opt to receive their share of the State’s “full payment 

amount.” The full payment amount is the average of the highest three years of payments to the 

State under the Twenty-Five Percent Fund Act through the years 1986-1999. A county’s share 

of that amount is based on State law. 

Under P.L. 106-393, if a county elects to receive its share of the full payment amount and 

receives over $100,000, it must set aside 15 to 20 percent for forest restoration, maintenance, or 

stewardship projects (Title II), or for county projects (Title III), or it must return those set-aside 

funds to the Treasury. If the county decides to spend its set-aside funds for special projects, a 

Resource Advisory Committee (RAC) must be formed as specified in P.L. 106-393. The RACs 

have equal representation from industry, environmental groups, tribes, and local individuals. All 

special projects must be recommended to the Secretary of Agriculture for approval. 
FY 2007 Budget Justification USDA Forest Service

Permanent Appropriations 13-38 

A total of 550 of 717 eligible counties (76.6 percent) opted to change to P.L. 106-393 when first 

given the opportunity in 2001. An additional 65 eligible counties opted into P.L. 106-393 in FY 

2003 bringing the total to 615 of 717 eligible counties (85.8 percent). In FY 2005, 633 counties 

had opted into P.L. 106-393. 

In FY 2006, $339.9 million in Title I funds, $33.6 million in Title II funds, and $31.3 million in 

Title III funds, which were earned in FY 2005, were paid under P.L. 106-393. There were 655 

Title II projects approved by RACs in 2005 in Alaska, Arkansas, California, Idaho, Montana, 

Oregon, Texas, and Washington 

The authorization to initiate projects under P.L. 106-393 will expire on September 30, 2006. 
FY 2007 Budget Justification USDA Forest Service

Trust Funds 

Chapter 14 

Trust Funds

FY 2007 Budget Justification USDA Forest Service

Trust Funds 14-1 

Forest Service Trust Funds 

 (dollars in thousands) 

 Increase or Decrease FY 2007 

 FY 2005 FY 2006 Pay Program FY 2007 vs 

 Final Enacted Costs Changes Budget FY 2006 

Enacted Budget Authority 

Annual Appropriations (Receipts) $293,429 $128,188 $2,369 -$2,341 $128,216 $28

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 $0

Total Enacted Budget Authority $293,429 $128,188 $2,369 -$2,341 $128,216 $28

Staff Years 1,095 1,194 99 1,293 99 

Forest Service Trust Funds 

 (dollars in thousands) 

 FY 2007 

 FY 2005 FY 2006 FY 2007 vs 

 Enacted Budget Budget FY 2006 

Cooperative Work: Knutson--Vandenberg (K-V) 

 New Budget Authority ($000) $228,945 $50,000 $50,000 $0

 Program Level ($000) $76,128 $93,219 $80,000 -$13,219

 Staff Years 611 611 610 -1 

Cooperative Work: K-V Regional Work 

 New Budget Authority ($000) $0 $0 $0 $0

 Program Level ($000) $0 $87,000 $50,000 -$37,000

 Staff Years 0 100 200 100 

Cooperative Work: Other 

 New Budget Authority ($000) $34,311 $48,000 $48,000 $0

 Program Level ($000) $38,149 $55,478 $43,000 -$12,478

 Staff Years 272 270 270 0 

Subtotal: Cooperative Work 

 New Budget Authority ($000) $263,256 $98,000 $98,000 $0

 Program Level ($000) $114,277 $235,697 $173,000 -$62,697

 Staff Years 883 981 1,080 99 

Land Between The Lakes 

 New Budget Authority ($000) $173 $188 $216 $28

 Program Level ($000) $109 $125 $125 $0

 Staff Years 0 0 0 0 

Reforestation Trust Fund 

 New Budget Authority ($000) $30,000 $30,000 $30,000 $0

 Program Level ($000) $30,881 $30,000 $30,000 $0

 Staff Years 212 213 213 0 

TRUST FUNDS APPROPRIATIONS 

 New Budget Authority ($000) $293,429 $128,188 $128,216 $28

 Program Level ($000) $145,267 $265,822 $203,125 -$62,697

 Staff Years 1,095 1,194 1,293 99 

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. Total Budget Authority is higher 

due to unobligated prior-year receipts. 

Program Level: Actual balance of obligations in FY 2005 and planned obligations for FY 2006 and FY 2007.
FY 2007 Budget Justification USDA Forest Service

Trust Funds 14-2 

Cooperative Work Trust Fund – Knutson-Vandenberg (K-V) Fund 

Program Description 

The Knutson-Vandenberg (K-V) Fund is authorized by the Act of June 6, 1930 (P.L. 71-319, Ch. 

416, 46 Stat. 527, as amended; 16 U.S.C. 576, 576a-576b, as amended; and P.L. 109-54, Sec. 

412). This Fund is derived from deposits from timber sale receipts and is intended to: 1) reforest 

timber sale areas; 2) use timber stand improvement practices to enhance stand productivity, 

promote the restoration, maintenance, or improvement of a variety of forestland ecological 

conditions, and maintain biological diversity; 3) protect and improve all other resource values on 

timber sale areas, including wildlife, soil, watershed, range, and recreation; and 4) within the 

Forest Service region in which the timber sale occurred, perform watershed restoration, improve 

wildlife habitat, control insects, disease, and noxious weeds or invasive plants, provide 

community protection activities, and maintain forest roads. 

K-V funds are collected based upon approved K-V plans. The total amount of K-V funds that 

can be collected is limited to either the collection limit established by the K-V plan or the 

amount of K-V funds available, whichever is less. The amount of K-V funds available is the 

stumpage price paid by the purchaser minus other required deposits, such as the minimum 

deposits to the national forest fund, and collections for other funds, such as the salvage sale fund 

and/or the timber sale pipeline restoration fund. Collection limits for these other funds are also 

based upon approved plans for the particular fund. 

While FY 2007 K-V collections are projected to remain constant at FY 2006 levels, collections 

have declined when compared to collections made 5 years ago. This is directly related to 

reduced harvest levels including regeneration harvesting that requires subsequent reforestation. 

These declines in harvest lead to decreases in K-V funding available for accomplishing future 

stand improvement and other resource improvement work. However, any future declines in 

harvest levels will reduce the capability to utilize funds for region-wide watershed restoration, 

wildlife habitat and other uses authorized by P.L. 109-54, Sec. 412. 

Within timber sale areas, the FY 2007 plan level will provide for reforestation activities on 

218,700 acres at an average cost of about $135 per acre, as compared to the FY 2006 level of 

about 209,556 acres at an average cost of about $170 per acre. The FY 2007 average cost per 

acre for reforestation is projected to decrease due to a higher percentage of less costly 

reforestation methods when compared to FY 2006. The FY 2007 level will meet reforestation 

needs for timber sale areas. 

The funding will also allow for timber stand improvement on 94,175 acres at an average cost of 

$213 per acre, as compared to the FY 2006 level of about 116,055 acres at an average cost of 

about $172 per acre. The average cost per acre for timber stand improvement is projected to 

increase in FY 2007 as contracts covering less acres of work are less cost effective to perform 

and thus have higher contract costs. These activities are for the control of stand density and 

species composition to improve survival of trees on timber sale areas reforested in the past 

several years and the establishment of other vegetation to improve forestlands. 
FY 2007 Budget Justification USDA Forest Service

Trust Funds 14-3 

In addition to the K-V program within timber sale areas, the Forest Service will use an additional 

$50 million in FY 2007 for resource improvement work outside of timber sale areas. This 

expansion of K-V authority began in FY 2006 under Public Law 109-54. The expanded 

authority will provide funding for accomplishments such as: 37,000 acres of noxious weed and 

invasive plant treatments, 13,300 acres of reforestation, 136,000 acres of hazardous fuels 

reduction, and 6,449 miles of road maintenance in FY 2006. In FY 2007 the specific plans have 

not been formulated, but expanded authority will accomplish an estimated: 77,000 acres of 

hazardous fuels reduction, 21,000 acres of noxious weed and invasive plant treatments, 7,500 

acres of reforestation, 150 acres of wildlife habitat improvement, and 3,700 miles of road 

maintenance. 

Independent Reviews 

None. 

FY 2005 Accomplishments 

• Reforested 67,430 acres. 

• Completed timber stand improvements on 66,190 acres. 

• Mitigated impacts to recreation at sites that are located adjacent to or within timber sale area 

boundaries. Examples include trail relocation and reconstruction, vista enhancement at 

overlooks, and small parking area construction. 

• Treated over 21,500 acres of noxious weeds and invasive plants. 

• Restored or enhanced over 100,000 acres of terrestrial habitat to improve a variety of 

habitats, including constructed structures for imperiled species. Examples include the use of 

prescribed fire to benefit fire-dependent species such as longleaf pine which in turn improve 

habitat conditions for species such as the gopher tortoise and Bachman's sparrow. Structures 

include creation of nesting cavities for red-cockaded woodpeckers and devices that collect 

rainwater in arid areas where water supply is a limiting factor for use of habitat 

• Accomplished over 137,000 acres of prescribed burning and mechanical treatments. These 

acres were treated to improve condition class and restore fire-dependent ecosystems. 

• Completed structural range improvements to maintain and improve the productivity of 

renewable resources. 

• Completed non-structural range improvements within timber sale areas. 

FY 2006 Program 

 

• Reforestation and related activities on 209,556 acres, including site preparation for natural 

and artificial regeneration, survival and stocking surveys, and animal damage control 

measures, and 13,300 acres outside timber sale areas. 

• Other vegetation establishment on 24,125 acres. 

• Timber stand and other vegetation improvement on 132,626 acres 

• Terrestrial wildlife habitat improvement on 178,845 acres, and 20,000 acres outside of timber 

sale areas. 
FY 2007 Budget Justification USDA Forest Service

Trust Funds 14-4 

• Construction of 24,375 structures for terrestrial wildlife habitat. 

• Improvements to 1320 acres of streams and lakes, and construction of 7,664 structures for 

enhanced fish habitat. 

• Soil and watershed improvement on 5,481 acres and on 171 miles of roads as well as 

maintenance on 6,450 miles of roads outside of timber sale areas. 

• Rangeland vegetation improvement on 3,247 acres. 

• Treatment of 35,833 acres to eliminate noxious weeds and invasive plants; and 37,000 acres 

outside of timber sale areas. 

• Reduction of hazardous fuels on 136,000 acres outside of timber sale areas. 

FY 2007 Plans 

 

• Reforestation and related activities on 218,700 acres, including site preparation for natural 

and artificial regeneration, survival and stocking surveys, and animal damage control 

measures, and 7,500 acres outside of timber sale areas. 

• Other vegetation establishment on 43,031 acres. 

• Timber stand and other vegetation improvement on 101,877 acres. 

• Terrestrial, lakes, and stream habitat improvement for fish and wildlife on 167,061 acres as 

well as 150 acres outside of timber sale areas. 

• Construction of 22,234 structures to improve terrestrial wildlife habitat. 

• Improvements to fish habitat on 513 miles of streams and by the construction of 500 stream 

and lake structures. 

• Soil and watershed improvement on 4,659 acres and on 59 miles of roads as well as 

maintenance on 3,700 miles of roads outside of timber sale areas 

• Rangeland vegetation improvement on 2,405 acres. 

• Treatment of 25,554 acres to eliminate noxious weeds and invasive plants; and 21,000 acres 

outside of timber sale areas. 

• Reduction of hazardous fuels on 77,000 acres outside of timber sale areas. 

The following tables display national summaries of anticipated K-V funded programs of work 

for FY 2006 and FY 2007. Data by region can be provided upon request. Each fiscal year’s 

program includes expected accomplishments, unit cost, and total cost by activity type. Wherever 

possible, standard reporting measures such as acres, miles, or structures are used. Some projects, 

however, because of the nature of the activity, do not conform to these standard measures. These 

measures include units of measure such as each, number of trees, plans, number of landings, and 

projects. These non-standard measures make up less than five percent of total accomplishments 

for each of the 2 fiscal years. The FY 2006 summary that follows is based on project-level 

activity inventories performed on every national forest in November, 2004. Because of changed 

conditions in the intervening months, an additional $5.8 million of work is now anticipated. 
FY 2007 Budget Justification 

Trust Funds 14-5 

Fiscal Year 2006 K-V Planned Program of Work 

National Summary 

Program Total $87,378,961

* Establish Vegetation - Reforestation - Includes all reforestation activities needed to assure reforestation of harvested areas.

This includes such activities as planting, site preparation, survival and stocking surveys, and animal damage control. 

** Establish Vegetation - Other Activities - Includes all other activities needed to reforest an area or establish vegetation not

 included in Establish Vegetation – Reforestation ***Other Unspecified Units of Measure - Includes activities with units of measure such as project, each, plan, number of trees, and landings.

Activity Type Acres 

Total 

Cost 

($) 

Unit 

Cost 

($) Miles 

Total 

Cost 

($) 

Unit 

Cost 

($) 

Structures 

Total 

Cost 

($) 

Unit 

Cost 

($) 

Establish Vegetation - Reforestation* 209,556 $35,627,231 $170 83 $33,217 $400 Establish Vegetation - Other Activities** 24,125 $1,783,224 $74 117 $18,310 $156 Improve Forest Vegetation - TSI 116,055 $19,951,444 $172 Improve Forest Vegetation - All Other 16,571 $1,463,394 $88 1 $6,788 $6,788 1 $20,620 $20,620 Improve Rangeland Vegetation 3,247 $91,639 $28 3 $27,310 $9,103 Eliminate Noxious Weeds 35,833 $2,716,442 $76 96 $33,258 $346 Manage Stream Habitat 215 $170,733 $794 70 $456,349 $6,519 7,588 $276,481 $36 Manage Lake Habitat 1,105 $319,764 $289 76 $104,827 $1,379 Manage Terrestrial Habitat 178,845 $11,448,038 $64 26 $267,720 $10,297 24,375 $3,308,330 $136 Improve Watershed Conditions - Soil & Water 5,481 $2,014,037 $367 171 $1,899,272 $11,107 14 $135,616 $9,687 CWKV - Other 11,814 $1,682,999 $142 57 $107,752 $1,890 298 $293,698 $986 Totals 602,847 $77,268,945 624 $2,849,976 32,352 $4,139,572 
FY 2007 Budget Justification 

Trust Funds 14-6 

Fiscal Year 2007 K-V Planned Program of Work 

National Summary 

Activity Type Acres 

Total 

Cost 

($) 

Unit 

Cost 

($) Miles 

Total 

Cost 

($) 

Unit 

Cost 

($) 

Structures 

Total 

Cost 

($) 

Unit 

Cost 

($) 

Establish Vegetation - Reforestation* 218,700 $29,609,569 $135 3 $9,553 $3,722 Establish Vegetation - Other Activities** 43,031 $2,004,601 $47 Improve Forest Vegetation - TSI 94,175 $20,055,557 $213 Improve Forest Vegetation - All Other 7,702 $975,110 $127 Improve Rangeland Vegetation 2,405 $390,160 $162 8 $69,038 $8,630 Eliminate Noxious Weeds 25,554 $3,411,827 $134 Manage Stream Habitat 77 $170,644 $2,216 513 $298,154 $581 427 $400,520 $938 Manage Lake Habitat 1,000 $222,223 $222 120 $77,099 $644 Manage Terrestrial Habitat 165,984 $13,162,737 $79 12 $89,303 $7,455 22,334 $1,828,121 $82 Improve Watershed Conditions - Soil & Water 4,659 $2,703,402 $580 59 $316,283 $5,357 80 $340,877 $4,238 CWKV - Other 17,624 $1,967,867 $112 243 $371,126 $1,527 52 $165,672 $3,174 Totals 580,911 $74,673,698 838 $1,153,457 23,013 $2,812,288 

Program Total $80,008,299

* Establish Vegetation - Reforestation - Includes all reforestation activities needed to assure reforestation of harvested areas.

This includes such activities as planting, site preparation, survival and stocking surveys, and animal damage control. 

** Establish Vegetation - Other Activities - Includes all other activities needed to reforest an area or establish vegetation not

 included in Establish Vegetation – Reforestation ***Other Unspecified Units of Measure - Includes activities with units of measure such as project, each, plan, number of trees, and landings.
FY 2007 Budget Justification USDA Forest Service 

Trust Funds 14-7 

Fiscal Year 2006 (P.L. 109-54, Sec. 412 Authority) K-V Planned 

Program of Work National Summary 

Activity Type Acres 

Total 

Cost 

($) 

Unit 

Cost 

($) Miles 

Total 

Cost 

Unit 

Cost 

($) 

Establish Vegetation - Reforestation* 13,300 $15,275,000 $1,148 

Hazardous Fuels Reduction 136,000 $16,000,000 $118 

Eliminate Noxious Weeds 37,000 $7,725,000 $209 

Road Maintenance 6449 $8,000,000 $1,241 

Improve Aquatic and Terrestrial Habitat 

Provide watershed restoration, improve 

wildlife habitat, and control insects and 

disease with forest products utilized 62,000 $40,000,000 $645 

Totals 248,300 $79,000,000 6,449 $8,000,000 

Program Total $87,000,000 

 

* Establish Vegetation - Reforestation - Includes all reforestation activities needed to assure reforestation of harvested areas.

This includes such activities as planting, site preparation, survival and stocking surveys, and animal damage control. 

Fiscal Year 2007 (P.L. 109-54, Sec. 412 Authority) K-V Planned 

Program of Work National Summary 

Activity Type Acres 

Total 

Cost 

($) 

Unit 

Cost 

($) Miles 

Total 

Cost 

Unit 

Cost 

($) 

Establish Vegetation - Reforestation* 7,500 $8,659,000 $1,155 

Hazardous Fuels Reduction 77,000 $9,070,000 $118 

Eliminate Noxious Weeds 21,000 $4,379,000 $209 

Road Maintenance 3,700 $4,535,000 $1,226 

Improve Aquatic and Terrestrial Habitat 150 $680,000 $4,533 

Provide watershed restoration, improve 

wildlife habitat, and control insects and 

disease with forest products utilized 35,000 $22,677,000 $648 

Totals 140,650 $45,465,000 3,700 $4,535,000 

Program Total $50,000,000 

* Establish Vegetation - Reforestation - Includes all reforestation activities needed to assure reforestation of harvested areas.

This includes such activities as planting, site preparation, survival and stocking surveys, and animal damage control. 
FY 2007 Budget Justification USDA Forest Service

Trust Funds 14-8 

Cooperative Work Trust Fund - Other 

Program Description 

The Cooperative Work Trust Fund - Other is used to collect deposits received from cooperators 

for protecting and improving resources of the National Forest System as authorized by trust 

agreements. These deposits are for the construction, reconstruction, and maintenance of roads, 

trails, and other improvements; scaling services; fire protection; and other resource purposes as 

authorized by law. 

Cooperative road maintenance deposits are 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 are also received from State and other public agencies, industrial associations, and other 

private sources to finance research projects of mutual interest and benefit. Cooperative research 

projects may involve any aspect of forestry and vary widely as to scope and duration. 

Deposits for administering and protecting non-Federal land within or near the national forests are 

made by owners of non-Federal lands that are intermingled with, or adjacent to, the national 

forests. These landowners want their lands managed in accordance with good forest 

management practices, including reforestation. Wildfire protection on State and private lands 

intermingled with Federal ownership using these funds benefits all parties. It is often 

uneconomical for private landowners to set up fire control organizations, and the Forest Service 

may need to suppress fires on adjoining ownerships to protect Federal land. 
FY 2007 Budget Justification USDA Forest Service

Trust Funds 14-9 

Land Between The Lakes Trust Fund 

Program Description 

The Land Between The Lakes Protection Act of 1998 was enacted by Congress under Public Law 

(P.L.) 105-277 to transfer management of the Land Between The Lakes National Recreation Area 

(LBL) from the Tennessee Valley Authority (TVA) to the Secretary of Agriculture effective as of 

October 1 of the first fiscal year for which Congress did not appropriate to TVA at least $6 million 

for the LBL or, if the Act was enacted during a fiscal year for which Congress did not make such an 

appropriation, effective as of the date of enactment of the Act. Administrative jurisdiction over the 

LBL is transferred to the Secretary of Agriculture from TVA through P.L. 105-277, Section 541, 16 

U.S.C. 460111-41. 

There is established in the Treasury of the United States a special interest-bearing fund known as the 

“Land Between The Lakes Trust Fund.” 

Amounts in the Fund shall be available to the Secretary of Agriculture, until expended, for public 

education, grants and internships related to recreation, conservation, and multiple-use land 

management as well as for regional promotion within the LBL in cooperation with development 

districts, chambers of commerce, and State and local governments. 

Beginning September 30, 2000, the TVA began depositing into the Fund $1 million annually for each 

of five subsequent fiscal years, commencing in the first fiscal year of the transfer. Funding to carry 

out management requirements shall be derived as described in 16 U.S.C. 460111. LBL has begun to 

use the interest earned on the fund for the expressed purposes intended by Congress. 

A recent example includes a community school grant program, which provided funding to over 4,000 

students last year to visit LBL and experience “education in the environment,” as well as completing 

a key part of their school curricula. Other projects may be considered for fiscal year 2007, 

specifically related to environmental education and internship programs. 
FY 2007 Budget Justification USDA Forest Service

Trust Funds 14-10 

Reforestation Trust Fund 

Program Description 

The Reforestation Trust Fund was established by the Recreational Boating Safety and Facilities Act 

of 1980 (P.L. 96-451, Title III, as amended) to accomplish reforestation and timber stand 

improvement activities. A maximum of $30 million is transferred to this trust fund by the U.S. 

Treasury each fiscal year to be obligated for these purposes. This is an indefinite, continuing 

appropriation for use by the USDA Forest Service. 

The Reforestation Trust Fund is used to reduce the backlog in reforestation and timber stand 

improvement work. It also serves to promote the restoration, maintenance, or improvement of forest 

stands under a variety of forestland ecological conditions and to maintain biological diversity. The 

fund is used in conjunction with other vegetation management funds to provide an integrated, 

effective means of treating forests in need of forest health restoration. Vegetation management 

activities employed in order to meet this management objective include: 

• Reforestation, including site preparation and planting of tree seedlings and various treatments to 

improve initial seedling survival rates such as animal damage control. 

• Timber stand improvement, including silvicultural treatments such as thinning or release from 

competing vegetation, which enhances forest health and improves tree establishment and growth.

FY 2007 Plans 

FY 2007 funding of $30 million for the Reforestation Trust Fund will be prioritized for the 

accomplishment of backlog reforestation needs. Combined with appropriated funds, the 

Reforestation Trust Fund provides the means for integrated treatments of forestland vegetation to 

achieve multiple resources objectives, including forest health restoration. Planned accomplishments 

in reforestation are shown in the National Forest System, Vegetation and Watershed Management 

budget line item. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibits 

Chapter 15 

Special Exhibits

FY 2007 Budget Justification USDA Forest Service

Special Exhibits i Table of Contents

Special Exhibits Table of Contents

 

 1 Allocations by Regions, Stations, and Area, FY 2005-2007 ....................................... 15-1 

 2 Bark Beetle Management........................................................................................... 15-12 

 3 Business Operations Transformation Assessment (BOTA) ...................................... 15-16 

4 Chief’s Reserve Fund................................................................................................. 15-19 

5 Conservation Education............................................................................................. 15-21 

 6 Deferred Maintenance Backlog ................................................................................. 15-25 

 7 Facilities Maintenance Assessment ........................................................................... 15-31 

 8 Federal Excess Personal Property and Aircraft ......................................................... 15-40 

9 Forest Land Enhancement Program........................................................................... 15-41 

 10 Forest Products Laboratory Modernization ............................................................... 15-42 

 11 Invasive Species......................................................................................................... 15-49 

 12 Law Enforcement Funding of Indirect Costs............................................................. 15-55 

 13 Legislative Proposals ................................................................................................. 15-60

 14 National Energy Policy.............................................................................................. 15-61 

 15 National Scenic and Historic Trails ........................................................................... 15-70 

 16 Northwest Forest Plan................................................................................................ 15-78 

 17 Office of General Counsel Reimbursement............................................................... 15-81 

 18 Office of Tribal Relations .......................................................................................... 15-82 

 19 Partnerships................................................................................................................ 15-87 

 20 President’s Management Agenda .............................................................................. 15-97 

 21 Resforestation .......................................................................................................... 15-107 

 22 Research and Development Threat Assessment Centers......................................... 15-109 

 23 Service First ............................................................................................................ 15-112 

 24 Unobligated Balances .............................................................................................. 15-114 

 25 Wood Education and Resource Center .................................................................... 15-115 

 26 Working Capital Fund, Forest Service..................................................................... 15-120 

 27 Working Capital Fund and Greenbook Charges, USDA......................................... 15-121 

 28 Working Capital Fund – Forest Service Fleet Management.................................... 15-127 

FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-1 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

Region 01 Region 02

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 0 0 0 40 44 42

State & Private Forestry

Forest Health Management - Federal Lands 3,126 2,380 3,039 3,873 2,392 3,434

Forest Health Management - Cooperative Lands 256 290 290 1,291 488 492

State Fire Assistance 1,628 1,444 1,107 2,532 2,173 1,545

Volunteer Fire Assistance 377 376 373 656 655 649

Forest Stewardship 925 877 877 1,451 1,643 1,643

Forest Legacy Program 9,805 6,398 6,084 1,663 1,566 108

Urban and Community Forestry 883 730 692 1,785 1,741 1,650

Economic Action Program 2,053 2,168 0 177 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 19,053 14,663 12,462 13,428 10,658 9,521

National Forest System

Land Management Planning 6,189 5,401 5,131 4,808 4,288 4,076

Inventory and Monitoring 10,306 8,043 7,153 10,507 8,252 7,350

Recreation, Heritage, and Wilderness 17,703 17,380 16,888 24,021 24,577 23,892

Wildlife and Fisheries Habitat Management 11,708 11,098 10,389 9,002 9,048 8,481

Grazing Management 6,879 5,780 4,690 7,613 6,583 5,356

Forest Products 21,963 30,530 27,021 24,774 27,443 24,428

Vegetation and Watershed Management 19,531 15,701 16,687 16,728 17,531 18,622

Minerals and Geology Management 8,183 11,409 11,043 6,554 10,407 10,079

Landownership Management 7,209 6,659 6,118 8,242 8,151 7,496

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 1,000 396 0 1,000 396 0

Total, National Forest System 110,671 112,397 105,120 113,249 116,676 109,780

Wildland Fire Management

Fire Preparedness 58,406 49,251 50,469 29,997 26,433 27,087

Fire Operations -- Suppression 0 12,749 11,893 0 6,944 6,509

Hazardous Fuels 15,807 14,832 15,562 28,458 28,645 30,155

Rehabilitation and Restoration 0 966 305 0 500 158

Fire Research and Development 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 2,012 1,353 0 1,824 1,422 0

Forest Health Management -- Cooperative Lands (NFP 3,338 2,302 1,063 850 842 389

State Fire Assistance (NFP) 601 721 482 1,186 1,432 985

Volunteer Fire Assistance (NFP) 620 611 614 737 726 729

Total, Wildland Fire Management 80,784 82,785 80,388 63,052 66,944 66,012

Capital Improvement & Maintenance

Facilities 9,679 5,585 6,461 18,446 12,131 12,429

Roads 21,275 19,067 15,551 17,401 19,921 15,488

Trails 11,253 10,330 8,198 5,950 7,047 5,624

Infrastructure Improvement 877 803 581 753 955 689

Total, Capital Improvement & Maintenance 43,084 35,785 30,791 42,550 40,054 34,230

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 1,901 1,823 1,143 934 715 470

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

Acquisition of Lands to Complete Land Exchanges 0 0 0 13 0 0

Total, Land Acquisition 1,901 1,823 1,143 947 715 470

Range Betterment Fund 275 330 408 505 645 799

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 4,500 4,461 3,332 648 1,030 777

Timber Salvage Sales 15,500 12,863 11,584 3,306 2,428 2,192

Other 6,710 10,283 10,807 4,498 4,093 4,276

Total, Permanent Working Funds 26,710 27,607 25,723 8,452 7,551 7,245

Trust Funds Subtotal 20,481 19,111 14,617 13,891 9,656 7,436

TOTAL, ALL FUNDS 302,959 294,501 270,652 256,114 252,943 235,535

Total does not include Payments to States
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-2 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

Region 03 Region 04

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 0 0 0 0 0 0

State & Private Forestry

Forest Health Management - Federal Lands 1,856 1,323 1,931 2,525 2,165 2,547

Forest Health Management - Cooperative Lands 1,301 614 188 490 357 155

State Fire Assistance 740 691 529 759 672 507

Volunteer Fire Assistance 157 157 156 122 122 121

Forest Stewardship 534 583 583 494 575 576

Forest Legacy Program 2,545 1,322 997 829 2,335 3,455

Urban and Community Forestry 666 557 528 564 461 437

Economic Action Program 246 0 0 615 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 8,045 5,247 4,912 6,398 6,687 7,798

National Forest System

Land Management Planning 2,592 2,540 2,420 5,334 4,880 4,640

Inventory and Monitoring 8,827 10,192 9,055 13,264 11,356 10,106

Recreation, Heritage, and Wilderness 20,982 20,999 20,386 30,045 29,672 28,812

Wildlife and Fisheries Habitat Management 8,974 9,300 8,708 11,850 11,164 10,452

Grazing Management 10,416 10,116 8,232 10,066 9,679 7,878

Forest Products 12,284 13,968 11,697 13,865 13,681 12,816

Vegetation and Watershed Management 15,384 15,802 16,709 22,436 19,392 20,511

Minerals and Geology Management 4,630 7,230 6,986 8,018 12,507 12,099

Landownership Management 5,841 5,653 5,199 8,004 9,022 8,293

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 3,599 5,074 990 0 0 0

Centennial of Service 1,000 396 0 1,000 396 0

Total, National Forest System 94,529 101,270 90,382 123,882 121,749 115,607

Wildland Fire Management

Fire Preparedness 64,358 51,068 52,332 59,602 51,327 52,597

Fire Operations -- Suppression 0 15,874 14,819 0 12,280 11,458

Hazardous Fuels 38,270 42,702 45,143 17,214 18,502 19,544

Rehabilitation and Restoration 0 852 270 0 500 158

Fire Research and Development 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 1,003 528 0 1,379 1,012 0

Forest Health Management -- Cooperative Lands (NFP 161 159 74 99 70 32

State Fire Assistance (NFP) 284 342 228 492 354 237

Volunteer Fire Assistance (NFP) 504 497 499 271 267 269

Total, Wildland Fire Management 104,580 112,022 113,365 79,057 84,312 84,295

Capital Improvement & Maintenance

Facilities 17,180 9,064 10,082 13,118 9,293 8,391

Roads 18,643 17,888 14,120 20,543 21,521 14,962

Trails 5,190 4,004 3,269 7,018 6,541 5,277

Infrastructure Improvement 842 940 676 945 892 640

Total, Capital Improvement & Maintenance 41,855 31,896 28,147 41,624 38,247 29,270

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 417 407 281 650 781 490

Acquisition of Lands for National Forests, Special Acts 0 0 0 64 64 64

Acquisition of Lands to Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 417 407 281 714 845 554

Range Betterment Fund 491 677 838 762 980 1,213

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 162 154 117 700 444 326

Timber Salvage Sales 379 555 501 4,925 4,508 4,067

Other 14,905 15,777 16,582 18,001 13,246 13,916

Total, Permanent Working Funds 15,446 16,486 17,200 23,626 18,198 18,309

Trust Funds Subtotal 5,377 2,580 2,006 12,408 13,620 10,393

TOTAL, ALL FUNDS 270,740 270,585 257,131 288,471 284,638 267,439

Total does not include Payments to States
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-3 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

Region 05 Region 06

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 0 0 0 0 0 0

State & Private Forestry

Forest Health Management - Federal Lands 4,641 2,677 4,251 6,087 4,208 6,263

Forest Health Management - Cooperative Lands 1,766 470 473 1,281 1,247 288

State Fire Assistance 6,776 8,038 7,693 1,967 1,812 1,362

Volunteer Fire Assistance 316 316 313 195 195 193

Forest Stewardship 1,032 1,232 1,232 1,216 1,234 1,232

Forest Legacy Program 2,571 5,655 4,928 2,925 3,685 2,599

Urban and Community Forestry 2,428 2,098 1,989 873 727 689

Economic Action Program 1,049 0 0 1,516 986 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 20,579 20,486 20,879 16,060 14,094 12,626

National Forest System

Land Management Planning 3,027 2,967 2,816 5,697 4,982 4,735

Inventory and Monitoring 13,924 11,972 10,606 21,398 18,124 16,133

Recreation, Heritage, and Wilderness 35,739 33,555 32,587 25,729 22,650 21,944

Wildlife and Fisheries Habitat Management 12,216 9,969 9,324 21,043 17,347 16,229

Grazing Management 3,408 3,138 2,516 3,448 3,354 2,748

Forest Products 24,981 23,674 37,254 45,213 35,597 58,219

Vegetation and Watershed Management 23,655 20,412 21,729 24,763 21,057 22,040

Minerals and Geology Management 5,480 7,942 7,680 4,632 7,300 7,050

Landownership Management 11,631 10,578 9,701 9,889 8,705 7,999

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 1,000 396 0 1,000 396 0

Total, National Forest System 135,061 124,603 134,213 162,812 139,512 157,097

Wildland Fire Management

Fire Preparedness 203,680 179,600 184,044 83,009 68,122 69,808

Fire Operations -- Suppression 0 39,379 36,492 0 19,038 17,719

Hazardous Fuels 76,979 49,236 51,912 31,537 27,993 29,435

Rehabilitation and Restoration 0 370 117 0 731 231

Fire Research and Development 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 2,520 1,967 0 1,965 1,931 0

Forest Health Management -- Cooperative Lands (NFP 1,227 2,389 1,104 2,075 1,040 480

State Fire Assistance (NFP) 733 1,372 1,086 2,096 2,258 1,950

Volunteer Fire Assistance (NFP) 853 841 843 619 611 614

Total, Wildland Fire Management 285,992 275,154 275,598 121,301 121,724 120,237

Capital Improvement & Maintenance

Facilities 30,972 12,836 11,674 17,850 10,253 10,435

Roads 22,716 20,792 18,191 36,617 29,126 28,849

Trails 9,215 8,202 6,468 9,688 8,006 6,454

Infrastructure Improvement 1,842 954 693 4,315 2,217 1,655

Total, Capital Improvement & Maintenance 64,745 42,784 37,026 68,470 49,602 47,393

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 989 1,017 614 1,399 1,207 824

Acquisition of Lands for National Forests, Special Acts 990 989 989 0 0 0

Acquisition of Lands to Complete Land Exchanges 0 0 0 893 0 0

Total, Land Acquisition 1,979 2,006 1,603 2,292 1,207 824

Range Betterment Fund 175 203 251 229 295 365

Gifts, Donations, and Bequests for Research 100000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 2,373 1,985 1,498 4,500 7,004 5,196

Timber Salvage Sales 7,814 6,603 5,929 15,000 20,582 18,514

Other 19,460 16,309 17,139 25,235 19,475 20,467

Total, Permanent Working Funds 29,647 24,897 24,566 44,735 47,061 44,177

Trust Funds Subtotal 39,013 35,978 27,350 34,890 57,374 43,706

TOTAL, ALL FUNDS 577,192 526,111 521,486 450,789 430,869 426,425

Total does not include Payments to States
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-4 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

Region 08 Region 09

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 80 120 115 0 0 0

State & Private Forestry

Forest Health Management - Federal Lands 11,239 13,188 8,709 0 0 0

Forest Health Management - Cooperative Lands 15,588 15,651 2,372 0 0 0

State Fire Assistance 7,963 6,867 4,755 75 74 60

Volunteer Fire Assistance 1,629 1,628 1,613 0 0 0

Forest Stewardship 9,974 9,861 9,860 0 0 0

Forest Legacy Program 13,882 6,695 18,140 0 0 0

Urban and Community Forestry 8,798 7,218 6,843 0 0 0

Economic Action Program 5,396 2,463 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 74,469 63,571 52,292 75 74 60

National Forest System

Land Management Planning 4,200 3,190 3,024 9,396 4,905 4,639

Inventory and Monitoring 14,236 11,759 10,465 14,577 12,176 10,852

Recreation, Heritage, and Wilderness 28,256 27,340 26,596 25,770 26,334 25,544

Wildlife and Fisheries Habitat Management 18,465 17,198 16,095 14,713 14,297 13,382

Grazing Management 775 749 612 476 487 391

Forest Products 34,864 27,806 32,288 32,947 27,346 31,639

Vegetation and Watershed Management 14,206 13,943 14,737 12,883 13,635 14,542

Minerals and Geology Management 4,295 5,149 4,967 4,151 7,991 7,728

Landownership Management 9,159 8,320 7,640 8,976 8,462 7,775

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 1,000 396 0 1,000 396 0

Total, National Forest System 129,456 115,850 116,424 124,889 116,029 116,492

Wildland Fire Management

Fire Preparedness 36,379 29,427 30,155 22,961 18,911 19,379

Fire Operations -- Suppression 0 7,107 6,619 0 4,967 4,630

Hazardous Fuels 32,409 31,522 33,187 10,659 10,983 11,484

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 1,163 0 0 0 0 0

Forest Health Management -- Cooperative Lands (NFP 703 561 259 0 0 0

State Fire Assistance (NFP) 8,953 10,763 7,259 0 0 0

Volunteer Fire Assistance (NFP) 1,973 1,943 1,953 0 0 0

Total, Wildland Fire Management 81,580 81,323 79,432 33,620 34,861 35,493

Capital Improvement & Maintenance

Facilities 31,153 19,655 16,869 20,758 12,922 11,180

Roads 28,363 25,380 22,786 20,474 20,746 15,965

Trails 8,811 8,830 7,074 6,319 7,016 5,600

Infrastructure Improvement 1,001 1,186 847 908 957 672

Total, Capital Improvement & Maintenance 69,328 55,051 47,576 48,459 41,641 33,417

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 2,910 2,348 1,546 2,384 2,164 1,400

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

Acquisition of Lands to Complete Land Exchanges 42 0 0 0 0 0

Total, Land Acquisition 2,952 2,348 1,546 2,384 2,164 1,400

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 0 0 0 22 35 27

Timber Salvage Sales 3,000 2,439 2,190 11,500 14,979 13,457

Other 15,395 19,783 20,781 5,775 8,911 9,318

Total, Permanent Working Funds 18,395 22,222 22,971 17,297 23,925 22,802

Trust Funds Subtotal 26,454 38,931 29,784 14,169 20,337 15,507

TOTAL, ALL FUNDS 402,714 379,416 350,140 240,893 239,031 225,171

Total does not include Payments to States
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-5 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

Region 10 Forest Products Lab

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 0 29 26 20,632 20,332 19,448

State & Private Forestry

Forest Health Management - Federal Lands 2,133 1,604 2,334 0 0 0

Forest Health Management - Cooperative Lands 834 678 200 0 0 0

State Fire Assistance 823 738 547 0 0 0

Volunteer Fire Assistance 130 130 129 0 0 0

Forest Stewardship 705 726 723 0 0 0

Forest Legacy Program 57 647 97 0 0 0

Urban and Community Forestry 207 250 237 0 0 0

Economic Action Program 3,160 394 0 314 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 8,049 5,167 4,267 314 0 0

National Forest System

Land Management Planning 1,067 1,405 1,336 0 0 0

Inventory and Monitoring 8,004 7,202 6,392 0 0 0

Recreation, Heritage, and Wilderness 10,900 11,231 10,850 0 0 0

Wildlife and Fisheries Habitat Management 10,267 9,597 8,957 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 23,342 21,018 19,604 0 0 0

Vegetation and Watershed Management 7,617 4,735 4,968 0 0 0

Minerals and Geology Management 2,318 3,545 3,423 0 0 0

Landownership Management 6,024 4,639 4,250 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 1,000 396 0 0 0 0

Total, National Forest System 70,539 63,768 59,780 0 0 0

Wildland Fire Management

Fire Preparedness 3,397 2,589 2,653 0 0 0

Fire Operations -- Suppression 0 559 516 0 0 0

Hazardous Fuels 1,919 953 1,010 652 652 704

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 0 0 0 708 1,943 282

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 196 640 0 0 0 0

Forest Health Management -- Cooperative Lands (NFP 336 333 154 0 0 0

State Fire Assistance (NFP) 6,749 5,826 1,367 0 0 0

Volunteer Fire Assistance (NFP) 270 266 268 0 0 0

Total, Wildland Fire Management 12,867 11,166 5,968 1,360 2,595 986

Capital Improvement & Maintenance

Facilities 13,830 8,389 9,740 3,746 2,304 15,923

Roads 22,325 18,283 10,914 0 0 0

Trails 5,522 4,594 3,696 0 0 0

Infrastructure Improvement 758 937 665 162 160 110

Total, Capital Improvement & Maintenance 42,435 32,203 25,015 3,908 2,464 16,033

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 60 62 37 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 60 62 37 0 0 0

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 0 0 0 40 0 0

Management of NF Lands for Subsistence Uses 5,879 4,631 4,986 0 0 0

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 2,178 832 744 0 0 0

Other 3,222 5,152 5,416 0 0 0

Total, Permanent Working Funds 5,400 5,984 6,160 0 0 0

Trust Funds Subtotal 2,113 3,605 2,729 450 0 0

TOTAL, ALL FUNDS 147,342 126,615 108,968 26,704 25,391 36,467

Total does not include Payments to States
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-6 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

Rocky Mtn Res Station No Central Res Station

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 41,151 39,767 39,700 20,965 19,997 0

State & Private Forestry

Forest Health Management - Federal Lands 0 915 0 0 0 0

Forest Health Management - Cooperative Lands 0 0 0 0 0 0

State Fire Assistance 0 0 0 0 0 0

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 0 0 0 10 0 0

Forest Legacy Program 0 0 0 0 0 0

Urban and Community Forestry 0 10 9 0 0 0

Economic Action Program 15 0 0 20 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 15 925 9 30 0 0

National Forest System

Land Management Planning 0 0 0 0 0 0

Inventory and Monitoring 651 615 539 0 0 0

Recreation, Heritage, and Wilderness 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management 210 0 0 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 506 0 0 0 0 0

Minerals and Geology Management 0 0 0 0 0 0

Landownership Management 0 0 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 1,367 615 539 0 0 0

Wildland Fire Management

Fire Preparedness 537 753 772 0 0 0

Fire Operations -- Suppression 652 0 0 0 0 0

Hazardous Fuels 1,911 2,299 2,482 517 512 0

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 7,865 6,675 4,546 1,939 1,579 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 0 0 0 0 0 0

Forest Health Management -- Cooperative Lands (NFP 000000

State Fire Assistance (NFP) 0 0 0 0 0 0

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Total, Wildland Fire Management 10,965 9,727 7,800 2,456 2,091 0

Capital Improvement & Maintenance

Facilities 7,287 2,959 248 610 231 0

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 172 170 117 64 63 0

Total, Capital Improvement & Maintenance 7,459 3,129 365 674 294 0

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 000000

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 000000

Gifts, Donations, and Bequests for Research 000300

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 0 0 0 0 0 0

Other 2,900 70 74 0 0 0

Total, Permanent Working Funds 2,900 70 74 0 0 0

Trust Funds Subtotal 330 0 0 2,500 0 0

TOTAL, ALL FUNDS 64,187 54,233 48,487 26,628 22,382 0

Total does not include Payments to States

North Central and Northeastern Research Stations are being consolidated during FY 2006; for FY 2007, combined allocations are 

displayed under the Northeastern Research Station. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-7 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

Northeastern RS Pacific NW Res Station

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 35,780 34,624 51,288 42,351 41,089 39,489

State & Private Forestry

Forest Health Management - Federal Lands 40 40 0 0 0 0

Forest Health Management - Cooperative Lands 225 124 0 0 396 400

State Fire Assistance 0 0 0 0 0 0

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 0 0 0 0 63 63

Forest Legacy Program 0 0 0 0 0 0

Urban and Community Forestry 175 25 23 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 440 189 23 0 459 463

National Forest System

Land Management Planning 0 0 0 0 0 0

Inventory and Monitoring 0 0 0 300 594 521

Recreation, Heritage, and Wilderness 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management 0 0 0 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 0 0 0 100 198 216

Minerals and Geology Management 0 0 0 0 0 0

Landownership Management 0 0 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 0 0 0 400 792 737

Wildland Fire Management

Fire Preparedness 0 0 0 0 0 0

Fire Operations -- Suppression 10 0 0 0 0 0

Hazardous Fuels 135 876 1,499 645 639 689

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 630 1,418 2,940 2,536 2,662 2,831

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 0 0 0 0 396 0

Forest Health Management -- Cooperative Lands (NFP 000000

State Fire Assistance (NFP) 0 0 0 0 0 0

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Total, Wildland Fire Management 775 2,294 4,439 3,181 3,697 3,520

Capital Improvement & Maintenance

Facilities 784 1,543 3,650 682 1,057 129

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 127 126 131 101 100 69

Total, Capital Improvement & Maintenance 911 1,669 3,781 783 1,157 198

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 000000

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 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 0 0 0 0 0 0

Other 0 0 0 100 0 0

Total, Permanent Working Funds 0 0 0 100 0 0

Trust Funds Subtotal 1,000 0 0 200 0 0

TOTAL, ALL FUNDS 38,906 38,776 59,531 47,015 47,194 44,407

Total does not include Payments to States

North Central and Northeastern Research Stations are being consolidated during FY 2006; for FY 2007, combined allocations are displayed under the 

Northeastern Research Station. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-8 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

Pacific SW Res Station Southern Res Station

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 21,332 19,737 19,356 49,705 49,855 44,963

State & Private Forestry

Forest Health Management - Federal Lands 15 0 0 20 0 0

Forest Health Management - Cooperative Lands 140 139 140 210 545 400

State Fire Assistance 0 0 0 0 0 0

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 84 0 0 825 475 476

Forest Legacy Program 30 0 0 20 0 0

Urban and Community Forestry 85 0 0 0 0 0

Economic Action Program 6000000

Forest Resources Information and Analysis 0 0 0 4,958 4,311 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 414 139 140 6,033 5,331 876

National Forest System

Land Management Planning 4000000

Inventory and Monitoring 150 0 0 0 594 521

Recreation, Heritage, and Wilderness 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management 55 0 0 0 0 0

Grazing Management 000000

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 443 406 443 92 240 261

Minerals and Geology Management 000000

Landownership Management 000000

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 688 406 443 92 834 782

Wildland Fire Management

Fire Preparedness 680 0 0 0 0 0

Fire Operations -- Suppression 0 0 0 350 0 0

Hazardous Fuels 953 943 1,018 667 660 713

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 3,974 2,979 2,301 2,641 1,998 2,206

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 0 0 0 0 396 0

Forest Health Management -- Cooperative Lands (NFP 000000

State Fire Assistance (NFP) 0 0 0 0 0 0

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Total, Wildland Fire Management 5,607 3,922 3,319 3,658 3,054 2,919

Capital Improvement & Maintenance

Facilities 1,333 2,359 1,085 2,179 1,564 164

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 0 0 0 189 187 129

Total, Capital Improvement & Maintenance 1,333 2,359 1,085 2,368 1,751 293

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 000000

Acquisition of Lands for National Forests, Special Acts 000000

Acquisition of Lands to Complete Land Exchanges 000000

Total, Land Acquisition 0 0 0 0 0 0

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 0 0 0 0 0 0

Other 30 23 24 5 2 2

Total, Permanent Working Funds 30 23 24 5 2 2

Trust Funds Subtotal 1,453 0 0 1,063 0 0

TOTAL, ALL FUNDS 30,857 26,586 24,367 62,924 60,827 49,835

Total does not include Payments to States
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-9 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

Intl Inst Trop Forestry Northeastern Area

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 3,877 3,810 4,303 0 0 0

State & Private Forestry

Forest Health Management - Federal Lands 5 5 5 7,942 9,417 6,389

Forest Health Management - Cooperative Lands 169 174 173 15,496 15,005 3,129

State Fire Assistance 346 335 284 6,994 6,884 5,595

Volunteer Fire Assistance 51 50 50 2,284 2,282 2,261

Forest Stewardship 431 488 482 11,814 12,237 12,226

Forest Legacy Program 567 714 97 20,712 25,686 23,196

Urban and Community Forestry 416 509 482 10,999 10,102 9,572

Economic Action Program 119 0 0 3,215 2,540 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 2,104 2,275 1,573 79,456 84,153 62,368

National Forest System

Land Management Planning 55 1 1 0 0 0

Inventory and Monitoring 0 0 0 0 0 0

Recreation, Heritage, and Wilderness 0 0 0 248 0 0

Wildlife and Fisheries Habitat Management 0 0 0 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 130 30 28 0 0 0

Minerals and Geology Management 0 0 0 0 0 0

Landownership Management 0 0 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 185 31 29 248 0 0

Wildland Fire Management

Fire Preparedness 0 0 0 10 15 15

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 0 0 0 5 42 39

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 0 0 0 471 4 4

Forest Health Management -- Cooperative Lands (NFP 0 0 0 303 18 8

State Fire Assistance (NFP) 89 107 72 6,056 7,280 4,917

Volunteer Fire Assistance (NFP) 69 67 68 1,973 1,943 1,953

Total, Wildland Fire Management 158 174 140 8,818 9,302 6,936

Capital Improvement & Maintenance

Facilities 894 140 88 135 0 0

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 13 14 10 0 0 0

Total, Capital Improvement & Maintenance 907 154 98 135 0 0

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 000000

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 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 000000

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 0 0 0 0 0 0

Other 0 0 0 0 13 14

Total, Permanent Working Funds 0 0 0 0 13 14

Trust Funds Subtotal 185 0 0 0 0 0

TOTAL, ALL FUNDS 7,416 6,444 6,143 88,657 93,468 69,318

Total does not include Payments to States
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-10 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

ASC WO-HQ

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 5,916 21,673 19,725 19,048 17,549 15,852

State & Private Forestry

Forest Health Management - Federal Lands 1,147 3,603 3,279 5,040 4,017 3,717

Forest Health Management - Cooperative Lands 135 640 582 4,604 4,373 4,357

State Fire Assistance 165 576 524 1,320 1,748 1,713

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 227 777 707 1,952 1,949 1,897

Forest Legacy Program 58 230 209 1,368 1,491 1,486

Urban and Community Forestry 174 654 596 1,578 1,451 1,405

Economic Action Program 145 0 0 645 0 0

Forest Resources Information and Analysis 0 173 0 0 41 0

International Forestry 65 297 270 5,755 6,486 4,534

Total, State & Private Forestry 2,116 6,950 6,167 22,262 21,556 19,109

National Forest System

Land Management Planning 1,691 5,811 5,289 16,332 15,830 15,442

Inventory and Monitoring 3,644 14,525 13,219 41,734 48,238 47,296

Recreation, Heritage, and Wilderness 7,674 24,052 21,970 19,463 15,354 13,191

Wildlife and Fisheries Habitat Management 3,389 12,391 11,277 8,227 8,111 6,956

Grazing Management 1,329 5,257 4,794 1,742 1,739 1,260

Forest Products 7,649 29,159 26,608 20,480 22,451 19,927

Vegetation and Watershed Management 4,601 15,256 13,884 17,804 16,618 15,269

Minerals and Geology Management 1,337 5,393 4,908 4,088 4,020 3,548

Landownership Management 2,387 9,204 8,377 11,306 9,591 8,815

Law Enforcement Operations 0 8,643 7,866 85,664 8,462 7,835

Valles Caldera National Preserve 0 0 0 0 0 0

Centennial of Service 0 0 0 0 0 0

Total, National Forest System 33,701 129,691 118,192 226,840 150,414 139,539

Wildland Fire Management

Fire Preparedness 17,805 57,697 43,170 67,405 64,680 56,754

Fire Operations -- Suppression 0 39,063 41,026 0 6,445 4,505

Hazardous Fuels 5,195 21,633 19,689 12,445 11,285 9,313

Rehabilitation and Restoration 0 0 0 33 34 34

Fire Research and Development 434 1,586 1,443 463 351 213

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 0 0 0 0 0 0

Forest Health Management -- Cooperative Lands (NFP 000000

State Fire Assistance (NFP) 0 0 0 508 414 418

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Total, Wildland Fire Management 23,434 119,979 105,328 80,854 83,209 71,237

Capital Improvement & Maintenance

Facilities 3,031 6,112 5,563 6,255 3,368 2,801

Roads 4,925 17,490 15,918 9,122 7,347 5,726

Trails 2,149 6,623 6,028 2,772 2,033 1,320

Infrastructure Improvement 200 730 664 223 182 110

Total, Capital Improvement & Maintenance 10,305 30,955 28,173 18,372 12,930 9,957

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 347 1,221 1,111 388 284 172

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 347 1,221 1,111 388 284 172

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 000000

Management of NF Lands for Subsistence Uses 0 226 205 0 53 32

Permanent Working Funds

Brush Disposal 284 1,311 1,181 497 451 315

Timber Salvage Sales 1,813 8,463 7,625 2,120 2,059 1,235

Other 0 524 472 0 142 85

Total, Permanent Working Funds 2,097 10,298 9,278 2,617 2,652 1,635

Trust Funds Subtotal 2,115 8,243 7,427 2,427 2,070 1,241

TOTAL, ALL FUNDS 80,031 329,236 295,606 372,808 290,717 258,774

Total does not include Payments to States
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 1 15-11 Allocation Table FY 2005-2007 

Included February 24, 2006 

Allocations to Regions, Stations, Area, FY 2005-2006, Estimated FY 2007 

($ in thousands) 

National & Unallocated Costs TOTAL

FY05 FY06 FY07PB FY05 FY06 FY07PB

Forest and Rangeland Research 15,507 10,303 13,484 276,384 278,929 267,791

State & Private Forestry

Forest Health Management - Federal Lands 4,547 5,504 3,951 54,236 53,438 49,849

Forest Health Management - Cooperative Lands 3,843 5,737 20,942 47,629 46,928 34,581

State Fire Assistance 832 878 739 32,920 32,930 26,960

Volunteer Fire Assistance 0 0 0 5,917 5,911 5,858

Forest Stewardship 646 1,469 1,303 32,320 34,189 33,880

Forest Legacy Program 102 112 119 57,134 56,536 61,515

Urban and Community Forestry 2,319 1,918 1,694 31,950 28,451 26,846

Economic Action Program 287 986 0 19,032 9,537 0

Forest Resources Information and Analysis 0 64 0 4,958 4,589 0

International Forestry 590 114 117 6,410 6,897 4,921

Total, State & Private Forestry 13,166 16,782 28,865 292,506 279,406 244,410

National Forest System

Land Management Planning 2,739 1,988 2,006 63,167 58,188 55,555

Inventory and Monitoring 5,780 4,033 3,927 167,302 167,675 154,135

Recreation, Heritage, and Wilderness 10,813 8,155 8,220 257,343 261,299 250,880

Wildlife and Fisheries Habitat Management 4,630 3,346 3,298 134,749 132,866 123,548

Grazing Management 1,882 1,397 1,258 48,034 48,279 39,735

Forest Products 10,885 7,442 8,613 273,247 280,115 310,114

Vegetation and Watershed Management 8,735 6,386 6,936 189,614 181,342 187,582

Minerals and Geology Management 2,061 1,708 1,731 55,747 84,601 81,242

Landownership Management 3,461 2,647 2,622 92,129 91,631 84,285

Law Enforcement Operations 350 70,782 94,299 86,014 87,887 110,000

Valles Caldera National Preserve 0 0 0 3,599 5,074 990

Centennial of Service 861 870 0 9,861 4,434 0

Total, National Forest System 52,197 108,754 132,910 1,380,806 1,403,391 1,398,066

Wildland Fire Management

Fire Preparedness 28,244 66,195 66,652 676,470 666,068 655,887

Fire Operations -- Suppression 647,847 525,781 589,990 648,859 690,186 746,176

Hazardous Fuels 16,448 16,884 18,214 292,825 281,793 291,792

Rehabilitation and Restoration 12,786 2,235 707 12,819 6,188 1,980

Fire Research and Development 529 1,686 3,359 21,719 22,877 20,121

Joint Fire Sciences 7,889 7,882 3,960 7,889 7,882 3,960

Forest Health Management -- Federal Lands (NFP) 2,259 5,131 6,798 14,792 14,780 6,802

Forest Health Management -- Cooperative Lands (NFP 769 2,138 989 9,861 9,852 4,552

State Fire Assistance (NFP) 12,432 14,947 10,114 40,179 45,816 29,115

Volunteer Fire Assistance (NFP) 0 0 0 7,889 7,772 7,810

Total, Wildland Fire Management 729,203 642,879 700,783 1,733,302 1,753,214 1,768,195

Capital Improvement & Maintenance

Facilities 18,042 3,050 3,228 217,964 124,815 130,140

Roads 37,196 4,620 4,317 259,600 222,181 182,787

Trails 10,236 1,656 1,333 84,123 74,882 60,341

Infrastructure Improvement 337 1,236 875 13,829 12,809 9,333

Total, Capital Improvement & Maintenance 65,811 10,562 9,753 575,516 434,687 382,601

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 48,628 29,846 16,987 61,007 41,875 25,075

Acquisition of Lands for National Forests, Special Acts 0 0 0 1,054 1,053 1,053

Acquisition of Lands to Complete Land Exchanges 0 231 232 948 231 232

Total, Land Acquisition 48,628 30,077 17,219 63,009 43,159 26,360

Range Betterment Fund 0 47 58 2,437 3,177 3,932

Gifts, Donations, and Bequests for Research 20 63 63 64 63 63

Management of NF Lands for Subsistence Uses 0 83 89 5,879 4,993 5,312

Permanent Working Funds

Brush Disposal 801 270 231 14,487 17,145 13,000

Timber Salvage Sales 8,799 2,022 1,962 76,334 78,333 70,000

Other 207 15,709 16,517 116,443 129,512 135,890

Total, Permanent Working Funds 9,807 18,001 18,710 207,264 224,990 218,890

Trust Funds Subtotal 2,484 54,317 40,929 183,003 265,822 203,125

TOTAL, ALL FUNDS 936,823 891,868 962,863 4,720,170 4,691,831 4,518,745

Total does not include Payments to States
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 2 15-12 Bark Beetle Management

Bark Beetle Management 

Overview 

As directed in the FY 2006 Agriculture Appropriations Conference Report 109-255, this 

exhibit displays those measures taken to address bark beetle infestations nationwide on 

lands of all ownerships. 

Forest management practices, primarily the suppression of wildland fires and reduced 

timber harvest on Federal lands, over the last 100 years have significantly altered the 

structure and diversity of America’s forests. Many forested landscapes are now 

composed of overstocked stands. As a result, larger contiguous forest landscapes have 

simultaneously become susceptible to increased risk of wildland fire and bark beetle 

infestations. It’s been estimated that of the 36 million acres of forested lands that are at 

serious risk of mortality to bark beetles, 21 million acres are in the west and 15 million 

acres are in the south. 

The Forest Service manages bark beetles through three efforts. Forest Health Protection 

(FHP) provides technical and financial assistance to all land owners, including other 

Federal agencies and on National Forest System lands of the Forest Service. Forest & 

Rangeland Research conducts scientific research and development work on bark beetles, 

and the Forest Service manages bark beetles on National Forest System lands. Bark 

beetle management activities within these program areas support the agency’s overall 

efforts under the Healthy Forests Restoration Act of 2003. 

Several key publications address Forest Service strategic direction regarding bark beetles. 

The first was a report prepared for Congress in 2000, Assessment and Response to Bark 

Beetle Outbreaks in the Rocky Mountain Area. In 2001, Southern Pine Beetle – A Time 

for Action to Protect the South’s Forests outlined a comprehensive strategy to deal with 

southern pine beetle. Finally the 2002 Western Bark Beetle Report – A plan to Protect 

and Restore Western Forests, currently guides activities relative to bark beetles in the 

west. 

In the west, bark beetle management activities are limited to areas of special concern and 

high value, including developed campgrounds, trailheads, ski areas, water supplies and 

lands in the wildland-urban interface. Efforts continue to minimize beetle-caused 

mortality by using environmentally sensitive measures such as species-specific 

pheromones and preventive thinning of stands to reduce risk before an outbreak occurs. 

In the south, the focus is on prevention of the next southern pine beetle outbreak. From 

1999 to 2003 southern pine beetle caused unprecedented losses in Alabama, Florida, 

Georgia, Kentucky, North Carolina, South Carolina, and Tennessee. Today 13 states in 

the south are working cooperatively with the Forest Service in a new intensive prevention 

program to preventively thin 1.5 million acres of forests over the next 15 years. These 

forests represent 75 percent of the highest risk southern pine beetle areas. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 2 15-13 Bark Beetle Management

Summary of Federal Funds Supporting Bark Beetle Management Activities (Dollars in Thousands) 

1 Includes $247,000 in FY 2005, $304,766 in FY 2006, and $140,000 in FY 2007 to other federal 

agencies. 

 

FY 2005 Accomplishments 

• Continued to implement recommendations in both the Western Bark Beetle 

Report – A plan to Protect and Restore Western Forests and Southern Pine Beetle 

– A Time for Action to Protect the South’s Forests on federal, state, and private 

lands. 

• Conducted prioritized bark beetle prevention, suppression and restoration projects 

on 76,444 acres of Federal lands and 152,226 acres on cooperative lands. 

• Conducted survey, detection, monitoring, and evaluation of bark beetle 

infestations on over 500 million acres of forestlands. 

• Responded to nationwide threats to forest ecosystems from bark beetle species 

such as; southern pine beetle, mountain pine beetle, spruce beetle, Douglas-fir 

beetle, fir engraver beetle, western pine beetle, ips engraver beetles, and several 

others. 

• Conducted research to better prevent, control, and recover from future outbreaks 

of southern pine beetle, western bark beetles and other bark beetles that resulted 

in 35 publications and over 40 other products. 

• Implemented the Southern Pine Beetle Initiative, a collaborative research and 

development program designed to better understand and manage the southern pine 

beetle, by competitively awarding 18 external co-op agreements for a total of 

$579,198 and 11 internal (FS) projects for a total of $576,934. 

• Produced, through research on southern pine beetle and related bark beetles, a 

variety of tools including hazard risk maps that help resource managers identify 

forests most vulnerable, guidelines for managers in restoring southern pine beetle 

Programs 

FY 2005 

Final

FY 2006 

Enacted 

w/Recissions

FY 2007 

President’s 

Budget 

Forest Service 

 Forest and Rangeland Research 4,904 4,642 2,256

 State & Private Forestry 

 Federal Lands 1/ 14,726 12,019 7,000

 Cooperative Lands 14,849 15,328 7,000 

 Subtotal, Forest Service $34,479 $31,989 $16,256 

 

Bureau of Land Management Programs 1,125 1,350 1,350

National Park Service Programs 75 - - 

Bureau of Indian Affairs Programs - - - 

Total $35,679 $33,339 $17,606 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 2 15-14 Bark Beetle Management

impacted forests, and compounds designed to protect trees from southern pine 

beetles and prevent future attacks. 

• Improved, through research on western bark beetles, management guidelines and 

delivery techniques including: defining the effects of mechanical fuel treatments 

on the activity of bark beetles infesting ponderosa pine; identifying novel 

semiochemicals that reduced aggregation in several notable pests of western 

coniferous forests; and developing chemical, silvicultural, and semiochemicalbased monitoring and management tactics for pine bark beetles. 

• Contributed $658,306 toward 14 cooperatively funded technology development 

projects focused on better means to manage bark beetles.

FY 2006 Program 

• Continue to implement recommendations in both the Western Bark Beetle Report 

– A plan to Protect and Restore Western Forests and Southern Pine Beetle – A 

Time for Action to Protect the South’s Forests on federal, state, and private lands. 

• Conduct prioritized bark beetle suppression, prevention, and management projects 

on 73,374 acres of Federal lands and 107,418 acres of cooperative lands, 

including the recent major emphasis on risk mitigation through preventive 

thinning in southern and western forests. 

• Conduct survey, detection, monitoring, and evaluation of bark beetle infestations 

on over 500 million acres of forestlands. 

• Respond to nationwide threats to forest ecosystems from bark beetle species such 

as; southern pine beetle, mountain pine beetle, spruce beetle, Douglas-fir beetle, 

fir engraver beetle, western pine beetle, ips engraver beetles and several others, 

including any new invasive exotic bark beetle found in early detection traps. 

• Improve or develop new economical and environmentally-safe technologies that 

enable managers to predict, prevent, detect, monitor, control, and recover from 

future threats to forest ecosystems of priority native bark beetles. 

• Implement the Southern Pine Beetle Initiative, a collaborative research and 

development program. 

• Clarify interactions among the amount and distribution of bark beetle-caused tree 

mortality and stand density, silvicultural treatments, prescribed fire, and mixed 

severity wildfires. 

FY 2007 Plans 

• Implement recommendations in both the Western Bark Beetle Report – A plan to 

Protect and Restore Western Forests and Southern Pine Beetle – A Time for 

Action to Protect the South’s Forests

• Conduct prioritized bark beetle suppression, prevention, and management projects 

on 44,331 acres of Federal lands and 60,589 acres of cooperative lands using new 

risk map to further refine and prioritize where treatments are conducted and 

linked to performance measures. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 2 15-15 Bark Beetle Management

• Conduct survey, detection, monitoring, and evaluation of bark beetle infestations 

on over 500 million acres of forestlands. 

• Respond to nationwide threats to forest ecosystems from bark beetles, including 

new exotic, invasive bark beetles before they degrade forests. 

• Improve or develop new economical and environmentally-safe technologies that 

enable managers to predict, prevent, detect, monitor, control, and recover from 

future threats to forest ecosystems of priority native bark beetles. 

• Continue to implement the Southern Pine Beetle Initiative, a research and 

development program. 

• Conduct research to clarify interactions among the amount and distribution of 

bark beetle-caused tree mortality and stand density, silvicultural treatments, 

prescribed fire, and mixed severity wildfires. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 3 15-16 BOTA

Business Operations Transformation Assessment 

Program Description

The Business Operations Transformation Assessment (BOTA) will help the agency 

review implementation of the Business Operations Transformation Project (BOTP), an 

agency-wide initiative to improve operational efficiency. Under the BOTP, the Forest 

Service (FS) is streamlining and centralizing operations in budget and finance (B&F), 

human resources management (HRM), and information resource management (IRM), in 

order to eliminate redundancies, reduce indirect costs, and strengthen performance 

accountability. The BOTA uses surveys, focus group discussions, interviews, quantitative 

measurement tools and general observations to determine how transformations in B&F, 

HRM, and IRM have impacted field operations. Four sites were selected: the Dixie 

National Forest, the San Bernardino National Forest, the Superior National Forest, and 

the Southern Research Station. 

In the fall of 2005, teams of FS staff conducted the first round of site visits. The findings 

and observations from those visits provide the basis for the Phase I BOTA report as well 

as short- and long-term action plans created to address broad-based problems in the field. 

The Deputy Chief of Business Operations is currently working with the leadership in 

B&F, HRM, and IRM to implement short-term actions directly addressing the issues 

raised in the assessment. The BOTA will reassess progress at the same four sites in the 

spring and fall of 2006. 

Findings and Actions 

The main issues raised by field staff were consistent across all four sites, with variations 

related to the specific needs and practices of each unit. Below are the most significant 

issues raised and some consequent actions to be taken. 

Payments and Travel

A backlog of payments and travel vouchers at the end of FY 2005 and early FY 2006 

caused significant stress among FS employees and with partner organizations. The main 

source of the problem developed when the National Finance Center closed due to 

Hurricane Katrina; however, employees, contractors, and partners do not differentiate 

between the Albuquerque Service Center, which processes travel vouchers and payments 

requests, and the National Finance Center, which issues payments. 

Actions: FS leadership took immediate action to address the backlog of travel vouchers 

and payments and had the majority of the backlog processed within a few weeks. The FS 

must now develop and implement a long-term action plan to prevent another backlog. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 3 15-17 BOTA

Communications 

Communications within the Forest Service regarding the BOTP are frequent but often 

ineffective as many field staff do not receive the message, do not understand it, or do not 

follow it. Though BOTP uses a variety of communication tools, e.g., a dedicated web 

site, regular e-newsletters and e-meetings, and on-going discussions with agency 

leadership and staff, agency-wide communication regarding the BOTP continues to be an 

issue. 

Actions: Leadership will develop and implement a long-term strategy to address this 

problem while taking steps in the short-term to improve business processes. Immediate 

actions include but are not limited to: 

• Establishing a monthly Chief’s conference call to discuss the BOTP with field 

leadership. 

• Soliciting a benchmark study of communications plans within other organizations 

that have successfully implemented major transformation efforts. 

Service Level Agreements 

Service level agreements (SLAs) are developed between FS management and service 

providers and define the level and type of service to end users. SLAs were created to 

monitor the timeliness and effectiveness of service. Currently, SLAs are inconsistently 

established and/or available across the B&F, IRM and HRM staffs. For example, some 

of the SLAs are readily available through the FS internal website, whereas others are still 

under development. 

Actions include, but are not limited to: 

• FS will complete development for all currently outstanding SLAs and, where 

possible, consolidate them with existing SLAs. 

• SLAs for B&F, HRM, and IRM will be published and posted in one location, 

accessible to all FS staff. 

• FS leadership will identify tracking and reporting processes to ensure that SLAs 

and performance metrics are being met: B&F, IRM – monthly; HRM – quarterly. 

Ticket Management 

The field is adjusting to the new centralized system of service for B&F, IRM and HRM. 

This is a major change from the previous decentralized, in-house system of services 

rendered for these three functions. When issues arise, staff typically need to contact a 

service center from which they receive a “ticket” for service. The issue may be solved on 

the first contact or it may require additional levels of technical support. For many staff, 

the current service experience through ticket management can be frustrating and timeconsuming. 

Actions: While ticket management needs work, the process is manageable. Many issues 

related to ticket management are rooted in communication. FS leadership, along with 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 3 15-18 BOTA

IRM, is taking immediate action to improve service-related communications and fix the 

ticketing process, including: 

• Communicating the “HelpNow” option to customers enabling them to track 

ticket service. 

• Revising standards to measure performance by problem resolution, not 

problem response, helping ensure that tickets are closed only when the 

customer problem is resolved. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 4 15-19 Chief’s Reserve Fund

Chief’s Reserve Fund 

 (dollars in thousands) 

FY 2005 Funding FY 2006 Funding FY 2007 Budget 

$10,000 $10,000 $10,000 

Description 

The Chief’s Reserve Fund is managed in the Chief’s Office to fund emergencies or 

unforeseen events that occur throughout the fiscal year. This reserve fund allows units to 

respond quickly to unplanned urgent work without impacting the planned program of 

work. Agency programs assessed in FY 2005 include: 

Program Approved Program Approved 

CMFC 600,000 NFRW 900,000 

CMII 100,000 NFTM 900,000 

CMRD 400,000 NFVW 900,000 

CMTL 250,000 NFWF 500,000 

FRRE 800,000 SPCF 225,000 

NFIM 800,000 SPCH 200,000 

NFLE 350,000 SPFH 300,000 

NFLM 400,000 SPST 125,000 

NFMG 250,000 SPUF 100,000 

NFPN 400,000 WFHF 400,000 

NFRG 200,000 WFPR 900,000 

TOTAL $10,000,000 

Oversight/Administration 

At the Chief’s discretion, funds from this reserve are available for unplanned and/or 

emergency circumstances. Requests are evaluated against criteria including (1) the 

urgent nature of the event, (2) relevance of proposed use to priorities, (3) other funding 

source considerations, and (4) risks from not funding. Requests must be for work or 

projects exceeding $25,000. Initial fund mixes are determined at the beginning of the 

fiscal year, but may be remixed during the year to meet unanticipated needs. Funds are 

only spent in accordance with the purposes for which they were appropriated. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 4 15-20 Chief’s Reserve Fund

Program Uses 

In FY 2005, these funds were approved for numerous unplanned projects. Examples 

include: 

• Funding for vegetation classification for the Cook Inlet prototype in Alaska. 

($50,000) 

• Forest Service’s contribution to the updating and reprinting of “America’s 

Renewable Resources.” ($60,000) 

• Damaged facilities, trails, and wetlands on the Wayne National Forest resulting 

from Hurricanes Frances and Ivan. ($185,000) 

• Funds for the Great Lakes Interagency Task Force facilitating collaboration 

among the U.S. Federal government, the Great Lakes states, local communities, 

Tribes, and other stakeholders in the Great Lakes region, as well as Canada for the 

purpose of developing a Great Lakes Restoration and Protection Strategy. 

($58,500) 

• Commitment to the Ecological Restoration Institute. ($150,000) 

• Funds to support the WO Landfire project. ($110,000) 

• Emergency Law Enforcement funding for protests, increased patrols, and 

demonstrations. ($275,000) 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 5 15-21 Conservation Education

Conservation Education

Overview 

The Forest Service Conservation Education (CE) program teaches people about the land 

so they feel more connected to it and take informed actions to sustain natural and cultural 

resources. Both general and issue-specific CE efforts support the Forest Service mission. 

The agency’s national emphasis areas get special attention during the development and 

use of educational materials and programs, including invasive species management, fire 

and hazardous fuels treatments, resource protection from unmanaged off-highway vehicle 

use, and open space preservation. The CE program will help create an environmentally 

literate public by focusing on youth pre-k through 12th grade and their formal and 

nonformal educators. The program is funded by a direct cost pool using all funds 

available to the Forest Service. Specific projects are funded by the primary purpose of 

the project. 

The Role of Conservation Education in the Forest Service 

CE supports the Forest Service mission through the following four outcomes: 

• Resource Stewardship: CE encourages the development of responsible 

environmental stewardship behaviors such as respectful treatment of wildlife, 

prevention of human-caused wildfires, mitigating the impact of recreational activities, 

and assisting ecosystem restoration efforts. 

• Positive Community Relationships: Community relationships built through CE 

activities enhance the agency’s ability to care for public lands and resources. 

• Workforce Recruitment: CE activities encourage youth to consider careers in natural 

resource fields. 

• Informed Citizenry: CE programs help ensure an informed and engaged citizenry 

able to participate effectively in sustaining our natural and cultural resources for 

present and future generations. 

To accomplish these outcomes, the Forest Service works with many partners, including 

other agencies (Federal and State), educational and environmental associations and 

organizations, and youth programs such as 4-H and Scouting. The Forest Service brings 

three unique strengths to these partnerships: 

• Science-based Information and Conservation Education Research: Research findings 

and the considerable knowledge and on-the-ground experience of Forest Service 

managers, scientists and technicians, provide a tremendous resource for CE materials 

and programs. 

• Experiential Learning: The National Forest System (NFS) provides outstanding 

opportunities for place-based learning, providing the equivalent of 193 million acres 

of outdoor classrooms across the country. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 5 15-22 Conservation Education

• Delivery Network: The Forest Service has an extensive network across the country of 

over 36,000 employees and thousands of cooperators and partners to deliver CE. 

The Forest Service CE program is accomplished through five activities: developing and 

providing educational materials, delivering conservation education, conducting education 

research, providing natural resource and CE training, and building and using partnerships. 

The emphasis for the program for the near-term includes educational outreach to 

underserved populations, particularly minority and urban youth, building interest among 

students in natural resource careers, and developing educational materials and programs 

around invasive species, watershed, and fire issues. 

FY 2005 Accomplishments 

• Development began on the Conservation Education FY 2005-2009 Strategic Plan. 

• Reached 3.1 million people directly with conservation education programs and 

materials, with over 600 partners playing a key role. 

• Developed educational materials in support of national emphasis areas for 

management of invasive species impacts, fire and hazardous fuels treatments, 

resource protection from unmanaged off-highway vehicle use, and preservation of 

open space. 

• Publicized and distributed the Woodsy Owl invasive weed package for elementary 

students. 

• Piloted a Woodsy Owl program in partnership with the Department of Health and 

Human Services’ Head Start program to improve the delivery of conservation 

education to nearly one million youth and their families in Head Start programs 

nationwide in five States. 

• Continued technical and financial support to partners. 

• Produced and distributed 130,000 copies of the Urban Forest issue of Natural 

Inquirer. 

• Produced and distributed 7,000 copies of the Spanish edition of the Resources 

Planning Act (RPA) Natural Inquirer. 

• Launched new Web site for the Natural Inquirer.

• Continued to build new partnerships such as the North American ski organizations, 

and strengthen old partnerships such as interpretive services and public affairs. 

• During the kickoff of the Junior Forest Ranger initiative at the Folklife Festival, over 

5,000 youth became Junior Forest Rangers 

• Continued to provide CE and fire prevention programs to local communities in the 

DC area. 

• Continued support of the Smokey Bear Program. 

• Completed the New Century of Service program and implementation during this 

centennial year. 

• Showed the 2-hour documentary of Forest Service history “The Greatest Good” at 

1,200 venues. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 5 15-23 Conservation Education

FY 2006 Program 

• Complete Strategic Plan and begin implementation with its refocused approach. 

• Develop educational material on both invasive and non-invasive insects. 

• Roll-out Junior Forest Ranger program with a new website and partnership 

opportunities 

• Complete the Smokey Bear flip-book 

• Develop additional educational materials and programs in support of national 

emphasis areas for management of invasive species impacts, fire and hazardous fuels 

treatments, resource protection from unmanaged off-highway vehicle use, and 

preservation of open space. 

• Pilot in another five States a Woodsy Owl program in partnership with the 

Department of Health and Human Services’ Head Start program to improve the 

delivery of conservation education to nearly one million youth and their families in 

Head Start programs nationwide. 

• Identify and provide training opportunities for employees, including using a survey to 

determine areas where needs are greatest. 

• Identify and promote opportunities to interest students, particularly minority youth, in 

natural resource careers. 

• Identify and promote training opportunities for teachers in conservation education. 

• Develop exhibits and presentations demonstrating how conservation education can 

help accomplish line officer priorities. 

• Complete gap analysis to determine needs for materials and expertise. 

• Train FS staff and community teachers to implement and use conservation education 

guidelines in partnership with EPA and North American Association for 

Environmental Educators. 

• Establish an environmental literacy steering committee and have committee members 

share the value of conservation education with their staffs, including how 

conservation education can assist them in effectively implementing their programs. 

• Assess materials in the national CE clearinghouse and certify those meeting Forest 

Service educational guidelines. Link certified materials to other national websites 

used by educators. 

• Participate in National Public Lands Day and National Volunteers Week. 

• Continue the revitalization of the Woodsy Owl program to encourage partners to 

promote conservation and stewardship of our natural resources. 

• Conduct a CE national conference with our Research, Interpretation and other 

partners. 

• Develop, design, print 200,000 Natural Inquirers (125,000 Invasive Species, 75,000 

Wilderness Benefits). 

• Distribute 180,000 Natural Inquirers (30,000 Urban Forest, 100,000 Invasive 

Species, 50,000 Wilderness Benefits).

• Translate invasive species and wilderness editions of Natural Inquirers into Spanish 

and complete design. 

• Design, print, and distribute 7,000 Spanish Urban Forest Natural Inquirers. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 5 15-24 Conservation Education

• Implement the Technology Learning Partnership, an education, research, and 

application partnership including the Forest Service Natural Inquirer, the Cradle of 

Forestry In America Interpretive Association, and three school districts in 

Pennsylvania, North Carolina, and Georgia, with three science educators. 

• Begin Regional CE reviews with two regions. 

FY 2007 Plans 

• Add five States to the Woodsy Owl program in partnership with the Department of 

Health and Human Services’ Head Start program to improve the delivery of 

conservation education to nearly one million youth and their families in Head Start 

programs nationwide using www.Woodsyowl.gov as one vehicle. 

• Produce and distribute an educational packet about insects 

• Continue to enhance the Junior Forest Ranger program with a new website, 

partnership opportunities, children’s camps, and internships for teachers 

• Produce a Woodsy Owl pamphlet on recreation. 

• Begin development of educational material that incorporates the best science 

knowledge and is aligned with national and State standards. 

• Develop new partnerships with universities to develop and promote materials for 

students in environmental education. 

• Continue technical and financial support to Forest Service CE partners. 

• Develop, design, and print 200,000 Natural Inquirers (100,000 Energy, 100,000 GIS 

-- national forest neighbors). 

• Distribute remaining urban forest, invasive species, and wilderness editions of 

Natural Inquirers and 10,000 copies of the Spanish editions of invasive species and 

wilderness editions of the Natural Inquirer. 

• Continue two regional CE reviews to assess if best education practices are being used. 

• Continue to provide training opportunities for employees and teachers. 

• Continue to identify and promote opportunities to interest students, particularly 

minority youth, in natural resource careers. 

• Continue to train FS and community trainers to implement and use conservation 

education guidelines in partnership with EPA and North American Association for 

Environmental Educators. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 6 15-25 Deferred Maintenance Backlog

Deferred Maintenance Backlog 

Since FY 1998, the Forest Service has collected national deferred maintenance, annual 

maintenance and capital improvement data in response to both financial statement 

reporting requirements and direction from Congress. Actions taken include: 

• Continued implementation of "Common Definitions for Maintenance and 

Construction Terms" based on standards developed by the Federal Accounting 

Standards Advisory Board (FASAB). 

• Continued field collection and upward reporting of data on deferred maintenance, 

annual maintenance, and capital improvement estimates. Collection is performed 

systematically, with data recorded in the Agency’s Infra database. 

• Required field units to prepare and report on estimates by October 1 of each year. 

The reported data is in accordance with the standard protocol for each program area 

and is based on condition surveys of individual assets, in accordance with FASAB 

requirements. The report requires units to inspect significant percentages of all real 

property and to extrapolate that data to develop the total estimates for each program 

area. The surveys of essentially all administrative buildings, dams, bridges, roads 

open to passenger cars, and wildlife, fisheries and threatened, endangered and 

sensitive species (TES) improvements have been accomplished. Surveys have been 

completed on approximately 60 percent of all recreation facilities and trails. The 

agency expects the collection of deferred maintenance data and real property 

inventories to remain a high priority through FY 2006 and beyond. Each asset is 

currently on a 5-year cycle to inventory and update the condition summary. 

In FY 2006, the Forest Service Facility Realignment and Enhancement Act (Title V, 

Appropriations Act, P.L. 109-54) was enacted. This Act will support the agency goal of 

reducing the facilities backlog 25 percent by 2010 and create incentives to further reduce 

the backlog. This legislation authorizes the sale of unneeded administrative sites and the 

use of receipts for acquisition, maintenance, reconstruction and construction. 

Additionally, the FY 2006 appropriation bill authorized the Agency to assess all funds 

available to the Agency for the purpose of performing facilities maintenance on FA&O 

and major visitor center facilities (Title III, Administrative Provisions, P.L. 109-54). 

The table that follows displays the Forest Service's annual maintenance, deferred 

maintenance, and capital improvement estimates. Note that the annual maintenance, 

deferred maintenance, and capital improvement estimates shown are limited to direct 

project costs, in accordance with Federal Accounting Standards Advisory Board 

requirements. Forest Service field units will be completing or updating facility master 

plans which identify fire, administrative, other, research, visitor centers, and developed 

recreation facilities for decommissioning, retention, alternate use, or acquisition. These 

plans will be used to manage the facility inventory, reduce deferred maintenance backlog, 

and decommission unneeded facilities. A Facility Condition Report is then developed 

using the Facility Condition Index (a ratio of the cost of remedying maintenance 

deficiencies to the current replacement value) which is a common private sector 

methodology for monitoring the condition of facilities. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 6 15-26 Deferred Maintenance Backlog

USDA Forest Service 

Annual Maintenance, Deferred Maintenance, and Capital Improvement Estimates 

As Reported by Field Units 

September 2005 

(Dollars in Thousands) 

Program 

Estimated 

Annual 

Maintenance* 

Deferred 

Maintenance 

Estimated 

Capital 

Improvement*

Buildings $71,580 $ 438,900 $1,040,000*

Dams ** $ 26,300 ** 

Heritage Assets $578 $ 32,623 $349

Range Improvements $34 $437,320 $19

Developed Recreation Sites $27,974 $88,759 $135,783

Roads $613,929 $4,571,518 $1,200,363

Bridges ** $115,249 **

Trail Bridges ** $9,433 **

Trails*** $34,801 $98,927 $99,251

Wildlife, Fish, TES $2,128 $6,421 $13,177

Water ** $81,250 **

Wastewater ** $31,081 **

General Forest Areas*** ** $4,751 **

Handling Facility ** $24,158 **

Total *** $751,024 $5,966,689 $2,488,942

* Updated inventory data is unavailable for FY 2005. Table displays expanded asset 

categories that will be used in future budget justifications. 

** Data not available at this time. The Agency will emphasize data collection during FY 

2006. 

 *** Inventory last updated in FY 2001. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 6 15-27 Deferred Maintenance Backlog

Annual maintenance (column 1) represents the agency estimates to preserve the 

serviceability of existing infrastructure assets via preventative maintenance, repairs, and 

replacement of damaged or worn out components. It includes work needed to meet laws, 

regulations, codes, best management practices, and other applicable standards, as long as 

the original intent or purpose of the infrastructure asset remains unchanged. Annual 

maintenance may include unscheduled or catastrophic failures of infrastructure assets 

such as failed water systems, wastewater systems or HVAC systems. Proper annual 

maintenance provides efficient public service and maintains the value of the 

government’s infrastructure investment. Through recent federal real property reporting 

requirements, the Forest Service has directed field units to report annual maintenance 

estimates for missing data elements in FY 2006.

Deferred maintenance (column 2) is maintenance that is not performed as needed or 

scheduled. Deferred maintenance causes deterioration of infrastructure asset 

performance, increased repair costs, and a decrease in the asset value. Deferred 

maintenance estimates for all assets are based on condition surveys performed on a 5-

year maximum revolving schedule, with the exception of bridges which are on a 2-year 

maximum revolving schedule. Condition surveys were performed on a statistical sample 

of closed and very low traffic volume roads. Repairs, rehabilitation to restore 

functionality, replacement, and decommissioning are actions that are taken to reduce or 

eliminate deferred maintenance. 

Capital improvement estimates (column 3) includes construction of new infrastructure 

assets, alteration of existing infrastructure assets to change function, and expansion of 

infrastructure assets to change capacity to meet needs that are different from the original 

intent. Improvements are often required to expand public service capability or 

recreational opportunities. In many cases, capital improvements eliminate deferred 

maintenance backlog. Capital improvement work includes survey, design, contract 

preparation, contract administration, and construction costs. Examples of capital 

improvement needs include additional barracks space to house fire crews, the 

rehabilitation of a campground to accommodate larger RVs, and the replacement of oldoutdated facilities that have exceeded there design life. Through recent Federal real 

property reporting requirements, the Forest Service has directed field units to report 

capital improvement estimates for missing data elements in FY 2006. 

A brief description of each program follows. 

Buildings and Administrative Facilities - The buildings and administrative facilities 

program manages over 41,000 buildings with a current replacement value of $3.0 billion. 

The administrative buildings include offices, fire management operations, quarters, and 

service buildings. Visitor centers and other public recreation use buildings are also 

included in this category. Over 60 percent of the administrative buildings have exceeded 

their design life and are in need of major renovation or replacement. At the current 

funding level for facilities, the replacement cycle for administrative buildings is over 300 

years. The current annual maintenance funding level is lower than the industry standard 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 6 15-28 Deferred Maintenance Backlog

of 2 to 4 percent of asset value. This causes the deferred maintenance backlog to continue 

to grow at an increasing rate over time. 

Dams - The Forest Service operates and maintains approximately 1,200 dams that 

provide recreation, fish and wildlife habitat, flood control, and water supplies for fire 

protection, stock watering, irrigation and drinking water. Half of these dams were built 

prior to 1961 and less than 1 percent within the last 5 years. Because of limited funds, 

dam maintenance projects deal primarily with critical health and safety, and resource 

protection needs. 

 

Heritage Assets - The Forest Service manages over 318,000 heritage assets spread across 

193 million acres. These assets include prehistoric artifacts, old mining and logging 

camps, historic structures, and museum collections. For the purposes of this report, and 

for consistency with the Financial Report of the Forest Service, these figures refer only to 

heritage structures. 

Range Improvements - The Range Improvements Program manages structural 

improvements located on approximately 92 million acres of National Forest System 

lands. Improvement types include fences, water developments, livestock trails, livestock 

enclosures, and other facilities. The livestock grazing permittees generally construct 

improvements with Forest Service-purchased materials. The grazing permits require that 

permittees perform annual maintenance on improvements assigned to them. The Forest 

Service also incurs some annual maintenance and capital improvement costs for 

improvements necessary for other resource work over and above those required in the 

grazing permits. 

Recreation Sites - A total of 13,628 developed recreation sites are managed by the Forest 

Service, with a current replacement value of almost $3 billion. These include boat ramps, 

camping facilities, picnic areas, group recreation facilities, interpretive facilities, 

swimming sites, trailheads, and other miscellaneous facilities. In total, these facilities 

have the capacity to serve over 330 million visitors annually. These facilities are integral 

to providing quality recreation experiences and activities. Demand trends in many 

supported activities, including swimming, sightseeing, camping, motor boating, and 

picnicking, are continuing to increase. 

Roads and Bridges - The national forest road system includes 375,000 miles of road and 

6,500 bridges. Of this, approximately 80,000 miles of road are managed for passenger 

car use, approximately 220,000 miles are managed for high clearance vehicles (trucks 

and sport utility vehicles), and the remaining roads are closed for resource protection and 

other administrative purposes. 

Trails - The Forest Service maintains the largest trail system in the country, including 

approximately 133,000 miles of hiking, biking, horseback riding, snowmobile riding, and 

cross country ski trails. Hunters and climbers, as well as fishing and birding enthusiasts 

use this trail system. The two fastest growing outdoor recreation activities over the past 

decade are hiking and backpacking. The trails data in the table reflects data collected in 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 6 15-29 Deferred Maintenance Backlog

FY 2001. However, beginning in FY 2006 deferred maintenance for trails will be 

updated based on results of a national sampling framework implemented by field units. 

The nationally assigned sample identifies specific trails by forest to be surveyed and 

recorded in INFRA. The sample framework for deferred maintenance will be used in the 

annual financial statement. 

 

Wildlife, Fish, and Threatened, Endangered and Sensitive Species Program – This 

program covers a broad range of facilities and projects, such as water developments for 

wildlife, riparian and pond enclosures, bat-friendly mine closures, in-stream fish habitat 

structures, anadromous fish passages, waterfowl habitat restoration, interpretive sites, 

angler and hunter access facilities, viewing areas, and observation towers. These 

structures improve habitat as well as enhance public access to wildlife viewing and use. 

FY2005 Accomplishments 

• Repaired 55 bridges and constructed 28 new bridges. 

• Recovered 47 bridges from the deficient bridge list. 

• Accomplished deferred maintenance work on 10,654 miles of roads. 

• Regions 5 and 6 restored a total of 59.7 miles of priority stream habitat for salmon 

and other aquatic species through rehabilitation and replaced a total of 40 road 

drainage structures. 

• Reduced recreation deferred maintenance backlog by 5.2 percent. 

FY 2006 Program 

• Continue reduction of unneeded or underutilized buildings through the conveyance 

authority. 

• Utilize new facility and recreation site master plans to optimize facility investment 

and maintenance funding with emphasis toward backlog maintenance reduction. 

• Use road maintenance funding selectively through adoption of Road Analysis Process 

(RAP), optimize the use of the limited funding and reduce road standards where 

applicable. 

• Continue decommissioning excess road and facility infrastructure. 

• Eliminate road crossing stream barriers to restore additional aquatic species habitat. 

• Initiate an assessment for facility maintenance from resource program funds to 

provide incentives for reducing unneeded facilities. 

FY 2007 Plans 

• Continue to emphasize reducing deferred maintenance backlog. 

• Expedite the elimination of unneeded or underused administrative space under the 

Forest Facility Service Facility Realignment and Enhancement Act and other special 

legislation authorities. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 6 15-30 Deferred Maintenance Backlog

• Using the Road Analysis Process, plan to selectively decommission additional roads 

and allow many less utilized roads to revert to a lower, less maintenance intensive 

standard. 

• Continue to optimize the use of limited investment and maintenance funds by 

stopping investments and maintenance at the less utilized facilities and 

decommissioning such facilities over time. One of the Recreation Site Facility 

Master Plan requirements is reduction of deferred maintenance backlog by 25 percent 

by 2010 as discussed in the FY 2004 PART assessment on this program. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 7 15-31 Facilities Maintenance Assessment

Facilities Maintenance Assessment 

Background 

Beginning in FY 2006, Congress authorized a multi-program assessment for maintenance 

of fire, administrative, and other (FA&O) facilities, including recreation visitor centers 

(Title III, Administrative Provisions, P.L. 109-54). Appropriated funds from Forest and 

Rangeland Research, State and Private Forestry, National Forest System, Wildland Fire 

Management, Capital Improvement and Maintenance, Land Acquisition, Other 

Appropriations, and eligible Permanent and Trust Fund accounts will be assessed up to 

$35 million. FA&O facilities include fire facilities, such as airtanker bases, lookouts, 

airports, heliports, and fire management centers; administrative facilities, such as 

administrative offices (ranger district offices, forest supervisor offices, regional offices, 

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

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

Maintenance less than $250,000 for these facilities will use funds collected by this 

assessment. Maintenance for FA&O and recreation visitor centers greater than $250,000 

is funded through the Capital Improvement and Maintenance Facilities budget line item. 

The Forest Service currently maintains approximately 31 million square feet in an 

inventory of approximately 41,000 buildings. The agency also maintains an inventory of 

over 19,000 dams and numerous other facilities such as water and wastewater systems 

and communication facilities. The current inventory is larger than needed and many 

facilities are in disrepair as evidenced by a large deferred maintenance backlog. It has 

been difficult to properly maintain facilities with available resources. Prior to new 

authorities authorized in FY 2006, the agency lacked direct incentives to reduce 

inventory and resultant maintenance needs. 

Using a program assessment to fund facility maintenance provides an incentive to dispose 

of unneeded buildings and provide a restraint on new construction, because the cost of 

facilities maintenance is borne by an assessment of program funds. This provides 

financial accountability for the cost of doing business. 

FY 2006 Assessment and Allocation 

Assessment - As directed by Congress, the FY 2006 assessment is based on 

approximately 25 million out of the 31 million of existing square footage. A square 

footage assessment of all facilities intended under this authority totaling $35 million 

equates to approximately $1.40/sq. ft. Assessments are then distributed across the budget 

line items based on the same distribution used for common services (Cost Pool 5) such as 

rents, utilities, equipment, supplies, radios, phones, and computers. The assessment to 

each program is based on each program’s prior year direct labor hour charges. 

Allocation - Congress also directed that a performance based system and need-based 

system be used to allocate assessed funds to the field. The allocation model distributed 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 7 15-32 Facilities Maintenance Assessment

85 percent of funding based on square footage and 15 percent based on a number of 

incentive factors including demand, engineering director emphasis, efficiency, and 

output. The factor categories and related allocation percentages used include: 

Sq. Ft. Assessment Basis – 85%: The majority of the funds were allocated based on 

gross square footage of building space. 

Effectiveness Weight – 4%: Advantage to units who minimize carryover, minimize 

fixed costs, and deliver programs in a timely manner. 

Demand Weight – 1%: Advantage for those units with the most FTE’s to 

accommodate. 

Emphasis Weight – 2%: Advantage for those units with the highest percentage of 

facilities identified for decommissioning. There is an advantage for those units with 

the highest amount of critical health and safety maintenance needs. 

Efficiency Weight – 4%: Advantage for those units with the lowest gross square 

footage of administrative space per employee. 

Output Weight – 4%: Advantage for those units with facilities in the best condition. 

The overall goal is to reduce backlog maintenance and improve administrative space 

for government business, in particular employee work space. The higher the facility 

condition index the greater the advantage in this category. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 7 15-33 Facilities Maintenance Assessment

The following tables display the assessments and allocations by unit. Also displayed 

below is the assessment for each budget line item. 

FY 2006 Facilities Maintenance Assessment and Allocation by Unit 

Unit Name 

Total Gross 

Square Feet 

(GSF) 

$s 

per 

GSF 

Total 

Assessment 

($ thousands) 

Total 

Allocation 

($ thousands) 

Northern Region 2,634,370 $1.40 $3,693 $3,652 

Rocky Mountain Region 1,490,481 $1.40 $2,089 $2,254 

Southwestern Region 1,637,398 $1.40 $2,295 $2,636 

Intermountain Region 2,138,436 $1.40 $2,998 $2,937 

Pacific Southwest Region 4,205,958 $1.40 $5,897 $5,536 

Pacific Northwest Region 4,484,684 $1.40 $6,287 $5,821 

Southern Region 2,241,249 $1.40 $3,142 $3,331 

Eastern Region 3,107,457 $1.40 $4,356 $4,186 

Alaska Region 533,572 $1.40 $748 $1,152 

Region Subtotal 22,473,605 $1.40 $31,505 $31,505 

 

Int. Inst. Of Tropical Forestry 26,977 $1.40 $38 $32 

Forest Products Lab 391,180 $1.40 $548 $466 

North Central Station 162,521 $1.40 $228 $194 

Northeastern Area 134,602 $1.40 $189 $189 

Northeastern Station 299,599 $1.40 $420 $357 

Pacific Northwest Station 281,594 $1.40 $395 $336 

Pacific Southwest Station 208,868 $1.40 $293 $249 

Rocky Mountain Station 437,828 $1.40 $614 $522 

Southern Station 450,379 $1.40 $631 $536 

Research Special Projects $475 

Research Subtotal 2,393,548 $1.40 $3,356 $3,356 

 

San Dimas & MTDC 99,210 $1.40 $139 $139 

Washington Office Subtotal 99,210 $1.40 $139 $139 

TOTAL 24,966,363 $1.40 $35,000 $35,000 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 7 15-34 Facilities Maintenance Assessment

FY 2006 Facilities Maintenance Allocations by Unit 

($ thousands) 

Northern Region Rocky Mountain Region 

Unit/Other Allocation Unit/Other Allocation 

Aerial Fire Depot $ 169.0 Arapaho-Roosevelt $ 214.8 

Beaverhead-Deerlodge $ 187.0 Bighorn $ 126.7 

Bitterroot $ 136.0 Black Hills $ 212.1 

Clearwater $ 280.0 Grand Mesa-Unc.-Gunnison $ 193.0 

Custer $ 131.0 Medicine Bow-Routt $ 189.1 

Dakota Prairie Grasslands $ 16.5 Nebraska $ 170.9 

Flathead $ 315.0 Pike-San Isabel, Cim.-Com. $ 227.2 

Gallatin $ 173.0 Rio Grande $ 141.5 

Helena $ 85.0 San Juan $ 135.2 

Idaho Panhandle $ 461.0 Shoshone $ 150.0 

Kootenai $ 335.2 White River $ 236.8 

Lewis and Clark $ 135.0 Regional Office $ 256.7 

Lolo $ 302.0 

Nez Perce $ 300.0 

Regional Office $ 616.5 

OWCP $ 3.8 

Region-wide Training $ 6.0 

Northern Region Total $ 3,652.0 Rocky Mtn. Region Total $ 2,254.0 

Southwest Region Intermountain Region 

Unit/Other Allocation Unit/Other Allocation 

Apache-Sitgreaves $ 225.0 Ashley $ 141.9 

Carson $ 207.0 Boise $ 229.0 

Cibola $ 148.0 Bridger-Teton $ 101.1 

Coconino $ 261.0 Caribou-Targhee $ 185.8 

Coronado $ 227.0 Dixie $ 222.2 

Gila $ 222.0 Fishlake $ 110.4 

Kaibab $ 225.0 Humboldt-Toiyabe $ 211.7 

Lincoln $ 168.0 Manti-La Sal $ 120.5 

Prescott $ 165.0 Payette $ 144.3 

Santa Fe $ 194.0 Salmon-Challis $ 111.1 

Tonto $ 308.0 Sawtooth $ 270.3 

Regional Office $ 286.0 Uinta $ 179.4 

 Wasatch-Cache $ 115.7 

 Regional Office $ 793.6 

Southwest Region Total $ 2,636.0 

Intermountain Region 

Total $ 2,937.0 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 7 15-35 Facilities Maintenance Assessment

FY 2006 Facilities Maintenance Allocation by Unit (cont.) 

($ thousands) 

Pacific Southwest Region Pacific Northwest Region 

Unit/Other Allocation Unit/Other Allocation 

Angeles $ 485.0 Columbia River Gorge NSA $ 50.0 

Cleveland $ 317.0 Colville $ 279.0 

Eldorado $ 174.0 Deschutes $ 546.0 

Inyo $ 157.0 Fremont-Winema $ 389.0 

Klamath $ 177.0 Gifford Pinchot $ 467.0 

Lake Tahoe Basin MU $ 282.0 Malheur $ 241.0 

Lassen $ 291.0 Mt. Baker-Snoqualmie $ 210.0 

Los Padres $ 307.0 Mt. Hood $ 192.0 

Mendocino $ 197.0 Ochoco $ 167.0 

Modoc $ 89.0 Okanogan-Wenatchee $ 592.0 

Plumas $ 183.0 Olympic $ 100.0 

San Bernardino $ 251.0 Rogue River-Siskiyou $ 325.0 

Sequoia $ 197.0 Siuslaw $ 170.0 

Shasta-Trinity $ 360.0 Umatilla $ 234.0 

Sierra $ 164.0 Umpqua $ 448.0 

Six Rivers $ 130.0 Wallowa-Whitman $ 224.0 

Stanislaus $ 201.0 Willamette $ 427.0 

Tahoe $ 148.0 Regional Office $ 531.0 

Regional Office $ 452.0 Regional Design Team $ 229.0 

Regional Priorities $ 558.0 

OWCP/UCI $ 416.0 

Pacific SW Region Total $ 5,536.0 Pacific NW Region Total $ 5,821.0 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 7 15-36 Facilities Maintenance Assessment

Southern Region Eastern Region 

Unit/Other Allocation Unit/Other Allocation 

NFs in Alabama $ 98.7 Allegheny $ 176.0 

Caribbean $ 47.8 Chequamegon-Nicolet $ 227.0 

Chattahoochee-Oconee $ 187.0 Chippewa $ 183.0 

Cherokee $ 336.7 Green Mtn.-Finger Lakes $ 213.0 

Daniel Boone $ 162.4 Hiawatha $ 287.0 

NFs In Florida $ 221.1 Hoosier $ 198.0 

Francis Marion-Sumter $ 191.1 Huron-Manistee $ 223.0 

George WashingtonJefferson $ 457.7 Mark Twain $ 231.0 

Kisatchie $ 170.1 Midewin $ 151.0 

Land Between The Lakes $ 132.2 Monongahela $ 180.0 

NFs in Mississippi $ 285.5 Ottawa $ 230.0 

NFs in North Carolina $ 263.2 Shawnee $ 172.0 

Ouachita $ 224.6 Superior $ 415.0 

Ozark-St. Francis $ 173.5 Wayne $ 125.0 

NFs and Grasslands in 

Texas $ 169.3 White Mountain $ 254.0 

Regional Office $ 210.1 Regional Office $ 256.0 

 Design Team $ 665.0 

Southern Region Total $ 3,331.0 Eastern Region Total $ 4,186.0 

Alaska Region Research Stations/Area/IITF 

Unit/Other Allocation Unit/Other Allocation 

Chugach $ 281.0 Int. Inst. of Tropical Forestry $ 32.0 

Tongass $ 843.0 Forest Products Lab $ 466.0 

Regional Office $ 28.0 North Central Station $ 194.0 

 NE Area (incl. Grey Towers) $ 189.0 

 Northeastern Station $ 357.0 

 Pacific Northwest Station $ 336.0 

 Pacific Southwest Station $ 249.0 

 Rocky Mountain Station $ 522.0 

 Southern Station $ 536.0 

 Research Special Projects $ 475.0 

Alaska Total $ 1,152.0 Research Total $ 3,356.0 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 7 15-37 Facilities Maintenance Assessment

Washington Office 

Unit/Other Allocation 

San Dimas and MTDC $ 139.0 

Washington Office $ 139.0 

FY 2006 Facility Assessments by Budget Line Item and Region 

($ in thousands) 

PROGRAM 

REGION 

01 

REGION 

02 

REGION 

03 

REGION 

04 

REGION 

05 

Forest and Rangeland Research - 0 - 0 - 0 - 0 - 0 

Fire Research - 0 - 0 - 0 - 0 - 0 

Forest Health Mgmt - Federal Lands - 29 - 12 - 16 - 33 - 39 

Forest Health Mgmt - Cooperative Lands - 3 - 1 - 0 - 0 - 0 

State Fire Assistance - 3 - 2 - 3 - 1 - 5 

Forest Stewardship - 2 - 2 - 1 - 0 - 2 

Forest Legacy Program - 0 - 0 - 0 - 0 - 3 

Urban and Community Forestry - 2 - 2 - 2 - 1 - 4 

Land Management Planning - 126 - 64 - 19 - 78 - 59 

Inventory and Monitoring - 139 - 96 - 95 - 163 - 156 

Recreation, Heritage and Wilderness - 255 - 231 - 210 - 360 - 462 

Wildlife and Fisheries Habitat Management - 164 - 89 - 102 - 132 - 129 

Grazing Management - 112 - 83 - 129 - 163 - 48 

Forest Products - 402 - 284 - 126 - 213 - 353 

Vegetation and Watershed Management - 203 - 149 - 162 - 227 - 236 

Minerals and Geology Management - 105 - 62 - 60 - 109 - 75 

Landownership Management - 129 - 95 - 74 - 141 - 168 

Preparedness - 903 - 305 - 655 - 714 - 2,839 

Hazardous Fuels Reduction - 221 - 250 - 314 - 168 - 606 

Facilities - 56 - 60 - 70 - 74 - 83 

Roads - 284 - 149 - 167 - 215 - 247 

Trails - 96 - 48 - 45 - 51 - 62 

Deferred Mtce and Infrastructure Imp. - 9 - 4 - 6 - 6 - 11 

Land Acquisition - 27 - 9 - 7 - 10 - 9 

Subsistence Management - Alaska - 0 - 0 - 0 - 0 - 0 

Cooperative Work, KV - 74 - 34 - 7 - 29 - 95 

Reforestation Trust - 35 - 9 - 12 - 20 - 63 

Brush Disposal - 45 - 9 - 2 - 2 - 30 

Timber Salvage Sales - 267 - 33 - 9 - 86 - 110 

10% Roads and Trails Fund - 2 - 7 - 2 - 2 - 3 

ASSESSMENTS, ALL FUNDS - 3,693 - 2,089 - 2,295 - 2,998 - 5,897 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 7 15-38 Facilities Maintenance Assessment

PROGRAM 

REGION 

06 

REGION 

08 

REGION 

09 

REGION 

10 

REGION 

TOTAL 

Forest and Rangeland Research - 0 - 0 - 0 - 0 - 0 

Fire Research - 0 - 0 - 0 - 0 - 0 

Forest Health Mgmt - Federal Lands - 90 - 128 - 0 - 12 - 359 

Forest Health Mgmt - Cooperative Lands - 1 - 3 - 0 - 0 - 8 

State Fire Assistance - 3 - 14 - 0 - 2 - 33 

Forest Stewardship - 5 - 13 - 0 - 2 - 27 

Forest Legacy Program - 0 - 2 - 0 - 0 - 5 

Urban and Community Forestry - 4 - 13 - 0 - 0 - 28 

Land Management Planning - 88 - 60 - 221 - 9 - 724 

Inventory and Monitoring - 360 - 157 - 307 - 63 - 1,536 

Recreation, Heritage and Wilderness - 413 - 249 - 510 - 87 - 2,777 

Wildlife and Fisheries Habitat Management - 317 - 212 - 279 - 81 - 1,505 

Grazing Management - 77 - 12 - 10 - 0 - 634 

Forest Products - 915 - 479 - 824 - 199 - 3,795 

Vegetation and Watershed Management - 432 - 166 - 189 - 42 - 1,806 

Minerals and Geology Management - 97 - 56 - 105 - 17 - 686 

Landownership Management - 192 - 102 - 196 - 45 - 1,142 

Preparedness - 1,257 - 412 - 460 - 21 - 7,566 

Hazardous Fuels Reduction - 395 - 320 - 209 - 3 - 2,486 

Facilities - 127 - 113 - 114 - 35 - 732 

Roads - 569 - 251 - 316 - 76 - 2,274 

Trails - 119 - 105 - 112 - 29 - 667 

Deferred Mtce and Infrastructure Imp. - 41 - 7 - 6 - 2 - 92 

Land Acquisition - 32 - 34 - 49 - 0 - 177 

Subsistence Management - Alaska - 0 - 0 - 0 - 15 - 15 

Cooperative Work, KV - 247 - 159 - 111 - 2 - 758 

Reforestation Trust - 55 - 41 - 24 - 3 - 262 

Brush Disposal - 68 - 0 - 1 - 0 - 157 

Timber Salvage Sales - 376 - 26 - 284 - 3 - 1,194 

10% Roads and Trails Fund - 7 - 8 - 29 - 0 - 60 

ASSESSMENTS, ALL FUNDS - 6,287 - 3,142 - 4,356 - 748 - 31,505 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 7 15-39 Facilities Maintenance Assessment

PROGRAM 

Research 

Stations 

Grey 

Towers 

and 

NEA WO 

Forest 

Service 

Total 

Forest and Rangeland Research - 3,129 - 15 - 0 - 3,144 

Fire Research - 0 - 1 - 0 - 1 

Forest Health Mgmt - Federal Lands - 13 - 2 - 3 - 377 

Forest Health Mgmt - Cooperative Lands - 1 - 0 - 0 - 9 

State Fire Assistance - 7 - 0 - 0 - 40 

Forest Stewardship - 7 - 1 - 0 - 35 

Forest Legacy Program - 2 - 0 - 0 - 7 

Urban and Community Forestry - 8 - 0 - 0 - 36 

Land Management Planning - 0 - 4 - 0 - 728 

Inventory and Monitoring - 0 - 10 - 2 - 1,548 

Recreation, Heritage and Wilderness - 0 - 15 - 22 - 2,814 

Wildlife and Fisheries Habitat Management - 0 - 8 - 0 - 1,513 

Grazing Management - 0 - 4 - 0 - 638 

Forest Products - 0 - 19 - 9 - 3,823 

Vegetation and Watershed Management - 0 - 10 - 12 - 1,828 

Minerals and Geology Management - 0 - 4 - 0 - 690 

Landownership Management - 0 - 6 - 0 - 1,148 

Preparedness - 0 - 43 - 58 - 7,667 

Hazardous Fuels Reduction - 0 - 14 - 0 - 2,500 

Facilities - 0 - 4 - 8 - 744 

Roads - 0 - 12 - 23 - 2,309 

Trails - 0 - 4 - 0 - 671 

Deferred Mtce and Infrastructure Imp. - 0 - 0 - 0 - 92 

Land Acquisition - 0 - 1 - 0 - 178 

Subsistence Management - Alaska - 0 - 0 - 0 - 15 

Cooperative Work, KV - 0 - 4 - 0 - 762 

Reforestation Trust - 0 - 1 - 0 - 263 

Brush Disposal - 0 - 1 - 2 - 160 

Timber Salvage Sales - 0 - 6 - 0 - 1,200 

10% Roads and Trails Fund - 0 - 0 - 0 - 60 

ASSESSMENTS, ALL FUNDS - 3,167 - 189 - 139 - 35,000 

Anticipated Future Years Assessments 

In FY 2007, the Forest Service proposes to retain a $35 million program. Each 

assessment will be made at the local unit and limited to 4 percent of the facility 

replacement value and not to exceed $7 per square foot. This will allow the assessment 

made for each type of facility to vary based on maintenance cost differences. For 

example, a recreation visitor center will typically cost more per square foot than a storage 

building. Unit level assessments and allocations using FY 2007 methods have not been 

determined yet. The assessment distribution for each program is expected to stay 

approximately the same in FY 2007. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 8 15-40 Federal Excess Property & Aircraft

Federal Excess Personal Property and Aircraft 

Federal Excess Personal Property – Vehicles and Aircraft 

The Forest Service (FS) is authorized to loan property, which is no longer used by other 

Federal agencies, to the States for rural and wildland fire protection (40 U.S.C. 483). The 

States use the equipment in their fire protection programs or assign the loaned property to 

cooperating rural fire departments. 

Property on loan to States is upgraded, when possible, with equipment excess to the 

Federal agency needs. Equipment loaned through the program can be intended for 

operation, or can be intended to provide parts for maintenance and repair of equipment 

loaned previously. 

Excess property that becomes available is directed to areas with the highest potential to 

increase efficiency, based on an analysis of the fire protection needs. Funding is not 

required to obtain property through this program. 

Federal Excess Personal Property - Passenger Carrying Vehicles 

The current fleet of passenger carrying vehicles on loan to the States and territories is 

244. In FY 2006 and FY 2007, an estimated 25 passenger carrying vehicles will be 

replaced or acquired. 

Federal Excess Personal Property - Aircraft 

In FY 2006, an estimated 10 aircraft will be acquired through excess sources. Of these, 

an estimated 4 will be used to supply parts for other similar aircraft, and 12-15 aircraft 

are slated for disposal in FY 2006. The result will be a net decrease of six operational 

aircraft from the fleet of State wildland fire protection programs. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 9 15-41 Forest Land Enhancement Program

Forest Land Enhancement Program 

The Forest Land Enhancement Program (FLEP) was established in the Farm Security and 

Rural Investment Act of 2002 (Farm Bill) to encourage long-term sustainability of 

nonindustrial private forests. The 2002 Farm Bill authorized FLEP at $100 million 

through FY 2007. 

FLEP replaced two previous conservation incentive programs, the Stewardship Incentives 

and the Forestry Incentives programs, neither of which received requests for funding 

from qualifying private forest landowners for the two fiscal years prior to their repeal by 

the 2002 Farm Bill. Program implementation began with the publication of an interim 

rule in the Federal Register of June 9, 2003. Web-based accomplishment reports include 

practices completed through financial assistance to private forest landowners as well as 

items completed for use of funds for technical and educational assistance. 

In early November 2004, $5 million was released for FY 2004. In FY 2005, $10 million 

was released for FY 2005 activities. In December of 2005, $5 million was released for 

FY 2006. No funds remain. 

This program complements the Forest Stewardship Program. The Forest Stewardship 

Program provides technical assistance, principally plan development assistance to 

nonindustrial private forest owners. FLEP helps the owners implement stewardship 

plans. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 10 15-42 Forest Products Lab Modernization

Forest Products Laboratory Modernization 

The Forest Products Laboratory (FPL) has identified significant needs for the construction and 

reconstruction of facilities, as well as for capital equipment investment projects necessary to 

modernize the laboratory and maintain the status of the leading wood utilization research 

institution in the Nation. These projects include a single, combined research facility to house 

several research areas: Durability Test Facility, Wood Preservation Research Laboratory, and 

Advanced Materials, Composites and Structures Laboratory. In addition, the proposed 

modernization effort includes utility upgrades to the Advanced Fiber Processing and Paper 

Products Laboratory, an addition to the Fire Research Laboratory, and installation of central 

heating, ventilation, and air-conditioning at the main building. 

The FPL completed a long-range master planning effort for the campus late in 2004. In addition, 

FPL completed a Forest Service mandated conceptual phase value analysis (VA) in January 

2005, for the proposed modernization projects. The FPL Facilities Master Plan (FMP) identifies 

priorities within the proposed FPL modernization effort, consistent with the strategic plans of 

FPL management. During the process, the VA team performed a functional analysis to 

understand the proposed projects, identified creative alternatives in order to maximize the benefit 

FPL might realize, and developed planning estimates for the proposed alternatives. FPL has 

based final project priorities and developed direction for the proposed modernization effort on 

the VA recommendations. 

In February 2005, FPL began the design process for the project by procuring professional 

architect-engineering (A-E) services. The A-E firm conducted a design charrette (10 percent 

design) in May 2005, including review of the FMP and conceptual VA report, interviews with 

FPL scientists and staff, and investigation of existing facilities to establish basic project 

parameters and design standards. Design efforts have continued, with projected completion in 

June 2006. 

In December 2005, the FPL conducted a second design phase VA on the 60 percent project 

plans. In addition to the current design documents, the VA team reviewed the results of the first 

VA, the FMP, the design charrette report, and the OMB Exhibit 300 in order to identify any 

potential cost saving measures, and to validate the decision to construct additional lab space in 

the proposed location. FPL is currently evaluating the final report of the second VA to 

determine which recommended cost saving measures may be appropriate for incorporation into 

the project. 

The following are brief descriptions of the current identified needs: 

Durability Test Facility – Health concerns related to mold in homes and other public buildings, 

such as schools, have significantly increased in recent years. Most experts agree that excessive 

moisture in buildings is the root cause of mold, and in most cases, information regarding water 

intrusion and how to deal with it, is anecdotal at best, primarily because of the great variety in 

building practices, building sites, and climate. 

Currently, minimal quantitative research is conducted on water intrusion and drying. The 

proposed facility at the FPL will enable measurement of wetting and drying under controlled, but 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 10 15-43 Forest Products Lab Modernization

realistic conditions, allowing scientific evaluation of different design and construction 

techniques. 

A state-of-the-art facility to conduct research related to the durability of homes and other public 

structures would allow assessment of effects of rain, wind, sun, temperature, and humidity on 

these buildings. 

Wood Preservation Research Laboratory – Challenged with aging equipment and inadequate 

facilities, the current wood preservation research laboratory has been located in the main FPL 

building since 1931. The wood preservation research laboratory has stayed in place because 

much of the research equipment, including treating cylinders and plumbing, was integrated with 

the building infrastructure. Space in the wood preservation research facility is very restricted 

and much of the equipment is outdated. Therefore, rehabilitating the current Wood Preservation 

Research Laboratory is not feasible due to the limited space, conflicts with the existing building 

infrastructure, and proximity of the laboratory to a large number of employees working in an 

office environment. 

A modernized wood preservation research laboratory would provide an efficient research 

program and recognize the health and safety of employees. The new laboratory is designed to 

complement similar facilities currently available through universities, industry, or other 

government agencies. 

Advanced Materials, Composites, and Structures Laboratory – Two of the primary research 

facilities at FPL are (1) the Engineering Mechanics Laboratory (EML), where material, 

component and full-scale structural testing is completed; and (2) the Composites Laboratory, 

where composite materials involving wood and other materials are developed, tested, and 

evaluated. The EML is located in Building 1 (constructed in 1931) and the Composites 

Laboratory is in a small building approximately 1000 feet away (constructed in the early 1940s). 

In both cases, the buildings are not designed for computerized test equipment or modern 

electrical wiring loads. Additionally, the EML structural research is limited because the building 

foundations are not strong enough to support the test equipment and testing loads. In addition, 

much of the equipment in the Composites Laboratory is not adequately ventilated or isolated 

from office space in order to allow the use of fungicides, fire retardants, or new “hyperallergenic” adhesives. Most of the manufacturing, testing, and analysis equipment is outdated 

and neither lab was designed to allow mobile equipment for handling the large numbers and 

sizes of materials that are typically evaluated for ongoing research. It is inefficient and 

expensive to continue a long-term maintenance and upgrade program for EML and the 

Composites Laboratory, which are central to the FPL research program. 

The proposed EML and Composites Laboratory would be located adjacent to each other within 

the proposed combined laboratory. This has been studied extensively in concept to assess what 

facilities and equipment are needed to complement, rather than duplicate, similar facilities 

currently available through universities, industry, or other government agencies. 

Advanced Fiber Processing and Paper Products Laboratory – Among the long-term 

improvements to the pilot plant area, FPL plans to upgrade the existing paper machine and 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 10 15-44 Forest Products Lab Modernization

improve capabilities to produce high yield pulps. For high yield pulping, the initial plan was to 

install 36" diameter refining equipment because this scale is intermediate between the laboratory 

scale and current commercial practice. However, the difficulty in routinely handling 5-10 tons of 

wood and fiber make this scale unmanageable at FPL. The lab has selected a smaller scale 

alternative operating at 1-2 tons per day and using 16" diameter refiners. FPL has located an 

excellent, surplus pilot refining line at North Carolina State University. To accommodate this 

equipment, FPL will clear space in the lower level of the existing Advanced Fiber Research 

building for the new equipment and process. Based on input from the Facilities Engineering 

staff, the electrical system in the building requires modification to meet current code 

requirements. 

Updated pulping facilities will provide state-of-the-art research capability to keep up with current 

technology and capabilities available internationally in competitor nations. 

Fire Research Laboratory – Research on fire growth and improving survivability of wood 

structures in the wildland-urban interface and other large fire threats has been hampered by the 

very limited full-scale capabilities in the current facility. The current facility lacks adequate test 

space and is crowded with the necessary test equipment. The restricted space severely limits the 

lab’s capabilities to use existing equipment and poses safety issues. The equipment is also 

outdated. 

A large-scale fire test facility will allow the lab to address issues regarding the construction and 

protection of wood structures in the wildland-urban interface and other large-scale threats and 

provide the capability to simulate actual fire scenarios, better validate computer models, and 

evaluate protection options or design changes. Equipment will be updated and ventilation and 

pollution controls will be improved. 

Central Heating, Ventilation, and Air-Conditioning, (HVAC) Building 1 – The FPL main 

building, Building 1, is not centrally controlled for temperature or humidity, two critical factors 

when evaluating the engineering performance of wood products. Office space in Building 1 is 

cooled by 180 individual window air conditioners. Additionally, 165 tons of cooling capacity 

comes from larger three-phase, single-pass water cooled air-conditioning units. Many occupied 

spaces have no air-conditioning. Building 1 also has controlled-environment rooms with a yearround “process load” of 100 tons of cooling capacity. The majority of this equipment is outdated 

and expensive to maintain.

A modern 700-ton capacity centralized HVAC system would provide an estimated 74 percent 

reduction in used amperage and over 20 million gallons per year savings in water for cooling 

purposes. Total annual cost avoidance for electricity and water is estimated to be $59,000. 

Current plans include a phased construction schedule as follows: 

• Phase I – entire building enclosure for combined laboratory and interior division/finishes 

for Durability Test Facility and Wood Preservation Laboratory 

• Phase II – Composites Laboratory to continue the combined laboratory building 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 10 15-45 Forest Products Lab Modernization

• Phase III – Engineering Mechanics Laboratory to continue the combined laboratory 

building, and Advanced Fiber Processing and Paper Products Laboratory upgrades 

• Phase IV – Fire Research Laboratory addition and installation of central HVAC at 

Building 1 

The USDA Forest Service followed the House conference recommendation to work with 

industry partners and research users to develop a comprehensive, agency-wide wood products 

research plan to guide future capital investments and conduct a strategic review of facilities 

needs. Feedback from cooperators and partners outside of FPL lead overwhelmingly to the 

conclusion that the FPL facility modernization as planned is the top priority need for wood 

utilization research in the long term. The USDA Forest Service, Research and Development 

integrated wood utilization strategy is near completion and is fully expected to support this 

conclusion. 

The FY 2005 appropriation included $986,000 (Congressional earmark) to FPL for construction 

of a Durability Test Facility and the FY 2006 appropriation included $1,990,000 (Congressional 

earmark) to FPL toward the modernization project. FPL will retain these funds until such time 

FPL acquires adequate funding for the first proposed phase of construction. 

The FY 2007 President’s Budget proposes an additional $15.144 million Capital Improvement 

Project to initiate Phase 1 of the modernization of the Forest Products Laboratory. This 

modernized facility will provide a state-of-the-art research environment that will greatly enhance 

the capabilities and efficiencies of lab’s research programs. Additionally, this modern facility 

will promote up-to-date applied and cooperative research with a wide variety of university, 

industry, government, and international collaborators. 

Phased implementation of construction, as planned for the combined laboratory facility proposed 

within the FPL Modernization project, is not ideal. The projected capital investment cost is 

greater than for the same project completed all at one time; temporary closures (roof/walls) are 

needed between phases, and an extended construction duration created by funding multiple 

phases over multiple fiscal years causes greater cost escalation from inflation. However, funding 

for this project is planned to span several fiscal years, and the USDA Forest Service is taking 

steps to mitigate the increases of project cost from phased implementation. For example, the 

USDA Forest Service will write the project solicitation so that sequential phases can be easily 

added to the work of the first phase when funds become available; to encourage execution of 

construction for the entire combined laboratory facility by a single general contractor. Further, 

the solicitation will include language to add the option of Phase II work to the awarded Phase I 

work immediately after FY 2008 begins (if funds are available for that second phase), creating an 

almost seamless combination of the two phases, even though each would be awarded in a 

different fiscal year. In this way, a single contractor can realize savings from economies of scale 

by performing more work at one time, the chance of potential problems arising from 

incompatible scopes of work between two phases awarded to multiple contractors is reduced, the 

project duration is shortened resulting in lower escalation of construction costs, and capital costs 

are reduced from elimination of some temporary closures needed between phases. In addition, 

USDA Forest Service is considering combining Phases II and III for submission in the FY 2008 

President’s Budget to mitigate further potential cost increases due to phased construction. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 10 15-46 Forest Products Lab Modernization

Return on Investment 

The Forest Products Laboratory (FPL) is the USDA Forest Service’s only national laboratory 

and is the Nation’s leading Federal forest biomass utilization research laboratory. Utilization of 

forest biomass is critically important to forest management, the U.S. economy, and solving some 

of America’s most important public problems and issues. 

Importance of Utilization to Forests and Forest Management--Forest biomass utilization 

helps offset forest and rangeland management costs on public lands by providing an economic 

return for woody biomass: to reduce fuel loading by removing dead and dying insect attacked 

and diseased timber; and by removing noxious or invasive species such as salt cedar, juniper, and 

pinyon. On private lands it provides outlets for similar type materials and the economic return 

helps privately held forestlands compete against fragmentation and conversion to non-forest 

uses. With over 70 percent of America’s forests privately owned and roughly two-thirds of our 

forestland located east of the Mississippi River, maintaining forest cover by helping privatelyheld forests compete economically is critically important to deriving all the benefits forests 

provide such as clean water, carbon sequestration, wildlife habitat, species diversity, open space, 

and recreation. 

Importance of Utilization to the Economy--Use of wood for forest products is of major 

importance to meeting the needs of the American public and for the U.S. economy, and is a part 

of the President’s energy policy. The forest products industry is based on our largest renewable 

resource and provides indispensable products to our modern society. About 300 million tons of 

timber is harvested annually to produce forest-based materials. Over 225 million tons of solid 

sawn wood, glued laminated beams, oriented strandboard, medium density fiberboard, plywood, 

veneer, paperboard and paper, and array of similar materials are consumed annually in the U.S. 

Ninety percent of all goods shipped in the U.S. use corrugated paperboard containers or other 

wood fiber-based corrugated materials. Ninety percent of all single family housing is woodframe construction with wood–based composites and solid sawn lumber being the major 

materials used in construction. The forest products sector contributes over $250 billion per year 

to our Nation’s Gross Domestic Product (GDP) and provides employment for over 1.5 million 

citizens. In 46 out of 50 states, the forest products industry is in the top 10 industries from the 

viewpoint of contributions to GDP. Despite this, the U.S. forest products industry faces intense 

competition in the global economy as product prices are generally set internationally, and most 

domestic products are commodity grades which translate into large volume production and low 

profitability. 

Importance of Forest Products to Other National Issues and Our Future--America’s forests 

have enormous untapped potential to address major issues facing our Nation, including national 

energy security, global climate change, halting decline in ecological services such as air and 

water quality, and global competitiveness of our Nation’s industries. Forest products can be a 

critical contributor to a sustainable, renewable biomass-based economy. Increased utilization of 

renewable and recyclable forest products provides a viable means of reducing CO2 emissions and 

the Nation’s foreign petroleum requirements, while at the same time providing societal benefits 

to many rural and underdeveloped areas. It is estimated that America’s forests could sustainably 

produce about 700 million tons per year. If conversion of forest biomass to ethanol at theoretical 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 10 15-47 Forest Products Lab Modernization

yield is achieved, 120 gallons of ethanol per ton of wood could be produced. America’s 

renewable forest biomass could replace 30 percent of our current 130 billion gallon per year 

gasoline consumption with ethanol. Converting forest biomass into ethanol and chemical 

feedstock by developing the science and technology needed for the forest biorefinery will 

provide outlets for hundreds of millions of tons of low value forest biomass without disrupting 

current wood uses. Similarly, nanotechnology is expected to be a critical driver of economic 

growth and development in the 21st century. Wood-based lignocellulosic materials as self 

assembling nanomaterials are virtually unexplored despite cellulose being one of nature’s most 

abundant biological materials. Wood-based self-assembling nanomaterials could be sources of 

new generations of electronic and optoelectronic devices, carbon nanotubules, and surface active, 

cellular nanowalled materials that are of high value and importance to fueling the next industrial 

revolution and keeping America strong in the global economy. 

FPL Positioned as a National Laboratory—FPL has worked and continues to work to position 

itself to be the lead for forest biomass R&D in the U.S. It has key partnerships in place with 

those institutions and groups that are most critical to its successfully carrying out its mission. 

Within the Forest Service, the FPL has sought to work with and interact with the National Forest 

System and S&PF to resolve issues and problems critical to their needs in which utilization R&D 

can provide solutions. R&D and technology transfer to economically utilize small diameter trees 

type hazardous fuels such as ponderosa pine and lodgepole pine; underutilized species (e.g. red 

maple) and other low-value forest biomass is being carried out. 

In carrying out its R&D and technology transfer mission, the FPL also works directly with 

industry to overcome technical barriers to using forest biomass materials that they are currently 

noncommercial such as small diameter material, thinnings, and underutilized species. The FPL 

targets and works with industry that runs the gamut from small companies to international forest 

products corporations. The FPL has strong relationships with the American Forest & Paper 

Association and their Agenda 2020 research initiative. The FPL Director participates on the 

Agenda 2020 Chief Technology Officer Committee that oversees and directs the research 

initiative. As such the FPL works with Agenda 2020 on such programs as advanced housing 

R&D, forest biorefinery R&D, and nanotechnology R&D. The FPL Director also participates in 

the Technical Association of the Pulp and Paper Industry Research Management Committee. 

This committee is comprised of the most senior and most respected international pulp and paper 

industry R&D leaders. It identifies emerging industry R&D needs, emerging science and 

technologies from other business sectors, and other emerging governmental policy, social, and 

business trends of importance to the pulp and paper industry within the context of the global 

economy. 

The FPL is positioned to work collaboratively and interactively with universities. It participates 

in two major coalitions that cover the forest products university research communities—PPERA 

and SWST. The Society of Wood Science and Technology (SWST) provides an umbrella 

organization for all U.S. universities with departments focused on solid sawn wood products and 

composites. The Pulp and Paper Education and Research Alliance (PPERA) provides an 

umbrella organization for all U.S. universities with departments focused on pulping and 

papermaking. The FPL has two major initiatives with universities. The first is the Coalition for 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 10 15-48 Forest Products Lab Modernization

Advanced Wood Structures. This group receives some funding through the Forest Service. The 

second is the Woodfiber Initiative in Science and Engineering (WISE) and includes all eleven of 

the PPERA universities. WISE has just started up and is focused on the FPL and the universities 

working together to create the enabling science and technology needed to move the forest 

biorefinery and nanotechnology forward. Lastly the FPL is working with the College of the 

Menominee Nation (CMN) and four other Forest Service units (R-9, NA S&PF, NCRS, NERS) 

to establish a “Center for First American Forestland.” The focus of this center and collaboration 

is sustainable forestry and sustainable forest products production focused on Native Americans 

and Native American forestlands. 

The FPL is also positioned to work with other important Federal entities. The FPL works with 

the U.S. Postal Service on the performance and security of stamps, the Federal Highway 

Administration on use of wood in transportation (e.g. timber bridges, guard rails, etc.), the 

National Science Foundation (NSF) (forest biorefinery and nanotechnology), the Department of 

Energy (DOE) (e.g. National Renewable Energy Laboratory-forest biorefinery, Joint Genome 

Institute-biotechnology, Pacific Northwest National Laboratory-biotechnology). The FPL is a 

member of the Nanoscale Science, Engineering, and Technology Subcommittee of the National 

Science and Technology Committee which oversees the entire $982 million per year National 

Nanotechnology Initiative. The FPL Director was invited to participate in this group as 

representing the entire forest products sector of the US. 

State of the art facilities and equipment are critical to continuing the research for which the 

Forest Products Laboratory has long been recognized. Having such facilities and equipment 

significantly help in continuing to attract exceptional research scientists to the FPL. These 

factors (recognized scientists, and modern facilities and equipment) are also key to continued 

cooperative research with universities and the public and private sector. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 11 15-49 Invasive Species

Invasive Species 

 (Dollars in Thousands)

Forest Service Programs FY 2005 

Final 

FY 2006 

Enacted 

(w/Rescission) 

FY 2007 

President's 

Budget 

Forest and Rangeland Research 11,719 12,294 10,031 

National Forest System 17,920 21,983 23,259 

State & Private Forestry 

 S&PF: Forest Health 65,525 56,657 33,100 

International Forestry 525 600 400 

Total Forest Service $95,689 $91,534 $66,790 

Description 

Invasives species pose a significant threat to biodiversity in the United States. Invasive 

species have been identified by the Chief of the Forest Service as one of the four 

significant threats to our Nation’s forests and rangelands. In response to this identified 

threat, in 2004, the Forest Service prepared the National Strategy and Implementation 

Plan for Invasive Species Management to guide agency actions for the prevention, 

control, and eradication of invasive terrestrial and aquatic plants, invertebrates, 

vertebrates, and pathogens impacting forest and rangeland ecosystems managed by the 

National Forest System (NFS), other Federal agencies, tribal governments, and State and 

local cooperators. The National Strategy provides guidance and program direction within 

four program elements: 1) Prevention, 2) Early Detection and Rapid Response, 3) 

Control, and 4) Restoration and Rehabilitation. A key aspect of the Forest Service 

invasive species program is to provide technical and financial support to cooperators at 

the State and local levels. In addition, this strategic approach is based on the following 

guiding principles: 

• Science-based prioritization of invasive species problems, 

• Enhanced collaboration on the solutions to those problems, and 

• An improved system of accountability that ensures the most efficient use of limited 

resources at all levels of the organization. 

In FY 2004, a Program Assessment Rating Tool (PART) assessment was conducted on 

the invasive species program for the FY 2006 budget cycle. Each major program area of 

the Forest Service contributed answers and supporting evidence for each of the core 

questions in the assessment, along with supplemental questions regarding research and 

grant management capabilities. Based on the agency FY 2004-2008 Strategic Plan, goal 

2 for invasive species and the National Strategy and Implementation Plan for Invasive 

Species Management, the assessment provided a positive response on program 

management and strategic planning; however the Forest Service ultimately received a 

score of “results not demonstrated” due to the program’s lack of outcome-based 

performance measures that directly portray the purpose of the program. In response, the 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 11 15-50 Invasive Species

Forest Service has undertaken steps to address the recommendation identified within the 

PART assessment. Program managers are improving performance and accountability 

components (with accompanying financial management improvements agency-wide) to 

ultimately improve efficiency and cost effectiveness. Each of the recommendations has 

been addressed prompting the Forest Service to begin a PART reassessment of the 

invasive species program in spring 2006. 

The Invasive Species program will continue to tier to performance design improvements 

related to the agency FY 2004-2008 Strategic Plan, goal 2 for invasive species 

management. The Forest Service Invasive Species program stands as a model design for 

cross-deputy area coordination and strategic response to complex issues in addressing the 

threat of invasive species to our Nation’s forests, rangelands and waters.

The Forest Service is unique in that it has existing authorities to manage invasive species 

on all lands in the United States. Four agency program areas have responsibilities for 

integrated invasive species activities: National Forest System (NFS), State and Private 

Forestry, Research and Development, and International Programs. The activities within 

these program areas support the agency’s efforts under the Healthy Forests Restoration 

Act of 2003 to address invasive species on Federal, State, tribal, and cooperative lands 

throughout the United States. The Forest Service also works cooperatively with other 

Federal agencies on invasive species issues and works closely with the National Invasive 

Species Council created by Executive Order 13112. 

The goal of these efforts is to prevent the U.S. economy and environment from being 

severely impacted by invasive species which threaten agriculture, forests, range, water, 

and natural areas and annually cause tens of billions of dollars in economic damage as 

well as serious environmental damage. Invasive organisms affect the health of not only 

the Nation’s forests, rangelands and waters, but also of wildlife, livestock, fish and 

humans. 

Additionally, the FY 2007 Budget for USDA’s Animal and Plant Health Inspection 

Service (APHIS) includes a $10 million initiative to fund new and innovative approaches 

by the private sector for the control and eradication of invasive pests and diseases. Under 

this effort, grants would be awarded by APHIS on a competitive basis to private sector 

groups based on the submission of proposals for the actual implementation of these 

approaches. 

FY 2005 Accomplishments 

• Conducted invasive insect and disease suppression, prevention, and management on 

174,759 acres on Federal lands and 908,807 acres on cooperative lands (which 

includes 154,000 acres of invasive plants). 

• Responded to nationwide threats to forest ecosystems from non-native invasive 

species, such as Sirex, sudden oak death and emerald ash borer outbreaks. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 11 15-51 Invasive Species

• Expanded the collaborative effort with USDA Animal and Plant Health Inspection 

Service (APHIS) to detect unwanted invasive pest and pathogens at domestic entry 

ports, to develop the technology needed for detection efforts, and to provide critical 

science that provides the bases of regulatory actions. 

• Developed heat-treatment protocols for killing the Asian Long-horned Beetle, 

Emerald Ash Borer and other destructive non-native invasive insect species infesting 

wooden packing materials. 

• Continued the slow-the-spread strategy on 15,051 acres of Federal lands and 399,315 

acres of cooperative lands to control gypsy moth infestations from North Carolina to 

Wisconsin. 

• Protected critical ecosystems from established infestations of non-native pests and 

pathogens such as Port-Orford cedar root disease, white pine blister rust, and hemlock 

woolly adelgid using science provided by research. 

• Management accomplishments included control of noxious weeds and invasive plants 

on 120,040 acres using NFS vegetation and watershed management (NFVW) funds. 

• Developed a comprehensive internet web site on invasive species that serves as an 

internal and external informational and communications tool. 

• Completed charters and partially staffed the Early Environmental Treat Assessment 

Centers in Pineville, Oregon and Asheville, North Carolina in response to HFRA. 

• Developed a technique for identifying European Woodwasp (Sirex noctilio) and other 

woodwasp larvae that speeds the woodwasp identification process by eliminating the 

long wait for larval maturation and adult emergence. 

• Developed diagnostic tests to definitively identify the Sudden Oak Death pathogen, 

continued to define the pathogen’s host range, developed a preventative chemical 

treatment for assisted industry and management agencies with treatments for plant 

debris, and increased understanding of risk of pathogen spread via soil, nursery 

plants, Christmas trees, and other commodities. 

• During the spring 2005, released a small lady beetle (Scymnus sinuanodulus) in six 

states for the biological control of the hemlock woolly adelgid. Pre-release studies on 

this predator at the Forest Service Quarantine Laboratory in Ansonia, CT establish the 

predator’s suitability and safety as a hemlock woolly adelgid biological control. 

• Developed a model of the ecology and expansion mechanisms of sulfur cinquefoil in 

northeastern Oregon that aids in the development of integrated management strategies 

for the invasive and promotes resilient native plant communities. 

• Completed 4 pesticide risk assessments to evaluate possible concerns to 

environmental and human health risks. Risk Assessments support the choice of safe 

forest pest management tools in consideration of public and environmental health and 

safety. They are a major element of agency compliance with NEPA, the Endangered 

Species Act and other Federal and State laws and regulations. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 11 15-52 Invasive Species

FY 2006 Program 

• Conduct invasive insect and disease suppression, prevention, and management on 

233,480 acres of Federal lands and insect, diseases and plant infestations on 

1,038,111 acres of State and private forested lands. 

• Continue to respond to nationwide threats to forest ecosystems from non-native 

invasive species, such as new gypsy moth outbreaks, sudden oak death, and emerald 

ash borer and to develop innovative methodologies and new technologies for 

prevention, detection, management of these pests and other invasive threats on 

National Forest System and other lands. 

• Continue to expand Forest Environmental Threat Assessment Centers in Asheville, 

North Carolina and Prineville, Oregon by generating and integrate information to 

provide credible prediction, early detection, and quantitative assessment of 

environmental threats in hardwood and conifer forests. 

• Continue to expand the collaborative program with APHIS to detect and respond to 

unwanted introductions of invasive pests and pathogens at U.S. entry ports. 

• Continue to develop the tools needed to implement collaborative programs with 

APHIS, and to develop the science needed to justify regulatory actions. 

• Continue to expand early detection and rapid response capabilities for invasive 

species on all lands by working with federal, state, local and tribal partners to develop 

better communication networks, implement science-based surveys, and eradicate new 

introductions rapidly. 

• Continue risk-based detection surveys for sudden oak death, and develop emerald ash 

borer and Sirex monitoring protocols. 

• Continue the slow-the-spread strategy on 526,000 acres across the advancing front of 

the gypsy moth, which extends from North Carolina to Wisconsin and meet all 

anticipated gypsy moth eradication, priority prevention, and suppression needs. 

• Protect critical ecosystems from established infestations of non-native insects and 

diseases, such as Port-Orford cedar root disease, white pine blister rust, and hemlock 

woolly adelgid. 

• Improve invasive plant information management (data management in NRIS, 

FACTS, etc.) capabilities for field-level personnel by developing user-friendly, 

spatially-oriented, data software applications and hardware for inventory and 

treatment. Reporting through these systems will provide information critical for 

improving operational efficiency, accountability, and performance. Training and 

support will be conducted for field personnel on the installation, use, and protocols 

using the data management applications, equipment, and advancing technology.

• Invasive plant (including noxious weeds) management activities to control 

infestations are expected on 80,800 acres across the National Forest System. Invasive 

plant management accomplishments are also supported under the K-V program and 

other program funds. As appropriate, higher priority species or habitat areas 

identified by regional or forest-level planning, will be targeted (i.e. species such as 

salt cedar, leafy spurge, Russian olive, garlic mustard, cogon grass, yellow starthistle, 

kudzu, knotweed on sensitive habitats, riparian corridors, burned areas, etc.). 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 11 15-53 Invasive Species

• Expand Biological Control Programs on western invasive plants (weeds) and on 

eastern invasive insects and weeds by integrating research to obtain new scientific 

information and to develop new technology with implementation of management 

activities by the Forest Service and partners on federal, state, tribal and private lands. 

• Continue to develop innovative methodologies and new technologies to support a 

fully functional integrated Pest Management Program that expands prevention and 

eradication of aquatic and terrestrial invasive species and uses biological, chemical, 

cultural, and physical control techniques against invasive species on National Forest 

System and other lands. 

• Continue evaluation of primary and secondary ecosystem processes affected by 

invasives and potential control agents, so that the means, priorities, and consequences 

of control efforts will be based on thorough scientific assessment. 

• Reassess the Forest Service invasive species program using the OMB Program 

Assessment Rating Tool. 

• Complete revision of Risk map showing acres at risk of increased mortality over the 

next 15 years. 

• Complete economic assessment of Emerald Ash Borer. 

• Complete 6 pesticide risk assessments to evaluate possible concerns to environmental 

and human health risks and initiate 3 new assessments. 

FY 2007 Plans 

• Continue to implement the National Strategy and increase capabilities to conduct 

early detection and rapid response for new infestations of invasive plants (including 

noxious weeds) and other categories of invasive species affecting National Forest 

System watersheds. 

• Conduct invasive plant (including listed noxious weeds) management activities 

(prevention, control, and mitigation) on 97,615 acres across the National Forest 

System. Average climatic conditions, instead of either drought or high moisture 

regimes, will contribute to the accomplishment of more work locally. Another 

50,866 acres will be managed due to the K-V program. 

• Continue to expand invasive species information management capabilities for NFS 

field-level personnel addressing invasive plants to track performance, improve 

budgeting, and ensure accountability for management actions.

• Continue expansion of Forest Environmental Threat Assessment Centers in Asheville, 

North Carolina and Prineville, Oregon to generate and integrate information to 

provide credible prediction, early detection, and quantitative assessment of 

environmental threats in hardwood and conifer forests. 

• Continue to expand the collaborative program with APHIS to detect and respond to 

unwanted introductions of invasive pests and pathogens at U.S. entry ports. 

• Continue to develop the tools needed to implement collaborative programs with 

APHIS, and to develop the science needed to justify regulatory actions. 

• Continue to expand early detection and rapid response capabilities for invasive 

species on all lands by working with federal, state, local and tribal partners to develop 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 11 15-54 Invasive Species

better communication networks, implement science-based surveys, and eradicate new 

introductions rapidly. 

• Implement a National Forest System Early Detection and Rapid Response program in 

cooperation with local, State, and Federal partners to address new or emerging 

invasive plant infestations on or adjacent to National Forest System lands. 

• Conduct Forest Health Management invasive plant, insect and disease suppression, 

prevention, and management on 63,233 acres of Federal lands and 403,830 acres of 

State and private forest lands. This total includes 240,000 acres in the Slow-TheSpread Gypsy Moth program, and 94,000 of invasive weed control. 

• Continue to respond to nationwide threats to forest ecosystems from non-native 

invasive species, such as new gypsy moth, sudden oak death, and emerald ash borer 

outbreaks. 

• Continue to develop innovative methodologies and new technologies to support a 

fully functional integrated Pest Management Program that expands prevention and 

eradication of aquatic and terrestrial invasive species and uses biological, chemical, 

cultural, and physical control techniques against invasive species on National Forest 

System and other lands. 

• Expand risk-based detection surveys for sudden oak death and emerald ash borer 

through the Forest Health Monitoring program. 

• Protect critical ecosystems from established infestations of non-native insects and 

diseases, such as Port-Orford cedar root disease, white pine blister rust, and hemlock 

woolly adelgid. 

• Expand Biological Control Programs on western invasive plants (weeds) and on 

eastern invasive insects and weeds by integrating research to obtain new scientific 

information and to develop new technology with implementation of management 

activities by the Forest Service and partners on federal, state, tribal and private lands. 

• Continue evaluation of primary and secondary ecosystem processes affected by 

invasives and potential control agents, so that the means, priorities, and consequences 

of control efforts will be based on thorough scientific assessment. 

• Complete 3 pesticide risk assessments to evaluate possible concerns to environmental 

and human health risks 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 12 15-55 Law Enforcement Indirect Costs

Law Enforcement Funding of Indirect Costs 

Background 

The Forest Service pays for indirect, overhead, and shared costs through cost pools based 

on each program’s direct labor hours. Prior to 2006, the Law Enforcement and 

Investigations (LEI) program did not pay its full share of these costs. The Interior 

Appropriations Act of 2006 includes the following language: 

In fiscal year 2006, the Forest Service may transfer funds to the National Forest 

System account from other agency accounts to enable the agency’s law 

enforcement program to pay full operating costs including overhead.

The new language will permit the agency to transfer sufficient funds from other programs 

into law enforcement so that it will pay cost pools on the same basis as other programs. 

Since other programs have been paying this share all along, we describe the actual shift in 

funds as “program neutral,” meaning there is no effect on direct program funds and 

outputs. 

Table 1 illustrates the affect of cost pool transfers on the totals for FY2005 and FY2006 

as compared to the FY2007 estimated discretionary appropriations. 

FY 2005 

Enacted 

FY 2005 

w/Transfer 

FY 2006 

Enacted 

FY 2006 

w/Transfer 

FY 2007 

Estimate 

$86,014 $109,014* $87,887 $110,937 $110,000 

*This amount reflects what the FY 2005 amount would have been with a transfer; however, no transfer 

took place in 2005. 

The agency requested a transfer of funds in FY 2006 from appropriations in order to be 

consistent in how it funds cost pools. As a result of this transfer, the LEI program will 

have sufficient funds in its base to pay for its full share of cost pools. Table 2 shows the 

FY 2006 contribution from specific programs that will be transferred to the LEI budget 

line to cover the overhead assessment. Table 3 shows 3 years of appropriations: FY 2005 

actual and as it would have been with a cost pool adjustment; FY 2006 enacted and as it 

is with a cost pool adjustment; as well as the FY 2007 budget estimate that includes an 

increase to reflect the new baseline. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 12 15-56 Law Enforcement Indirect Costs

FY 2006 Transfer of Funds to Cover Law Enforcement Funding of Cost Pools 

Program Fund Code

Contribution 

(dollars in thousands)

Forest and Rangeland Research FRRE $ 1,218 

Cooperative Forestry, Forest Legacy LGCY $ 12 

Cooperative Forestry, Forest Stewardship SPST $ 44 

Cooperative Forestry, Urban & Community Forestry SPUF $ 37 

Coop Fire Protection, State Fire Assistance SPCF $ 35 

Forest Health Management, Cooperative Lands SPCH $ 24 

Forest Health Management, Federal Lands SPFH $ 275 

Cooperative Forestry, Forest Resource Info & Analysis SPIA $ 1 

International Forestry SPIF $ 11 

Inventory & Monitoring NFIM $1,037 

Land Ownership Management NFLM $ 700 

Minerals & Geology Management NFMG $ 438 

Land Management Planning NFPN $ 513 

Grazing Management NFRG $ 453 

Recreation/Heritage/Wilderness NFRW $ 2,501 

Forest Products NFTM $ 2,531 

Vegetation & Watershed Management NFVW $ 1,490 

Wildlife & Fish Habitat Management NFWF $ 1,132 

Fire Preparedness WFPR $ 5,363 

Fire Operations Other, Hazardous Fuels WFHF $ 1,673 

Fire Operations Other - Research FRF2 $ 88 

Capital Improvement & Maintenance - Facilities CMFC $ 986 

Infrastructure Improvement CMII $ 66 

Capital Improvement & Maintenance - Roads CMRD $ 1,624 

Capital Improvement & Maintenance - Trails CMTL $ 677 

Land Acquisition LALW $ 103 

Subsistence Management SMSM $ 18 

 

TOTAL $23,050 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 12 15-57 Law Enforcement Indirect Costs

 Three Year Appropriation Table 

 with Law Enforcement Cost Pool Adjustments 

 (dollars in thousands) 

 

FY 2005 

Actual

FY 2005 

with

 Cost Pool 

Adjustment

FY 2006 

Enacted

FY 2006

with

 Cost Pool

Adjustment

FY 2007 

Estimate

Discretionary 

Appropriations 

 

Forest & Rangeland 

Research 

Research and Development $276,384 $275,166 $278,929 $277,711 $267,791

Total, Forest & Rangeland 

Research $276,384 $275,166 $278,929 $277,711 $267,791

 

State and Private Forestry 

Forest Health Management 

Forest Health Fed Lands $54,236 $53,961 $53,438 $53,163 $49,849

Forest Health Coop Lands $47,629 $47,605 $46,928 $46,904 $34,581

Total, Forest Health Mmgt $101,865 $101,566 $100,366 $100,067 $84,430

 

Cooperative Fire Assistance 

State Fire Assistance $32,920 $32,885 $32,930 $32,895 $26,960

Volunteer Fire Assistance $5,917 $5,917 $5,911 $5,911 $5,858

Total, Coop Fire Assistance $38,837 $38,802 $38,841 $38,806 $32,818

 

Cooperative Forestry 

Forest Stewardship $32,320 $32,276 $34,189 $34,145 $33,880

Forest Legacy $57,134 $57,122 $56,536 $56,524 $61,515

Urban & Community $31,950 $31,913 $28,451 $28,414 $26,846

Economic Action $19,032 $19,032 $9,537 $9,537 $0

Forest Res Info & Analysis $4,958 $4,957 $4,589 $4,588 $0

Total, Cooperative Forestry $145,394 $145,300 $133,302 $133.208 $122,241

 

International Forestry $6,410 $6,399 $6,897 $6,886 $4,921

Total, S&PF $292,506 $292,067 $279,406 $278,967 $244,410
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 12 15-58 Law Enforcement Indirect Costs

 

FY 2005 

Actual

FY 2005 

with

 Cost Pool 

Adjustment

FY 2006 

Enacted

FY 2006

with

 Cost Pool

Adjustment

FY 2007

Estimate

National Forest System 

Land Management Planning $63,167 $62,654 $58,188 $57,675 $55,555

Inventory & Monitoring $167,302 $166,265 $167,675 $166,638 $154,135

Recreation, Wilderness & 

Heritage $257,343 $254,842 $261,299 $258,798 $250,880

Wildlife & Fish Management $134,749 $133,617 $132,866 $131,734 $123,548

Grazing Management $48,034 $47,581 $48,279 $47,826 $39,735

Forest Products $273,247 $270,716 $280,115 $277,584 $310,114

Vegetation & Watershed 

Management $189,614 $188,124 $181,342 $179,852 $187,582

Minerals & Geology 

Management $55,747 $55,309 $84,601 $84,163 $81,242

Landownership Management $92,129 $91,429 $91,631 $90,931 $84,285

Law Enforcement Operations $86,014 $109,014 $87,887 $110,937 $110,000

Valles Caldera $3,599 $3,599 $5,074 $5074 $990

Centennial of Service 

Challenge $9,861 $9,861 $4,434 $4,434 $0

Total, NFS $1,380,806 $1,393,011 $1,403,391 $1,415,646 $1,398,066

 

Wildland Fire Management 

Preparedness $676,470 $671,157 $666,068 $660,705 $655,887

Fire Operations - Suppression $648,859 $648,859 $690,186 $690,186 $746,176

Total, Fire Ops - Suppression $1,325,329 $1,320,016 $1,356,254 $1,350,891 $1,402,063

 

Fire Operations - Other 

Hazardous Fuels $262,539 $260,866 $281,793 $280,120 $291,792

Rehab & Restoration $12,819 $12,819 $6,188 $6,188 $1,980

Fire Research & Development $21,719 $21,631 $22,877 $22,789 $20,121

Joint Fire Sciences Program $7,889 $7,889 $7,882 $7,882 $3,960

NFP Forest Health-Fed Lands $14,792 $14,792 $14,780 $14,780 $6,802

NFP Forest Health-Coop Lands $9,861 $9,861 $9,852 $9,852 $4,552

NFP State Fire Assistance $40,179 $40,179 $45,816 $45,816 $29,115

NFP Volunteer Fire Assistance $7,889 $7,889 $7,772 $7,772 $7,810

Total, Fire Ops - Other $377,687 $375,926 $396,960 $389,836 $366,132

Total, Wildland Fire Mgmt $1,703,016 $1,695,942 $1,753,214 $1,746,090 $1,768,195
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 12 15-59 Law Enforcement Indirect Costs

 

FY 2005 

Actual

FY 2005 

with

 Cost Pool 

Adjustment

FY 2006 

Enacted

FY 2006

with

 Cost Pool

Adjustment

FY 2007

Estimate

Capital Improvement & 

Maintenance 

Facilities $198,769 $197,783 $124,815 $123,829 $130,140

Roads $226,396 $224,772 $222,181 $220,557 $182,787

Trails $75,707 $75,030 $74,882 $74,205 $60,341

Deferred Maintenance $13,829 $13,763 $12,809 $12,743 $9,333

Total, CI&M $514,701 $511,348 $434,687 $431,334 $382,601

 

Land Acquisition 

Land Acquisitions $61,007 $60,904 $41,875 $41,772 $25,075

Acquisition of Lands for 

National Forests, Special Acts $1,054 $1,054 $1,053 $1,053 $1,054

Acquisition of Lands to 

Complete Land Exchanges $231 $231 $231 $231 $232

Total, Land Acquisition $62,292 $62,189 $43,159 $43,056 $26,360

Other Appropriations 

Gifts, Donations, and Bequests 

for Research $64 $64 $63 $63 $63

Range Betterment Fund $3,021 $3,021 $3,130 $3,130 $3,932

Subsistence Mgmt (R10) $5,879 $5,861 $4,993 $4,975 $5,311

Total, Other Appropriations $8,964 $8,946 $8,186 $7,958 $9,307

Total, Discretionary 

Appropriations $4,238,669 $4,238,669 $4,200,972 $4,200,972 $4,096,730
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 13 15-60 Legislative Proposals

Legislative Proposals 

The FY 2007 President’s Budget contains two legislative proposal titled: 

Amendment to Secure Rural Schools and Community Self-Determination Act of 2000 

The proposed legislation identifies funding sources up to $800 million above the current 

baseline to enable payments to States under an amended Secure Rural Schools and 

Community Self-Determination Act. The legislative proposal provides payments that 

would be continued for an additional five years. Provisions will be incorporated to cap 

payments, adjust the current payment schedule downward each year, and eventually 

phase out payments. 

Payments under the proposal will target areas most affected by the loss of timber receipts. 

This proposal will apply to lands under the jurisdiction of the Department of the Interior’s 

Bureau of Land Management as well as USDA National Forest System lands. For 

administrative purposes, the payments would be made by the USDA on behalf of both 

agencies. 

To provide a funding basis to offset these payments, the proposal would also include 

provisions to authorize the sale of National Forest System land parcels that meet 

identified criteria as eligible for conveyance. The criteria would identify lands that are 

mainly isolated parcels of land which are interspersed with or adjacent to non-federal 

lands or are not efficient or effective to manage because of their location, size or shape. 

Under the proposal, the Secretary will make a determination prior to conveyance that it is 

in the public interest to convey eligible lands at no less than market value based on 

appraisals conducted in accordance with uniform standards. The proposal expressly 

precludes the conveyance of lands with certain designations (including wilderness, wild 

and scenic rivers, national recreation areas, monuments and historic sites.) 

Enhancing Forest Service Administration of Rights-of-Way and Land Uses 

This proposal extends the authority to implement a 10-year pilot program authorizing the 

assessment, collection, and expenditure of administrative fees collected from applicants 

for and holders of special use authorizations and to recover the agency’s costs to process 

those applications and/or monitor the compliance with those authorizations. The Forest 

Service has not yet exercised this pilot authority, pending completion and adoption of the 

Secretary of Agriculture’s cost recovery regulations, which are necessary to assess and 

collect the administrative fees for which expenditure authority is granted by the subject 

pilot program. Adoption and implementation of those cost recovery regulations is 

expected during FY 2006. The value of cost recovery will be limited if the agency is 

unable to retain these fees for expenditure as granted in this pilot authority. A total of 

$750,000 in expected cost recovery receipts will be collected in FY 2006 if the 

Administration of Rights-of-Way authority is extended beyond the legislation expiration 

date at the end of FY 2006. In FY 2007 the agency would expect to collect $3 million in 

cost recovery receipts from NFS lands. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 14 15-61 National Energy Policy

National Energy Policy 

Estimated Funds Supporting the National Energy Policy

(Dollars in thousands) 

Forest Service Programs FY 2005 

Final 

FY 2006 Enacted 

(w/Rescissions*) 

FY 2007 

President's 

Budget 

Forest and Rangeland Research 3,440 3,440 5,440 

State & Private Forestry 

 Economic Action Programs 1,479 1,478 0 

National Forest System 

 Forest Products 500 500 500 

 Minerals and Geology Management 10,636 11,290 24,778 

 Landownership Management 4,041 6,616 7,341 

Wildland Fire Management 

 Hazardous Fuels Reduction 4,931 4,926 5,000 

Total Forest Service 25,027 28,250 43,059 

 *FY 2006 BA includes rescission of 0.476 percent and 1.0 percent 

Introduction 

In 2001, the President’s National Energy Policy gave the Forest Service direction for increasing 

production of all energy sources in an environmentally sound manner, capitalizing on the 

potential of woody biomass as a renewable energy resource, and contributing to the improvement 

of infrastructure for transmitting energy across the country. Infrastructure involves improving 

efficiencies in evaluating and responding to requests to cross Federal lands with energy 

transmission lines, oil and gas pipelines, and ancillary facilities. Conservation involves 

researching ways to reduce energy use while maintaining people’s quality of life. Increasing 

energy supply means, in addition to providing energy facility corridors, ensuring that lands are 

available for energy mineral development and production. Renewable energy resources 

emphasize utilization of woody biomass from hazardous fuels reduction, wind and solar power, 

geothermal energy, and re-licensing of hydropower facilities. Development of domestic energy 

supplies will be an essential component to meet future domestic needs. 

Healthy Forests Restoration Act of 2003: Utilization of Woody Biomass 

Forest lands, not including Alaska, have been estimated to produce 368 million dry tons of 

biomass annually. This includes 35 million dry tons of fuelwood harvested from forests, 41 

million dry tons of residue from logging and site clearing operations, and 60 million dry tons of 

biomass from fuel treatment operations to reduce fire hazards. All of these forest resources are 

sustainably available on an annual basis. Agricultural and forest lands in the United States are 

capable of producing a sustainable supply of biomass sufficient to displace up to 30 percent or 

more of U.S. petroleum consumption and reduce our dependence on foreign oil. (Biomass as 

Feedstock for A Bioenergy and Bioproducts Industry: The Technical Feasibility of a Billion-Ton 

Annual Suppy, April 2005). 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 14 15-62 National Energy Policy

Energy Policy Act of 2005 

In August 2005, to complete the vision for a comprehensive national energy policy, and 

to ensure jobs for the future with secure, affordable, and reliable energy, the Energy 

Policy Act was passed into law. The Forest Service has a significant role in fulfilling the 

following sections of the Act: 

• Title I: Enhancing Energy Efficiencies, including management of Federal lands 

• Title II: Renewable Energy, including geothermal energy and hydroelectric power 

• Title III: Oil and Gas, including natural gas, production, exploration, access to 

Federal lands, and NEPA review 

• Title IV: Coal, including coal leasing amendments 

• Title IX: Research and Development, including biomass and renewable energy pilot 

projects and grants 

Program Description 

The Forest Service Strategic Plan Goal 4: Help meet energy resource needs, describes the 

following outcome: “Consider opportunities for energy development and the supporting 

infrastructure on forests and grasslands to help meet the Nation’s energy needs.” The 

energy mandate involves many agency programs, including National Forest System 

(Forest Products, Minerals and Geology Management, Landownership Management); 

State and Private Forestry (Urban and Community Forestry), and Wildland Fire 

Management (Hazardous Fuels Reduction, Fire Research and Development); and 

Research and Development (Forest and Rangeland Research). Prior to the passage of the 

Energy Policy Act, the agency’s focus in the National Forest System (NFS) has been 1) 

working with other agencies to identify and designate corridors for energy facilities, 

improve the efficiency of processing permit applications, and establish appropriate land 

tenure in easements and other authorizations to provide for long-term project viability, 2) 

stimulating commercial use of small-diameter trees lands for biomass energy, and 3) 

developing new tools to address long-term infrastructure stability. With the passage of 

the Energy Policy Act, the agency will continue to focus on the National Energy Plan 

policies and initiatives through the following program areas, as well as new efforts to 

enhance the supply of renewable energy resources. 

Forest and Rangeland Research

The Forest Service actively participates in a government-wide initiative aimed at 

promoting development and use of biobased products and bioenergy. Activities that 

support meeting the Nation’s energy needs include: enhancing opportunities to use forest 

biomass – especially small diameter, low-value wood to produce energy and other valueadded products; developing economical, environmentally acceptable, woody cropping 

systems to produce energy and other value-added products; exploring new processes to 

convert wood into ethanol; and identifying ways to increase energy conservation through 

changes in manufacturing technologies, harvesting technologies, building construction 

practices, and designed landscapes. These activities will contribute toward meeting the 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 14 15-63 National Energy Policy

Nation’s energy needs by increasing the use of renewable energy, and by fostering an 

increase in energy conservation. 

Cooperative Forestry — Urban and Community Forestry 

One function of the Urban and Community Forestry Program is to encourage the 

establishment of trees for energy conservation in and around cities. Although difficult to 

quantify nationwide, individual cities have and continue to use Forest Service research 

models that quantify the energy conservation benefits of trees and forested lands in and 

around human settlements. 

Cooperative Forestry 

These program authorities can provide energy related and other assistance and funding to 

businesses and communities when discretionary funds are available. In FY 2006 all 

funds are earmarked for specific projects, including about $1.5 million for Fuels in 

Schools in Montana to assist schools in converting to woody biomass heating systems. 

No funds are requested for FY 2007. 

Forest Products 

Woody biomass is a by-product of forest management, ecosystem restoration, or 

hazardous fuel reduction treatments. It is defined as material from trees and woody 

plants, including limbs, tops, needles, leaves, and other woody parts, grown in a forest, 

woodland, farm, rangeland, or wildland-urban interface environment. This material can 

be used for bio-energy purposes in the form of heat or combined heat and power. The 

goals and objectives are to provide a reliable sustainable supply while developing new 

markets and technology and working with communities. Forest Management is looking 

at new tools, methods, markets and technology to remove and utilize woody biomass. 

One such tool is stewardship contracting, which is used to accomplish a myriad of land 

management goals including woody biomass removal and use. 

Minerals and Geology Management

In accordance with the National Energy Policy, emphasis has been on processing the 

backlog of energy mineral applications, including applications for permit to drill (APD’s) 

and lease nominations. As mandated by the Energy Policy Act of 2005, the energy 

component of the program is focused on increasing opportunities for development and 

supply of oil and gas, coal, and geothermal resources from Federal lands. 

Landownership Management

Non-recreation special use authorizations provide for the use of Federal lands for a wide 

variety of purposes, including transmission and distribution facilities for energy resources 

such as hydropower, oil and gas, and electric. Processing and authorizing these uses are 

important in facilitating transmission of affordable, reliable energy to meet the goals of 

the National Energy Plan. Additionally, with the passage of the Energy Policy Act of 

2005, renewable energy and improving energy transmission will be a national priority. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 14 15-64 National Energy Policy

Hazardous Fuels 

Millions of tons of woody biomass on public and private forest lands must be disposed of 

annually at high costs. This excess material increases wildfire risks, degrades forest 

health, and adversely impacts forest-related communities. Utilizing woody biomass can 

offset part of the cost of hazardous fuels reduction and ecosystem restoration activities 

throughout the Nation, as well as contribute to national energy goals. Working with 

communities to develop appropriate technologies and markets for woody biomass could 

create thousands of rural-based jobs and millions of dollars in value-added processing 

including bioenergy, biofuels, and bio-based products. Careful removal of excess 

biomass contributes to the health and vigor of ecosystems; reduces fire loss and 

firefighting and fuel reduction costs; protects forests and communities threatened by 

wildfire; reduces air pollution; and contributes to the energy self-sufficiency of the 

Nation, communities, and landowners. 

Independent Reviews 

In FY 2005, the Forest Service Energy program underwent a Program Assessment Rating 

Tool (PART) evaluation for the FY 2007 budget cycle. The results of the PART 

evaluation were that the Forest Service energy program is “adequate.” Performance will 

be improved through the following actions: refining performance measures to include 

compliance and remediation; improving coordination to enhance program efficiency; and 

reducing the backlog of lease applications by implementing authorities provided by the 

Energy Policy Act of 2005. The agency is currently developing milestones for 

implementation and tracking. 

In FY 2007, the agency will initiate a comprehensive energy program evaluation by an 

independent consultant to focus on the processing of oil and gas lease nominations and 

applications to drill and the administration of oil and gas operations. 

FY 2005 Accomplishments 

Forest and Rangeland Research 

• Licensed a patent on the enzymatic conversion of wood to ethanol. 

• Expanded research aimed at finding new and innovative ways to use low value forest 

biomass for biobased products and energy. 

• Developed technologies that facilitate use of such material for energy and valueadded products that will make implementation of needed fuel treatments more 

economically practical and yield other benefits. 

Cooperative Forestry 

• The Darby School District in Montana is heating schools with a wood-fired boiler, 

saving about $57,000 annually from traditional fuel costs. 

• Biomass is being used for heat at various places around the country, such as, the 

Arboretum at Flagstaff, AZ; the Jemez Mountain School District at Gallina, NM; 

P&M Signs, Inc. at Mountainair, NM; and a school in Ely, NV; to name a few. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 14 15-65 National Energy Policy

Forest Products 

Forest Service has been able to accomplish many items through active partnerships and 

leveraging funds: 

• Reduced contracting barriers by developing a small diameter utilization desk guide. 

• Developed incentives for projects through community involvement and biomass 

grants. 

• Improved metrics, tracking, and reporting for woody biomass utilization (WBU). 

• Increased funding for innovative WBU projects. 

• Trained Forest Service staff and partners on WBU goals and objectives. 

• Incorporated WBU into new land management plan revisions through development of 

desk guides. 

• Encouraged local business participation in contracts through stewardship contracting. 

• Promoted landscape planning across ownerships by working with States, tribes, local 

government and private landowners. 

• Accelerated training on collaboration with a compendium of all collaboration 

trainings. 

Minerals and Geology Management 

• Processed 59 percent of new APD’s and 27 percent of leasing requests within 

established timeframes. 

• Processed 88 percent of oil and gas applications for permit to drill (APDs) and 18 

percent of leasing requests on file as of June 30, 2003, helping reduce the backlog. 

• Completed coordination with Phase II inventories under the Energy Policy and 

Conservation Act (EPCA). 

• Coordinated revision of Oil and Gas Onshore Order No. 1 with the Bureau of Land 

Management on the approval of oil and gas onshore lease operations. 

• Began implementation of the Energy Policy Act of 2005, including participated in 

joint sessions with agencies of the Department of the Interior and Department of 

Energy to meet specific sections of Title II (Renewable Energy) and Title III (Oil, 

Gas and Infrastructure) of the Act. 

Landownership Management 

• Processed 254 (97 percent) special use authorizations for electric transmission lines, 

oil or gas pipelines, and renewable energy generation facilities within established 

timeframes. 

• Completed inter-agency rule on expedited trial-type hearing. 

• Began implementing Section 368 of the Energy Policy Act of 2005 to designate 

energy corridors on Federal lands, including the development of an interagency 

Memorandum of Understanding (MOU) with the Department of Energy, Department 

of Defense, Department of Commerce, and the Bureau of Land Management (BLM). 

• Prepared for public scoping meetings for the Westwide Energy Corridor 

Programmatic Environmental Impact Statement (EIS) in 11 western States. 

• Commenced inter-agency rule making on expedited trail-type hearings and 

consideration of proposed alternative conditions (Section 241 of the Energy Policy 

Act). 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 14 15-66 National Energy Policy

• Hazardous Fuels

• Initiated the biomass utilization grant program through the Consolidated 

Appropriations Act of 2005 authorizing grants to State, Tribal and local governments, 

not for profit organizations and for profit enterprises. 

• Awarded $4.4 million in WBU grants to 20 projects, out of more that 145 proposals 

evaluated. 

• Grants required a minimum contribution of 20 percent from grantees resulting in over 

$20 million in Federal and non-Federal funds for approved projects. 

• Evaluation criteria included reducing cost to government for hazardous fuel 

treatments, community revitalization, and the creation of new markets for small 

diameter woody biomass. 

FY 2006 Program 

Forest and Rangeland Research 

• Improve our forest management and wood utilization options by integrating the use of 

small-diameter material for biobased products and bioenergy to extend our natural 

resources, provide renewable energy, increase carbon sequestration, reduce fire and 

pest risks, and improve forest health. 

• Develop the science and technology to provide economical and environmentally 

acceptable woody cropping systems at multiple operational scales, and integrated 

management systems for feedstock production. 

• Develop new processes for ethanol conversion from wood, small scale wood to 

energy technology, biobased products from low-valued sources, separation 

technologies for high value products from wood, and applying new technologies to 

product development. 

Forest Products 

• National Interdepartmental Biomass Strategic and Implementation Plan between 

DOE, DOI, DOD, EPA and USDA. 

• Co-sponsor of the National Bio-energy and Wood Products Conference II, Denver, 

CO, May 14-16, 2006. 

• Develop a coordinated resource offering protocol (CROP) nationwide. 

• Develop a new web-based planning and assessment tool through National Forest 

Foundation. 

• Coordinate web sites to increase information flow through the Forest Management 

website. 

• Adapt agency data systems as needed by working directly with Integrated Resource 

Management (IRM). 

Minerals and Geology Management 

• Continue to expedite and facilitate energy mineral projects on NFS lands in 

accordance with the Energy Policy Act, the agency strategic plan, and USDA 

priorities. 

• Continue to process new APD’s within the established timeframes. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 14 15-67 National Energy Policy

• Continue to process backlogged oil and gas APD’s and leasing requests. 

• Continue coordination with Phase III and IV inventories under the Energy Policy and 

Conservation Act (EPCA). 

• Implement Oil and Gas Onshore Order No. 1 with approval of oil and gas onshore 

lease operations on NFS lands. 

• Develop interagency memorandum of understanding (MOU) for pilot program under 

Section 365 of the Energy Policy Act for improving energy permit coordination on 

Federal lands. 

• Assign specialists to four BLM pilot offices to facilitate processing oil and gas 

leasing and drilling applications and permits.

• Develop interagency memorandum of understanding (MOU) for geothermal leasing 

and permitting (section 225) on Federal lands. 

• Begin implementation of new administrative and statutory categorical exclusions for 

the exploration and development of oil and gas resources. 

• Initiate joint development with BLM of a national GIS-based database tracking 

system for oil, gas, and geothermal applications and permits. 

Landownership Management 

• Place priority on the processing of proposals and applications for energy and energyrelated projects, such as oil and gas pipelines, electric transmission lines, proposals 

for the sighting of alternative energy sources and vegetation management in utility 

corridors on NFS lands.

• Complete market analysis to support updating interagency linear rights-of-way 

(ROW) fee schedule. 

• In coordination with other Federal agencies, perform environmental reviews for 

utility ROW corridor designation of the 11 western States. 

• Continue to give priority to the processing of applications associated with statutory 

rights (Ditch Bill easements, Alaska Native Indian Land Conservation Act (ANILCA) 

access cases), to applications for energy and energy related projects, and to 

processing Ditch Bill easement application cases pursuant to the 2004 management 

direction and strategy. 

• Continue emphasis on hydropower licensing to ensure full compliance with the 

National Energy Plan. 

• Completed and submitted interagency report to Congress on electric transmission and 

distribution facilities (November 2005). 

Hazardous Fuels Reduction 

• Continue the Biomass Utilization Grant program initiated in FY 2005. 

• Award $4.2 million in grants to State, Tribal and local governments, not for profit 

organizations and for profit enterprises for innovative projects that use the byproducts 

of USDA Forest Service hazardous fuel reduction treatments for energy production 

and other commercial uses. 

• Align the Hazardous Fuels Reduction program with the other biomass utilization 

initiatives in the agency. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 14 15-68 National Energy Policy

FY 2007 Plans 

Forest and Rangeland Research 

• Increase the development of innovative new energy products and processing methods 

for low-value and small diameter trees that will help to reduce the costs of hazardous 

fuels reduction projects and allow the agency to treat more acres. 

• Funding will be redirected into increased nanotechnology and biorefinery efforts. 

Forest Products 

• Forest Management staff will continue working with interagency woody biomass 

teams. 

• Continue implementing National Interagency Biomass Strategic and Implementation 

Plan. 

• Continue developing a reliable sustainable supply of woody biomass through 

coordinated resource offering protocol (CROP). 

• Continue seeking new tools, methods, technologies and processes to utilize woody 

biomass. 

• Continue moving fuels management projects into woody biomass utilization (WBU) 

projects. 

• Continue working with Cooperative Forestry in woody biomass utilization grants. 

Minerals and Geology Management 

• Continue implementation of Energy Policy Act of 2005 mandates. 

• Continue to expedite and facilitate energy mineral projects on National Forest System 

lands in accordance with the Energy Policy Act, the agency strategic plan, and USDA 

priorities. 

• Continue interagency coordination with agencies of the Department of Interior to 

meet specific sections of Title II (Renewable Energy) and Title III (Oil and Gas) of 

the Act. 

• Continue to process new lease applications and APDs within the established 

timeframes. 

• Conduct a comprehensive energy program evaluation by an independent consultant 

focusing on oil and gas activities and administration of operations. 

Landownership Management 

• Continue emphasizing the processing of new energy-related land use applications and 

eliminating the backlog of pending applications and expired authorizations in order to 

get the production on line and to markets, resulting in an estimated $2 to $3 million 

increase in revenues. 

• Complete the designation of utility rights-of-way corridors for oil, gas and hydrogen 

pipelines in 11 western States, incorporating these into land management plans, and 

begin work necessary to designate corridors in the remaining States. 

• Complete a Record of Decision for an interagency programmatic environmental 

impact statement on the designation of energy corridors on Federal lands. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 14 15-69 National Energy Policy

• Publish revised interagency linear ROW fee schedule. 

Hazardous Fuels Reduction 

• The President’s Budget includes $5 million to continue the Biomass Utilization Grant 

program initiated in FY 2005. 

• Participate in the implementation of the National Biomass Strategic and 

Implementation Plan. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 15 15-70 National Scenic and Historic Trails

National Scenic and Historic Trails 

America’s network of national scenic and historic trails commemorates this Nation’s rich 

natural and cultural heritage. Each trail represents a mosaic of partnerships among 

citizens, landowners, trail users, and public agencies at the Federal, State, tribal, county, 

and local level. Since enactment of the National Trails System Act in 1968, the U.S. 

Forest Service has designated trail coordinators for five of these trails: Appalachian, 

Continental Divide, Florida, and Pacific Crest National Scenic Trails, and Nez Perce 

(Nee Mee Poo) National Historic Trail. In addition, the FS manages portions of 15 

additional national scenic and historic trails on National Forest System (NFS) lands. 

Appalachian National Scenic Trail (AT) - This 2,174-mile footpath crosses along the 

ridgecrests and across the major valleys of the Appalachian Mountains from Katahdin 

in Maine to Springer Mountain in northern Georgia. The trail traverses Maine, New 

Hampshire, Vermont, Massachusetts, Connecticut, New York, New Jersey, 

Pennsylvania, Maryland, West Virginia, Virginia, Tennessee, North Carolina, and 

Georgia. The trail is used by day, weekend and other short-term hikers, section-hikers, 

and thru-hikers who hike the entire length of the trail in one season. The trail is 

currently protected along more than 99 percent of its course by Federal or State 

ownership or rights-of-way. Annually, more than 4,000 volunteers contribute more than 

185,000 hours of effort to maintain the trail. 

Continental Divide National Scenic Trail (CDT) - Designated on November 10, 1978, 

the CDT is a nationally significant resource providing long distance trail opportunities 

primarily for hiking and horseback riding recreationists. The trail’s corridor links Federal, 

State, and private lands from Mexico to Canada, passing through 25 national forests, 3 

national parks, 1 national monument, and 8 Bureau of Land Management (BLM) field 

office areas. When completed, the trail will be approximately 3,100 miles in length. 

Florida National Scenic Trail (FNST) - Added to the national trails system in 1983, the 

FNST consists of 1,400 planned miles stretching from Big Cypress National Preserve to 

Gulf Islands National Seashore plus 254 miles of an officially designated side trail. To 

date 881 miles (approximately 60%) of the primary north to south route have been 

certified as official FSNT administered by the Forest Service. The FNST is the only 

national scenic trail that gives the public the opportunity to experience a wide range of 

subtropical environs, karst spring and riverine systems, and a beach walk on a National 

Seashore. 

Pacific Crest National Scenic Trail (PCT) - The PCT is a 2,650-mile congressionally 

designated trail that follows the crest of the Sierra Nevada and Cascade Mountain ranges 

from the Mexican to Canadian borders through California, Oregon, and Washington. 

Established in 1968, the trail was completed in 1993 and lies upon publicly owned lands 

except for approximately 300 miles where it crosses private lands (easements have been 

acquired for the trail tread). Over the past decade the PCT has become a favorite of thruhikers and thru-riders and each year an average of 300 hikers attempt to cover the full 

length of the trail. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 15 15-71 National Scenic and Historic Trails 

Revised March 1, 2006

Nez Perce (Nee-Me-Poo) National Historic Trail (NPNHT) - In 1986 Congress 

acknowledged the significance of the Nez Perce Conflict of 1877 by establishing the 

1,170 mile Nez Perce (Nee-Me-Poo) National Historic Trail. The route winds through 

remote, rugged, and scenic terrain and, while 865 miles of the trail is an automobile tour 

route, many miles are accessible only by foot with little changed in more than a century. 

Other National Scenic and Historic Trails (NSHT): There are an additional 15 

national scenic and historic trails, totaling over 6,700 miles, that the FS coordinates 

management with other Federal public land agencies. These trails are: California, 

Camino Real Tejas, Camino Tierra Adentro, De Anza, Ice Age, Iditarod, Lewis and 

Clark, Mormon Pioneer, North Country, Old Spanish, Oregon, Overmountain Victory, 

Pony Express, Santa Fe, and Trail of Tears. 

Forest Service funding for national scenic and historic trails includes appropriations to 

administer and manage the program within the Capital Improvement and Maintenance 

Trails budget line item and to acquire trail segments within the Land Acquisition budget 

line item. A detailed breakdown for FY 2005 through FY 2007 is displayed in the 

following table: 

National Scenic and Historic Trails 

($ in thousands) 

FY 2005 FY 2006 FY 2007 

 Trails Land 

Acq. 

Partner 

* 

Total Trails Land

Acq.

Partner 

* 

Total Trails Land 

Acq. 

Partner 

* 

Total

Appalachian 193 0 1,889 2,082 193 0 na 193 120 0 na 120 

Continental 

Divide 

1,733 0 622 2,355 1,737 0 na 1,737 260 0 na 260 

Florida 1,134 1,972 1,076 4,182 1,137 0 na 1,137 150 0 na 150 

Pacific 

Crest 

1,829 0 1,499 3,328 1,827 493 na 2,320 350 600 na 950 

Nez Perce 627 0 150 777 634 0 na 634 240 0 na 240 

All-others** 729 0 534 1,263 626 0 na 626 230 0 na 230 

 

TOTAL $6,245 $1,972 $5,770 $13,987 $6,153 $493 na $6,646 $1,350 600 na $1,950 

* Estimated cash and in-kind contributions. Estimated contributions for FY 2006 and FY 2007 are not 

known at this time. 

** All other includes the following national scenic and historic trails: California, Camino Real Tejas, 

Camino Tierra Adentro, De Anza, Ice Age, Iditarod, Lewis and Clark, Mormon Pioneer, North Country, 

Old Spanish, Oregon, Overmountain Victory, Pony Express, Santa Fe, and Trail of Tears. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 15 15-72 National Scenic and Historic Trails

FY 2005 Accomplishments 

Appalachian National Scenic Trail (AT) 

• Maintained 1,105 miles, including blowdown removal, blazing, clearing of waterbars 

and drainage structures, sign replacement, treadwork, and upkeep of trail shelters, 

overnight sites, trail bridges, and trailhead parking areas. Extensive maintenance was 

required on more than 89 miles of the trail due to hurricanes in late 2004. 

• Improved or constructed approximately four miles of trail, two shelters, one bridge, 

and rehabilitated one fire tower. 

• Worked with the Appalachian Mountain Club and New Hampshire State Parks on 

project planning for the Webster Cliff Bridge, located in Crawford Notch State Park. 

• Coordinated with the National Park Service (NPS) on standards and guidelines for 

land management plan revision and on rehabilitation of the Prosper Ski Tow hut. 

• Concentrated efforts on building partner relationships, including work with the 

Appalachian Trail Conservancy (ATC) and Dartmouth Outing Club to reestablish 

roles and responsibilities for trail maintenance, sign maintenance, and construction. 

• A total of 2,647 volunteers contributed 93,748 hours valued at more than $1.6 

million. Direct “Cash and In-kind Contributions” from ATC and NPS totaled more 

than $244,000, including funding for the Cascade Brook Bridge in New Hampshire, 

seasonal trail crew programs in six States, open areas maintenance in four States, 

seasonal ridge runners and caretakers in four States, chainsaw and crosscut saw 

operator safety training workshops for volunteers, and partial funding of the Forest 

Service coordinator position. 

• As part of the Alpine Steward Volunteer Program, the Franconia Ridge area was 

patrolled every weekend for 20 weeks by a volunteer who offered information on 

rules and regulations. 

• Ethan Pond, Garfield, Guyot, Imp, Kinsman, Liberty, and Nauman campsites were 

staffed by Appalachian Mountain Club crews from June through September. 

Continental Divide National Scenic Trail (CDT) 

• Maintained approximately 500 miles, conducted environmental analysis for 

approximately 84 miles of construction, constructed 51 miles of trail, reconstructed 

59 miles of trail, and built four trailheads. 

• Renewed a five-year memorandum of understanding (MOU) with the Continental 

Divide Trail Alliance (CDTA) for cooperative work. 

• Challenge Cost Share (CCS) funded $360,000 (50/50 match) for management and 

project work. 

• CDTA provided 720 volunteers for 1,927 volunteer-days on 42 projects through the 

CCS program. A minimum of an additional 1,500 volunteer-days were contributed 

by others including the Colorado Trail Foundation. 

• Several State Trails Grants were received by the CDTA in Colorado, New Mexico, 

and Wyoming. 

• Collaborated with other agencies and CDTA to document the status of the CDT and 

estimate completion costs utilizing the Interagency Trail Data Standards and 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 15 15-73 National Scenic and Historic Trails

geographic information system (GIS). Status maps can be located on the 

http://www.fs.fed.us/r2/trails/cdnst/. 

Florida National Scenic Trail (FNST) 

• Maintained approximately 1,135 miles of the trail; constructed 18 miles of trail, 2 

new campsites, 1 trailhead, 7 bridges, 3,900 feet of boardwalk, and 1 trailhead kiosk; 

reconstructed 6 hurricane damaged bridges and 120 feet of hurricane damaged 

boardwalk, and installed 40 new signs (some in response to hurricane damage). 

• Acquired 14 additional parcels totaling 1,076 acres valued at over $5.8 million. 

Three tracts totaling 1,572 acres (including a 1,266-acre easement) are currently 

under contract or pending closing at a cumulative value of $5,041,000 and one offer 

to sell has been received (contract pending) totaling 15.10 acres at a value of 

$330,000. Additionally, 29 tracts totaling 6,987.20 acres have been appraised and 

offers are being made valued at $11,757,500. 

• Five tracts totaling 956.12 acres are currently under appraisal, and negotiations are 

underway to gain permission to appraise an additional 64 tracts totaling 5,621.84 

acres. 

• Continued Interagency Agreement with the Fish and Wildlife Service (FWS) to 

manage FS land acquisitions for the Florida Trail adjacent to St. Marks National 

Wildlife Refuge. 

• Signed MOU along with 10 other Federal, State, and nonprofit partners to support 

The Nature Conservancy and Department of Defense in protecting the overlapping 

Florida Trail and Northwest Florida Greenway corridors. 

• Entered into Interagency Agreement with NPS (Southeastern Archaeological Center) 

to conduct cultural resource inventories along the Florida Trail and with the Florida 

Natural Areas Inventory to share resources to inventory natural resources on Forest 

Service acquired parcels connecting Florida Trail segments. 

• Established new certification agreements with the Florida National Guard, Alachua 

County School Board, City of Blountstown, South Florida Water Management 

District, and Florida State Parks. Three new Certification Agreements are currently 

in negotiation with Florida Department of Transportation, City of Orlando, and Foley 

Timber Company. 

• Expanded the scope of the CCS agreement with University of Florida to conduct 

visitor counts and marketing analysis along Florida Trail. 

• A total of 56,526 volunteer hours was contributed, valued at approximately $1 

million. Florida Trail Association acquired and donated a 0.16-acre parcel valued at 

$17,300 and the University of Florida provided a cash match contribution totaling 

$66,280. 

• In partnership with Florida Trail Association, Visit Florida, and City of Blountstown, 

participated in a forum involving State legislators, local county commissioners, and 

private businesses on maximizing economic (ecotourism) potential of the Florida 

Trail. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 15 15-74 National Scenic and Historic Trails

Pacific Crest National Scenic Trail (PCT) 

• Accomplished over 40,000 hours of volunteer trail maintenance along the entire 

length of the trail, utilizing a cost share grant with the Pacific Crest Trail Association 

(PCTA) to recruit and organize volunteers. 

• Supported numerous youth crew projects in California, Oregon, and Washington to 

supplement agency trail crews and volunteers and provided opportunities for young 

persons to experience environmental stewardship. 

• California Conservation Corps (CCC) secured matching State grant funds to maintain 

over 70 miles of trail on the Lassen, Plumas, and Shasta-Trinity National Forests and 

Lassen Volcanic National Park. CCC crews accomplished 21 miles of trail brushing, 

5 miles of tread rehabilitation, 76 feet of wall construction, 80 feet of causeway 

construction, and 1,816 feet of trail reroute construction in partnership with the 

Backcountry Horsemen of America. 

• Northwest Youth Corps maintained 15 miles of trail, installed 55 drain structures, 

constructed 4 stream crossings, and installed retaining walls, rock causeways and 

signage on the Klamath, Mt. Hood, Shasta-Trinity, and Wenatchee National Forests,. 

• Three Student Conservation Association (SCA) trail crews worked from September to 

April in the Cleveland, Klamath, Okanogan-Wenatchee, San Bernardino, ShastaTrinity, and Tahoe National Forests to bring several remote trail sections to standard. 

• Completed Continued Optimum Trail Location Reviews (OLRs) on approximately 

100 miles.

• Provided approximately $162,500 to supplement trail crews and support youth interns 

and volunteers to rebuild bridges, trail tread, and access facilities resulting from a 

major storm event that occurred in the Glacier Peak Wilderness in 2003. 

Nez Perce (Nee-Me-Poo) National Historic Trail (NPNHT) 

• Maintained 52 miles, constructed 12 miles of new trail, and installed 8 interpretive 

signs and 1 silhouette sculpture. 

• Acquired two miles of trail and surveyed an additional 4 miles. 

• Renewed CCS agreements with the Nez Perce Appaloosa Horse Club and the Nez 

Perce Trail Foundation to continue interpretive services and project support. 

• Developed new CCS partnerships with Boy Scouts of America for a regional 

“Camporee” with more than 4,000 participants. 

• Signed a CCS agreement with McCormack Landscape Design to develop site 

certification plans for two sites in Kansas and Oklahoma. 

• Signed a participating agreement (PA) with the Nez Perce Tribe Natural Resources 

Department to maintain, “naturalize,” survey, and construct trail, as well as restore 

native plants to areas impacted by fires and at risk for noxious weed invasion. 

• Leveraged more than $150,000 in cash and in-kind contributions. 

• Released a 20-minute documentary, Landscape of History, about the Nez Perce Trail, 

free to visitor centers, libraries, museums, and schools. 

• Displayed 4 traveling interpretive kiosks for a combined total of 655 days in sites 

across the Nation. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 15 15-75 National Scenic and Historic Trails

Other National Scenic and Historic Trails (NSHT) 

• Partnered with over 100 organizations, tribes, and Federal, State, or local agencies in 

providing community assistance to numerous events commemorating the 

Bicentennial of the Lewis and Clark Expedition in North Dakota, Montana, Idaho, 

Oregon, and Washington, including interpretive programs, exhibits, logistics, and law 

enforcement (94 days contacting 84,228 visitors).

• Held a tribal youth program on the Lolo National Forest, busing 84 students from the 

Flathead Indian Reservation to the Lolo Trail (which is also the Lewis and Clark 

Trail) to learn about their tribal history from their elders. Students worked with the 

FS on trail maintenance projects to protect the cultural value of the historic route. 

• Continued to coordinate with the North Country Trail Association (NCTA), Spirit of 

the Woods Chapter of the NCTA, and West Michigan Chapter of the NCTA to 

address project planning and support, GIS support, and CCS proposals. 

• Continued to implement the chainsaw policy and assisted with training trail partners, 

including the NCTA, Finger Lakes Trail Conference (FLTC), and other local clubs 

(Cayuga Trails Clubs). Chainsaw training will allow the FLTC to complete 

maintenance under agreement of about five miles of trail. 

• Completed the Trail of Tears Management Plan to direct further preservation and 

interpretation. 

FY 2006 Program 

Appalachian National Scenic Trail (AT) 

• Provide maintenance on 1,015 miles of trail and associated overnight sites and 

trailhead parking areas on NFS lands. 

• Continue efforts with the ATC and the Dartmouth Outing Club to provide productive 

relationships on new projects in the future. 

• In collaboration with NPS and ATC, remove 37 structures on 16 acquired tracts in 

Virginia, and, along with American University, fully explore the cultural historic site 

at Brown Mountain Creek. 

• Rehabilitate and reconstruct the North Twin Trail and 4.3 miles of the Rattle River 

Trail and consult with New Hampshire State Parks and the Appalachian Mountain 

Club regarding Webster Cliff Bridge repair or replacement. 

• Continue implementation of the AT sign plan and support of the caretaker program. 

• Complete trail rehabilitation at Griffith Lake, Peru Peak, and Styles; bridge 

rehabilitation at Griffith Lake; and begin Phase 2 of Thundering Falls by constructing 

620 feet of boardwalk across the creek and wetlands and 800 feet of new trail to the 

base of the falls. 

• Provide workshops on basic trail work, tools for rock work, rigging, chainsaw 

certification, and crosscut saw certification. 

• Provide outreach to alternate spring break college groups and work trips for 

business organizations. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 15 15-76 National Scenic and Historic Trails

Continental Divide National Scenic Trail (CDT) 

• Over the next two years the State of Colorado, through a Large Scale Grant, will 

contribute over $1 million towards completing the CDT and building a major 

trailhead at Berthoud Pass. 

• Continue to assess land acquisition needs, specifically in the areas of Muddy Pass and 

Stony Pass, Colorado; Monida Pass, Idaho; Butte and Cadotte Pass, Montana; Pie 

Town, New Mexico; and Rawlins, Wyoming to allow for completion of the trail. 

• Plan for locating 196 miles of trail, constructing 85 miles of trail, reconstructing 45 

miles of trail, and constructing three trailheads, including a major site at Berthoud 

Pass. 

Florida National Scenic Trail (FNST) 

• Certify an additional 24 miles of eligible trail segments and construct or reconstruct 

43.5 miles of trail. 

• Inventory and assess 150 miles of trail segments and input data into Infra database. 

Pacific Crest National Scenic Trail (PCT) 

• Continue to complete the Optimum Location Reviews and land acquisition projects to 

provide for trail protection.

• In partnership with the PCTA, Forest Service Geospatial Services, and in concert with 

the BLM, California State Parks, and NPS, continue completion of the PCT map 

series (10 maps), with maps 2, 3 and 10 scheduled to be printed.

Nez Perce (Nee-Me-Poo) National Historic Trail (NPNHT) 

• Complete 12 miles of new trail construction, 3 new site certifications, 50 miles of trail 

maintenance, 4 interpretive sign repairs or replacements, 10 new interpretive signs, 

and 2 to 3 new silhouette sculptures. 

• Complete and print new map design and a new virtual tour website. 

Other National Scenic and Historic Trails (NSHT) 

• Lewis and Clark National Historic Trail: participate in three national Bicentennial 

Signature Events; provide assistance to four Corps of Discovery II community events; 

provide interpretive programs in partnership with other Federal and State agencies; 

operate the Lewis and Clark National Historic Trail Interpretive Center and the Lolo 

Pass Visitor Center; conduct heritage site monitoring; and complete a Lewis and 

Clark Bicentennial Report.

• North Country National Scenic Trail: install an additional 100 new trail posts at road 

and trail intersections under a cooperative cost-share cyclic maintenance agreement 

with the NPS; continue to clear the Rainbow Lakes Wilderness with cross-cut saws; 

replace and apply for State of Wisconsin Department of Natural Resources 

Recreation Trail Grant to conduct work at Drummond Ski Trailhead; and plan and 

coordinate efforts with the NPS and the NCTA to reconstruct approximately five 

miles in the western portion of the Ottawa National Forest and replace the 

McCormick Wilderness bridge. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 15 15-77 National Scenic and Historic Trails

• Trail of Tears: complete National Register of Historic Places nominations for eight 

trail sections and associated sites; identify sign interpretive locations along trail; and 

identify and implement priority trail stabilization. 

FY 2007 Plans 

• Continue to emphasize protection and management of the national scenic and historic 

trails. 

• Strengthen partnerships with other Federal agencies, tribal governments, States and 

local government and non-governmental organizations to provide for trail surveys, 

trail maintenance, and trail improvement projects. 

• In partnership with other Federal agencies and Youth Corps continue to increase the 

involvement of youth programs in the development and maintenance of the trails. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 16 15-78 Northwest Forest Plan

Northwest Forest Plan 

FY 2005 – FY 2007 Funding 

(dollars in thousands) 

Program 

FY 2005 

Enacted 

FY 2006 

Enacted 

FY 2007

Pres. Bud.

National Forest System 

Wildlife and Fisheries Habitat Management $17,800 $13,410 $19,872

Forest Products $39,800 $26,973 $67,973

Vegetation and Watershed Management $19,900 $14,622 $17,281

Landownership Management $6,200 $1,928 $4,442

Wildland Fire Management 

Hazardous Fuels $20,400 $15,715 $21,825

Capital Improvement and Maintenance 

Roads $28,400 $ 23,283 $35,308

Permanent Appropriation 

Salvage Sale Fund $10,900 $8,492 $8,476

Trust Appropriation 

Cooperative Work - Knutson-Vandenberg - $11,602 $6,500

Total $143,400 $116,025 $181,677

Background 

On April 13, 1994, the Secretaries of Agriculture and the Interior issued a Record of Decision (ROD) 

for the Northwest Forest Plan (NWFP). The ROD affects the management and administration of 22.1 

million acres of Federal land within 19 national forests in western Oregon, western Washington, and 

northern California administered by the Forest Service and the U.S. Department of the Interior 

Bureau of Land Management (BLM). The NWFP created 10 million acres of reserves where late 

successional or riparian habitat is the primary management objective. Late-successional-reserves 

(LSRs) protect and enhance conditions favorable to late-successional and old-growth related species. 

Silvicultural treatments include precommercial and commercial thinning. Approximately 1.8 million 

acres of LSR could benefit from thinning to enhance late-successional conditions. 

A settlement agreement, American Forest Resource Council, et. al. (AFRC) v. Clarke, entered into 

between the Secretary of Agriculture and Secretary of the Interior, requires the agency to request 

funding to fully implement the Plan. This includes offering timber sales in an amount equal to the 

annual probable sale quantity (PSQ), offer additional thinning sales, and conduct required 

environmental analyses. Full implementation PSQ offer volume is 637 million board feet (MMBF), 

including 161 MMBF in Region 5 and 476 MMBF in Region 6. Volume offered from LSRs is 

counted in addition to PSQ. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 16 15-79 Northwest Forest Plan

FY 2005 Accomplishments

• The NWFP offer target was 356 MMBF (99 MMBF in Region 5 and 257 MMBF 

in Region 6). The regions offered 420 MMBF (67 MMBF in Region 5 and 353 

MMBF in Region 6). Region 6 was able to exceed target primarily due to offer of 

fire salvage sales where the environmental analyses were substantially completed 

in FY 2004. 

• Improved 13,502 acres of terrestrial wildlife habitat and improved fisheries 

habitat on 129 miles of stream. These improvements are integrated with 

commercial thinning opportunities and partnership leveraged funding. 

• Completed boundary management on 92 miles to meet the needs for ground 

disturbing activities on NWFP lands. 

• Reconstructed 39 miles of roads which are strongly linked to the ability to move 

volume within the NWFP. 

• Fuel treatment and forest vegetation management are management objectives on 

NWFP lands. Established vegetation on 50,878 acres and treated 49,063 acres of 

hazardous fuels reduction. Some of this work was directly tied to integrated 

NEPA documents that also accomplish timber volume. 

FY 2006 Program 

• The NWFP is programmed to offer is 378 MMBF, including 90 MMBF in Region 

5 and 288 MMBF in Region 6. There will be no significant boost of offer volume 

based on salvage as experienced in FY 2005. The NWFP program of work will 

focus on meeting planned timber volumes; commercial thinning will continue to 

be a priority in LSR lands. 

• Initiate a supplemental FEIS and ROD to the 2001 NWFP ROD to remedy 

deficiencies identified by a recent Court ruling. (Northwest Ecosystem Alliance v. 

Mark E. Rey, District Court for the Western District of Washington, January 9, 

2006) 

• The Vegetation and Watershed Management program of work will continue to 

address reforestation needs of recent large fires. There will be less precommercial 

thinning in existing overstocked young stands. 

• Improve 3,566 acres of terrestrial wildlife habitat and 103 miles of streams. 

These improvements are again based on integration with commercial thinning 

opportunities. Fisheries improvements are somewhat buoyed by increased 

partnership opportunities. 

• Mark and maintain 27 miles of boundary to meet the needs for ground disturbing 

activities. 

• Reconstruct 13 miles of roads which are required for the ability to move volume 

within the NWFP. 

• Implement fuel treatment and forest vegetation management to meet management 

objectives by establishing vegetation on 2,127 acres and treating 27,900 acres of 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 16 15-80 Northwest Forest Plan

hazardous fuels. Some of this work is integrated in NEPA documents that also 

accomplish timber volume. 

FY 2007 Plans 

• Complete a supplemental FEIS and ROD to the 2001 NWFP ROD to remedy 

deficiencies identified by a recent Court ruling. (Northwest Ecosystem Alliance v. 

Mark E. Rey, District Court for the Western District of Washington, January 9, 

2006) 

• Plan to offer 800 MMBF of timber volume. 

• Plan to improve 3,962 acres of terrestrial wildlife habitat and 120 miles of 

fisheries habitat. 

• Continue emphasizing treating hazardous fuels in the wildland-urban interface 

and municipal watersheds. 

• Continue to address reforestation needs of recent large forest fires. 

Justification of FY 2007 Program Changes 

The FY 2007 proposed President’s Budget level reflects a significant increase in funding 

to fully implement the NWFP. The Forest Products budget line item contribution to full 

NWFP implementation is a $41 million increase over the FY 2006 enacted level. This 

funding level will enable the agency to offer 800 MMBF of timber volume. The level of 

funding proposed will allow the agency to plan and prepare an estimated 120 to 150 

MMBF pipeline volume and capacity for future volume offered. The January 9, 2006 

District Court ruling affects the planned program of work for all “habitat disturbing” 

activities, most specifically the timber and fuels reduction programs. Surveys will be 

completed and protections applied on the ground for species requiring pre-project 

surveys. 

The agency has developed a comprehensive strategy for aquatic restoration within the 

NWFP to restore priority watersheds. The agency is working with the U.S. Fish and 

Wildlife Service and the National Marine Fisheries Service on recovery plans for 

Northern Spotted Owl and anadromous fish. Commercial thinning will continue to be a 

priority on LSR forests. The Vegetation and Watershed Management program of work 

will continue to address reforestation needs of recent large forest fires but will strive for a 

balance with meeting precommercial thinning of existing stands. 

The NWFP will also emphasize hazardous fuels treatment in the wildland-urban interface 

and improving condition class of areas inside and outside the interface. This work will 

complement priority fuels reduction work on non-NWFP forests. 

The agency continues to emphasize partnerships and integrated projects intended to 

accelerate ecosystem restoration goals of protecting municipal watersheds, recovering 

habitat for threatened, endangered, and sensitive species, and controlling the spread of 

invasive species. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 17 15-81 OGC Reimbursement

Office of General Counsel Reimbursement 

A Forest Service Administrative Provision in the FY 2006 Consolidated Appropriations 

Act (P.L. 108-447) provides: 

“Notwithstanding any other provision of law, any appropriations or funds 

available to the Forest Service not to exceed $500,000 may be used to reimburse 

the Office of General Counsel (OGC), Department of Agriculture for travel and 

related expenses incurred as a result of OGC assistance or participations requested 

by the Forest Service at meetings, training sessions, management reviews, land 

purchase negotiations and similar non-litigation related matters. Future budget 

justifications for both the Forest Service and the Department of Agriculture 

should clearly display the sums previously transferred and the requested funding 

transfers.” 

The USDA Office of General Counsel bills the Forest Service quarterly for travel and 

related costs. The FY 2005 reimbursement was $128,347. The Office of General 

Counsel estimates reimbursements for travel and related costs to be $300,000 for FY 

2006 and $300,000 for FY 2007.
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 18 15-82 Office of Tribal Relations

Office of Tribal Relations 

Forest Service Program 

FY 2005 

Final 

FY 2006 

Enacted 

(w/Rescission) 

FY 2007 

President's 

Budget 

Washington Office of Tribal 

Relations $985,000 $909,000 $886,275

Overview 

The Forest Service (FS) manages National Forest System lands and resources for the 

benefit of the general public, while respecting the special trust relationship of the United 

States towards Indian tribes. State and Private Forestry programs provide assistance to 

private forest landowners, including tribal governments. 

Federally recognized Indian tribal governments have a unique government-togovernment relationship with the United States Government. In some cases, tribal 

governments retain rights on present-day national forests or grasslands even though the 

tribes relinquished lands to the United States Government. 

The FS has an Office of Tribal Relations (OTR) that provides policy and direction in 

implementing agency programs and activities in a manner that honors Indian treaty 

rights, fulfills the legally mandated trust responsibility of the FS, and maintains a 

government-to-government relationship with federally recognized tribal governments. 

The FS OTR supports the mission of all programs and disciplines through both general 

and issue specific OTR efforts. 

Performance measures for OTR projects are being developed and will be completed prior 

to submission of the FY 2008 Budget Justification. The overall management of tribal 

relations is funded by a direct cost pool, using all of the funds available to the Forest 

Service. Specific projects are funded by the primary purpose of the projects. 

Role of Office of Tribal Relations in the Forest Service 

The OTR supports the FS mission by: 

• Facilitating government-to-government relations between tribes and FS line officers 

to ensure that the FS is compliant with all applicable laws, regulations, Executive 

Orders, and agency policy; 

• Integrating consideration of tribal issues across the agency; 

• Providing a liaison to tribal governments for land and resource matters; 

• Ensuring orientation and competency training of FS employees in tribal relations and 

how to conduct government-to-government consultation; 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 18 15-83 Office of Tribal Relations

• Seeking to reconcile different views and facilitating timely resolution of disputes 

between tribes and the FS; 

• Ensuring all provisions of the Native American Graves Protection and Repatriation 

Act and Executive Order 13007 pertaining to Indian sacred sites have been met; and 

• Conducting monitoring, field reviews, functional assistance trips, and audits of 

agency tribal relations program activities to ensure efforts are effective and meet 

policy requirements. 

To accomplish these outcomes, the OTR works closely and collaboratively with tribal 

governments, intertribal organizations, and Federal and State agencies. 

FY 2005 Accomplishments 

• Tribal Coordination and Outreach 

o Established OTR Web Page 

o Assisted with publication of sustainable forestry articles in Indian country 

for Evergreen Magazine 

• Policy 

o Completed Interim Direction for Tribal Forest Protection Act 

• Contracts, Agreements, Grants 

o Contracted between regions and tribes from 3 to 13 percent of Regional 

business, up from 3 to 6 percent in 2004. Contracts include a cooperative 

cost share agreement with Shingle Springs Rancheria to support cultural 

activities, and an agreement with the Mentasta Tribal Council on the 

Copper River Project, to make changes in salmon runs and subsistence 

salmon harvests 

o Signed participating agreements with Society of American Foresters, 

American Indian Science and Engineering Society, National Congress of 

American Indians, and Indian Nations Conservation Alliance 

• Consultation 

o Consulted and received input from Indian tribes and intertribal 

organizations on the development of a National Tribal Leaders Committee 

• New Partnerships with Tribes; Following are Regional Examples: 

o Nez Perce Tribe and Clearwater National Forest (NF) – Watershed 

Restoration Partnership 

o Grindstone Rancheria and Mendocino National Forest - Fuels Reduction 

Partnership 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 18 15-84 Office of Tribal Relations

• Training 

o Actively participated in conferences held by the American Indian Science 

and Engineering Society, National Congress of American Indians, and 

Indian Nations Conservation Alliance 

o Developed and presented the first in a series of 1-day courses on Indian 

law for WO directors 

o Coordinated the development and presentation of forestry-based technical 

training for Indian Fire Crews with Intertribal Information Technology 

Company and Society of American Foresters 

o Developed Office of Tribal Relations traveling display panels for national 

conferences and public meetings 

FY 2006 Program 

• Tribal Coordination and Outreach 

o Acquire Corn Mothers for The Hall of Tribal Nations, adhering to the theme, 

Partnerships and Cultural Heritage, in honor of the agency’s commitment to and 

unique relationship with tribal nations 

o Facilitate alternatives for and selection of a National Tribal Leaders Committee 

design as well as representatives to the committee 

o Develop an OTR brochure 

• Policy 

o Complete draft of sacred sites policy that addresses issues of American Indians 

and Alaska Natives 

o Participate in drafting Special Forest Products Rule and Handbook 

o Update consultation policy direction in FS manuals and handbooks 

o Revise FS National Resource Book on American Indian and Alaska Native 

Relations 

 

• Contracts, Agreements, Grants 

o Meet or exceed percentage of FY 2005 regional contracts, agreements by 

continuing work on multi-year contracts and agreements: such as ethnographic 

studies with the Shoshone-Paiute Tribe and the Boise National Forest, and the San 

Juan and Santa Clara Pueblos three-year restoration project over 120 acres on the 

Santa Fe NF 

• Consultation 

o Coordinate consultation through regional program managers on projects and 

programs that could impact tribes 

• New Partnerships with Tribes 

o Foster and build new partnerships, such as that between the Sierra NF, the 

Picayune Rancheria, and Native Earth Foundation, to evaluate a wilderness trail, 

the Mono Trail, as a Traditional Cultural Property for its eligibility to the National 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 18 15-85 Office of Tribal Relations

Register of Historic Places, and the Clearwater and NezPerce Tribe partnership in 

an integrated weed management strategy for weed treatments in the Clearwater 

Basin 

• Training 

o Coordinate with Society of American Foresters on two initial forestry training 

sessions for Indian fire crews 

o Implement four pilot projects using cooperative agreements to use Indian fire 

crews for forest management objectives 

o Develop and present a 1-day workshop at Intertribal Timber Council Symposium 

in forestry business development 

o Develop and present the second, in a series, of federal Indian law and policy 

training classes for FS WO directors and staff 

o Design an Indian law course and a Tribal Relations course for field line officers 

o Strengthen ties with tribal colleges through curriculum development and 

scholarships 

2007 Plans

• Tribal Coordination and Outreach 

o Fund and support National Tribal Leaders Committee 

• Policy 

o Finalize and distribute sacred sites policy 

• Contracts, Agreements, Grants 

o Meet or exceed FY 2006 percentage of regional contracts, agreements, or grants 

through working with the Poarch Creek Band of Indians and the National Forests 

of Alabama in establishing a Longleaf Pine Nursery on Tribal lands; and the 

Custer National Forest projects with the Crow, Cheyenne River Sioux, and 

Northern Cheyenne on identification of prestigious sites located within the Custer, 

Gallatin, Black Hills, and Lewis and Clark National Forests 

• Consultation 

o Coordinate consultation through regional program managers on projects and 

programs that could impact tribes 

• New Partnerships with Tribes 

o Foster and build new partnerships such as the Shoshone-Bannock Tribe’s 

partnership for a youth camp on the Sawtooth NF and the Lassen NF and the 

California Indian Manpower Consortium for job training and development 

programs for tribal members to work on trail maintenance and construction 

• Training 

o Fund and support further development of Indian fire crew training 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 18 15-86 Office of Tribal Relations

o Strengthen ties with tribal colleges 

o Complete training modules and host national tribal relations training sessions 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-87 Partnerships

Partnerships 

Cooperative Conservation Support

In FY 2007, the USDA Forest Service will emphasize collaborative action and partnerships by 

leveraging more than $520 million in partnership and collaborative work to restore watersheds, 

reduce hazardous fuels, and conduct joint research, construct trails, educate our youth and 

support economies in rural communities. 

The Forest Service's State and Private Forestry program will provide a total of more than $244 

million, including: 

• $34 million for the Forest Stewardship Program to provide technical and financial 

assistance to States to enable both landscape and individual landowner level 

planning to encourage the long-term stewardship of strategically important nonFederal forest resource areas. 

• $62 million for the Forest Legacy Program to protect environmentally sensitive 

forest areas across all ownerships threatened by conversion to non-forest uses. 

• $27 million in Urban and Community Forestry to protect America's natural 

resources by providing technical and financial assistance to local governments 

with a nationwide emphasis on maintaining, restoring and improving the livability 

of communities and urban areas through management of natural resources. 

The Budget also reflects the contributions of other Forest Service programs that 

emphasize the appropriate inclusion of local participation in Federal decision making: 

• The Forest Service's Wildland Fire Management program will provide $48 

million in forest health, state fire assistance and volunteer fire assistance 

programs. 

• $292 million for the Hazardous Fuels program to maintain and restore forest and 

rangeland health from catastrophic wildfire. 

• $59 million for Research and Development's Forest Inventory and Analysis 

program to provide the information needed to assess America's forests through its 

annual forest census. 

•

• $26 million for the Land Acquisition programs to protect critical resource areas 

and to provide increased public recreation opportunities. 

• $5 million to the Forest Products Laboratory (Madison, Wis.) to implement the 

biomass component of the Healthy Forest Restoration Act through grants to 

nonprofit and local communities. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-88 Partnerships

• $3 million to the National Forest Foundation for use on conservation-related 

project grants and agreements that incorporate matching funds from partners. 

• $2 million to the National Fish and Wildlife Foundation for use on conservationrelated project grants and agreements that incorporate matching funds from 

partners. 

• $22 million in Challenge Cost-Share agreements from various budget line items, 

which will generate approximately $24 million in partner contributions, for a total 

contribution of $44 million. 

• $80 million in forest management trust funds. 

• $33 million to Resource Advisory Committees for local community collaboration 

with federal land managers in recommending projects to be conducted on Federal 

lands or that will benefit resources on Federal lands. 

National Overview 

Partnerships and collaboration are principal methods for successful public land management in 

the 21st century. Forest Service leaders recognize that a network of citizens, communities, 

organizations, and government entities can maximize shared resources and expertise to achieve 

lasting solutions for people and the land. Making this vision a reality requires investing in Forest 

Service employees, in the agency’s relationships, and in the agency’s capacity to be an 

exemplary partner. 

The Forest Service’s National Partnership Office, initiated in September 2003, provides national 

policy and coordination for partnership development needs across the agency. Focus areas 

include developing resources and tools, building internal and external networks, removing 

barriers to partnership development, and identifying core skills and training needs for partnership 

work. The National Partnership Office is leading an effort to standardize and update partnership 

tracking and reporting within the agency at the corporate level. The result of this effort will be 

integration of grants and agreements information which is currently tracked nationally, with local 

data on partnership accomplishments and benefits. Improved tracking and reporting will enable 

the Forest Service to better articulate to the public, partners, and Congress the value and 

contributions of partnerships for the land and the American people. 

One of the agency’s highly successful partnership programs is the Challenge Cost-Share 

Program which responds to Forest Service needs and public desires for expansion and 

enhancement of wildlife and fish habitat, recreation and trail operations, construction of 

recreation facilities, roads and trails; forest products, watershed, vegetation, fire, and research 

projects. The objective of the program is to improve services to the public, protect natural 

resources, and maximize project accomplishments with available Federal funding. The program 

enables the Forest Service to work directly with citizens and community leaders to explore 

solutions to resource issues that affect the well-being of rural residents and communities. In 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-89 Partnerships

accomplishing this objective, national forests also help foster rural development by offering 

resource opportunities to people who live, work, and recreate on the national forests. 

In commemoration of the agency’s centennial year, Congress created the Centennial of Service 

Challenge budget line item. Over fiscal years 2005 and 2006, Congress authorized a total of 

$14,295,000 (after rescissions) under the Centennial of Service Challenge program for use by the 

National Forest System (NFS) and partners to fund cost-share projects which enhance conditions 

of forests, watersheds, habitat and recreational services to the American public. These funds are 

in addition to, and in complimentary fashion with, the challenge cost share program. In FY 

2005, over 240 individual projects were accomplished across all nine regions of the Nation, 

bringing in more than $19 million in partner contributions. In FY 2007, the agency will 

encourage field units to use a minimum of $10 million of Recreation, Heritage, and Wilderness 

program funds, $15 million of Wildlife and Fisheries Habitat Management program funds, $5 

million of Vegetation and Watershed Management program funds, and $5 million of Trails 

program funds to help foster hew and expand existing partnerships, and to help achieve the 

purposes of the budget line item through at least a one-to-one match with partner contributions. 

In FY 2001, the Secure Rural Schools and Community Self-Determination Act of 2000 (PL 106-

393) was authorized by Congress. Although its main purpose is to lessen the impact of the 

decline in the 1908 Receipt Act payments made to counties, the Act also established an increased 

role for community interests and decisions in Federal land management projects by providing 

mechanisms for communities to invest funding for projects on or adjacent to Federal lands. Title 

II of the Act established a process for counties to set aside up to 15 to 20 percent of the full 

payment amount received under Title I for use on resource improvement projects on or near 

Federal lands and also established Resource Advisory Committees (RAC) to solicit, review, and 

recommend resource improvement projects to the designated Federal official. 

In FY 2005, 655 Title II projects were approved at approximately $33 million in Alaska, 

Arkansas, California, Idaho, Montana, Oregon, Texas and Washington. By comparison, for FY 

2004, there were 580 Title II projects approved for a total of about $24.5 million in Arkansas, 

California, Montana, Oregon, Washington, and Wyoming. Reports from participating 

communities, local governments, and local Federal officials have indicated that the RAC process 

has improved relationships among Federal and non-Federal parties and are extremely effective, 

in part, because they are focused on evaluating and funding projects for the collective good of 

the community and the environment. 

Independent Reviews 

In January, 2006, USDA’s Office of Inspector General (OIG) completed an audit of the Forest 

Service’s collaborative ventures and partnerships with non-federal entities. The audit found that 

the agency has taken significant strides to improve partnership activities. It also identified 

specific areas in need of improvement to better manage partnership work, including: effectively 

tracking and reporting partnership accomplishments and overall cost benefits; standardizing 

business procedures; including comprehensive financial plans in partnership agreements; and 

more closely monitoring the National Forest Foundation (NFF) to ensure that its work meets 

program requirements. The Forest Service and OIG concurred on recommendations and 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-90 Partnerships

actions, and the Forest Service is moving forward in several areas (e.g., database development 

and cross-deputy team with NFF) to strengthen the partnership and collaboration work of the 

agency. 

Examples of Forest Service Partnerships 

Wildlife, Fisheries, and Botanical Programs – Over 2,000 cooperative partnership projects were 

completed by 2,300 partners in FY 2005, with partners contributing over $35 million in funding 

or in-kind services. Highlights include: 

• National Forests in North Carolina - Improved 300 acres of wildlife habitat for waterfowl 

by draining, disking, planting, liming, fertilizing and flooding impoundments on the national 

forest that are important stop-over and wintering areas within the Atlantic Flyway. Partner: 

North Carolina Wildlife Resources Commission 

• Targhee National Forest, Idaho – Restored 16 miles of fish passage on Howard and 

Targhee Creeks, allowing Yellowstone cutthroat trout to once again reach Henry’s Lake. 

Partners: Henry’s Lake Foundation, Henry’s Fork Foundation, Idaho Department of Fish 

and Game, Idaho Department of Transportation, and the Greater Yellowstone Coalition. 

• Custer National Forest, Montana - Improved habitat on over 1,600 acres for elk, turkey, 

white-tailed and mule deer by conducting low-intensity prescribed burns to rejuvenate 

ponderosa pine ecosystems in the Red Rock and Lyon Creek areas. Partners: The Rocky 

Mountain Elk Foundation and National Wild Turkey Federation. 

• Apache-Sitgreaves National Forest, Arizona - Improved over 4,500 acres of important 

wildlife habitat by using prescribed fire and thinning of overcrowded trees within Sheep 

Wash. Partners: Quail Unlimited, Safari Club International, Arizona Mule Deer 

Association, Arizona Antelope Foundation, Arizona Elk Society, Arizona Game and Fish 

Department, and others. 

• Tahoe National Forest, California - Hosted a kids fishing day at Packer Lake, California. 

Provided a variety of outdoor learning experiences such as giving children an opportunity to 

view and handle reptiles and amphibians and learn about clean water and the importance of 

aquatic habitats for fish and wildlife. Partners: Sierra Pacific Industries, Sierra City 

Volunteer Fire Department, Wal-Mart, Inc., and the Sierra County Fish and Game 

Commission. 

Recreation and Heritage Program – In FY 2005, recreation and heritage volunteers contributed 

$34 million of the agency’s $46.5 million total appraised value of volunteer work. Highlights 

include: 

• Appalachian Trail - Maintained all 1,105 miles, including blowdown tree removal, blazing, 

clearing of waterbars and other drainage structures, sign replacement, treadwork, and upkeep 

of trail shelters, overnight sites, trail bridges, and trailhead parking areas. A total of 2,647 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-91 Partnerships

volunteers contributed 93,748 hours valued at more than $1.6 million. Partners: 

Appalachian Trail Conservancy (ATC), Appalachian Mountain Club, National Park Service 

(NPS) and others 

• Continental Divide Trail – Maintained approximately 500 miles and constructed 51 miles 

of new trails; and updated existing segments with reconstruction and new signs and 

trailheads. Leveraged 3,427 days of volunteer labor valued at $360,000, primarily through 

Challenge Cost Share. Partners: BLM, National Park Service (NPS), and Continental 

Divide Trail Alliance. 

• Pacific Crest National Scenic Trail – Supported numerous youth crew projects in 

Washington, Oregon, and California, who accomplished over 40,000 hours of volunteer 

labor, to supplement agency trail crews and provide environmental stewardship 

opportunities, help “at risk” youth, and help young people further their education and career 

development. Partners: California Conservation Corps, Northwest Youth Corps, Student 

Conservation Association, Pacific Crest Trail Association, and others. 

• Florida National Scenic Trail – Maintained approximately 1,135 miles, constructed 18 

miles of new trail, and reconstructed six hurricane-damaged bridges and 120 feet of hurricane 

damaged boardwalk. Volunteers donated almost 57,000 hours valued at $991,466. 

Partners: Florida Trail Association, NPS, National Trails Land Resources Program Center, 

and North County Trail Association. 

• Healthy Kids - Healthy Forests – Supported over 19 partner organizations and over 600 

participants from a variety of partner and community groups in various resource management 

projects. Completed 8 miles of litter pick-up, 2 acres of weed removal, 800 feet of gravel 

placement along a recreational trail, 50 feet of fence removal, 50 feet of new fence 

construction, 6 fire ring benches constructed, and 1 historic site reconstructed on the 

Bitterroot National Forest and Ravalli County, Montana. Cash and in-kind partner 

contributions were valued at over $2.5 million. Partners: Montana Department of Public 

Health and Human Services, Montana State University Extension Service, Montana Rocky 

Mountain Elk Foundation, and many other partners and community volunteers, including 

school groups, scout groups, and summer camp youth groups. 

• Historic Raven Natural Resources Learning Center – Restored the center, which was 

originally built in 1906, and continue to host urban youth to introduce them to natural 

resource management and raise awareness that the items we use in our daily lives depend on 

healthy ecosystems. Partners provide about $78,000 per year. Partners: Communities for a 

Great Northwest, Provider Pals, Montana State University, Liz Claiborne Foundation, First 

National Banks, and others. 

• Historic Property Stewardship – Provided training and coordination to volunteer site 

stewards who contributed over 2,000 hours valued at $27,000 and monitored over 50 historic 

properties, documenting natural and man-caused damage and changes. Partners: BLM and 

Archaeological Society of Central Oregon. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-92 Partnerships

• Trail of Tears – Surveyed and evaluated the national Historic Trail of Tears and prepared 

National Register of Historic Property nominations for 8 sites associated with the trail. 

Partner: University of North Carolina, Chapel Hill. 

• On Your Knees Cave – Conducted research and consultation and produced professional 

publications on the 10,000 year old camp. The project, which will result in a 28-minute 

documentary to be distributed by Sealaska Heritage Institute, received a regional award 

honoring the research and the important partnerships that have grown among the federal, 

research, and Native interests. Partners: Sealaska Heritage Institute, a nonprofit affiliate of 

Sealaska Corporation, an Alaska Native Regional Corporation; the Craig Community 

Association, a federally recognized tribe; the Klawock Cooperative Association, a federally 

recognized tribe; the University of Colorado at Boulder; and the University of South Dakota. 

• The Learning Portal – Designed an internet platform to support the work of the historic 

preservation community making training, education, and information discoverable and 

accessible, as well as enhance education, training and awareness in historic preservation. 

Partners: George Mason University and other Federal agencies. 

 

• Passport in Time – Evaluated 31 and restored 27 historic properties, assisted in 30 surveys, 

3 oral histories, and 14 archival projects. Partners: Public volunteers, universities, historical 

societies and BLM. 

Research and Development (R&D) – During FY 2005, Forest Service R&D extramural grants 

and agreements totaled $37.9 million, which was matched with other Forest Service and external 

funds in the amount of $24.4 million. Forest Service and other partner contributions, including 

colleges and universities, totaled $62.3 million. Some specific examples include: 

• Mississippi River Basin - Discovered that small increases in perennial vegetation (including 

trees) can significantly reduce lose of nitrogen and phosphate in the upper Mississippi River 

Basin. Land use practices, largely row crop agriculture, produce large fluxes of nitrogen and 

phosphate into waterways. The group was recently awarded a Grant (Biocomplexity of 

Integrated Annual-Perennial Agroecosystems) from the National Science Foundation. 

Partners: Iowa State University, University of Michigan, Neal Smith National Wildlife 

Refuge (Fish and Wildlife Service), Agricultural Research Service (ARS) Soil Tilth Lab, 

Natural Resources Conservation Service (NRCS), and the State of Iowa Department of 

Natural Resources. 

• Critical Load Development - Developed methods for assessing critical pollutants loads and 

levels in forested ecosystems and a critical loads map for the State of Vermont, using an 

approach adopted and applied in northeastern Canada. Held a national coordination meeting 

in Riverside, California to discuss critical loads and levels (for ozone) to protect watershed 

ecosystems. This meeting resulted in development of on-going partnerships for the 

establishment of field plots, modeling, and mapping of critical loads. Partners: 

Environmental Protection Agency (EPA) and European Union scientists. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-93 Partnerships

• Teakettle Experimental Forest – Developed and applied a refined multiparty adaptive 

management and project monitoring system consistent with the Sierra Nevada Forest Plan 

Amendment. Eight different peer-reviewed articles on the collaborative/integrated research 

program at the Teakettle Experimental Forest were published in the June, 2005 issues of 

“Forest Science.” Results provide insights that can guide efforts to restore forest function 

and structure response through combinations of mechanical thinning and prescribed fire 

treatments intended to reduce fuels hazards. Partners: Fish and Wildlife Service (FWS) 

Pacific Region and the State of California’s Resource Agency. 

• Wood and Timber Condition Assessment Manual - Published a new Wood and Timber 

Condition Assessment Manual intended for inspection professionals that reviews the wide 

variety of techniques to assess wood and timber in-service. In addition to addressing 

structures subjected to biological deterioration, the manual includes a chapter on post-fire 

assessment of structural wood members. Partner: Forest Products Society. 

• Forest and Landscape Assessment - Developed forest- and landscape-level models and 

analyses for nearly 4 million acres of forest in central Oregon. The Oregon Department of 

Forestry will use the methods tested in a statewide forest and landscape assessment over the 

next several years. Partner: Oregon Department of Forestry. 

• Eastern Dwarf Mistletoe - Developed a revised set of guidelines for controlling eastern 

dwarf mistletoe. It was discovered that, unlike management of mistletoe species in the 

western United States, effective management of mistletoe-infested black spruce requires 

complete eradication of the parasite because it kills trees more quickly than western 

mistletoes kill their hosts. Leaving infected trees after harvest or treatment allows large 

future losses. Partners: Utah State University and Northern Arizona University. 

• National Resource Interactive Web System - Developed software and methods to track 

natural resource policy and management issues through the media by identifying and 

characterizing media discussion and displaying changes in the discussion over time. An 

interactive web system was created to generate monthly updates and displays the resulting 

snapshot of resource issues on a national website. This index of favorable and unfavorable 

media coverage provides a baseline of public discourse in the media. Policy makers and land 

managers can now make natural resource decisions with a better understanding of the views 

and concerns of affected stakeholders. Partner: University of Minnesota. 

• Sudden Oak Death – Working to define research needs and priorities to ensure that 

horticultural, regulatory, and other multi-disciplinary sudden oak death research is carried out 

efficiently. Results have provided much of the fundamental understanding to support 

management action and regulatory policy for this new disease. However, as the disease 

poses expanded threats to other regions of the country, additional information is critically 

needed on the biology, epidemiology, and behavior of P. ramorum; short- and long-range 

spread; development of new treatment strategies; and pathogenicity and resistance. Partners: 

ARS, Animal and Plant Health Inspection Service (APHIS); and Cooperative State Research, 

Education, and Extension Service (CSREES) 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-94 Partnerships

• Forest Inventory and Analysis (FIA) – Continue to pursue implementing the annualized 

inventory FIA program and provide an annual business report each year showing a full 

accounting of program funding. In FY 2005, Forest Service initiated the FIA program in 45 

states, representing 77 percent of the forests in the United States. Of these 45 states, 38 states 

have annual survey data available on-line through the FIA public data base. Partners: State 

Agencies and Universities. 

National Fish and Wildlife Foundation - In FY 2005 the Forest Service contributed $2.65 million 

and was matched by approximately $10.4 million in non-federal contributions by a wide variety 

of non-governmental organizations. Examples of partnerships developed in FY 2005 include: 

• National Forests in Oregon and Washington – Restored watershed for coho, chinook, 

steelhead, bull trout, cutthroat trout, rainbow trout, redband trout, and Pacific lamprey. Nonfederal contribution equaled $764,000. 

• Monongahela National Forest – Enhancement of riparian and in-stream habitats. Nonfederal contribution equaled $94,800. 

• National Forests/Bureau of Land Management (BLM): Restoration and enhancement of 

upland habitats for quail on national forests and BLM lands. Non-federal contribution of 

$320,000 from Quail Unlimited doubled the $160,000 Forest Service and BLM contribution 

to the Foundation. 

National Forest Foundation - In FY 2005 the Forest Service contributed $3.3 million and was 

matched by approximately $10 million in other contributions by a wide variety of nongovernmental organizations. Examples of partnerships developed in FY 2005 include: 

• Pike San Isabel National Forest, Colorado - Working with the Coalition for the Upper 

South Platte, completed fire restoration and recovery work on the Hayman fire. The 

restoration work included raking, seeding and mulching over 600 acres, planting 15,000 

seedlings and distributing Firewise program information to community members. Nonfederal contribution equaled $708,820. 

• Siuslaw National Forest, Oregon - Working with the Siuslaw Watershed Council and 

numerous other partners, restored over 12 miles of anadromous fish habitat by placing over 

450 trees in the stream. Non-federal contribution equaled over $607,000. 

• National Forests in Southern Appalachia - With the Southern Appalachian Man and the 

Biosphere Foundation (SAMAB), facilitated volunteer monitoring efforts in 11 different 

projects (6 water quality, 4 invasive species, 1 forest health) involving over 350 volunteers. 

Non-federal contribution equaled over $255,000. 

The following tables display the total Forest Service and partner contributions for national grants 

and agreements in FY 2005 and an estimate of appropriated funds and partner contributions for 

the FY 2005 Challenge Cost Share program, with projections for FY 2006 and 2007. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-95 Partnerships

National Grants and Agreements (G&A) Summary by Instrument Type * 

USDA Forest Service, Fiscal Year 2005

Instrument Type G&A 

Count 

Forest Service 

Contribution 

Partner 

Contribution Total Value 

Challenge Cost Share Agreement 1,716 $18,212,107 $19,374,215 $37,586,321

Collection Agreement 3,489 $7,285,596 $43,916,629 $51,202,225 

Cooperative Agreement 1,706 $27,572,421 $12,509,032 $40,081,453 

Cooperative Research and 

Development Agreement 91 $0 $1,017,822 $1,017,822 

Cost Reimbursable Agreement 223 $12,416,405 $442,463 $12,858,868 

Domestic Grant 3,558 $350,546,208 $212,497,092 $563,043,300 

Fire Agreement 660 $2,698,884 $799,681 $3,498,565 

Interagency and Intra-agency 

Agreement 4,732 $61,678,417 $134,664,904 $196,343,321 

International Cooperative 

Agreement 41 $421,166 $82,342 $503,508 

International Grant 34 $536,555 $457,461 $994,016 

Joint Venture Agreement 1,052 $14,764,470 $7,041,609 $21,806,078 

Law Enforcement Agreement 759 $5,060,677 $184,376 $5,245,053 

Memorandum of Understanding 2,587 $106,634 $0 $106,634 

Participating Agreement 1,598 $19,110,084 $13,411,028 $32,521,111 

Region/Station/Area Master 

Memorandum of Understanding 20 $0 $0 $0 

Roads Agreement 303 $2,279,728 $662,320 $2,942,048 

Service-wide Master 

Memorandum of Understanding 67 $0 $0 $0 

Grand Total 22,636 $522,689,350 $447,060,974 $969,750,324

* Comprises Grants and Agreements that were new or modified in FY 2005. Numbers may not add due to rounding.
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 19 15-96 Partnerships CHALLENGE COST SHARE AGREEMENTS Estimated Funding by Budget Line Item ($ in thousands) FY 2005 FY 2006 FY 2007 Budget Line Item Forest Service Contribution Partner Contribution Total Value Forest Service Contribution Partner Contribution Total Value Forest Service Contribution Partner Contribution Total Value Forest and Rangeland Research 402 216 618 406 218 624 391 211 602 State and Private Forestry 816 457 1,273 779 436 1,216 676 379 1,055 Land Management Planning 329 28 357 303 26 329 291 25 316 Inventory and Monitoring 2,054 1,089 3,143 2,058 1,091 3,150 1,902 1,008 2,910 Recreation, Wilderness, Heritage Mgt 1,403 2,499 3,903 1,425 2,538 3,963 1,375 2,450 3,825 Wildlife and Fish Habitat Mgt 2,313 2,787 5,100 2,280 2,748 5,029 2,132 2,569 4,701 Grazing Management 184 354 538 185 356 541 153 294 447 Forest Products 213 116 328 218 118 336 241 131 371 Vegetation & Watershed Mgt 1,614 1,635 3,249 1,544 1,564 3,107 1,611 1,632 3,243 Minerals and Geology Mgt 780 77 857 1,184 117 1,300 1,143 113 1,255 Landownership Management 162 82 244 161 82 243 149 75 224 Centennial of Service Challenge 1,164 1,384 2,549 523 622 1,146 0 0 0 Wildland Fire Management 2,358 1,973 4,330 2,427 2,031 4,458 2,419 2,024 4,444 Facilities 193 396 589 121 249 370 127 260 388 Roads 546 918 1,464 536 901 1,437 443 745 1,189 Trails 2,869 4,808 7,677 2,838 4,755 7,593 2,299 3,852 6,151 Other ** 813 554 1,368 809 551 1,361 786 535 1,321 Total $18,212 $19,374 $37,586 $17,797 $18,405 $36,202 $16,137 $16,304 $32,441 ** Includes Special and Permanent Appropriations and Trust Funds 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-97 President’s Management Agenda 

President’s Management Agenda

The Forest Service continues to aggressively pursue the objective of the President’s 

Management Agenda (PMA), which is to improve Federal management and performance and 

deliver results to the American people. The following narrative provides an overview of 

what the agency is doing and plans to do in FY 2007. 

Strategic Management of Human Capital 

The Forest Service continues efforts to streamline its organization. Since FY 2000, the 

agency has increased its field organization presence so that currently 98 percent of its 

permanent workforce works in field locations. It also reduced its managerial levels (GS14 and above) to only 4 percent of its permanent workforce. 

Additionally, the Forest Service will continue to develop and implement a Leadership 

Succession Strategy that will ensure continuity of leadership for the future. To achieve 

this goal, the FS will use: 

• A succession framework that consists of five key leadership tracks with distinct 

competencies that characterize progressive leadership development. 

• A national senior leader development program that provides a learning environment 

for leaders and managers to gain the skills to effectively manage people, resources, 

and issues. 

• A web-based learning management system, AgLearn, which will assist employees 

with developing competency-based individual development plans, find and register 

for training, and help managers track training completion and effectiveness, costs, 

certifications, and other training related issues. 

• A Training Center of Excellence that will enable the leadership and staff to re-focus 

the agency’s employee development investments toward a more strategic and 

coordinated approach. 

Further, the agency will design and implement a comprehensive performance management 

system that moves the Forest Service from the current pass/fail performance system to a five 

level system. 

Finally, the Forest Service continues to work on major business process reengineering (BPR) 

efforts in budget and finance, human resources, and information resource management. A 

synopsis of work follows. 

Budget and Finance BPR 

The Forest Service is on schedule with its Budget & Finance Business Process Reengineering 

(B&F BPR) project, which centralized its core finance functions to a shared services center 

located in Albuquerque, NM in early 2005. At steady state, the B&F BPR effort is slated to 

drive a resulting cost savings of approximately $39 million per year. It will require a one-
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-98 President’s Management Agenda 

time investment cost of $45.2 million, with a resulting payback period of less than 2 years. 

As FY 2006 begins, the FS is on track to achieve its savings goal; estimated savings are 

shown in the table below. These savings mainly result from: a more efficient application of 

the relevant workforce; strengthening of the controls and related auditing process; and better 

overall fiscal management consistent with the President’s Management Agenda across the 

Forest Service. 

In the new fiscal organization, B&F transactional processing will be delivered mainly by the 

Albuquerque Service Center (ASC), which opened for business in February 2005. The 

majority of processes were targeted to be fully deployed to the ASC by the start of fiscal year 

2006, with the remaining staff and work to be fully deployed by 2nd quarter of FY 2006. At 

that time, 396 Forest Service staff will be employed at the ASC. As a result of this new 

organization, the Washington Office and field units will be left with a much reduced budget 

and finance organization that can focus on program delivery. Staff reductions by unit are 

shown in the table below. 

 

Budget and Finance Employee 

Separations* 

R/S/A FTEs Employees 

Region 1 28.2 36 

Region 2 23.64 32 

Region 3 18.67 28 

Region 4 29.76 34 

Region 5 74.82 88 

Region 6 48.27 61 

Region 8 24.54 37 

Region 9 19.64 25 

Region 10 12.86 15 

WO, WO Detached, Stations and Area 55.14 70 

Albuquerque Service Center (ASC) 2.79 3 

Total 338.3 429.0 

 

*Based on the August 2004 Data Call of employees with more than 10% time in B&F activities (2007 Employees) 

 Budget and Finance Organizational Costs and Savings 

 (Dollars are Nominal and in 1,000's) 

Year 

Current 

Organization

New 

Organization 

Net 

Estimated 

Savings 

FY2006 $144,404 $117,738 $26,666 

FY2007 $147,448 $106,388 $41,060 

FY2008 $150,566 $108,524 $42,042 

FY2009 $153,760 $110,710 $43,050 

FY2010 $156,989 $113,035 $43,954 

FY2011 $160,286 $115,409 $44,877 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-99 President’s Management Agenda 

During FY 2005 several significant milestones were completed. These include but are not 

limited to: 

• The design, construction, and opening of the ASC 

• The reengineering, development, and deployment of most of the core financial and 

budget processes 

• The migration of most of the people and the work to the ASC 

• The opening of the ASC customer service center and operation 

• The training of the ASC’s staff and its stakeholders on the new processes 

• The completion of the human capital transactions related to Transfer of Station (TOS), 

Voluntary Early Retirement and Voluntary Separation Incentive Pay (VERA/VSIP) and 

Reduction in Force (RIF) avoidance 

During FY 2006, the Forest Service will implement the remaining reengineered processes not 

fully centralized in 2005: claims, budget execution, and incident business. These efforts 

include: staff migration (through TOS) for many employees; VERA/VSIP for eligible 

employees who are not interested in migrating to the goal organization, and RIF avoidance 

activities for remaining employees; records migration; and work migration to the new 

facility. The incident business redesign will deploy a service oriented architecture process to 

help streamline the payment life cycle associated with incidents. This is expected to go 

“live” in the spring of 2006. Additional work in 2006 includes a determined focus on 

continuous improvement, whereby the centralized processes will continually identify targets 

for further advancement. 

Human Resources BPR 

The Forest Service is on schedule with its Human Resources (HR) Business Process 

Reengineering (BPR) project, which will centralize and automate HR functions—resulting in 

cost savings estimated at $22 million per year, upon full realization. Savings will result 

mostly from agency-wide reductions in HR staff achieved by automation, improved service 

to employees, and better management of human capital consistent with the PMA. The 

payback period is less than 4 years; estimated savings are shown in the table below. 

Human Resource Management Organizational Costs and Savings 

 (Dollars are Nominal and in 1,000's) 

Year 

Current HR 

Organization

New HR 

Organization * 

Total Net Estimated 

Savings/ 

(Expenditures) 

FY2006 $88,472 $127,251 ($38,779) 

FY2007 $90,330 $94,107 ($3,777) 

FY2008 $92,227 $68,270 $23,957 

FY2009 $94,164 $69,703 $24,460 

FY2010 $96,141 $71,167 $24,974 

FY2011 $98,160 $72,662 $25,498 

 * Costs for the new organization in FY 06 and FY07 include onetime implementation costs of $39.9M and $13.7M, respectively. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-100 President’s Management Agenda 

Transactional HR processing will be delivered mostly by the ASC. This HR processing is set 

to begin, along with a call center, in April 2006. Stage 1 will address: position management; 

classification; recruiting; staffing; on-boarding; personnel action record processing for these 

functions, including employee self-service and manager self-service. Associated security, 

workflow, and reporting, will be reengineered and centralized. All functions except staffing 

of temporary employees are scheduled to be fully deployed by July 2006, and staffing of 

temporary employees is scheduled to be fully deployed by November 2006. By then, 166 of 

the 262 currently planned positions in the ASC and 283 of the 390 positions overall in the 

goal HR organization will be filled. In all, the agency expects to fill about 340 of the 390 

positions in FY 2006, the remainder migrating in FY 2007. 

The Forest Service is adopting EmpowHR, the PeopleSoft-based human resource 

information system managed by the National Finance Center, to automate transaction 

processing at the ASC and to support employee and manager self-service. 

During FY 2006, the agency will implement the reengineered processes, including staff 

migration. This process will be conducted through: TOS for many employees; VERA/VSIP 

for eligible employees who are not interested in migrating to the goal organization and RIF 

avoidance activities for remaining employees; data clean-up and records migration; 

EmpowHR and call center deployment; and migration to the new facility. The agency will 

also complete most design for and begin deployment for Stages 2 and 3, in which remaining 

functions—pay and leave, benefits, awards, performance management, human capital 

management, employee relations, and labor-management relations—will be reengineered and 

centralized. These design and deploy activities, including workforce transition and 

EmpowHR deployment, will mirror those described above for Stage 1. 

During FY 2007, the agency will complete design and deployment for Stages 2 and 3, 

including deployment of additional EmpowHR functionality and staffing of the final 

positions in the goal organization. The Forest Service expects the goal HR organization to be 

fully deployed by the end of FY 2007. 

Competitive Sourcing 

The Forest Service competitive sourcing program focuses on: (1) identifying and evaluating 

potential candidates for competition that are likely to result in significant savings; (2) 

planning for and carrying out competitive sourcing competitions in accordance with 

congressional and OMB guidelines; (3) reviewing, if necessary, competitive sourcing 

performance decisions; (4) assisting with implementation efforts; and, (5) measuring and 

reporting on competition and implementation results. 

The Forest Service currently has three feasibility studies (Fleet Management, Geospatial 

Services and Technology Center, and Aviation and Other Airborne Activities) underway, and 

will initiate an A-76 competition for Communication activities. In addition, as a result of the 

feasibility studies, additional A-76 competitions could result and may be initiated during late 

FY 2006. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-101 President’s Management Agenda 

In FY 2007, the Forest Service plans to conduct additional feasibility studies. FY 2007 

competitive sourcing activities will also include A-76 competitions that result from the FY 

2006 and/or 2007 feasibility studies. 

Savings: Information Technology Infrastructure (national), R-5 Fleet Maintenance 

(California), R-5 Road Maintenance (California), and R-6 Olympic National Forest Road 

Maintenance (Washington State) studies are expected to produce more than $155 million in 

savings over a 5-year period. The efficiencies generated by those, and future, competitions 

will not be reflected as budget request reductions, but instead will be used to support direct, 

on-the-ground work. 

For FY 2005, the agency reported $20.2 million in savings as a result of competitive sourcing 

activities. 

Costs: No competitions were conducted in FY 2005; however, the agency continued to 

provide general management of the competitive sourcing program. 

Lessons Learned: The Forest Service continues to refine how it implements the President’s 

Management Agenda competitive sourcing initiative. One major change is that the Forest 

Service now conducts feasibility studies prior to any A-76 competition to ensure that the 

agency selects the correct business activity to compete. 

Expanding Electronic Government 

The Forest Service’s Electronic Government (e-Gov) effort continues to focus on improving 

interactions with citizens, reducing and eliminating redundant investment, and transforming 

service delivery to our customers in support of our mission. At the summary level, examples 

of efforts include: 

Government Paperwork Elimination Act (GPEA): The Forest Service completed its FY 2005 

objectives for compliance with the Government Paperwork Elimination Act (GPEA) and 

expects to make good progress on most of the remaining, most challenging 20 percent, to 

GPEA compliance level for FS OMB Information Collections in FY 2006 with final 

completion projected for FY 2007. 

The agency’s FY 2007 GPEA efforts will focus on fully achieving electronic signature, 

electronic filing, and financial transaction receipting for the remaining FS OMB Information 

Collections. In FY 2007, the agency also plans to complete the collection application and 

develop a web service for e-forms recipients. 

Recreation One Stop: In FY 2005, the Forest Service achieved consensus from the major 

Federal recreation providers including National Park Service, Bureau of Land Management, 

and the Army Corps of Engineers regarding the content and structure of the Recreational 

Information Data Base (RIDB). Using web services technology will enable the FS to share 

recreation data with all interested individuals and organizations, both public and private. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-102 President’s Management Agenda 

Though events outside of the control of the agency delayed further efforts in RIDB 

implementation, in FY 2006 and FY 2007 the agency will focus on: 

• Designing and developing a standard interface for government personnel to enter 

recreation data into RIDB; 

• Redesigning the recreation.gov interface to be more consistent with current federal 

agency standards; and, 

• Developing a procedure for accepting new data partners (Federal, State, and Local) 

who desire to include their recreational data in RIDB, thus providing public access to 

their recreation site data via recreation.gov. 

National Environmental Policy Act (eMNEPA): In FY 2003 the Forest Service completed a 

Line of Business Modernization Plan (LOB) for the electronic management of agency work 

related to the National Environmental Policy Act (eMNEPA). A number of FS initiatives 

originated from this eMNEPA LOB study. In FY 2004 and FY 2005, the Planning, Appeals, 

and Litigation System (PALS) was enhanced to include improved data entry processes, 

advanced reporting features, and the automated generation and publishing of Schedule of 

Proposed Action reports to the public web. In FY 2005, piloting began for both Document 

and Records Management (DRM) and Internal Communication Management (ICM) across 

several WO and field FS communities. Planned actions for FY 2006 and FY 2007 include 

expanding the DRM to include broader communities and subject areas. In FY 2007, the 

DRM and ICM pilots, along with Appeals and Litigation functionality of PALS, will be 

further integrated and migrated onto a common platform. In FY 2007 pilot options for 

Mailing List Management will be evaluated. 

Forest Service Web Information Delivery (WID): In FY 2007, the Forest Service will 

complete work begun in FY 2005 to FY 2006 on the portal, web content management, and 

document and records management tools acquired by USDA to improve web information 

delivery and agency services to the public. By the end of FY 2007, the Forest Service will 

develop portal standards for creating and delivering web application services as well as 

begun a formal user satisfaction monitoring process. 

e-Research: In FY 2006, the e-Research project will complete proofs-of-concept (POC) for 

research data storage and archiving, combined delivery channels, and technology transfer. 

By leveraging the capabilities completed in FY 2005 for data storage and archiving and 

combined delivery channels, e-Research will also move forward with capabilities for 

information traceability and project tracking in FY 2006 as well as completing the combined 

delivery channels and data storage and archive POCs. In FY 2007, e-Research will expand 

the scope of information traceability and will pursue automated peer review processing. In 

FY 2007, e-Research will also pursue agency-wide scale up of the POCs completed in FY 

2006. 

Field Data Automation/Mobile Computing Devices: During FY 2005, the field data 

automation/mobile computing devices project established a standard FS mobile computing 

architecture and mobile solution development process in addition to completing a POC 

mobile application to support natural resources and facilities monitoring. In FY 2006, the 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-103 President’s Management Agenda 

mobile solution development process and mobile computing architecture will provide the 

basis for delivering a set of solutions (including POCs, technology evaluation studies and 

scale-up of the natural resources and facilities monitoring POC) to support an array of field 

requirements aimed at achieving significant gains in data quality and employee safety and 

productivity. Solution POCs will include mobile office, Situational Awareness Firefighting 

Equipment (SAFE), and mobile law enforcement. Technology evaluation studies will be 

conducted on mobile computing devices and wireless communication capabilities. 

The natural resources and facilities monitoring POC will be scaled up for nationwide 

distribution in keeping with the FY 2006 field season and will support gathering of asset, 

natural resource, and management activity data. Scale-up planning and implementation will 

occur during FY 2007 for the successful POCs developed during FY 2006. 

Also in FY 2007, POC projects will be initiated for facilities radio frequency identification, 

mobile crime surveillance and natural resource information retrieval and analytics. FY 2007 

activities will also include updating enterprise requirements for mobile computing devices 

and wireless communication. 

Streamlining Permitting: Based on the analysis presented in the Streamlining Permitting 

(ePermitting) LOB Modernization Study in 2004, six specific permits were found to be 

appropriate for the streamlining permitting POC. Special Forest Products (SFP) was highest 

on the list and includes items such as Christmas trees, fuel wood, and mushrooms. In FY 

2006, the SFP POC, with pilot monitoring and development of a scale-up and rollout 

strategy, will be implemented. 

Depending on feedback received on the SFP POC from field personnel and the general 

public, the Forest Service will have the following options: 1) add the remaining Special 

Forest Products to the online processing application; 2) Expand existing POC forest permits 

to incorporate more permit types; or 3) rollout the current POC permits to more forests. 

Other Modernization Efforts: In FY 2005, an additional business case was developed 

describing how grants and agreements issued by the Forest Service can be woven into the eGrants business solution developed at the Federal level. In FY 2006, POCs for the e-Grants 

line-of-business will be planned and executed and extended into FY 2007. Also in FY 2006, 

the business case information developed in the agency’s BPR of its Budget and Finance 

(B&F) and Human Resources (HR) areas are being migrated into the agency’s Enterprise 

Architecture. In FY 2007, POCs related to these re-engineering projects will be initiated. 

Finally, in FY 2007, modernization plans for additional business areas will also be 

conducted; evaluations of which areas to include are on-going. 

Improved Financial Performance 

Continue focus on improving financial performance through the multi-year Financial 

Management Improvement Project (FMIP), under which the Forest Service centralized and 

consolidated its financial and budget execution operations. The final business process, 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-104 President’s Management Agenda 

Incident Business Management, migrated to the Albuquerque Service Center in February 

2006. 

Assess and report findings with respect to internal control requirements as identified in the 

Federal Manager’s Financial Integrity Act (FMFIA) and Office of Management and Budget 

(OMB) Circular A-123, Management’s Responsibility for Internal Control, including 

Appendix A. This circular prescribes a strengthened process to assess the effectiveness of 

the internal control over financial reporting. Effective internal control will assist in routinely 

meeting accelerated financial reporting goals and having accurate financial information 

readily available to manage programs. 

The Forest Service has demonstrated commitment to sustaining unqualified audit opinions, 

and being fully in compliance with Federal Accounting Standards, through the centralized 

accounting functions at the Albuquerque Service Center as well as reengineered business 

processes. The agency has achieved unqualified audit opinions on its annual financial 

statements for 4 consecutive years. Priority work continues to eliminate all material 

weaknesses from financial processes which will result in more efficient financial 

accountability. Cost savings realized by centralizing are redirected towards programs. 

Budget and Performance Integration 

In response to the Budget and Performance Integration (BPI) initiative in the President’s 

Management Agenda and performance accountability requirements in the Government 

Performance and Results Act of 1993, the Forest Service will continue efforts in FY 2006 to 

improve performance accountability by moving towards implementing a performance 

accountability system (PAS) and a streamlined performance-based budget process. In FY 

2004, the Forest Service drafted a new strategic plan. The plan has 6 strategic goals, 16 

strategic objectives, and 42 performance measures to guide program implementation and 

address the “Four Threats” to conservation of the Nation’s forests and grasslands identified 

by the Chief of the Forest Service. The “Four Threats” are: (1) growing fire danger due to 

hazardous fuel buildup; (2) the spread of invasive species; (3) loss of open space; and (4) 

unmanaged recreation. The strategic plan goals, objectives, and performance measures were 

driving forces to making budget decisions and requests for FY 2007, helping the agency and 

its field units plan programs of work that prioritize resources and contribute to addressing the 

“Four Threats,” accomplishing the goals and objectives in the strategic plan, and improving 

performance accountability. 

This process has improved the agency’s ability to formulate and allocate a comprehensive 

program that integrates the work of the agency with long-term performance goals and the 

Strategic Plan. The process also incorporates National and Executive Leadership Team 

assessments of prior year performance results and evaluation of accomplishments toward 

goals outlined in the strategic plan and other priorities set by executive leadership, allowing 

leadership to collectively address and direct changes necessary to ensure successful 

implementation of program objectives. Combined, these efforts will greatly influence budget 

formulation and execution by Forest Service units in the future, helping the agency better 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-105 President’s Management Agenda 

address natural resource issues by enhancing the ability to maximize the use of resources on 

the ground. 

To efficiently facilitate this decision-making process, and consistently report on agency 

accomplishments, the Forest Service is developing a system model called the Performance 

Accountability System (PAS), which is designed and built to provide an integrated 

framework linking planning, budgeting, monitoring, and reporting systems at all levels. The 

PAS system will enable all managers to monitor performance, financial progress, and trends 

over several years. They can compare these against cost and priorities and make necessary 

adjustments. 

Some key highlights from FY 2005 include: 

• The WorkPlan 3.0 system was released in July. This will help program and project 

managers to link and direct local resources to national goals and objectives and 

monitor and report accomplishments. 

• The first phase of PAS was deployed as an integrated management information 

system in Kansas City (NITC), accelerating the implementation of a technical 

infrastructure to provide web-based access to the new USDA Financial Data 

Warehouse (FDW). The PAS application includes financial, managerial, and annual 

accomplishment reporting, and support for budget planning and execution. 

• The Budget, Strategic Planning, and Financial Management staffs jointly developed 

and maintain the Managing for Results website to help coordinate and share the 

pertinent information for areas such as the national strategic plan, 

Region/Station/Area (R/S/A) strategic business planning, performance budgets, the 

WorkPlan system, internal controls, and PAS monitoring and managerial reports. 

Under PAS, in FY 2006 the FS will: 

• Finalize a national set of strategic and program activity measures with standard 

definitions. These will be the core set used in budget formulation, execution, and 

reporting. Each measure will be linked to the most appropriate strategic plan goals 

and objectives. 

• Implement a strategic business planning process – an R/S/A-level driven process that 

aligns local unit performance capabilities toward meeting agency-wide goals and 

objectives and addressing local values and needs. 

• Expand the PAS application beyond the initial score-carding requirements to include 

internal controls in FY 2006 as required by the FS Action Plan in response to USDA 

OIG GPRA Audit Report. 

• Establish an Internal Control Environment (ICE) within the PAS environment to help 

guide the agency in complying with performance audits, including modules for 

conducting the periodic agency program risk assessment, change control management 

of key agency business processes, and management of annual performance measures 

reviews. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 20 15-106 President’s Management Agenda 

• Provide a comprehensive learning environment to bring a results management focus 

to current leadership courses, to develop on-line results-oriented training modules 

(using AgLearn) tied to the FS business processes, and designed courses for new 

employees. 

• Coordinate with USDA on the President’s Management Agenda Human Capital 

initiative to develop an OPM certified individual performance management system 

that is also integrated with its agency PAS. 

In FY 2007, the Forest Service will continue to implement this results-oriented process and 

system to assist the agency in integrating annual budget plans with agency and Departmental 

strategic plan goals. The agency will also begin agency-wide implementation of PAS using a 

refined set of performance measures in FY 2007. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 21 15-107 Reforestation 

Reforestation 

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, the need to 

reforest areas that have been cut-over or otherwise denuded or deforested. 

The Forest Service (FS) reforestation program has four major goals: (1) to maintain all forest 

lands within the NFS in appropriate forest cover, (2) to improve the quality and yield of the 

timber resource, (3) to accelerate the attainment of desired species composition; and (4) to 

develop and demonstrate successful reforestation methods and techniques. The program 

includes artificial regeneration, seeding, and natural regeneration with and without site 

preparation. Management objectives may be jeopardized without appropriate reforestation 

treatments. Untreated areas may have elevated risk to losses from future insect or disease 

epidemics, wildfires, and other disturbance events. 

Program Discussion 

Reforestation work is time-sensitive. Without timely intervention to reforest areas, 

undesirable woody shrubs, grasses, and forbs can dominate, making establishment of desired 

tree species difficult. Once undesirable species become established, decades may pass before 

sufficient numbers of the appropriate tree seedlings occupy the site. Delays also increase the 

cost of reforestation work by necessitating expensive site preparation treatments to reduce 

unwanted vegetation to levels that afford satisfactory seedling survival. Delays reduce 

timber yields and may adversely affect meeting other resource objectives. 

 

Prompt reforestation is required to prevent soil erosion and protect water quality in streams 

and lakes. Reforestation delays affect wildlife and fish species that depend on forest cover 

for habitat and reduces scenic quality and recreational experience. In addition, these areas 

are less resilient to the effects of fire and make it more difficult to protect surrounding 

communities. 

Figure 1 shows reforestation needs and accomplishments for fiscal years (FY) 1994 through 

FY 2005. From FY 1994 through FY 2000 there was a steady decrease in reforestation needs 

and accomplishments. During this period, reforestation treatments addressed approximately 

45 percent of the needs. Since FY 2000, national forest reforestation needs have 

accumulated in part due to large wildfires in the West and insect epidemics in the East. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 21 15-108 Reforestation 

Despite these increases, a smaller proportion of the needs received reforestation treatments. 

From FY 2000 through FY 2005, reforestation addressed about 20 percent of the 

reforestation needs nationally. 

FY 2005 Accomplishments and Review 

During FY 2005, national forests identified reforestation needs on about 1.1 million acres. 

Reforestation treatments occurred on 153 thousand acres, representing roughly 14 percent of 

the total estimate. From FY 2004 to FY 2005, reforestation needs increased by 

approximately 22 percent (901 thousand acres to 1.1 million acres nationally) while 

reforestation program accomplishments remained constant. 

 

In 2005, the Government Accountability Office (GAO) completed a review of the trends on 

NFS lands needing reforestation and timber stand improvement and found data deficiencies. 

In response to this audit, staff on the national forests validated reforestation needs and 

accomplishment information and certified data accuracy. The FY 2005 Reforestation and 

Timber Stand Improvement Report, currently in progress, will address the concerns raised in 

the GAO report. 

Figure 1 – Trends in Section 3(d) 1 of P.L. 93-378, Reforestation Needs and 

Accomplishments and Percentage of Needs Treated in Each Fiscal Year

899

842

804

764

679

630

722

787

838

898 901

1,081

441

392 363

328

293 269

217 196

161 163 153 153

0

200

400

600

800

1,000

1,200

1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005

Fiscal Year

Acres (Thousands)

0

10

20

30

40

50

60

Percent of Needs Treated

 Reforestation Needs Reforestation Treatments Percent of Needs Treated
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 22 15-109 R&D Threat Assessment Centers 

Research and Development Threat Assessment Centers 

Overview 

The President’s Healthy Forests Initiative (HFI) identified how forests in the Western and 

Eastern United States are vulnerable to environmental stresses such as insect infestation, 

epidemics of disease, invasive species, drought, fire, and development. Often, the 

disturbances caused by these stresses, alone or in combination, are uncharacteristically 

severe and result in significant and lasting effects on ecological and socioeconomic 

values. These concerns led to the development of Healthy Forests Restoration Act 

(HFRA) of 2003. 

To address the goals of Title VI of HFRA, the USDA Forest Service, working with other 

Federal and State partners, has developed integrated Forest and Wildland Environmental 

Threat Assessment Centers (F&WETAC) to identify, detect, and rapidly respond to 

environmental threats. The Forest Service has established coordination centers in the 

East and the West which have become part of a network of ongoing F&WETAC 

activities. These coordination centers will focus on multi-scale assessment, monitoring, 

and evaluation of forest health threats. In the East, the emphasis will be on hardwood 

forests, but will also include threatened coniferous forests. In the West, the center will 

focus on these same components, but with an emphasis on wildlands. Besides 

developing and using new science and advanced technologies to inventory, monitor, 

characterize, and assess changes in Eastern and Western forests conditions, the work will 

emphasize applicable early warning products that landowners, forest managers, and 

communities could use to anticipate disturbances so that appropriate, preemptive actions 

can be taken. 

Products from the centers will include: 

1 Integrated assessments of threats from insects, pathogens, fire, weather, and other 

potential agents. 

2 Displays of where hazards exist, or will occur, on the ground across all 

ownerships. 

3 Quantification of hazards so that the probability of a disturbance event is known. 

4 Assessments of hazards on ecologic and socioeconomic values. 

F&WETAC Funding 

Program Area Eastern F&WETAC Western F&WETAC TOTAL 

Forest & Rangeland Research $800,000 $800,000 $1,600,000 

State & Private Forestry $800,000 $800,000 $1,600,000 

National Forest System $800,000 $800,000 $1,600,000 

TOTAL $2,400,000 $2,400,000 $4,800,000 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 22 15-110 R&D Threat Assessment Centers 

Oversight/Administration 

An oversight committee comprised of a representative from three Forest Service deputy 

areas (National Forest System, State and Private Forestry, and Research and 

Development) will provide oversight of the centers. 

The western center will be administratively located in the USDA Forest Service Pacific 

Northwest Research Station (PNW) and co-located in the headquarters of the Ochoco 

National Forest in Prineville, OR; the Eastern center will be located in the Southern 

Research Station (SRS) Headquarters in Asheville, NC. The center directors will report 

administratively to the station directors of the PNW and SRS, respectively. 

FY 2005 Accomplishments 

• The Threat Assessment Centers were chartered and directors were hired to initiate 

operation. 

• Initial contacts with many key intra-agency partners have been made and working 

partnerships were established. 

• A plan of work was established, incorporating projects and tasks that are tiered to 

the goals and objectives of the centers. 

• An organizational chart for the centers was established. A detailed budget plan, 

including staffing, equipment and facilities, operational, and technical study 

plans, was developed. 

FY 2006 Program 

• The centers will complete implementation of staffing and facilities plans. 

• The centers will develop a hypertext-based Forest Environmental Threats 

Encyclopedia, which will become part of the Forest Encyclopedia Network 

(www.forestencyclopedia.net). The encyclopedia will include synthesis papers 

and case studies. 

• The centers will initiate research and development on detection and ecological 

and socioeconomic impact assessment protocols and systems that address 

multiple interacting threats. 

• The centers will fund and support research to advance the application of remote 

sensing and geospatial technologies to forest health and threat assessment. This 

collaborative work will involve partnerships with NASA Stennis Space Center 

and the Forest Service Remote Sensing Applications Center and the Forest Health 

Technology Enterprise Team. 

• The centers will initiate probabilistic modeling of integrated environmental 

threats. The Center has adopted CRAFT (Comparative Risk Assessment 

Framework and Tools) as a general protocol, which will assume responsibility for 

future technical support and development. 

• The centers will initiate data collection, coordination, and database construction to 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 22 15-111 R&D Threat Assessment Centers 

support prediction, detection and assessment efforts. 

• FS researchers will develop a technology and information transfer program to 

disseminate center products to forest land managers, policymakers, and other 

clientele in an accessible, user-friendly fashion. 

FY 2007 Plans 

• The centers will continue to hire necessary staff, as needed, and implement their 

facilities and Internet information access plans. 

• The centers will produce, publish, and disseminate probabilistic risk assessment 

models and model outputs for priority threats to forests and rangelands, or 

regional integrated analyses of multiple threats. 

• The centers will continue to maintain the hypertext-based Forest Environmental 

Threats module developed in 2006, part of the Forest Encyclopedia Network 

(www.forestencyclopedia.net). The module will contain synthesis papers and 

case studies from the 2006 Environmental Threats Conference sponsored by the 

centers. 

• The centers will integrate risk assessment models with early detection and 

ecological and/or socioeconomic impact protocols to develop decision-support 

systems and tools for forest managers and policymakers. 

• The centers will continue research and development on research programs for 

ecological and socioeconomic impact assessment protocols and systems that 

address multiple, interacting threats. 

• The centers will continue data collection and database development efforts to 

support prediction, detection, and assessment efforts. These include creating and 

maintaining the infrastructure for high-speed sharing and analysis of massive 

remotely sensed databases, and development of advanced visualization tools. 

• The centers will continue technology and information transfer programs to 

distribute center products to forest managers, policymakers and other clientele. 

Advanced marketing and educational technologies will be used to ensure rapid 

and effective delivery to forest land managers, policymakers and other clientele in 

an accessible, user-friendly fashion. 

• Center managers will continue to meet with key clients, users, and collaborators 

to ensure that annual work plans address important national risk and threat 

assessment needs. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 23 15-112 Service First 

Service First 

The Forest Service continues to strengthen its partnership with the Bureau of Land 

Management (BLM) to increase: 

• Quality Natural Resource Stewardship 

• Customer Service 

• Operational Efficiency 

In fiscal year (FY) 2004, the Forest Service National Leadership Team (NLT) and the 

BLM Executive Leadership Team (ELT) met jointly to discuss the ongoing and growing 

partnership, highlight successes, and identify new opportunities to continue to expand the 

relationship. A product of that meeting was commitment to further collaboration and 

integration of services by establishing five objectives to focus efforts for the next 3 to 5 

years. Those five objectives include: 

1. Integrate fuels reduction plans, targets, and implementation efforts in support of 

the Healthy Forests Initiative; 

2. Align Federal Activities Inventory Reform Act inventories and coordinate all 

out-year competitive sourcing studies; 

3. Coordinate all information technology investments for compatibility of systems 

and applications; 

4. Implement the collocation plan; and 

5. Align priorities in the minerals and energy policies. 

In FY 2005 a joint implementation team of the Forest Service and BLM led efforts on 

these five objectives to change policy and applications that will streamline and facilitate 

interagency work in the field. This new emphasis resulted in frequent coordination and 

integration at the national headquarters of the two agencies. The increased commitment 

and coordination has led to more consistency in policy and guidance to field units and has 

provided greater incentive for field units to integrate their services and functions to better 

serve the public. 

Across all of the five objective areas listed above, headquarters staff has interacted with 

field personnel to develop consistent criteria, standards and operating procedures to 

facilitate working together. A few examples are listed to describe the types of efforts that 

have been successful. 

1. Space allocation requirements are being made consistent at collocated 

facilities. 

2. A capital leasing process has been developed to standardize how Forest 

Service and BLM pursue leased office space for collocated facilities. 

3. Consistent descriptions and coding are being developed for comparable 

positions undergoing review for competitive sourcing. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 23 15-113 Service First 

4. Progress is being made to have comparable e-mail systems for all employees 

that is easy to use. 

5. The Forest Service has drafted revised regulations for administering mining 

operations that is consistent with existing BLM regulations for the same 

activities. 

The previous authorization for Service First in Public Law 106-291, dated October 11, 

2000 was to expire at the end of FY 2005. The agencies worked together to extend and 

expand the authorization to better facilitate joint operations. Public Law 109-54, dated 

August 2, 2005 amended the previous authorization by adding clarifying language that 

facilitates project work, planning, permitting, leasing, contracting and other activities 

with less constraints. The expanded authorization also greatly eases financial 

management requirements for managing funds on an annual basis for shared project 

work. Finally, the Service First authorization is expanded to add the National Park 

Service and the Fish & Wildlife Service. This Law extends Service First through FY 

2008. 

In FY 2006 the efforts on the five objectives will continue aggressively. In April 2006 

there will be a Service First meeting of the national leadership of the Forest Service and 

BLM to review progress and to discuss additional opportunities and emphasis to continue 

the successes of the working partnership. 

Passage of the Energy Policy Act of 2005 in August, 2005 has led to very significant 

joint efforts to implement many requirements of the Act. Many actions were 

implemented immediately and the list of action items has timelines for implementation 

that range from 90 days to 15 years. There is a joint action plan to accomplish all that is 

required and it is being implemented by an integrated team of Forest Service and BLM 

staff. 

In FY 2005, the Forest Service Energy program underwent a Program Assessment Rating 

Tool (PART) evaluation for the FY 2007 budget cycle. The results of the PART 

evaluation were that the Forest Service energy program is “adequate.” One way the 

Forest Service and the BLM will cooperate to improve performance is through closer 

programmatic collaboration on application processing and program administration. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 24 15-114 FY 2005 Unobligated Balances 

Unobligated Balances – National Forest System, FY 2005 

Overview 

The following table contains the estimated FY 2005 unobligated balances for the 

congressionally designated budget items of the National Forest System. 

Program Amount

Land Management Planning $5,532

Inventory and Monitoring $10,301

Wildlife and Fish $7,272

Recreation, Wilderness, & Heritage $2,801

Range Management $2,139

Forest Products $22,655

Minerals and Geology $2,681

Vegetation and Watershed $11,930

Law Enforcement $4,629

Landownership Management $7,161

Rehabilitation $3,494

Valles Caldera $2,165

Total, National Forest System $82,760

National Forest System

FY 2005 Estimated Unobligated Balances

(dollars in thousands)
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 25 15-115 Wood Education and Resource Center 

Wood Education and Resource Center 

The Wood Education and Resource Center (WERC) had its beginning in 1999 when 

legislation was enacted directing the Forest Service (FS) to assume ownership of the 

former Robert C. Byrd Hardwood Technology Center (RCBHTC) in Princeton, West 

Virginia. The Northeastern Area of State and Private Forestry administratively oversees 

WERC activities. The original RCBHTC mission included training programs for the 

secondary wood processing industry and facilities that manufacturers could use to 

produce and explore new products and technology. Significant emphasis was placed on 

training machine operators. Under FS ownership and management, the WERC mission 

was broadened to include primary and secondary processing, sustainable forestry, and 

logging using collaborative multidisciplinary approaches. Up to 2004, the FS planned to 

have a contractor provide all management, technical and support personnel to the WERC. 

Due to challenges finding a suitable contractor, the Forest Service decided to manage 

WERC under Federal personnel. 

The new management team revised the mission, goals, and vision for the Center. The 

Director and Deputy Director worked with the Northeastern Area State and Private 

Forestry leadership in determining a more focused direction for WERC. WERC’s efforts 

focus on enhancing opportunities for sustained forest products production for primary 

and secondary hardwood industries located in the eastern hardwood forest region. 

WERC’s projects focus on: 

• International and domestic hardwood industry competitiveness issues, 

• WERC income generation, 

• Technology and information transfer, 

• Increasing communication, cooperation, and collaborative problem solving within 

the forest products industry. 

Training programs will be targeted more toward the supervisor, manager, owner level 

with emphasis on competitiveness, survivability, and sustainability issues. This focused 

effort will assist the wood industry in facing today’s critical challenges such as: global 

competition, application of advanced technologies, and historical industry fragmentation. 

Funding 

WERC will be funded from four State and Private Forestry programs, roughly 

proportional to the amount appropriated, including the National Fire Plan. The FY 2007 

President’s Budget proposes WERC funding as follows: $671,000 from Forest Health, 

Cooperative Lands, $961,000 from State Fire Assistance, $581,000 from Forest 

Stewardship, $460,000 from Urban and Community Forestry, for a total of $2,673,000. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 25 15-116 Wood Education and Resource Center 

FY 2005 Accomplishments 

• Training Annex. The new 3,500 square-foot Annex Training Building is complete. 

The new 50-seat facility was utilized for training, meetings, and other special events. 

The first training session covering lean manufacturing was held in August 2005. 

• Implementation of an Annual Competitive Grants Program. Initiated and 

implemented an annual competitive grants program that assisted the WERC staff in 

meeting the revised mission, vision, and goals. Projects that focused on the following 

priority items were identified and funded: 

o Maintain the economic competitiveness of the primary and secondary hardwood 

industries. 

o Bring information and technology to existing and emerging businesses involved 

in the development and manufacturing of wood products. 

o Bring information and technology about marketing and business-related skills to 

existing and emerging businesses. 

o Encourage the adoption of new technology to improve competitiveness and 

profitability. 

o Provide support and key information to entrepreneurs and start-up businesses. 

o Address global issues, such as phytosanitation of wood packaging materials, 

assisting communities and industries facing threats from invasive species such as 

the Emerald Ash Borer. 

A total of $2.8 million for 41 projects was awarded through this process. These 

projects will provide technical assistance, training sessions, industry publications, and 

applied research results focused on maintaining jobs within the wood products 

industry. 

Project cooperators included private industry, state agencies, universities, and nonprofits. These partners are providing $3.3 million in matching funds, both in-kind 

and cash. Anticipated value-added impacts include: 

o Higher-skilled employees and managers 

o Wood based businesses utilizing lower grade timber and lumber to manufacture 

higher value products. 

o Communities that have wood businesses that are profitable and sustainable 

o Increased productivity per worker 

o Cost savings to government agencies that are addressing invasive species threats 

such as the Emerald Ash Borer. 

• Developed a Strategic Partnership with the Sloan Wood Products Center located 

at VA Tech, Blacksburg, VA. WERC and the Sloan Center developed a partnership 

that will assist WERC in meeting its training goals. FY 2005 training included 

workshops on Lean Manufacturing and Diversity Management. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 25 15-117 Wood Education and Resource Center 

• Strengthened Existing Partnerships and Developed New Partnerships. A key 

activity in FY 2005 was to strengthen existing partnerships with various organizations 

such as state forestry agencies, wood products extension programs, and key industry 

organizations. At the same time, the Center has developed many new partnerships 

with organizations such as Dovetail Partners, Minnesota Wood Campaign Inc., and a 

number of universities and businesses. 

• Conducted a competitive program to lease the 43,000 square-foot rough mill 

facility. A prospectus was developed and the request for proposals announcement 

was advertised nationally in wood products magazines and industry newsletters along 

with the WERC web site. Four viable proposals were received from companies and 

individuals. Mr. Robert Kincaid of San Marino, California was awarded the rough 

mill facility and will start-up a new business tentatively named Accurate Millworks. 

The final contract was signed in December 2005. Mr. Kincaid is expected to employ 

approximately 40 at the WERC rough mill facility in Princeton, WV. 

FY 2006 Program 

Key activities of the Center will continue to focus on meeting the newly revised mission, 

vision, and goals. These activities include: 

• Leasing of Rough Mill and other WERC Space. The WERC rough mill will be 

leased to Accurate Millworks in January 2006. The company will begin using on-site 

machines along with the company’s own equipment in January 2006. Accurate 

Millworks will begin production over the winter months and hire numerous 

employees. 

The WERC facility includes a 9,000 square-foot shop area that will be evaluated for 

lease to a start-up wood business. The current shop area is not fully utilized and 

could better contribute to WERC’s objectives if it were leased to a for-profit business. 

These leases of WERC space will provide revenue, local jobs, training, and research 

opportunities, along with adding to the development of a wood industry cluster 

model. This synergistic model can encourage entrepreneurship and new business 

development. 

• Annual Competitive Grants and Agreement Program. Continue the annual 

competitive grants and agreement program that allows the WERC to provide critical 

information to industry through the development of cooperative projects via a 

competitive grants program. The grants program will focus on the following priority 

items in FY 2006: 

o Maintain the economic competitiveness of the primary and secondary hardwood 

industries. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 25 15-118 Wood Education and Resource Center 

o Bring information and technology about processing, marketing, and businessrelated skills to existing and emerging businesses involved in the development 

and manufacturing of wood products. 

o Bring information and technology to existing and emerging businesses that focus 

on urban wood utilization, hazardous fuels reduction, and utilization options that 

improve stewardship or use woody biomass as a domestic energy source. 

o Encourage the adoption of new technology to improve competitiveness and 

profitability. 

o Provide support and key information to entrepreneurs and start-up businesses. 

o Address global issues, such as phytosanitation of wood packaging materials, 

assisting communities and industries facing threats from invasive species such as 

the Emerald Ash Borer. 

Approximately $1 million of Federal funds will be available for competitive projects. It 

is anticipated that cooperators will provide approximately $1.5 million in matching 

contributions, both in-kind and cash. Anticipated benefits include: 

o Improve utilization of urban wood waste 

o Improved opportunities for woody hardwood biomass as a domestic energy 

source 

o More technically trained employees and managers 

o Wood based businesses utilizing lower grade timber and lumber to manufacture 

higher value products. 

o Communities that have wood businesses that are profitable and sustainable 

• WERC Library of Information. Develop and organize a distribution library 

targeted to the primary and secondary hardwood industries with an emphasis on onestop shopping. 

• WERC Program Management Information System. Develop and manage a 

functioning database management system that will assist the WERC staff in 

managing and tracking: grants and agreements funded by WERC; publications and 

informational pieces distributed by WERC; and targeted mailing/distribution lists for 

distributing key information that will be developed by WERC and its partners in 

industry. 

• Interactive Website. Develop and maintain an interactive website that will allow 

Forest Service and wood products industry customers to obtain information about 

WERC activities, grants and agreements, publications, and related information online. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 25 15-119 Wood Education and Resource Center 

FY 2007 Plans

Plans for FY 2007 WERC program are currently under development in view of WERC’s 

mission and vision. In FY 2007, the items identified for FY 2006 will be continued and 

expanded. The key focus will remain on providing assistance to the primary and 

secondary hardwood businesses located in the 33 eastern hardwood states along with 

developing local wood industry entrepreneurship businesses. These focused activities 

will be continued in a variety ways including: 

• Competitively fund grants and enter into cooperative agreements that will assist in the 

development of new technology and information to maintain the economic 

competitiveness of the hardwood industry on a global basis. The expected level of 

competitive grants to be awarded is $1.0 million with approximately $1.5 million of 

in-kind or matching funds from grantees. 

• Develop and maintain a one-stop shopping library of information primarily developed 

from the results of completed grants and agreements. 

• Continue to develop and promote wood based businesses that foster local economic 

development. The leasing of WERC’s 43,000 square-foot rough mill and 9,000 

square-foot wood shop areas will contribute to local employment, foster 

entrepreneurial start-up businesses, and return revenue to the WERC. 

• Continue to provide key project information and finding on the WERC website so 

that any and all employees of wood products businesses can easily view and 

download. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 26 15-120 USFS Working Capital Fund 

Forest Service Working Capital Fund 

Program Description 

The Working Capital Fund (WCF) provides orderly and efficient supply and equipment 

service in support of Forest Service programs. The Department of Agriculture Organic 

Act of August 3, 1956, as amended by the Act of October 23, 1962 (15 U.S.C. 579b), 

established the WCF. WCF is a self-sustaining revolving fund that provides services to 

national forests, research stations, other Federal agencies, and, as provided by law, to 

State and private cooperators. 

The WCF requires no cash appropriation. Initially, regular Forest Service appropriations 

purchased assets and donated the assets to WCF. WCF rates are determined so that WCF 

recovers operating and replacement costs. WCF provides the following services: 

• Equipment Leasing Services, which owns and rents vehicles and aircraft; 

• Nursery Service, which consists of tree and grass seeds and other nursery seedlings; 

• Enterprise Services, which are reinvention projects to improve customer service and 

reduce costs. Enterprise Services are stationed in Region 5 only. The Symbols and 

training programs are also included in this category. 

The table below displays the volume of business for major WCF activities: 

Volume of Business for Major WCF Activities 

(Dollars in thousands) 

FY 2005 FY 2006 FY 2007

Equipment - Fleet $130,000 $132,800 $123,000 

Equipment - Aircraft 4,800 5,000 4,900

Nursery 11,300 11,500 11,500

Enterprise services 30,900 32,000 32,000

Total $177,000 $181,300 $171,400 

The Forest Service will increase oversight of fund management to improve efficiency and 

ensure compliance with policy direction. 

In FY 2007, the Forest Service will coordinate with GSA to develop a vehicle allocation 

methodology as described in the GSA Bulletin FMR B-9 Vehicle Allocation 

Methodology for Agency Fleets. This will ensure that the agency’s fleet is operated at 

optimum minimum cost and is correctly sized in terms of numbers, and is of appropriate 

type for accomplishing the agency’s mission. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 27 15-121 USDA – WCF and Greenbook Charges 

USDA Working Capital Fund and Greenbook Charges 

Background 

The Forest Service, as an organizational entity of the U.S. Department of Agriculture, is 

provided administrative services managed centrally on behalf of the Department. These 

centrally administered programs are broken into two activities: the Working Capital Fund 

(WCF) and Greenbook. 

The Interior Subcommittee on Appropriations requires a 3-year display of total costs paid 

by the Forest Service for these centrally administered programs. It is important to note 

that cost estimates for actual usage programs have changed in the last 3 fiscal years in 

response to demand for services on the part of the Forest Service. The Forest Service 

estimates for the activities assessed on a Full-time Equivalent (FTE) or standard 

methodology are likely to better reflect Forest Service shares of total costs, but these may 

vary during execution. 

USDA Working Capital Fund 

The Working Capital Fund (WCF) includes financial and administrative services 

provided with funding under the authority of 7 USC 2235. WCF is a financing 

mechanism supporting more than 20 activity centers across 5 Department-level 

organizations. These centers provide services to all USDA agencies, including the Forest 

Service, and a large number of non-USDA entities. Customers reimburse activity centers 

for the cost of services provided. 

WCF-supported activities do not receive appropriated funds and are not subsidized from 

other funding sources. All costs are recovered through reimbursements from serviced 

customers. The estimated reimbursement from customers represents their projected share 

of costs to deliver service. Under terms of the general provisions in annual 

appropriations to USDA, agency administrators must authorize the billing of their agency 

for services they receive. The Chief of the Forest Service, or his duly appointed 

representative, must sign an agreement at the beginning of the fiscal year authorizing 

billing for services provided and supplying the appropriate accounting data. 

The Forest Service serves as a lead overseer in the review of cost estimates for the 

National Finance Center through its participation in the WCF Executive Committee, a 

body comprising of representatives of various USDA agencies. The Executive 

Committee is charged with making budget recommendations and advising the 

Department’s Chief Financial Officer as to the financial effectiveness of WCF. 

On the following page is a table displaying Forest Service assessments for USDA 

working capital fund services. On subsequent pages is a table describing WCF services 

provided by the USDA. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 27 15-122 USDA – WCF and Greenbook Charges 

FY 2005 – FY 2007 Working Capital Fund Assessments for the Forest Service 

FY 2005 FY 2006 FY 2007

Orgn. Activity Estimate Estimate Request

OCFO National Finance Center 6,183,430 5,657,251 5,794,308

 Controller Operations 9,447,854 10,736,444 10,996,553

 Corporate Financial Management Systems 40,376,221 37,625,301 38,536,840

 Competitive Sourcing 288,975 298,759 305,997

OCFO Broadcast Media and Technology Center 481,866 305,811 313,220

 Creative Services Center 452,851 465,058 476,325

OCIO NITC - IT Services 4,684,405 5,825,972 5,967,116

 National Telecommunications Services 1,365,523 1,387,007 1,420,610

 Information Technology Services 0 0 0

 Computer Services Unit 605,858 619,383 634,389

 Telecom Customer Services Center TSCS 144,979 150,383 154,026

 Network Services 485,231 529,441 542,268

 Universal Telecommunications Network 70,236 0 0

DA Central Supply Stores 39,224 260,585 266,898

 Central Forms and Publication Distribution Center 764,218 680,441 696,926

 Central Excess Property 82,213 82,213 84,205

 Central Shipping and Receiving 47,225 47,225 48,369

 Mail Services 1,218,426 1,321,140 1,353,147

 Printing and Duplication Services 99,892 91,449 93,665

 Copier Service 559,985 617,212 632,165

 Departmental Mailing List Systems 15,266 23,688 24,262

 Integrated Procurement Systems 4,426,087 4,019,087 4,116,456

OES Executive Secretariat 559,079 580,317 594,376

Subtotal for Agency Requested Services 72,399,044 71,324,167 73,052,121
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 27 15-123 USDA – WCF and Greenbook Charges 

Greenbook 

Central Cost Distribution Programs: USDA agencies pay a share of costs for external 

programs through “Greenbook” assessments. The Forest Service share is determined in a 

manner consistent with that for every other agency in the Department. Assessments are 

broken down into two categories: 

• Actual usage – costs are collected for programs such as GSA space, postage, 

unemployment and workers compensation based on actual costs incurred by 

individual agencies. 

• Outside assessments – costs such as OPM Federal employment, FirstGov, and 

GSA blue pages are distributed to executive departments for reimbursement; the 

Department has no discretion as to the cost of the program. 

Departmental Reimbursable Programs: These costs provide funding for Departmentwide initiatives authorized by the Office of the Secretary. Costs for these programs 

cannot be recovered on a usage basis and are generally distributed using an FTE 

methodology. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 27 15-124 USDA – WCF and Greenbook Charges 

FY 2005 – FY 2007 Forest Service Greenbook Costs 

FY 2005 FY 2006 FY 2007

 Estimate Estimate Request

 GSA Space $40,501 37,801 $38,557

 USPS Mail $725 460 $469

 Unemployment Compensation $40,000 33,998 $34,678

 Workers Compensation $28,891 28,173 $28,737

National Archives Storage $150 180 $183

Transit Subsidy $1,196 1,512 $1,542

FTS 2001 $4,070 5,331 $5,438

OPM Federal Employment Services $85 192 $196

 Small Business Certification $10 10 $10

FEMA $69 70 $72

Government Wide Council Activities $171 135 $138

FirstGov $132 135 $138

GSA Blue Pages $113 115 $118

Employee Express $0 0 $0

Total, Central Cost Programs $116,113 $108,113 $110,275

USDA Tribal Liaison $0 $0 $27

Faith-Based Initiatives - White House Conference $0 $0 $126

Faith-Based Initiatives $0 $0 $8

Global Change Program Office $0 $0 $240

USDA Invasive Species Coordinator $0 $0 $235

Advisory Committee on Biotechnology $0 $0 $28

Office of Small Farms Coordination $0 $0 $25

Radiation Safety $0 $0 $95

Labor and Employee Relations Case Tracking $0 $0 $25

Dashboard and Retirement Web Application $0 $0 $124

 Advisory Committee Liaison $41 $42 $41

American Indian Higher Education Consortium $53 $89 $210

 Hispanic Association of Colleges & Universities $544 $546 $542

1890's USDA Initiatives $1,031 $993 $1,027

 Sign Language Services $83 $11 $83

TARGET Center $344 $330 $343

USDA Diversity Council $564 $543 $179

USDA Visitor Information Center $137 $88 $136

Honor Awards $0 $0 $34

USDA Drug Testing Program $117 $0 $118

SES Candidate Development Program $0 $0 $0

Emergency Operations Center $690 $665 $688

Pre-Authorized Funding $256 $256 $271

E-Gov Presidential Initiatives $3,061 $4,018 $3,139

HSPD 12 (Smart Cards) $0 $0 $7,918

Financial Mangement Modernization Initiative $0 $0 $4,259

Federal Biobased Products Procurement $0 $0 $140

Total, Reimbursable Programs $14,115 $14,952 $24,278

TOTAL GREENBOOK $130,228 $123,065 $134,553

(Dollars in Thousands)

Central Cost Distribution Programs

Departmental Reimbursable Programs

$7,194 $7,371 $4,217

USDA E-Gov Enablers (E-Gov Initiatives and 

Enterprise Authentication)
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 27 15-125 USDA – WCF and Greenbook Charges 

GREENBOOK ACTIVITIES

Central Cost Distribution Programs 

Activity Description Cost Distribution 

General Service Administration 

(GSA) Space – Agency 

Provides for the payment of rental to 

GSA for 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. 

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 Storage Services Effective in FY 2001, the National 

Archives became a fee-for-service 

records center. Each agency is 

assessed for costs associated with 

records in storage plus an additional 

amount for those Departmental staff 

offices that store agency records as a 

part of their function. 

Distribution is based on each 

agency’s volume of records stored, 

plus a percentage of Departmentwide records stored based on 

nation-wide FTEs. 

OPM Federal Employment Services 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.

Small Business Certification This program reimburses SBA for 

the cost of the Certification Program 

for Small Businesses. 

User percentages are based on the 

number and dollar amount of 

contract actions for each agency. 

Pre-authorized Funding This program provides a funding 

mechanism for reimbursable 

activities with costs less than or equal 

to $100,000 involving other Federal 

departments and USDA. 

Distribution is based on the 

current year nationwide FTE 

employment ceilings for each 

USDA agency. 

Emergency Preparedness – Federal 

Emergency Management Agency 

(FEMA) 

This program supports actions for 

procurement of an emergency 

relocation site, telecommunications, 

Distribution is based on the 

current fiscal year nationwide FTE 

employment ceilings for each 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 27 15-126 USDA – WCF and Greenbook Charges 

GREENBOOK ACTIVITIES

Central Cost Distribution Programs 

Activity Description Cost Distribution 

and miscellaneous support in the 

event of an emergency. 

USDA agency. 

Government-Wide Council 

Activities 

Reimburses GSA for projects of the 

Chief Financial Officers Council, 

Chief Information Officers Council, 

and Procurement Executives Council. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment in each agency. 

FirstGov FirstGov is a government web site to 

help citizens gain one-stop access to 

existing government information. 

Distribution is based on current 

fiscal year nationwide FTE ceiling 

employment for each agency. 

GSA Blue Pages GSA is the lead agency in a public/ 

private multi-agency effort to set a 

standard, easy-to-use format for core 

government directory listings 

throughout the country. 

Distribution is based on current 

fiscal year field employment FTE 

ceilings for each USDA agency. 

Employee Express Employee express is an automated 

system that puts federal employees in 

control of processing their own 

discretionary personnel and payroll 

data without using paper forms. It is 

available 24 hours per day, 7 days 

per week, for changes or reviewing 

current information. 

Distribution is based on each 

agency’s percentage of the actual 

costs. 

Transit Subsidy In accordance with Executive Order 

13150, USDA is providing all 

qualifying employees nationwide a 

direct transit subsidy in order to 

reduce Federal employees’ 

contribution to traffic congestion and 

air pollution and to expand their 

commuting alternatives. 

Distribution is based on each 

agency’s percentage of the actual 

costs. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 28 15-127 WCF – Fleet Management 

Working Capital Fund – Forest Service Fleet Management 

 

Estimated WCF Fleet Program 

 FY 2005 FY 2006 FY 2007 

Total WCF Fleet $130,000,000 $132,800,000 $123,000,000 

Operation/Maintenance $93,000,000 $94,600,000 $86,000,000 

Acquisitions $37,000,000 $38,200,000 $37,000,000 

Program Description 

The Forest Service uses the Working Capital Fund (WCF) to procure motor vehicles and 

other fleet equipment in support of Forest Service programs. The WCF 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 “Equipment Leasing Services,” which owns and 

rents vehicles and other fleet equipment. 

Vehicle Allocation Methodology and Procurement Practices

The Forest Service will establish a vehicle allocation methodology that analyzes vehicle 

fleet effectiveness, cost-to-serve, life cycle cost, vehicle pooling, centralized procurement 

practices and reduction of operating costs, with commensurate and appropriate national 

headquarters oversight. The Forest Service will work in cooperation with the General 

Services Administration in this effort, and looks forward to working on the development 

of improved performance measures. 

The Forest Service currently does not allocate vehicle quantity limits. However, as part 

of the annual replacement process, the Forest Service units assess fleet operations to 

analyze vehicle effectiveness, cost-to-serve, life cycle cost, vehicle pooling, and 

operating costs. From this assessment, Forest Service managers, with assistance from 

fleet equipment specialists, determine what the transportation and equipment needs that 

best meet work assignments. Reassignment of underutilized existing fleet will often meet 

the need. 

Region and station fleet specialists, based on national guidelines, identify what vehicles 

are eligible for replacement. When a fleet upgrade or addition is required a formal 

review and approval procedure is followed and documented. This procedure centralizes 

the procurement decision authority at the Region or Station level. 
FY 2007 Budget Justification USDA Forest Service

Special Exhibit 28 15-128 WCF – Fleet Management 

Program Oversight 

The fleet program provides safe, efficient, and environmentally sound fleet equipment, 

and to ensure the safe, economical, and legal acquisition, operation, maintenance and 

disposal of that equipment, the Forest Service uses a combination of the following: 

1. Financial incentive: Forest Service organizations, programs, and projects 

continue to pay monthly rates on all WCF equipment assigned to them. This 

continuing cost encourages managers to drop vehicles that are marginally needed. 

Dropped vehicles will be reassigned to another unit that needs a vehicle or sold 

with the receipts going to the WCF account. 

2. Business practices: Business practices such as, the required physical property 

inventory, the annual assessments of fleet needs for scheduling replacements and 

holdovers, and the annual review and recalculation of monthly rates require 

national and regional review and assessment of project leaders, program managers 

and line officers’ decisions to have fleet vehicles. The Forest Service recently 

implemented a formalized review and approval procedure for all fleet additions 

and upgrades to the fleet. 

3. Monitoring: Annually, each region reviews the fleet management activities on 

two to four forests, and the Washington Office reviews one to two regions. 

FY 2006 Program 

In FY 2006, the Forest Service will conduct an assessment of the fleet management 

organization to determine changes needed to make program management more cost 

efficient. The assessment will be completed this spring and will recommend actions 

needed to provide necessary management and oversight to keep the fleet safe, effective, 

cost efficient, and legal. Additionally, the Forest Service will complete a national 

assessment of the current fleet based on indicators such as fleet and employee number 

comparisons between units, unit differences in size and vehicle class, actual vehicle 

utilization, and other factors from which to base a vehicle allocation methodology, which 

is scheduled to be developed with GSA in FY 2007. 

 

FY 2007 Plans 

In FY 2007, the Forest Service will coordinate with GSA to develop a vehicle allocation 

methodology as described in the GSA Bulletin FMR B-9 Vehicle Allocation 

Methodology for Agency Fleets. This will ensure that the agency’s fleet is operated at 

optimum minimum cost and is correctly sized in terms of numbers, and is of appropriate 

type for accomplishing the agency’s mission. 

Based on allocation methodology and vehicular optimization assessment, the Forest 

Service will adjust fleet size, mix, and assignments and insure that vehicles acquired 

maximize fuel economy and are limited to the minimum body size, engine size, and 

optional equipment necessary to meet the mission of the vehicle. 
FY 2007 Budget Justification USDA Forest Service

Authorities 

Chapter 16 

Authorities

FY 2007 Budget Justification USDA Forest Service 

Authorities 16-1

AUTHORITIES 

These laws authorize and/or provide guidance for the use of appropriations to the Forest Service. 

RESEARCH 

P.L. 78-425, Department of Agriculture Organic Act of September 21, 1944 (7 U.S.C. 2250). 

Section 703. Erect, alter, and repair buildings necessary to carry out authorized work. 

P.L. 81-478, Granger-Thye Act of 1950, as amended (16 U.S.C. 581i-1) ch. 97, sec. 20 as 

added April 6, 1956, ch 177. Provides authority to advance funds to cooperators for cooperative 

research. 

P.L. 85-934, Research Grants Act of 1958, as amended (42 U.S.C. 1891-1893). 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. 

P.L. 87-788, McIntire-Stennis Act of 1962, as amended by P.L. 101-624, Food, Agriculture, 

Conservation, and Trade Act of 1990 (Farm Bill), Title XII, Subtitle B, Chapter 1. (16 U.S.C. 

582a, 582a-1--582a-7). 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 agriculture 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. Authorizes appropriations as necessary; no expiration date. 

P.L. 88-74,95-113, and 99-198, Research Facilities Act of 1963, as amended (7 U.S.C. 390). 

Authorizes support of agricultural (including forestry) research at eligible institutions through 

Federal grant funds, on a matching funds basis, to help finance facilities and equipment as 

required for the effective conduct of the research and related academic programs. 

P.L. 89-106, 97-98 and 99-198, Agriculture Grants and Powers Act of 1965, as amended (7 

U.S.C. 2250a, 7 U.S.C. 450i). Provides authority to erect buildings and other structures on nonFederal land, if long-term lease on the land is obtained. Also, includes authority to enter into a 

long-term lease on the land. 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. 

P.L. 93-378, Forest and Rangeland Renewable Resources Planning Act, August 17, 1974, as 

amended (16 U.S.C. 1601 note). Sections 2-5. Requires preparation of a renewable resource 

assessment, program plans, inventories, and budget request and update every five years. Such 

sums as appropriated; no expiration date. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-2

P.L. 94-588, National Forest Management Act of 1976, October 22, 1976 (16 U.S.C. 472 (a-i) 

and 1601 (d)(3). Section 1-14. Amends Forest and Rangeland Renewable Resources Planning 

Act of 1974 and provides authority and requirements for the sale of timber on the National Forest 

System. Such sums as appropriated; no expiration date. 

P.L. 95-113, Food and Agriculture Act of 1977 (Title XIV), as amended December 22, 1981, 

and as amended by The Food Security Act of December 23, 1985 (7 U.S.C. 3221, 3222, 3291, 

3318-3319d). Provides for increased cooperation and coordination in the performance of 

agricultural research by Federal departments and agencies, in the States, State agricultural 

experiment stations, colleges and universities, and other user groups (7 U.S.C. 1281). 

Authorizes the Secretary of Agriculture to engage in international agricultural research and 

extension, including to "assist the Agency for International Development with agricultural 

research and extension programs in developing countries." 

P.L. 95-307, Forest and Rangeland Renewable Resources Research Act, June 30, 1978, as 

amended by P.L. 100-521, Forest Ecosystems and Atmospheric Pollution Research Act of 1988, 

Section 3 (c), and as amended by P.L. 101-624, Food Agriculture, Conservation, and Trade Act 

of 1990 (Farm Bill), Title XII, Subtitle B (16 U.S.C. 1641 et. seq.). Provides authority for 

competitive grants, research studies, wood fiber recycling, conducting tests, and establishing a 

forestry student grant program for minority and female students. 

P.L. 101-513, Title VI, International Forestry Cooperation Act of 1990. Authorizes support 

(including cooperation and financial and technical assistance without reimbursement) for 

international forestry and related natural resource activities outside the United States and its 

territories and possessions; authorizes support of the Tropical Forestry Action Plan and activities 

specifically addressing tropical deforestation and degradation; authorizes expansion of the 

capabilities of the Institute of Tropical Forestry in Puerto Rico. Such sums as necessary; no 

expiration date. 

P.L. 101-606, Global Change Research Act of 1990 (15 U.S.C. 2931). Establishes the 

Committee on Earth and Environmental Sciences, part of the Federal Coordinating Council on 

Science, Engineering, and Technology under the Office of Science and Technology Policy of the 

Executive Office of the President. Authorizes funded participation in the United States Global 

Change Research Program as the Forest Service Global Change Research Program. 

P.L. 101-624, Food, Agriculture, Conservation, and Trade Act of 1990 (Farm Bill) Title XII, 

Subtitle B, Chapter 2; and Title XXIV (Global Climate Change Prevention Act of 1990); and 

Title XVI, Section 1608. Authorizes continuation of the Modern Timber Bridge Initiative, a 

grant to a State for the establishment of a Southern Forest Regeneration Center, establishment of 

a Semiarid Agroforestry Research, Development, and Demonstration Center at the Forest 

Service Forestry Sciences Laboratory in Lincoln, Nebraska, establishment of a Research and 

Demonstration Program for the forests and rangelands of Oregon and Washington east of the 

Cascades Crest, establishment of an International Forest Products Trade Institute and authority 

for the Secretary to make grants to land grant colleges and universities, and colleges and 

universities having significant minority enrollments and the demonstrable capacity to carry out 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-3

the teaching of food and agricultural science (including forestry), for a period not to exceed 5 

years. 

P.L. 104-127, Federal Agricultural Improvement and Reform Act (April 4, 1996). 

Reauthorizes funding for FS Office of International Forestry through 2002. 

P. L. 107-171, Farm Security and Rural Investment Act of 2002 Title VIII, Forestry, Section 

8102, reauthorizes the Office of International Forestry within the Forest Service through fiscal 

year 2007. 

P.L. 108-148, The Healthy Forests Restoration Act, December 3, 2003, a bill to improve the 

capacity of the Secretary of Agriculture and the Secretary of the Interior to conduct hazardous 

fuels treatment projects on National Forest and Bureau of Land Management lands aimed at 

protecting communities, watersheds and other at-risk lands from catastrophic wildfire. 

• The bill amends previous Acts to encourage the use of Biomass technologies. 

• Authority is granted to the Secretary of Agriculture to carry out silvicultural assessments 

and research projects under categorical exclusions for areas affected by insects and 

disease. 

STATE & PRIVATE FORESTRY 

Wildland Fire Management 

The Act of June 4, 1897, Organic Administration Act of 1897, as amended (16 U.S.C. 551). 

Directs the Secretary of Agriculture to make provisions for the protection against destruction by 

fire and depredations upon the public forest and national forests. No specific authority; no 

expiration date. 

P.L. 101-121, The Department of Interior and Related Agencies Appropriations Act of 

1990. Established a new appropriation for necessary expenses of firefighting, presuppression, 

and fuels management. No specific authority; to remain available until expended. 

P.L. 102-154, The Department of Interior and Related Agencies Appropriations Act of 

1992. Established separate appropriations for Forest Service Firefighting and Emergency Forest 

Service Firefighting. 

P.L. 104-134, The Omnibus Consolidated Rescissions and Appropriations Act of 1996 

(April 26, 1996). Consolidated fire appropriations into a single fund, Wildland Fire Management 

P.L. 105-277, The Department of Interior and Related Agencies Appropriations Act of 

1999. Directs that moneys collected from States for fire suppression assisted rendered by the 

Forest Service on non-Federal lands not in the vicinity of National Forest System lands be used 

to reimburse appropriations originally used. Such moneys shall remain available until expended 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-4

as the Secretary of Agriculture may direct in conducting activities authorized by 16 U.S.C. 2101 

note, 2101-2110, 1606, and 211. 

P.L. 107-13, authorize the Secretary of the Interior and the Secretary of Agriculture to use funds 

appropriated for wildland fire management in the Department of the Interior and Related 

Agencies Appropriations Act, 2001, to reimburse the United States Fish and Wildlife Service 

and the National Marine Fisheries Service to facilitate the interagency cooperation required 

under the Endangered Species Act of 1973 in connection with wildland fire management. 

P.L. 108-83, September 30, 2003, Legislative Branch Appropriations Act, Authorizing 

expenditure of funds for hazardous fuel reduction and mitigation in Southern California. 

P.L. 108-375, Ronald W. Reagan National Defense Authorization Act for Fiscal Year 2005, 

SEC. 354. Transfer of Excess Department of Defense Personal Property to assist Firefighting 

Agencies. Section 2576b of title 10, United States Code, is amended--(1) in subsection (a), by 

striking `may' and inserting `shall'; and(2) in subsection (b), by striking `may' and inserting 

`shall'. Sec. 1086, The Secretary of Agriculture is authorized to purchase 10 aircraft for the 

National Interagency Fire Center for use in aerial firefighting. 

Cooperative Work 

Various Public Laws including the Act of June 30, 1914, Cooperative Funds Act, as 

amended; and 7 U.S.C. 2269; 16 U.S.C. 471h, 498, 572, 535, 537, 693d, and 1643c. 

Cooperative work (trust fund) for investigation, protection, and improvement of national forests. 

No expiration date. 

P.L. 71-319, Act of June 9, 1930, Knutson-Vandenberg Act, as amended (16 U.S.C. 576b). 

Section 3. Funds deposited by timber sale purchasers to cover the cost of reforestation, timber 

stand improvements, and special cultural measures to improve renewable resources on timber 

sale areas. No expiration date. 

P.L. 94-148, December 12, 1975, An Act to authorize Secretary of Agriculture to enter into 

cooperative agreements with public or private agencies, organizations, institutions, or persons for 

various purposes. P.L. 107-63, Interior and Related Agencies Appropriations for 2002, Title 

III, Sec. 328, Granting authority to the Secretary of Agriculture to enter into cooperative 

agreements under P.L. 94-148 for a purpose which includes the authority to use that legal 

instrument when the principal purpose is to the mutually significant benefit of Forest Service and 

other parties. Expires September 30, 2003. P.L. 108/7, Consolidated Appropriations 

Resolution for 2003, extends authority until September 30, 2005. 

P.L. 95-192, Soil and Water Resources Conservation Act of 1977 (16 U.S.C. 2008). 

Cooperation in soil and water resource appraisal and conservation. 

 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-5

P.L. 95-313, Cooperative Forestry Assistance Act of 1978, July 1, 1978 (16 U.S.C. 2101-

2110). Sections 3 and 5-18, as amended by P.L. 101-624, the Food, Agriculture, Conservation, 

and Trade Act of 1990, Title XII, Subtitles A, B, and C, sections 1265 and 1266; as amended by 

P.L. 101-513, Title VI, the International Forestry Cooperation Act of 1990. Authorizes 

cooperation and assistance to non-federal forest landowners in rural forest management, urban 

and community forest , establishes a forest stewardship program to assist non-industrial private 

forest landowners, establishes a forest legacy program and authorizes the acquisition of land, 

including conservation easements and rights of public access, authorizes financial assistance to 

State Foresters, and private forestry and other organizations to monitor forest health, authorizes 

cost share assistance to States to implement an integrated pest management strategy, authorizes 

an urban and community forest resources education and technical assistance program; a 

competitive Challenge Cost-share program for urban and community forestry projects; a Forestry 

Advisory Council, authorizes financial, technical, and related assistance to State Foresters and 

authorizes cooperative forestry assistance to foreign countries. 

P.L.96-451, Act of October 14, 1980, Reforestation Trust Fund, as amended (16 U.S.C. 1606 

a(d). Section 303. Establishment of Reforestation Trust Fund to be held by the Secretary of 

Treasury. Funds to be invested and provided to the secretary of Agriculture based on an 

estimated fiscal year need necessary to accomplish the treatment of acreage in the reforestation 

program. Such sums as are necessary, but not more than $30 million annually, from custom 

tariffs: no expiration date. 

P.L. 99-198, Food Security Act of 1985. (99 Stat. 1354, Title XII, Section 1231-1236) 

Conservation acreage reserve. Such sums as may be necessary; no expiration date specified. 

P.L. 101-624, Food, Agriculture, Conservation, and Trade Act of 1990 (Farm Bill) Title XII, 

Subtitle B, chapter 2, Sec. 1244; Subtitle C (America the Beautiful Act of 1990), and Subtitle D; 

and Title XXIII, Subtitle G, Chapter 2 (National Forest-Dependent Rural Communities 

Economic Diversification Act of 1990) and (d) Title XXIV, Sec. 2409. Authorizes continued 

support for the study of changing landownership patterns in the northern forestlands of Maine, 

New Hampshire, Vermont, and New York. Authorizes $250,000 for the study of the New YorkNew Jersey Highlands. Authorizes designation of a private non-profit Tree Planting Foundation 

to provide grants and promote awareness, volunteerism, and encourage tree planting projects in 

communities and urban areas. Authorizes assistance to landowners who suffer destruction of 35 

percent or more of a commercial tree stand due to damaging weather, related conditions, or 

wildfire. Authorizes assistance to rural communities in or near national forests; establishment of 

rural forestry and economic diversification action teams; and loans to economically 

disadvantaged rural communities. Authorizes an amount not to exceed 5 percent of receipts 

from sales of timber and other forest products and user fees, plus additional sums as necessary; 

as provided for in Appropriation Acts. No expiration date. 

P.L. 102-381, The Department of Interior and Related Agencies Appropriation Act of 1993. 

Provides for contingency funds necessary for emergency suppression of pests, provided these 

funds shall be available only to the extent that the President notifies the Congress of his 

designation of these amounts as emergency requirements under the Balanced Budget and 

Emergency Deficit Control Act of 1985. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-6

P.L. 103-115, National Forest Dependent Rural Communities Economic Diversification Act

Amendment, 107 Stat. 1117, October 26, 1993. Amends the definition of rural community for 

eligibility for economic recovery funds. P.L. 103-427, Timber-Dependent Communities: 

Financial Assistance, October 31, 1994, 108 Stat. 4373. Expands the definition of rural 

community and places the forestry incentives program under the new Natural Resources 

Conservation Service. P.L. 106-113, Sec. 345, Amends Act for technical changes. 

P.L. 103-82, National and Community Service Act of September 21, 1993, 107 Stat. 785, (42 

U.S.C 12501, 12572-12681). Authorizes the Secretary to enter into contracts or cooperative 

agreements with any qualified youth or conservation corps for completion of conservation work. 

P.L. 103-106, National Forest Foundation Act of October 3, 1993, 107 Stat. 102, (16 U.S.C. 

583j-3). Amends the National Forest Foundation Act (P.L. 101-593) to authorize start-up funds 

and matching funds for the National Forest Foundation for project expenses. 

P.L. 104-127, Federal Agricultural Improvement and Reform Act (April 4, 1996). 

Authorizes optional State grants for Forest Legacy Program. Establishes a Water Rights Task 

Force and stipulates an 18-month moratorium on bypass flow decisions. 

P.L. 104-134, The Omnibus Consolidated Rescissions and Appropriations Act of 1996

(April 26, 1996). Established a fund for awarding specified grants to communities in Southeast 

Alaska for economic and infrastructure development projects over a period of four years (1996-

1999). 

P.L. 105-83, Interior and Related Agencies Appropriation Act of 1998. Title III, Sec. 334. 

(Wyden Amendment) Watershed Restoration and Enhancement Agreements. 

Appropriations for Secretary of Agriculture may be used for the purpose of entering into 

cooperative agreements and use with heads of other Federal agencies, tribal, State and local 

governments, private and nonprofit entities and landowners for the protection, restoration, and 

enhancement of fish and wildlife habitat on public or private land. Expires at end of FY 1998. ) 

P.L. 105-277, Omnibus Appropriations Act for 1999, Title III, Sec 323. Extends authority 

for Secretary of Agriculture to use funds for Watershed Restoration and Enhancement 

Agreements for fiscal years 1999-2001. P.L. 107-63 Interior and Related Agencies 

Appropriations for 2002, Title III, Sec 330, Extends authority for Secretary of Agriculture to 

use funds for Watershed Restoration and Enhancement Agreements for fiscal years 2002 through 

2005. P.L. 109-54, Interior-Environment Appropriations for FY 2006, Title III, Sec. 434, 

extends authority for agreements for fiscal years 2006 through 2011. 

P.L. 105-83, The Department of Interior and Related Agencies Appropriations Act of 1998. 

Authorizes the Secretary of Agriculture to enter into grants, contracts, and cooperative 

agreements as appropriate with the Pinchot Institute for Conservation, as well as with public and 

other private agencies, organizations, institutions and individuals, to provide for the 

development, administration, maintenance, or restoration of land, facilities, or Forest Service 

programs, at the Grey Towers National Historic Landmark and subject to such terms and 

conditions as the Secretary of Agriculture may prescribe, any such public or private agency, 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-7

organization, institution, or individual may solicit, accept, and administer private gifts of money 

and real or personal property for the benefit of, or in connection with, the activities and services 

at the Grey Towers National Historic Landmark and such gifts may be accepted notwithstanding 

the fact that a donor conducts business with the Department of Agriculture in any capacity. 

(Subject to permanent legislation or inclusion in the current year’s annual appropriations act.) 

P.L. 105-83, The Department of Interior and Related Agencies Appropriations Act of 

1998. Authorizes the National Forest Foundation to invest Federal funds not needed for 

immediate disbursements in interest bearing obligations of the United States. 

P.L. 105-277, Omnibus Appropriations Act of 1999. October 19, 1998 Section 401 (Quincy 

Library Group Forest Recovery Act.) Directs the Secretary of Agriculture to conduct a Pilot 

Project that demonstrates the management activities championed by the Quincy Library Group 

for a period of five years. P.L. 108-7 Consolidated Appropriations Resolution Act of 2003, 

Extends expiration date by five years. 

P.L. 105-277 Omnibus Appropriations Act of 1999, (Stewardship Contracting) Title III – 

Sec. 347 Authorizes the Forest Service to enter into no more than 28 contracts with private 

persons and entities to perform services to achieve land management goals for the National 

Forests that meet local and rural community needs. Expires September 30, 2002. P.L. 107-63, 

Title III, Sec 332, Extends Authority to September 30, 2004 and to an additional 28 contracts. 

P.L. 108-7 February 20, 2003, Joint Resolution Making Consolidated Appropriations for 

2003. Title III, Sec. 323 Amends P.L. 105-277 Sec 323 to extend authority for stewardship 

contracting until September 30, 2013. 

P.L. 106-291, Title III, Section 331 of the Fiscal Year 2001 Interior and Related Agencies 

Appropriation Act. (Colorado Good Neighbor) Authority allows for the Secretary of 

Agriculture, via cooperative agreement or contract to permit the Colorado State Forest Service to 

perform watershed restoration and protection services on National Forest System lands in the 

State of Colorado when similar and complementary watershed restoration and protection services 

are being performed by the State Forest Service on adjacent State or private lands. The types of 

services include treatment of insect infected trees, reduction of hazardous fuels, and other 

activities to restore or improve watersheds or fish and wildlife habitat across ownership 

boundaries. NEPA responsibilities for National Forest System lands are retained by the Forest 

Service. Authority expires on September 30, 2004. P.L. 108-447, Consolidated 

Appropriations Act, 2005”, December 8, 2004, General Provisions Title III, Sec. 336, 

Extends authority for P.L. 106-291 until September 30, 2009. 

P. L. 107-171, Farm Security and Rural Investment Act of 2002 Title VIII, Repeals the 

Forestry Incentives and Stewardship Incentives Program, establishes the Forest Land 

Enhancement Program (FLEP) to provide financial, technical, educational and related assistance 

to State Foresters to assist private landowners in managing their land. The Secretary shall use 

$100,000,000 of Commodity Credit Corporation funds to carry out the program through 

September 30, 2007. Authorizes the Forest Service to cooperate with State Foresters in the 

management of lands to (1) promote optimal firefighting efficiency at the Federal, State and 

local levels; (2) expand outreach and education programs to homeowners and communities about 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-8

fire protection; and (3) establish defensible space around homes and property against wildfire. 

The Secretary, in consultation with State Foresters and with the consent of private landowners, 

may undertake specified activities on non-Federal lands to further these purposes. 

P.L. 108-7, Interior and Related Agencies Appropriations Act of 2003, Sec. 321, Authority 

for Secretary to enter into agreements that are mutually significant. P.L. 109-54 FY 2006 

Interior-Environment Appropriations, Sec. 426, Authority is extended until September 30, 

2007. 

P.L. 108-148, The Healthy Forests Restoration Act, December 3, 2003, An Act to improve 

the capacity of the Secretary of Agriculture and the Secretary of the Interior to conduct 

hazardous fuels treatment projects on National Forest and Bureau of Land Management lands 

aimed at protecting communities, watersheds and other at-risk lands from catastrophic wildfire 

• The Act grants authorities to the Secretary of Agriculture to work with states and colleges 

to address watershed issues on non-federal lands and establish a cost share fund. 

• The Act directs Secretary of Agriculture to establish a watershed forestry program in 

cooperation with Indian tribes and provide assistance to tribal lands. 

• The Secretary of Agriculture is directed to establish a healthy forests reserve program for 

private lands and an inventory and monitoring program on federal and state lands. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004, General 

Provisions Title III, Sec. 337 (Utah Good Neighbor), The Secretary may permit the State 

Forester of the State of Utah to perform forest, rangeland and watershed restoration services on 

NF system lands in the State of Utah until September 30, 2006. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004, General 

Provisions Title III, Sec. 341, The Secretary is authorized to make grants to the Eastern Nevada 

Landscape Coalition for the study and restoration of rangeland and other lands in Nevada’s Great 

Basin. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004

Title III – General Provisions, Sec. 348, Authorizes Secretary to further the scientific, policy 

analysis, educational and cultural programs in natural resource conservation at Grey Towers. 

NATIONAL FOREST SYSTEM 

General 

The Act of June 4, 1897, Organic Administration Act of 1897, as amended (16 U.S.C. 473-

478, 479-482, 551). Section 24. Administration, protection, and management of the national 

forests. Such sums as appropriated; no expiration date. 

P.L. 63-293, Use and Occupancy Permits Act of 1915, as amended. Issuance of permits for 

use and occupancy of suitable lands. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-9

P.L. 78-412, Department of Agriculture Organic Act of September 21, 1944 (7 U.S.C. 2250). 

Section 703. Erect, alter, and repair buildings necessary to carry out authorized work. 

P.L. 86-517, Act of June 12, 1960, 74 Stat. 215, Multiple-Use Sustained Yield Act of 1960 

(16 U.S.C. 528-531). Authorizes and directs the Secretary of Agriculture to develop and 

administer the renewable surface resources of the National Forests for multiple use and sustained 

yield of the several products obtained there from. 

P.L. 90-583, Carlson-Foley Act of 1968 (43 U.S.C. 1241-1243). Section 3. Authorizes 

reimbursement of States for noxious farm weed control on federal land. Such sums as 

appropriated; no expiration date. 

P.L. 92-82, Sisk Act of August 10, 1971 (16 U.S.C. 551(a)). Authorizes cooperation with 

States and political subdivision for enforcement of State laws on national forest lands and 

reimbursement of expenses incurred for such activities. Such sums as appropriated; no 

expiration date. 

P.L. 93-378, Forest and Rangeland Renewable Resources Planning Act, August 17, 1974, as 

amended (16 U.S.C. 1601 note). Sections 2-5. Requires preparation of a renewable resource 

assessment, program, plans, inventories, and budget request and update every 5 years. Such 

sums as appropriated; no expiration date. 

P.L. 94-588, National Forest Management Act of 1976, October 22, 1976 (16 U.S.C. 472(a-i) 

and 1601(d)(3)). Sections 1-14. Amends; Forest and Rangeland Renewable Resources Planning 

Act of 1974, and provides authority and requirements for sale of timber on National Forest 

System lands. Such sums as appropriated; no expiration date. Reforestation $200 million 

annually (16 U.S.C. 1601(d)(3). 

P.L. 99-570, Anti-Drug Abuse Act of 1986, Title XV, October 27, 1986, as amended by the 

Anti-Drug Abuse Act of 1988 (16 U.S.C. 559 b-f). Authorize Secretary of Agriculture to 

prevent and control drug abuse on the NFS lands, including investigative powers beyond the 

exterior boundaries of NFS lands. $10 million annually; no expiration date. 

P.L. 103-66, Omnibus Budget Reconciliation Act of 1993, August 10, 1993, Title I, Subtitle 

D, Section 1401, Admission, entrance, and recreation fees. Title X, Section 10001-10003, Fees, 

Title XIII, Section 13982, Sharing of Forest Service Timber Sale Receipts. Gives the Secretary 

of Agriculture the authority to charge admission or recreation use fees at lands administered by 

the Secretary. (16 U.S.C. 460l-6c). Amends the L&WCF Act to allow the Secretary of 

Agriculture and the Secretary of Interior to withhold 15 percent of L&WCF receipts to cover fee 

collection costs, establishes commercial tour use fees, authorizes the sale of Golden Eagles 

Passports by private businesses and other organizations, and mandates a 10 percent increase in 

communication site fees. (16 U.S.C 460). Sets out a schedule of 25-percent fund payments to 

states and counties affected by the northern spotted owl. (16 U.S.C 500 note.). 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-10

P.L. 104-106, National Defense Authorizations Act for Fiscal year 1996 (February 10, 1996). 

Established the Midewin National Tallgrass Prairie in Illinois, to be managed as part of the 

National Forest System. 

P.L. 105-277, The Department of Interior and Related Agencies Appropriations Act of 

1999. Authorizes the Forest Service to employ or contract with persons at regular pay rates to 

perform work caused by emergencies without regard to Sundays, Federal holidays, and the 

regular workweek. Authorizes the use of funds available to the Forest Service to disseminate 

program information to private and public individuals and organizations through the use of 

nonmonetary items of nominal value and to provide nonmonetary awards and incur necessary 

expenses for the recognition of private individuals and organizations making contributions to 

Forest Service programs. 

P.L. 106-291 Sec. 30. (Service First) Department of the Interior and Related Agencies 

Appropriations Act of 2001, Secretary of the Interior and Forest Service may pilot test agencywide joint permitting and leasing programs until September 30, 2004. P.L. 109-54, FY 2006 

Interior-Environment Appropriations Act, Sec. 428, extends the expiration date to September 

30, 2008. 

P.L. 106-291, Interior and other Related Agencies Appropriation Act of 2001, Sec. 320, 

Establishes an advisory committee to be known as the Forest Counties Payments Committee to 

develop recommendations regarding methods to ensure that States and counties in which Federal 

Lands are situated receive adequate Federal payments. P.L. 108-319, An Act to Extend the 

term of Forest County Payments Committee, extends authority until September 30, 2007. 

P.L. 106-393, Oct. 30, 2000, The Secure Rural Schools and Community Self-Determination 

Act of 2000. To restore stability and predictability to the annual payments made to States and 

counties containing National Forest System lands and public domain lands managed by the 

Bureau of Land Management for use by the counties for the benefit of public schools, roads, and 

other purposes. The authority to initiate projects under this title shall terminate on September 30, 

2006. 

P.L. 107-76, Agriculture, Rural Development, Food and Drug Administration, and Related 

Agencies Appropriations Act of 2002, for fiscal year ending September 30, 2002. For the 

purpose of making payments under section 102 of P.L. 106-393 (Act) to eligible States and 

eligible counties for fiscal years 2002 through 2006, as required by section 101(a)(1) of such 

Act, the Secretary of Agriculture shall revise the table referred to in subsection (a) to accurately 

reflect, to the maximum extent practicable, each eligible State's and eligible country's historic 

share of the 25 percent payments and safety net payments made for the fiscal years of the 

eligibility period. 

P.L. 108-319, October 5, 2004, To extend the term of the Forest Counties Payments Committee 

until September 30, 2007. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-11

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004

Title II – Administrative Provisions, Funds may be used for the purpose of expenses associated 

with primary and secondary schooling for dependents of agency personnel stationed in Puerto 

Rico. P.L. 109-54 Interior-Environment Appropriations for FY 2006, Administrative 

Provisions, extends authorization through FY 2009. 

Facilities 

P.L. 78-425, Department of Agriculture Organic Act of 1944 (7 U.S.C. 2250). Section 703. 

Erect, alter, and repair buildings and other improvements necessary to carry out authorized work, 

if provided for in applicable appropriation. Such sums as appropriated; no expiration date. 

P.L. 88-657, Act of October 13, 1964, National Forest Roads and Trail Systems Act (16 

U.S.C. 532-538); P.L. 85-767, Title 23, United States Code Highways (23 U.S.C. 205); P.L. 94-

588, National Forest Management Act of 1976 (16 U.S.C. 472a); P.L. 93-378, Forest and 

Rangeland Renewable Resources Planning Act of 1974, as amended, Section 10(a) (16 U.S.C. 

1608). Acquisition, construction and maintenance of forest development roads and trails, and 

cooperation with States, counties, and other subdivisions. Construction of roads by timber 

purchasers, or election to have Forest Service build. Such sums as appropriated; no expiration 

date. 

P.L. 89-106, The Act of August 4, 1965 (7 U.S.C. 2250a). Section 1. Authorizes expenditure 

of funds for erection of buildings and other structures, on non-federal lands, and for the 

acquisition of long term leases. Such sums as appropriated; no expiration date. 

P.L. 89-665, Historic Preservation Act of 1966; P.L. 93-291, Preservation of Historical and 

Archaeological Data Act of 1974, and P.L. 96-95, P.L. 106-355 as amended to establish a 

national historic lighthouse preservation program. The Archaeological Resources Protection Act 

of 1979, as amended (16 U.S.C. 469, 469a-1, 470a, 470f, 470h-2,470j, 470w-1, and 470aa-11). 

Authorizes use of appropriated funds for the preservation and protection of historical and 

archaeological resources. Such sums as necessary; no expiration date. 

P.L. 95-307, Forest and Rangeland Renewable Resources Research Act, June 30, 1978, as 

amended (16 U.S.C. 1643(a)). Section 3. Construction and acquisition of research laboratories 

and facilities. Such sums as necessary; no expiration date. 

P.L. 100-563, Act of October 31, 1988, Section 4. Strawberry Valley Land Compensation 

and Exchange. Provides for the exchange or sale of NFS lands, including any administrative 

sites and improvements thereon, described in subsection (h)(2). Acquisition of administrative 

sites and offices together with improvements thereon at either Provo, Utah County, Utah or near 

Heber City, Wasatch County, Utah. Sums collected are authorized for expenditure without 

further appropriation. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-12

P.L. 107-63, Interior and Related Agencies Appropriation Act of 2002, Pilot Program 

Authorizing Conveyance of Excess Forest Service Structures – The Secretary of Agriculture 

may convey by sale or exchange title to excess buildings and other structures located on National 

Forest System Lands. Limited to no more than 10 sites, proceeds can be retained for 

maintenance and rehabilitation activities. Authority expires on September 30, 2005. P.L. 108-

108, Interior and Related Agencies Appropriation Act of 2004, Extends authority for Pilot 

Program Authorizing Conveyance of Excess Forest Service Structures to no more than 30 sites 

and extending expiration date to September 30, 2007. P.L. 108-447, Consolidated 

Appropriations Act, 2005, December 8, 2004, Sec. 322, Extends authority until September 30, 

2008 and increases number of projects to 40. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004

Title II – Administrative Provisions, For FY’s 2005 & 2006, the Secretary may authorize the 

sale of excess buildings, facilities and other properties owned by the Forest Service and located 

on the Green Mountain NF and on the Wasatch-Cache NF’s and retain revenues. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004

Title III – General Provisions, Sec. 335, Authorizes Secretary to convey small parcels of land 

and use the proceeds for critical San Bernardino NF infrastructure improvements or to acquire 

additional lands with the NF boundary. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004 Title III – General 

Provisions, Sec. 346, GSA is authorized to convey property in Sandpoint, ID to the Secretary of 

Agriculture for use as an administrative site or to sell, lease or exchange property and retain 

receipts. 

P.L. 109-54, Fiscal Year 2006 Interior-Environment Appropriations, Title V – Facilities 

Realignment and Enhancement Act of 2005, Authorizes Secretary to convey administrative 

sites on National Forest System Lands and retain receipts for construction, maintenance and 

renovation of facilities for administrative purposes. 

P.L. 109-54, Fiscal Year 2006 Interior-Environment Appropriations Sec. 429. Authorizes 

Secretary to acquire by exchange or otherwise a parcel of real property including improvements 

of the Inland Valley Development Corp in San Bernardino, CA. 

Forest Health 

P.L. 108-148, The Healthy Forests Restoration Act, December 3, 2003, An Act to improve 

the capacity of the Secretary of Agriculture and the Secretary of the Interior to conduct 

hazardous fuels treatment projects on National Forest and Bureau of Land Management lands 

aimed at protecting communities, watersheds and other at-risk lands from catastrophic wildfire. 

P.L. 108-317, Southwest Forest Health and Wildfire Prevention Act of 2004, To establish 

Institutes to demonstrate and promote the use of adaptive ecosystem management to reduce the 

risk of wildfires, and restore the health of fire-adapted forest and woodland ecosystems of the 

interior West. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-13

P.L. 109-54, Interior-Environment Appropriations for FY 2006, Sec. 431, authorizes 

Secretary to make grants to the Eastern Nevada landscape coalition for the study and restoration 

of rangeland in order to help assure the reduction of hazardous fuels. 

Lands 

P.L. 68-575, The Act of March 3, 1925, as amended (16 U.S.C. 555). Section 5. Purchase of 

land and acceptance of donations of land. Such sums as necessary, not to exceed $50,000 per 

fiscal year; no expiration date. 

P.L. 75-210, Title III, The Bankhead-Jones Farm Tenant Act of July 22, 1937, as amended 

(7 U.S.C. 1010, 1011). Sections 31 and 32. Land acquisition, exchange, and authorities to 

correct maladjustments for land utilization purposes. Such sums as necessary; no expiration 

date. 

P.L. 84-979, The Department of Agriculture Organic Act of August 3, 1956 (7 U.S.C. 428a 

and (b)). Section 11. Authorizes acquisition of land or interests in land by purchase, exchange, 

or otherwise to carry out authorized work. Such sums specified by annual appropriation; no 

expiration date. 

P.L. 97-465, Small Tracts Act of January 22, 1983 (16 U.S.C. 521(d)). Authorizes the 

conveyance of NFS lands of forty acres or less and of $150,000 or less in value. Such sums as 

necessary; no expiration date. 

P.L. 100-409, Federal Exchange Facilitation Act of 1988, August 20, 1988 (43 U.S.C. 1716). 

Section 4. Funds to consider, process, and consummate land exchanges pursuant to the Federal 

Land Policy and Management Act of 1976. Amount not to exceed $4 million annually for 

fiscal years 1989 through 1998 for the Secretaries of Agriculture and Interior; no expiration date. 

P.L. 103-16, Sioux Ranger District, Custer National Forest Boundary Exchange, 107 Stat. 

49, April 12, 1993. Authorizes the Secretary of Agriculture to exchange lands within the Custer 

National Forest for certain lands which lie outside the proclaimed boundary of that Forest. 

P.L. 103-17, State of Idaho, 107 Stat. 50, April 12, 1993. Provides for Forest Service land 

exchanges with the state of Idaho. 

P.L. 103-46, Big Thicket National Preserve, 107 Stat. 1498, July 1, 1993. Adds acreage to the 

preserve and provides for land exchanges to increase the preserve. 

P.L 103-48, In Lieu Lands, 107 Stat. 234, July 2, 1993. Resolves the status of the base lands 

for which "in lieu selections" were never completed. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-14

P.L. 103-91, Gallatin Range Consolidation and Protection Act of 1993, 107 Stat. 987. 

Consolidates Federal and private land ownership in the Gallatin mountain range north of 

Yellowstone Park in southwestern Montana. Provides for land exchanges and acquisition. 

P.L. 103-93, Utah Schools and Lands Improvement Act of 1993, 107 Stat. 995, October, 1, 

1993. Authorizes the Secretary of Agriculture to accept land from the State of Utah in exchange 

for royalty receipts. 

P.L. 103-132, Old Taos District Office and Warehouse, 107 Stat. 1371, November 2, 1993. 

Directs the Secretary to convey certain lands, the old Taos Ranger District Office and 

Warehouse, to the town of Taos, New Mexico for the sum of $360,000. 

P.L. 103-450, Red Rock Canyon Conservation Area in Nevada, October 2, 1994, 108 Stat. 

4766. Expands the conservation area and provides for land exchange. 

P.L. 105-76, Boundary Adjustment and Land Conveyance, Raggeds Wilderness, White 

River National Forest, Colorado. Removes from the boundaries of the Raggeds Wilderness 

certain real property so as to permit the Secretary of Agriculture to use the authority of Public 

Law 977-465 (commonly known as the Small Tracts Act, 16 U.S.C. 521c) to convey the 

property to the landowners who occupied the property on the basis of erroneous land surveys. 

P.L. 105-77, Inclusion of Dillon Ranger District in White River National Forest, Colorado. 

The distribution of receipts (16 U.S.C. 500) from the Arapaho National Forest and the White 

River National Forest Forestry to the affected county governments shall be based on the national 

forest boundaries that existed on the day before the date of enactment of this Act. 

P.L. 105-277, The Department of Interior and Related Agencies Appropriations Act of 

1999. Authorizes the use of funds collected under the authority of section 101 of Public Law 93-

153 (30 U.S.C. 185(1)) as reimbursements of administrative and other costs incurred for 

processing pipeline right-of-way permit applications and other selected costs associated with any 

pipeline and related facilities, to reimburse appropriations originally charged for such costs. 

P.L. 106-66, Authorizes the Secretaries of Agriculture and the Interior to convey certain lands in 

San Juan County, New Mexico, to San Juan College. 

P.L. 106-113, Consolidated Appropriations Act for FY 2000. Title II Sec. 331.( Enhancing 

Forest Service Administration of Rights-of-way and Land Uses.) The Secretary of 

Agriculture shall develop and implement a pilot program for the purpose of enhancing forest 

service administration of rights-of-way and other land uses. The authority for this program shall 

be for fiscal years 2000 through 2004. P.L. 108-447, Consolidated Appropriations Act, 

2005”, December 8, 2004 Title III – General Provisions, Sec. 345, extends authorization until 

2005. 

P.L. 106-113, Consolidated Appropriations Act for FY 2000, Title II, Sec. 347, Snoqualamie 

National Forest Boundary Adjustment Act. Authorizes Secretary to adjust boundary. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-15

P.L. 106-113, Consolidated Appropriations Act for FY 2000, Title IV , Mississippi National 

Forest Improvement Act of 1999. Authorizes Secretary to sell or exchange certain parcels of 

National Forest System land in the State of Mississippi. 

P.L. 106-138, Terry Peak Land Transfer Act of 1999. Authorizes the Secretary of Agriculture 

to provide for the conveyance of certain National Forest System lands in the State of South 

Dakota. 

P.L. 106-144, December 7, 1999. Direct the Secretary of Agriculture to convey to the city of 

Sisters, Oregon, a certain parcel of land for use in connection with a sewage treatment facility. 

P.L. 106-187, (April 28, 2000) Authorizes the Secretary of Agriculture to convey certain 

National Forest lands to Elko County, Nevada, for continued use as a cemetery. 

P.L. 106-206, May 26, 2000. Allows the Secretary of the Interior and the Secretary of 

Agriculture to establish a fee system for commercial filming activities on Federal land. 

P.L. 106-257, Oregon Land Exchange Act of 2000, (August 8, 2000). To provide for the 

exchange of certain land in the State of Oregon. 

P.L. 106-272, Jackson Multi-Agency Campus Act of 2000, (September 22, 2000). Authorizes 

the development and maintenance of a multi-agency campus project in the town of Jackson, 

Wyoming. 

P.L. 106-283, Kake Tribal Corporation Land Transfer Act, (October 6, 2000). Authorize 

the reallocation of lands and selection rights between the State of Alaska, Kake Tribal 

Corporation, and the City of Kake, Alaska, in order to provide for the protection and 

management of the municipal watershed. To amend the Alaska Native Claims Settlement Act to 

provide for a land exchange between the Secretary of Agriculture and the Kake Tribal 

Corporation. 

P.L. 106-329, Black Hills National Forest and Rocky Mountain Research Station 

Improvement Act (October 19, 2000). 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 to 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 

P.L. 106-330, Texas National Forest Improvement Act of 2000, (October 19, 2000). 

Authorizes 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. 

P.L. 106-425, Santo Domingo Pueblo Claims Settlement Act of 2000, November 1, 2000. To 

settle the land claims of the Pueblo of Santo Domingo. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-16

P.L. 106-434, Nov. 06, 2000, provides for the conveyance of a small public domain land in the 

San Bernardino National Forest in the State of California, and for other purposes. 

P.L. 106-458, Arizona National Forest Improvement Act of 2000, (November 7, 2000). 

Authorizes the Secretary of Agriculture to convey certain administrative sites in national forest 

in the State of Arizona, to convey certain land to the City of Sedona, Arizona for a wastewater 

treatment facility. 

P.L. 106-558, Toiyabe National Forest Boundary Adjustment, to amend the National Forest 

and Public Lands of Nevada Enhancement Act of 1988 to adjust the boundary of the Toiyabe 

National Forest, Nevada, and to amend chapter 55 of title 5, U.S.C. to authorize equal overtime 

pay provisions for all Federal employees engaged in wildland fire suppression operations. 

P.L. 108-152, December 3, 2003, Florida Lands Act. An Act to authorize the Secretary of 

Agriculture to sell or exchange certain National Forest System lands in the State of Florida. 

P.L. 108-190, December 19, 2003, To provide for the exchange of certain lands in the Coconino 

and Tonto National Forests in Arizona. 

P.L. 108-230, May 28, 2004, To require the conveyance of certain National Forest System lands 

in Mendocino National Forest, California, to provide for the use of the proceeds from such 

conveyance for National Forest purposes. 

P.L. 108-269, July 2, 2004, To amend the Bend Pine Nursery Land Conveyance Act to direct 

the Secretary of Agriculture to sell the Bend Pine Nursery Administrative Site in the State of 

Oregon. 

P.L. 108-279, July 22, 2004, To resolve boundary conflicts in Barry and Stone Counties in the 

State of Missouri. 

P.L. 108-325, Craig Recreation Land Purchase Act, To authorize a land conveyance between 

the United States and the City of Craig, Alaska, and for other purposes. 

P.L. 108-337, October 18, 2004, Alaska Native Allotment Subdivision Act, To authorize the 

subdivision and dedication of restricted land owned by Alaska Natives. 

P.L. 108-338, October 18, 2004, To direct the Secretary of Agriculture to convey to the New 

Hope Cemetery Association certain land in the State of Arkansas for use as a cemetery. 

P.L. 108-341, October 18, 2004, To transfer administrative jurisdiction of certain Federal lands 

in Missouri from the Secretary of the Interior to the Secretary of Agriculture for continued 

Federal operation of the Mingo Job Corps Civilian Conservation Center. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-17

P.L. 108-346, October 18, 2004, Arapaho and Roosevelt National Forests Land Exchange 

Act of 2004, To direct the Secretary of Agriculture to exchange certain lands in the Arapaho and 

Roosevelt National Forests in the State of Colorado. 

P.L. 108-350, October 21, 2004, To authorize the Secretary of Agriculture to sell or exchange 

all or part of certain administrative sites and other land in the Ozark-St. Francis and Ouachita 

National Forests and to use funds derived from the sale or exchange to acquire, construct, or 

improve administrative sites. 

P.L. 108-367, October 25, 2004, To Expand the Boundaries of Fort Donelson National 

Battlefield, The Secretary of Agriculture and the Secretary of the Interior shall enter into a 

memorandum of understanding to facilitate cooperatively protecting and interpreting the 

remaining vestige of Fort Henry and other remaining Civil War resources in the Land Between 

the Lakes National Recreation Area affiliated with the Fort Donelson campaign. 

P.L. 108-381, October 30, 2004, To provide for the conveyance of several small parcels of 

National Forest System land in the Apalachicola National Forest, Florida, to resolve boundary 

discrepancies involving the Mt. Trial Primitive Baptist Church of Wakulla County, Florida, and 

for other purposes. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004

Title III – General Provisions, Sec. 342, The Secretary is authorized to convey in fee simple 

without compensation, of federal land comprising approximately .29 acres to the Community of 

Elfin Cove, Alaska. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004 Title III – General 

Provisions, Sec. 347, The Secretary may carry out the exchange agreement entered into by the 

Forest Service and the Board of Trustees of the Internal Improvement Trust Fund of the State of 

Florida, dated March 5, 2004. 

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004

Title III – General Provisions, Sec. 349, (Montana Forests Boundary Adjustment Act of 

2004), The boundaries of NF’s in Montana are adjusted. 

P.L. 109-46, Lander County Land Exchange – August 2, 2005, A bill to direct the secretary of 

Agriculture to convey certain land to Lander County, Nev. 

P.L. 109-110, November 22, 2005, Northern Arizona Land Exchange and Verde River Basin 

Partnership Act of 2005, A bill to provide for a land exchange in the State of Arizona between 

the Secretary of Agriculture and Yavapai Ranch Limited Partnership.
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-18

LAND ACQUISITION 

P.L. 61-435, Weeks Act, March 1, 1911, as amended by P.L. 94-588 (16 U.S.C. 516, 521b). 

Sections 1 and 2. Land acquisition for watershed protection and timber production. Such sums 

as necessary; no expiration date. 

P.L. 733, Superior National Forest, Minnesota Act of June 22, 1948 (16 U.S.C. 577h). 

Purchase and condemnation of lands in northern Minnesota. 

P.L. 76-589, 76-591, and 78-301 (54 Stat. 297 and 299 and 58 Stat. 227) Land acquisition for 

watershed protection and timber production within the exterior boundaries of the Cache, Uinta, 

Wasatch National Forest, Utah; the Toiyabe National Forest, Nevada; and the Angeles San 

Bernardino, Sequoia, and Cleveland National Forests, California. Toiyabe -$10,000 annual 

limit. Other such sums as available from the receipts of each national forest as appropriated; no 

expiration date. 

P.L. 84-950, Department of Agriculture Organic Act of 1956 (7 U.S.C. 428a(a)). Acquisition 

of land by purchase, exchange or otherwise, to carry out authorized work, provided that 

provision therefore is made in applicable appropriation. Such sums as necessary; no expiration 

date. 

P.L. 88-577, Wilderness Act, September 3, 1964. Sections 5 and 6 (16 U.S.C. 1121(note), 

1131-1136). Land acquisition, exchange, donation for wilderness purposes. Such sums as 

appropriation; no expiration date. 

P.L. 88-578, Land and Water Conservation Fund Act of 1965, as amended (16 U.S.C. 4601-4 

to 460l-11). Acquisition of lands and other purposes. 

P.L. 90-171, Act of December 4, 1967, Land Exchanges in the National Forests, as amended 

(16 U.S.C. 484a). Acquisition of lands to complete land exchange with public schools and State 

and local governments. Such sums as appropriated; no expiration date. 

P.L. 90-542, Wild and Scenic Rivers Act, October 2, 1968. Sections 6 and 16 (16 U.S.C. 

1277). Land acquisition, exchange, donation of land for inclusion in wild and scenic rivers 

system. Such sums as appropriated; no expiration date. 

P.L. 90-543, National Trails System Act, October 2, 1968, as amended by P.L. 98-11 (16 

U.S.C. 1241-1251). Sections 7 and 10. Land acquisition, exchange, donation of land for 

inclusion in the national trails system. Such sums as appropriated; no expiration date. 

P.L. 93-205, Endangered Species Act, December 28, 1973. Sections 5 and 15. (16 U.S.C. 

1534 and 1542) Acquisition for protection of threatened and endangered species. Such sums as 

necessary; no expiration date. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-19

P.L. 93-622, Eastern Wilderness Act, January 3, 1975. Sections 6 and 9. (16 U.S.C. 1132 

(note)). Land acquisition, exchange, donation of land for wilderness purposes. Such sums as 

appropriated; no expiration date. 

P.L. 95-442, Act of October 10, 1978 (7 U.S.C. 2269). Donations of land or interests in land. 

Such sums as necessary; no expiration date. 

P.L. 95-495, the Boundary Waters Canoe Area Wilderness Act of October 21, 1978. Section 

7(d)(3). For the acquisition of lands and waters within the designated wilderness. Such sums as 

may be necessary; no expiration date. 

P.L. 96-586, Lake Tahoe Basin Act, December 23, 1980. Sections 2 and 3. Land acquisition 

in the Lake Tahoe Basin. Such sums as appropriated; no expiration date. 

P.L. 99-663, Columbia River Gorge National Scenic Area Act, November 17, 1986, 

Columbia River Gorge National Scenic Area Act of November 17, 1986. 

Authorizes assistance to the Columbia Gorge Commission. Authorizes operation and 

maintenance of facilities included in the recreation assessment on non-federal lands. Provides 

for the completion of a resource inventory for the special management areas including private 

lands. Provides for the payment of $5,000,000 each to the States of Oregon and Washington for 

use by the States to make grants and loans for economic development projects. Provides for 

technical assistance to States and others. Provides for payments to counties in connection with 

the acquisition of lands or interests therein in an amount equal to one percent of the fair market 

value on the date of acquisition. $40 million; no expiration date 

P.L. 102-220, Greer Spring Acquisition and Protection Act of December 11, 1991. Section 2. 

Authorizes and directs the Secretary of Agriculture to acquire land from willing seller in 

Denning tract within the Mark Twain National Forest of Missouri. Authorizes such sums as 

necessary; no expiration date. Additional authorities are provided in each of the acts establishing 

national recreation areas and wilderness in other specific laws. 

P.L. 108-108, November 10, 2003, The Department of the Interior and Related Agencies 

Appropriations Act. Title III, Sec 333. The Secretary of Agriculture is authorized to transfer to 

a Special Account receipts from timber sales, land conveyances, land acquisition funds and 

excess receipts to be expended for the completion of land acquisitions authorized under the 

Gallatin Land Consolidation Act of 1998. The Special Account shall be closed at the end of FY 

2008. 

Minerals/Energy 

U.S. Mining Laws Act of May 10, 1872, as amended (30 U.S.C. 22, 28). Governs mining 

activities for valuable minerals on public domain lands. 

P.L. 80-291, Mineral Materials Act of 1947, as amended (30 U.S.C. 226, 601-602, and 611). 

Dispose of mineral materials. Issue permits for oil and gas exploration. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-20

P.L. 84-375, Act of July 23, 1955, 69 Stat. 367; P.L. 100-203 Federal Onshore Oil and Gas 

Leasing Reform Act of 1987 (30 U.S.C. 226 and 601). Authority to dispose of mineral 

material, and approve and issue permits to explore and develop oil and gas leases. No specific 

sums; no expiration date. 

P.L. 109-58, Energy Policy Act of 2005, August 6, 2005. Requires the Departments of 

Agriculture, Commerce and the Interior to jointly develop a rule that enables parties to Federal 

Energy Regulatory Commission (FERC) hydropower license proceedings to request trial-type 

hearings on disputed issues of material fact and to consider alternative conditions for licenses; 

establishes five categorical exclusions related to oil and gas development on five acres or less of 

NFS lands; directs the Forest Service to expedite agency approvals of transmission facility rightof-ways vegetation management plans submitted by permittees. 

Recreation/Trails/Rivers 

P.L. 88-578, Land and Water Conservation Fund Act, as amended by the Omnibus Budget 

Reconciliation Act of 1993 (16 U.S.C. 460l-6a(i)(1)(B)). Authorizes retention of up to 15% of 

fees collected for admission and use of recreation areas to cover the cost of collecting the fees. 

Sections referring to fees repealed with P.L. 108-447, Consolidated Appropriations Act, 

2005”, (Div J, Title VIII – Federal Lands Recreation Enhancement Act), December 8, 2004.

P.L. 88-657, Act of October 13, 1964, National Forest Roads and Trails Systems Act (16 

U.S.C. 532-538). Sections 1-7. Authorizes acquisition, construction, and maintenance of forest 

roads and trails. Such sums as appropriated; no expiration date. 

P.L. 90-543, National Trails System Act, October 2, 1968, as amended by P.L. 98-11 (16 

U.S.C. 1241-1251). Sections 7 and 10. Land acquisition, exchange, donation. Management, 

development and volunteer assistance of the national trails system. Section 10. Authorizes 

administration, development, and maintenance of national trails; assistance to and from volunteer 

organizations and volunteers. Such sums as appropriated; no expiration date. 

P.L. 90-542, Wild and Scenic Rivers Act of October 2, 1968 (16 U.S.C. 1271-1287). 

National wild and scenic rivers system components. Such sums as appropriated; no expiration 

date. 

P.L. 95-495, Act of October 21, 1978 (92 Stat. 1649). Sections 18(e). Construction of 

dispersed recreation sites and trails outside the Boundary Waters Canoe Area Wilderness. Such 

sums as necessary; no expiration date. 

P.L. 101-612, Smith River National Recreation Area Act, November 16, 1990. Established 

the Smith River National Recreation Area in northern California. Authorized entitlement 

payments to counties within the NRA, for a period of 12 years whenever the annual payment to 

the State of California pursuant to 16 U.S.C. 500 for the benefit of the counties falls below the 

average payment over a specified 5-year period. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-21

P.L. 103-63, Spring Mountains National Recreation Area Act of October 26, 1993. 

Establishes a 316,000 acre National Recreation Area within the Toiyabe National Forest. 

Section 7 authorizes land acquisition. 

P.L. 103-104, Jemez National Recreation Area Act of October 12, 1993. Establishes a 57,000 

acre National Recreation Area within the Santa Fe National Forest. Section 5(b)(1) authorizes 

land purchase. 

P.L. 104-134, Interior and Related Agency Appropriations for FY 1996, (Recreation Fee 

Demonstration Program), Provides authority to implement a fee program to demonstrate the 

feasibility of user-generated cost recovery for the operation and maintenance of recreation areas 

or sites on federal lands. Authority to collect fees until September 30, 1998 and expend funds 

until September 30, 2001 P.L. 108-108, November 10, 2003, The Department of the 

Interior and Related Agencies Appropriations Act. Extends authority to collect fees under 

the Fee Demonstration Program until December 31, 2005 and to expend funds under this 

authority until December 31, 2008. Authorizes the Secretary of Agriculture to conduct projects 

that are necessary to rehabilitate and restore lands in the North Fork drainage on the Flathead 

National Forest. 

P.L. 105-277, The Department of Interior and Related Agencies Appropriations Act of 

1999 (Land Between the Lakes Protection Act) as contained in the Department of Interior and 

Related Agencies Appropriations Act of 1999. Establishes the Land Between the Lakes National 

Recreation Area as a unit of the National Forest System. 

P.L. 106-351, Santa Rosa and San Jacinto Mountains National Monument Act of 2000 

(October 24, 2000). Established the Santa Rosa and San Jacinto Mountains National Monument 

in the State of California. 

P.L. 106-431, Saint Helena Island National Scenic Area Act, November 6, 2000. To 

establish the Saint Helena Island National Scenic Area. 

P.L. 108-7, February 20, 2003 Consolidated Appropriations Resolution of 2003. (National 

Forest Organizational Camp Fee Improvement Act of 2003) – Establishes a land use fee 

system that provides equitable return to federal government for occupancy and use by 

organizational camps. 

P.L. 108-367, Fort Donelson National Battlefield Expansion Act of 2004, Sec 5. The 

Secretary of Agriculture and the Secretary of the Interior shall enter into a memorandum of 

understanding to facilitate cooperatively protecting and interpreting the remaining vestige of Fort 

Henry and other remaining Civil War resources in the Land Between the Lakes National 

Recreation Area affiliated with the Fort Donelson campaign. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-22

P.L. 108-447, Consolidated Appropriations Act, 2005, December 8, 2004, General 

Provisions Title III, Sec. 340 (Salmon River Camps), Authorizes commercial outfitter hunting 

camps on the Salmon River to continue to be authorized, subject to such reasonable regulation as 

the Secretary deems appropriate. 

P.L. 108-447, Consolidated Appropriations Act, 2005, (Div J, Title VIII – Federal Lands 

Recreation Enhancement Act), December 8, 2004, Beginning in FY 2005, and thereafter, the 

Secretary may establish, modify, charge and collect recreation fees at Federal recreation lands 

and waters as provided for in the Act. Authority terminates 10 years after the date of enactment. 

Timber/Vegetation 

P.L. 81-348, Act of October 11, 1949, Anderson-Mansfield Reforestation and Revegetation 

Act, (16 U.S.C. 581j-k). Sections 1 and 2. Authorizes funding to provide for reasonable 

continuity of reforestation and range revegetation programs. Authorize acquisitions of land for 

nurseries. Such sums as needed; no expiration date. 

P.L. 101-626, Tongass Timber Reform Act, January 23, 1990, 104 Stat. 4426 (16 U.S.C 

539d-e,1132). Amended the Alaska National Interest Lands Conservation Act, to protect certain 

lands in the Tongass National Forest in perpetuity, to modify certain long-term timber contracts, 

to provide for protection of riparian habitat, and for other purposes. 

Presidential Proclamation, Giant Sequoia in National Forests, July 14, 1992. Directs the 

Secretary of Agriculture to delineate the boundaries of Giant Sequoia groves on the Sequoia, 

Sierra, and Tahoe National Forests. Provides that designated groves will not be managed for 

timber production or included in the land base used to establish allowable sale quantities for the 

affected national forest. 

P.L. 103-443, Timber Sale Receipts (November 2, 1994). Authorizes and directs payment of 

the Northern Spotted Owl Guarantee from any moneys in the Treasury not otherwise 

appropriated. 

P.L. 104-134 The Omnibus Consolidated Rescissions and Appropriations Act of 1996 

(April 26, 1996). Established new accounts, Timber Sales Pipeline Restoration Funds, for 

Interior and Agriculture for deposit of a portion of receipts from certain timber sales to be used 

for preparation of additional timber sales which are not funded by annual appropriations, and for 

the backlog of recreation projects. Permanent Appropriation; termination date to be determined 

by the Secretaries under provisions of the Act. 

P.L. 106-113, FY 2000, Consolidated Appropriations, Sec. 339, Pilot Program of Charges 

and Fees for Harvest of Forest Botanical Products. Pilot program to charge and collect not 

less than fair market value for forest botanical products harvested on National Forests. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-23

P.L. 109-54 Fiscal 2006 Interior-Environment Appropriations Sec. 412 August 2, 2005-

Amendment in Section 3(a) of the Act of June 9, 1930 (commonly known as the KnutsonVandenberg Act; 16 U.S.C. 576b). Expands use of KV funds for National Forest purposes. 

Tribal 

P.L. 106-511, Cheyenne River Sioux Tribe Equitable Compensation Act, November 13, 

2000. Provides for equitable compensation for the Cheyenne River Sioux Tribe. 

P.L. 108-7, February 20, 2003 Consolidated Appropriations Resolution of 2003. (Tu’f Shur 

Bien Preservation Trust Act) – Established preservation trust area on the Cibola National 

Forest and resolves claims by Pueblo Tribe. 

P.L. 108-67, August 1, 2003, An Act to direct the Secretary of Agriculture to convey 24.3 acres 

in the Lake Tahoe Basin Management Unit located in Nevada to the Secretary of Interior in trust 

for the Washoe Indian Tribe of California and Nevada. 

P.L. 108-278, July 22, 2004, Tribal Forest Protection Act, To authorize the Secretary of 

Agriculture and the Secretary of the Interior to enter into an agreement or contract with Indian 

tribes meeting certain criteria to carry out projects to protect Indian forest land. 

Watershed 

P.L. 95-200, November 23, 1977, to provide improved authority for the administration of 

certain national forest system lands in Oregon. Establishes the Bull Run Watershed Management 

Unit within the Mount Hood National Forest, Oregon, to be administered by the Secretary of 

Agriculture. 

P.L. 96-586, Act of December 23, 1980. Section 2(h). Prevent, control, and mitigate water 

pollution, and manage NFS lands within the lake Tahoe Basin. Authorizes 5 percent of the 

L&WCF appropriation for Lake Tahoe Basin land acquisition each year. Expires when all Clark 

County, Nevada, land specified in the act is sold by the U.S. Department of Interior, BLM. 

P.L. 102-338, Zuni River Watershed Act of 1992, August 11, 1992. Authorizes Secretary of 

Agriculture to conduct a study and prepare a plan for watershed protection and rehabilitation of 

the portion of the Zuni River Watershed that is upstream from the Zuni Indian Reservation on 

both public and private lands. Such sums as necessary; no expiration date. 

P.L. 106-506, Lake Tahoe Restoration Act (November 13, 2000). To promote environmental 

restoration around the Lake Tahoe basin. 

P.L. 107-30, August 20, 2001, to provide further protections for the watershed of the Little 

Sandy River as part of the Bull Run Watershed Management Unit, Oregon. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-24

Wilderness 

P.L. 95-495, Boundary Waters Canoe Area Wilderness (BWCAW) Act of October 21, 1978

(92 Stat. 1649), Section 11(f) and 18(e). Authorizes appropriations for acquisition of minerals 

and mineral rights, and expansion of dispersed recreation outside the BWCAW. Such sums as 

necessary; no expiration date. 

P.L. 105-75, Slate Creek Addition to Eagles Nest Wilderness, Arapaho and White River 

National Forests, Colorado. Provides for the expansion of the Eagles Nest Wilderness within 

the Arapaho National Forest and the White River National Forest, Colorado to include land 

known as the Slate Creek Addition. 

P.L. 106-156, Dugger Mountain Wilderness Act of 1999, (December 9, 1999). To designate 

certain Federal lands in the Talladega National Forest in the State of Alabama as the Dugger 

Mountain Wilderness. 

P.L. 106-456, Spanish Peaks Wilderness Act of 2000, (November 7, 2000). Designate certain 

land in the San Isabel National Forest in the State of Colorado as the “Spanish Peaks 

Wilderness”. 

P.L. 106-471, November 9, 2000, to designate certain National Forest System lands within the 

boundaries of the State of Virginia as wilderness areas. 

P.L. 108-95, October 3, 2003, Mt Naomi Wilderness Act An Act to make certain adjustments 

to the boundaries of the Mount Naomi Wilderness Area which is located in the State of Utah. 

P.L. 109-44, Upper White Salmon Wild and Scenic Rivers Act, August 2, 2005, designate a 

portion of the White Salmon River in the State of Washington, as a component of the National 

Wild and Scenic Rivers System. 

P.L. 109-118, December 1, 2005, Caribbean National Forest Act of 2005, Designates certain 

National Forest System land in the Commonwealth of Puerto Rico as a component of the 

National Wilderness Preservation System.

PERMANENT APPROPRIATIONS 

P.L. 62-430, Act of March 4, 1913 (16 U.S.C. 501) (Department of Agriculture Appropriations 

Act). Forest Road and trail improvements--10 percent financed from National Forest receipts. 

Permanent appropriations; no expiration date. 

P.L. 64-190, Act of August 11, 1916 (Department of Agriculture Appropriations Act), as 

amended (16 U.S.C. 490). Section 6. Disposal of brush and other debris due to timber sales in 

national forests. Permanent appropriations; no expiration date. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-25

P.L. 82-359, Act of May 23, 1952, as amended (16 U.S.C. 580p-2; 18 U.S.C. 711). Section 3. 

Forest fire prevention campaign (Smokey Bear). Permanent appropriations; no expiration date. 

P.L. 84-979, Department of Agriculture Organic Act of 1956, as amended by the Act of 

October 23, 1962 (16 U.S.C.579b). To provide services to Forest Service programs through use 

of a revolving fund. Such sums as are available; no expiration date. 

P.L. 85-464, Act of June 20, 1958 (16 U.S.C. 579C). Section 7. Restoration, improvements, 

and protection of Forest Service lands. Permanent appropriations; no expiration date. 

P.L. 93-318, Act of June 22, 1974, as amended (16 U.S.C. 580p--p-4; 18 U.S.C. 711, 711a; and 

31 U.S.C. 488a, 4886-3--4886-6). Section 1-6. Woodsy Owl antipollution campaign. Permanent 

appropriations; no expiration date. 

P.L. 94-579, Federal Land Policy and Management Act of 1976; (43 U.S.C. 1751), as 

amended by P.L. 95-514, Public Rangelands Improvement Act of 1978 (43 U.S.C. 1751(b)(1). 

Authorizes appropriation of one-half of grazing receipts from national forest in the 16 Western 

States for range rehabilitation, protection, and improvements on the national forests from which 

collected. One-half of grazing receipts per annum; no expiration date

P.L. 94-588, National Forest Management Act of 1976, October 22, 1976 (16 U.S.C. 472(h) 

and (i). Section 14(h) and (i). Timber salvage fund for harvesting insect infested, dead, and 

damaged trees. Section 472a(h). Timber purchaser roads constructed by the Forest Service. 

Section 472a(i). Permanent appropriations; no expiration date. 

P.L. 98-473, Title 1, Continuing Appropriations Act of 1985, Interior and Related Agency 

Appropriations, Title III (98 Stat. 1874; 5 U.S.C. 5911 as amended). Section 320. Fund for 

the operation and maintenance of Forest Service quarters. Permanent appropriations; no 

expiration date. 

P.L. 101-335, Pacific Yew Act, Act of August 7, 1992. Provides for the management of 

Federal lands containing the Pacific Yew to ensure a sufficient supply of taxol, a cancer 

treatment drug made from the Pacific Yew. Authorizes the use of amounts received from the 

sale of Pacific Yew to pay the costs incurred by the Secretary (Agriculture and/or Interior) 

associated with the harvest and sale of Pacific Yew. Permanent appropriations; no expiration 

date. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-26

EXPIRING AUTHORITIES 

The following authorities will expire in either FY 2006 or FY 2007. 

P.L. 106-393, Oct. 30, 2000, The Secure Rural Schools and Community Self-Determination 

Act of 2000. To restore stability and predictability to the annual payments made to States and 

counties containing National Forest System lands and public domain lands managed by the 

Bureau of Land Management for use by the counties for the benefit of public schools, roads, and 

other purposes. The authority to initiate projects under this title shall terminate on September 30, 

2006.

P.L. 106-113, Consolidated Appropriations Act for FY 2000. Title II Sec. 331.( Enhancing 

Forest Service Administration of Rights-of-way and Land Uses.) The Secretary of 

Agriculture shall develop and implement a pilot program for the purpose of enhancing forest 

service administration of rights-of-way and other land uses. The authority for this program shall 

be for fiscal years 2000 through 2004. P.L. 108-447, Consolidated Appropriations Act, 

2005”, December 8, 2004 Title III – General Provisions, Sec. 345, extends authorization until 

2005. P.L. 109-54, Title III, General Provisions, Sec. 425, extends authorization until 2006. 

P.L. 108-447, Consolidated Appropriations Act, 2005”, December 8, 2004

Title II – Administrative Provisions, Beginning on June 30, 2001 and concluding on 

December 31, 2005, an eligible individual who is employed in any project funded under title V 

of the Older American Act of 1965 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. P.L. 109-54, 

Interior-Environment Appropriations for FY 2006, extends authority until September 30, 

2006. 

P.L. 108-447, Consolidated Appropriations Act, 2005”, December 8, 2004, General 

Provisions Title III, Sec. 337 (Utah Good Neighbor), The Secretary may permit the State 

Forester of the State of Utah to perform forest, rangeland and watershed restoration services on 

NF system lands in the State of Utah until September 30, 2006. 

P.L. 108-7, Interior and Related Agencies Appropriations Act of 2003, Sec. 321, Authority 

for Secretary to enter into agreements that are mutually significant. P.L. 109-54 FY 2006 

Interior-Environment Appropriations, Sec. 426, Authority is extended until September 30, 

2007. 

P.L. 106-291, Interior and other Related Agencies Appropriation Act of 2001, Sec. 320, 

Establishes an advisory committee to be known as the Forest Counties Payments Committee to 

develop recommendations regarding methods to ensure that States and counties in which Federal 

Lands are situated receive adequate Federal payments. P.L. 108-319, An Act to Extend the 

term of Forest County Payments Committee, extends authority until September 30, 2007. 
FY 2007 Budget Justification USDA Forest Service 

Authorities 16-27

P.L. 95-313, Cooperative Forestry Assistance Act, (Forest Land Enhancement Program)

Establishes the Forest Land Enhancement Program and provides $100 million of funds from the 

CCC for financial, technical, educational, and related assistance to State Foresters to cost-share 

activities on private forest lands through fiscal year 2007. 

P.L. 106-224, Biomass Research and Development Act of 2000, Added new section 310(a) of 

the Biomass Research and Development Act of 2000 that provides $14 million annually from the 

CCC to carry out activities under the title through September 30, 2007. 

P.L. 101-624, Global Climate Change Prevention Act of 1990, Extended the authorization of 

the Forest Service International Programs through fiscal year 2007.