United States Department of Agriculture 

Forest Service 

Photo of Olympic National Forest 

Fiscal Year 2009 

President’s Budget 

Budget Justification
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FY 2009 Budget Justification USDA Forest Service

FY 2009 USDA Forest Service Budget Justification Errata

This FY 2009 Budget Justification that is posted on the Forest Service website contains 

the errata listed below. 

Overview, Page D1 and D2: Corrects percent change for EAP; NFS supplemental in FY 

2007, and WFM Emergency and Supplemental funding change FY 2009 vs FY 

2008; displays funding for Research FIA program. 

Page D4: Corrects funding shown for Federal Lands Recreation Enhancement Fund 

and Federal Lands and Facilities Enhancement Fund 

Page G-8: Corrected truncated measure in Capital Improvement and Maintenance 

Section H: FY 2009 Facilities Program project list replaced 

Budget At A Glance, Page 2-4: Corrected Percent Program Change for Subsistence 

 Management 

Strategic Plan and Performance Management, Page 3-16: Correction of FY 2009 target 

 for Performance Measure 3.1.a 

National Fire Plan, Page 4-6: Updated number and percent of acres treated for Forest 

 Service under Goal 3; added DOI acres and percent 

Page 4-7 and 8: Corrects tables related to DOI and Forest Service National Fire Plan 

 funding 

Appropriations Language Changes, Page 5-22: Correction of Public Law number in 

 Section 417. 

Forest & Rangeland Research, Page 6-6: Corrects number of States in FIA in 2007. 

State & Private Forestry, Page 7-6: Corrected output for Federal acres treated – Native 

 pests in FY 2009

Page 7-17: Corrects funding for FY 2008 in funding table 

Page 7-20: Corrects and updates various numbers in first two paragraphs on page.

Page 7-23: Removed incorrect footnote from Program Performance table 

National Forest System, Page 8-1: Corrects several BLI names and brackets non-add 

 funds in appropriation table.

Page 8-8: Corrects funding activity name

Page 8-11: Corrects BLI name; updates Recreation Opportunities outputs and 

projected outputs 

 Page 8-17: Corrects acres of terrestrial habitat improvement 

Page 8-29: Updates number of allotments receiving NEPA analysis. 

Page 8-41: Bar chart moved to appropriate section 

Page 8-45: Replaces text under FY 2009 Program Changes to more correctly describe 

program. 
FY 2009 Budget Justification USDA Forest Service

Wildland Fire Management, Page 9-18: Corrects FY 2008 Plan amount for NFP Federal 

 Acres treated for native pests

Capital Improvement & Maintenance, 

Page 10-2: Corrects funding split between maintain and improve facilities activities 

in table and funding and outputs in narrative 

Page 10-5 to 10-9: Updates Facilities Project List 

Page 10-11: Corrects narrative regarding funding source for decommissioned roads 

 activities 

Page 10-12: Removes incorrect reference to bridge replacement under Maintenance 

 activities 

Page 10-14: Corrects amounts of planned trail maintenance, relocation, and 

construction outputs 

Permanent Appropriations, Page 13-3: Removes incorrect statements regarding brush 

 disposal and hazardous fuels goals accomplishments 

Page 13-7: Updates amount of funds planned for expenditure in FY 2008 and 2009. 

Page 13-9: Updated information on deposits to fund. 

Trust Funds, Page 14-4a and 14-4b: Inserted tables of K-V Planned Programs of Works 

for FY 2008 and FY 2009. 

----------------------------------- 

 
FY 2009 Budget Justification USDA Forest Service

Table of Contents i 

 USDA Forest Service 

FY 2009 Budget Justification 

Table of Contents

 

Page

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

Budget at a Glance................................................................................................................... 2-1 

Strategic Plan and 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................................................................................................................. 7-6 

 Cooperative Lands ......................................................................................................... 7-9 

 Cooperative Fire Protection ............................................................................................... 7-12

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

 Volunteer Fire Assistance............................................................................................ 7-15 

 Cooperative Forestry.......................................................................................................... 7-17 

 Forest Stewardship....................................................................................................... 7-18 

 Forest Legacy Program................................................................................................ 7-20 

 Urban and Community Forestry .................................................................................. 7-23 

 Economic Action Programs ......................................................................................... 7-25 

 Forest Resources Information and Analysis ................................................................ 7-26 

 International Forestry......................................................................................................... 7-28 

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

Land Management Planning ................................................................................................ 8-3 

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

 Recreation, Heritage, and Wilderness................................................................................ 8-11 

 Wildlife and Fisheries Habitat Management .................................................................... 8-16 

 Grazing Management......................................................................................................... 8-20 

 Forest Products................................................................................................................... 8-23 

 Vegetation and Watershed Management ........................................................................... 8-28 

 Minerals and Geology Management.................................................................................. 8-33 

 Landownership Management............................................................................................. 8-38 

 Law Enforcement Operations ............................................................................................ 8-43 

 Valles Caldera National Preserve ...................................................................................... 8-45 

 
FY 2009 Budget Justification USDA Forest Service

Table of Contents ii 

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

 Preparedness ........................................................................................................................ 9-2 

 Fire Operations -- Suppression ............................................................................................ 9-5 

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

 Hazardous Fuels........................................................................................................... 9-10 

 Rehabilitation and Restoration..................................................................................... 9-13 

 Fire Research and Development .................................................................................. 9-14 

 Joint Fire Sciences Program......................................................................................... 9-16 

 Forest Health Mangement – Federal Lands................................................................. 9-18 

 Forest Health Mangement – Cooperative Lands ......................................................... 9-20 

 State Fire Assistance.................................................................................................... 9-23

 Volunteer Fire Assistence............................................................................................ 9-25 

 

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

Facilities............................................................................................................................. 10-2 

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

 Trails ................................................................................................................................ 10-14 

 Deferred Maintenance and Infrastructure Improvement.................................................. 10-16

 Legacy Roads and Trails.................................................................................................. 10-18

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

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

 Acquisition of Lands to Complete Land Exchanges.......................................................... 11-1 

Other Appropriations

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

 Gifts, Donations, and Bequests for Forest and Rangeland Research................................. 12-2 

 Management of National Forest Lands for Subsistence Uses ........................................... 12-3 

 

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

 Brush Disposal................................................................................................................... 13-3 

 Licensee Program (Smokey Bear and Woodsy Owl) ........................................................ 13-4 

 Restoration of National Forest Lands and Improvements ................................................. 13-5 

 Recreation Enhancement Program..................................................................................... 13-7 

 Land and Facility Enhancement Fund ............................................................................... 13-9 

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

 Timber Salvage Sale Fund............................................................................................... 13-19 

 Stewardship Contracting.................................................................................................. 13-21

 Timber Sales Pipeline Restoration Fund.......................................................................... 13-24 

 Forest Botanicals.............................................................................................................. 13-26 

 Roads and Trails (10 Percent Fund)................................................................................. 13-27 

 Midewin National Tall Grass Prairie Rental Fee Fund ................................................... 13-28 

 Midewin National Tall Grass Prairie Restoration Fund .................................................. 13-29 

 Operation and Maintenance of Quarters.......................................................................... 13-30 

 Land Between the Lakes Management Fund................................................................... 13-31 

 Valles Caldera Fund......................................................................................................... 13-33 

 Administration of Rights-of-Way and Other Land Uses ................................................. 13-34 
FY 2009 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 ................................................................................................. 14-5 

 Land Between the Lakes.................................................................................................... 14-7

 Reforestation...................................................................................................................... 14-9 

Special Exhibits

 1 Allocations by Regions, Stations, and Area, FY 2007-2009 ....................................... 15-1 

 2 Business Operations Transformation Assessment..................................................... 15-12 

3 Challenge Cost Share and Partnerships ..................................................................... 15-14 

4 Conservation Education............................................................................................. 15-16 

 5 Deferred Maintenance................................................................................................ 15-18 

 6 Expiring Authorities................................................................................................... 15-22

 7 Facilities Maintenance Assessment ........................................................................... 15-24 

 8 Forest Products Laboratory Modernization ............................................................... 15-26 

 9 Indirect Costs.............................. ................... .......................................15-28 

 10 National Scenic and Historic Trails ........................................................................... 15-35 

 11 Northwest Forest Plan................................................................................................ 15-39 

 12 Office of General Counsel Reimbursement............................................................... 15-41 

 13 Office of Tribal Relations .......................................................................................... 15-42 

 14 Organizational Efficiency – WO/RO/Northeastern Area Transformation ................ 15-43 

 15 President’s Management Agenda .............................................................................. 15-44 

 16 Proposed Legislation.................................................................................................. 15-51

 Ecosystem Services Pilot Projects ....................................................................... 15-51 

 Secure Rural Schools Act Extension ................................................................... 15-51 

 17 Reforestation.............................................................................................................. 15-53 

 18 Research and Development Threat Assessment Centers........................................... 15-55 

 19 Service First .............................................................................................................. 15-57 

 20 Sustainable Operations............................................................................................... 15-59 

 21 Unobligated Balances ................................................................................................ 15-61 

 22 Wood Education and Resource Center ...................................................................... 15-63 

 23 Working Capital Fund - Forest Service ..................................................................... 15-65 

 24 Working Capital Fund and Greenbook Charges - USDA.......................................... 15-66 

 25 Working Capital Fund – Forest Service Fleet Management...................................... 15-67 

 

 
FY 2009 Budget Justification USDA Forest Service

Table of Contents iv 

Acronyms 

ALP Automated Land Program 

ANILCA Alaska National Interest Lands Conservation Act of 1980 

AML Abandoned Mine Lands 

APD Application for Permit to Drill 

APHIS Animal and Plant Health Inspection Service 

ARS Agricultural Research Service 

ASC Albuquerque Service Center 

BAER Burned Area Emergency Rehabilitation 

BF Board Feet 

BLI Budget Line Item 

BMP Best Management Practice 

BLM Bureau of Land Management (USDI) 

BOC Budget Object Classification 

BOR Bureau of Reclamation (USDI) 

BPR Business Process Reengineering 

CCF Hundred Cubic Feet 

CCS Challenge Cost Share 

CDW Corporate Data Warehouse 

CE Categorical Exclusion 

CERCLA Comprehensive Environmental Response, Compensation, and 

Liability Act 

CFR Code of Federal Regulations 

CI&M Capital Improvement and Maintenance 

CIP Capital Improvement Plan 

CSREES Cooperative State Research, Education and Extension Services 

CUFFA Cabin Use Fee Fairness Act 

CWA Clean Water Act 

CWKV Cooperative Work Knutson-Vandenberg Fund 

CWPP Community Wildfire Protection Plan 
FY 2009 Budget Justification USDA Forest Service

Table of Contents v 

CY Calendar Year 

DASP Disaster Assistance Support Program (International Forestry) 

DN Decision Notice 

DHS Department of Homeland Security 

DOE Department of Energy 

DOI Department of the Interior 

EA Environmental Assessment 

EAP Economic Action Programs 

EBLI Expanded Budget Line Item 

ECAP Environmental Compliance and Protection 

EDRR Early Detection and Rapid Response 

EIS Environmental Impact Statement 

EMS Environmental Management System 

EO Executive Order 

ESA Endangered Species Act 

F&AM Fire and Aviation Management 

FA&O Fire, Administrative and Other (facilities) 

FAR Federal Acquisitions Regulation 

FASAB Financial Accounting Standards Advisory Board 

FEPP Federal Excess Personal Property 

FEIS Final Environmental Impact Statement 

FFIS Foundation Financial Information System 

FIA Forest Inventory and Analysis 

FIDO Forest Inventory Data Online 

FOG Field Operations Guide (Disaster Assessment and Response) 

FPA Fire Program Analysis 

FPL Forest Products Laboratory (Madison, WI) 

FRIA Forest Resources Information and Analysis 

FS Forest Service 

FSFREA Forest Service Facility Realignment and Enhancement Act 

FSH Forest Service Handbook 
FY 2009 Budget Justification USDA Forest Service

Table of Contents vi 

FSP Forest Stewardship Program 

FTE Full-time Equivalent 

FY Fiscal Year 

FWS Fish and Wildlife Service (USDI) 

GAO Government Accountability Office 

GIS Geographic Information System 

GSTC Geospatial Service and Technology Center 

HFI Healthy Forests Initiative 

HFRA Healthy Forests Restoration Act of 2003 

ICS Incident Command System 

IITF International Institute of Tropical Forestry (Puerto Rico) 

INFRA Forest Service Infrastructure Database 

JFSP Joint Fire Science Program 

K-V Knutson-Vandenberg 

LANDFIRE Landscape Fire and Resource Management Planning Tool 

LBL Land Between the Lakes 

LEI Law Enforcement and Investigations 

LMP Land Management Plan 

LSR Late Successional Reserve 

LTSP Long Term Soil Productivity 

MBF Thousand Board Feet (forestry volume measurement) 

MEL Most Efficient Level (Wildland Fire Management staffing) 

MMBF Million Board Feet (forestry volume measurement) 

MNTP Midewin National Tallgrass Prairie 

MTDC Missoula (MT) Technology Development Center 

NA Northeastern Area of State and Private Forestry 

NEPA National Environmental Policy Act 

NFF National Forest Foundation 

NFMA National Forest Management Act 

NFP National Fire Plan 

NFS National Forest System 
FY 2009 Budget Justification USDA Forest Service

Table of Contents vii 

NFWF National Fish and Wildlife Foundation 

NGO Non-governmental Organization 

NIDRM National Insect and Disease Risk Map 

NIMS National Information Management System 

NIPF Non-industrial Private Forest (landowner) 

NPS National Park Service (USDI) 

NRCS Natural Resources Conservation Service (USDA) 

NRS Northern Research Station (Newtown Square, PA) 

NWFP Northwest Forest Plan 

OBPA Office of Budget and Program Analysis of the USDA 

OHV Off Highway Vehicle 

OIG Office of the Inspector General 

OMB Office of Management and Budget 

OWCP Office of Worker’s Compensation Program 

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

PAR Performance and Accountability Report 

PART Program Assessment Rating Tool 

PCT Pre-commercial Thinning 

PIT Passport in Time 

P.L. Public Law 

PMA President’s Management Agenda 

PMF Presidential Management Fellow (employment program) 

PNW Pacific Northwest Research Station (Portland, OR) 

PSW Pacific Southwest Research Station (Albany, CA) 

QA/QC Quality Assurance/Quality Control 

RAC Resource Advisory Committee 

RAVAR Rapid Assessment of Values at Risk 

R&D Research and Development 

RO Regional Office 

R-1 Northern Region (Region One – Missoula, MT) 

R-2 Rocky Mountain Region (Region Two – Golden, CO) 
FY 2009 Budget Justification USDA Forest Service

Table of Contents viii 

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

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

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

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

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

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

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

REA Recreation Enhancement Act 

RCRA Resource Conservation and Recovery Act 

RMRS Rocky Mountain Research Station (Fort Collins, CO) 

ROD Record of Decision 

ROW Right-of-Way 

RSAC Remote Sensing Applications Center 

RSFMP Recreation Site Facility Master Plan 

RWU Research Work Unit 

SAI Sale Area Improvement (Plan) 

SAP Spatial Analysis Program 

SCI Stratified Cost Index 

SCSEP Senior Community Service Employment Program 

SDTDC San Dimas (CA) Technology Development Center 

SPA Strategic Program Area 

S&PF State and Private Forestry 

SPOT Strategic Placement of Treatment Studies 

SRS Southern Research Station (Asheville, NC) 

STRATUM Street Tree Resource Analysis Tool for Urban Managers 

SUPO Surface Use Plan of Operation 

TAV Technical Assistance Visit 

TMDL Total Maximum Daily Load 

TRACS Trail Assessment and Condition Survey 

TSI Timber Sale Improvement 

TVA Tennessee Valley Authority 
FY 2009 Budget Justification USDA Forest Service

Table of Contents ix 

U&CF Urban and Community Forestry 

U.S.C. United States Code 

USAID United States Agency for International Development 

USDA United States Department of Agriculture 

USDHS United States Department of Homeland Security 

USDI United States Department of the Interior 

USDOE United States Department of Energy 

WBUG Woody Biomass Utilization Group 

WCF Working Capital Fund 

WERC Wood Education and Resource Center (Princeton, WV) 

WFDSS Wildland Fire Decision Support System 

WFLC Wildland Fire Leadership Council 

WFM Wildland Fire Management 

WO Washington Office (Forest Service Headquarters) 

W&SR Wild and Scenic River 

WUI Wildland Urban Interface 

YCC Youth Conservation Corps 
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1 

Overview/Highlights 
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U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

United States Department of Agriculture 

Forest Service 

 Photo of Olympic National Forest 

Fiscal Year 2009 

President’s Budget 

OVERVIEW
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U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 i 

USDA Forest Service 

Fiscal Year 2009 President’s Budget Overview 

Table of Contents 

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

Legislative Proposals ............................................................................................................6 

Appendices.............................................................................................................................8 

A – Forest Service Mission, Goals, and Objectives 

B – Forest Service Organization 

C – Ten-Year Graph of Forest Service Budget Authority 

D – Three-Year Budget Summary of Appropriations 

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

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

G – Activity Output Table 

H – FY 2008 Capital Improvement Projects 

I – Timber Harvest Volume, FY 2006-FY 2008 

J – FY 2008 Proposed Forest Legacy Program 

K – Five-Year Healthy Forests Initiative Funding 

 and Accomplishment Table 
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U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page 1-1

FY2009 Forest Service Budget Context 

The fiscal year (FY) 2009 Forest Service budget request totals $4.109 billion in discretionary 

appropriations, an 8 percent decrease from FY 2008 enacted level and a 5 percent decrease from FY 2007 

levels. The President’s Budget reflects our Nation’s highest priorities, including supporting our troops, 

strengthening our homeland security, and promoting sustained economic growth. The President’s progrowth economic policies, coupled with spending restraint, are key to keeping us on track to continue to 

reduce the deficit in the coming years. Spending restraint is essential to ensure the long-term financial 

health of our Nation in the face of escalating entitlement program outlays. 

The Forest Service budget supports the Administration’s broader priorities and focuses resources around 

the 2007-2012 Strategic Plan, designed to fulfill the agency’s Mission: “Sustain the health, diversity, and 

productivity of the Nation’s forests and grasslands to meet the needs of present and future generations.” 

The budget also places particular emphasis on what the Chief has identified as today’s foremost 

challenges and opportunities—climate change; water issues; and the loss of connection to nature, 

especially for kids. 

The FY 2009 President’s Budget is displayed below. 

 FY 2008 Pay & Other Cost Program FY 2009 

Appropriation Title Enacted Costs Reductions Changes Budget 

Research $285,926 $6,157 $0 -$29,083 $263,000

State and Private Forestry $262,808 $1,824 -$1,588 -$153,544 $109,500

National Forest System $1,469,579 $29,350 -$45,530 -$103,862 $1,344,537

Wildland Fire Management $1,943,477 $33,918 -$14,469 $13,666 $1,976,592

Capital Improvement and Maintenance $474,768 $6,114 -$9,601 -$65,493 $405,788

Land Acquisition $43,091 $240 -$33 -$36,998 $6,300

Other Appropriations $8,779 $31 $0 -$5,160 $3,650

Total Discretionary Appropriations $4,488,428 $77,635 -$71,221 -$380,473 $4,109,367

Total Mandatory Appropriations $767,215 $5,241 -$4,778 -$325,333 $442,345

Subtotal, Regular Appropriations $5,255,643 $82,876 -$75,999 -$705,807 $4,551,712

Supplemental & Emergency 

Appropriations $551,000 --- --- --- $0

Grand Total, Forest Service $5,806,643 $82,876 -$75,999 -$-705,807 $4,551,712
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page 1-2

Within the overarching framework of the Strategic Plan and Chief’s themes, the Forest Service budget has 

been constructed around agency-specific budgetary realities and management challenges. The 

responsibility to protect people and property from wildfire is one the agency performs professionally and 

honorably. Fires in recent years have become larger and more difficult to control due to a variety of 

factors, including climate change, historic fire suppression efforts resulting in increased density of hazard 

fuels, and expansion of residences in the wildland urban interface (WUI). As application of Federal 

firefighting resources on both Federal and non-Federal land has grown, these costs escalate, and so to 

does the 10-year average of annual fire suppression expenditures, which determines the program’s budget 

request. 

Forest Service Fire Suppression Inflated 10 Year Average

$-

$200

$400

$600

$800

$1,000

$1,200

2000 2001 2002 2003 2004 2005 2006 2007

Fiscal Year

Constant Dollars (in Millions)
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page 1-3

Forest Service Fire Suppression Actual Expenditures By Source

$0

$200

$400

$600

$800

$1,000

$1,200

$1,400

$1,600

2000 2001 2002 2003 2004 2005 2006 2007

Fiscal Year

Nominal Dollars (in Millions)

Regular Appropriation Emergency Appropriation

Transfer from other accounts Carryover (including prior Emergency Funds)

The FY 2009 Budget reflects the effects of increased wildfire suppression costs and places priority on 

core mission needs. The FY 2009 Budget realigns Forest Service spending to reinforce the agency’s 

commitment to caring for the 193 million acres of national forests and grasslands. The Wildland Fire 

Management account includes $994 million for wildland fire suppression and a continued focus on 

National Fire Plan programs. For other Forest Service programs, funding is provided for the highest 

priority activities that can demonstrate performance in a transparent manner. 

The FY 2009 Forest Service budget focuses resources on maximizing effectiveness of core national forest 

and grassland programs. Notably, the budget supports implementation of the Healthy Forests Initiative 

and the Northwest Forest Plan at increased or similar levels of funding compared to FY 2008; Forest 

Products is requested at $323 million, Hazardous Fuels at $297 million, and Vegetation & Watershed 

Management at $165 million. These investments will yield over 4.9 million CCF (2.5 BBF) of total 

timber volume sold, including 1.6 million CCF (0.8 BBF) of timber volume offered from full 

implementation of the Northwest Forest Plan. The agency has capability to produce an additional 1 BBF 

if there is an improvement in the housing market and lumber prices. Other priority program outputs will 

include over 2 million acres of forest and rangeland vegetation improved and established, and 1.6 million 

acres of hazardous fuel reduction and an additional 800,000 acres of treatments accomplished by other 

land management activities that reduce fire risk. Capital Improvement and Maintenance of Roads is 

requested at $227 million to provide the necessary infrastructure to support priority program activities and 

manage the roads system on national forest lands. 

Management Strategy Shifts 

In addition to support for highest priority programs, the budget reflects improvements in the Forest 

Service’s approach to its core natural resource responsibilities. The FY 2009 Forest Service budget 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page 1-4

reflects distinct changes in key program management strategies that will prepare the agency for continued 

success in the future. 

Wildland Fire Management Reform

The cost of wildfire suppression has increased significantly as a result of Forest Service application of 

suppression resources to fires that have increased in size and intensity due to persistent drought, 

hazardous fuels conditions, and complexity of increased development within the wildland urban interface. 

The Forest Service is adopting substantive management reforms to mitigate this cost trend while 

continuing to provide a safe and effective fire suppression operation and redeem other natural resource 

management responsibilities. 

The USDA Office of Inspector General (OIG) 

report (No. 08601-44-SF) examined large fire 

suppression costs and made recommendations to 

address their escalation. The report documented an 

increase in Forest Service suppression costs due to 

fire suppression in residential areas that abut 

national forests, and further noted that current 

protection agreements do not equitably apportion 

protection responsibilities in such areas between 

Federal and local entities. The Forest Service is 

acting on one of the OIG report’s recommendations by renegotiating master protection agreements to 

clarify roles and ensure equitable and appropriate allocation of wildland urban interface firefighting costs 

between the agreement parties. An additional OIG recommendation will be implemented in 2009 through 

a science-based methodology to evaluate non-catastrophic acres burned in wildfire incidents as acres 

treated toward desired conditions. This change will encourage the cost-effective practice of using 

unplanned wildfires to reduce hazardous fuels when appropriate. 

In FY 2009, the Wildland Fire Management program will continue to emphasize decision support 

information technology development, and implementation of cost control measures focused on leadership, 

operations, aviation, and general management practices. Spatial modeling tools include FSPro, which 

calculates and maps the probability of fire spread, and RAVAR, which displays primary resource values 

at risk. Along with the Stratified Cost Index, these components of the Wildland Fire Decision Support 

System provide real-time decision support to leaders implementing Risk-Informed Management. Use of 

these information technology tools, coupled with a suite of management initiatives such as Appropriate 

Management Response, Line Officer Certification, the Chief’s Principle Representative, and Severity 

Authorization Limitations, contributed to significantly lower than projected suppression expenditures in 

FY 2007 based on historical management and spending patterns. 

State and Private Forestry Program Redesign

While focusing the resources of a constrained budget on core national forest and grassland 

responsibilities, it is essential to ensure expenditures for other agency programs are designed to achieve 

optimal results. In FY 2007, the Forest Service collaborated with the National Association of State 

Foresters to redesign the focus, priorities, and delivery of the agency’s State and Private Forestry 

programs. This effort stemmed from consensus between the groups that forests and the public benefits 

they provide are being threatened at a scale and pace much larger and faster than the existing programs 

and delivery model were designed to address. In order to maintain relevance and guarantee that Federal 

"As a leader in wildland fire management, the 

Forest Service will continue its aggressive 

implementation of cost-containment, decision 

support, and operational leadership reforms to 

ensure our tradition of high quality public service 

amidst the challenges of the coming decade." 

— Director of Wildland Fire Management

Tom Harbour 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page 1-5

investments positively affect the landscape, it was necessary to restructure program resources, tools, and 

approach. 

As a result of the redesign, the Forest Service will 

prioritize work using the best available technology and 

information focused on three national themes: 1) 

Conserve working forest landscapes; 2) Protect forests 

from harm; and 3) Enhance benefits from trees and 

forests. 

Beginning in FY 2008, State and Private Forestry 

programs will be accomplished through a variety of new 

tools and approaches, including peer-to-peer, citizen-centric forestry assistance. Comprehensive 

assessments will be conducted at the State and national levels to identify conditions, threats, and 

ecosystem services. The information garnered will be used at the national and regional level to set 

priorities. Accountability will be strengthened through the competitive allocation of Federal funds as well 

as the documentation and communication of results. Integrating program delivery with partners and 

ensuring that appropriate skills and organizational structures are in place will help support priority work. 

Ecosystem Services

Changes in climate, land use, and demographics across the country mean that the challenges of forest 

management are expanding rapidly. Hydrology, species distribution and population size, incidence and 

scale of pest outbreaks, and frequency of wildfire have all been affected by climate change. Forestland 

conversion and fragmentation affects recreation opportunities, wildlife habitat and population diversity, 

and water quality, and reduces myriad other benefits provided by healthily functioning forests. Increasing 

population in urban and wildland-urban interface settings will place more demand on ecosystems for 

provisioning the exact services that are being put at risk by climate and land-use change. Sustainable 

forest management must adopt an ecosystems services perspective that goes beyond traditional resources 

such as food and fiber, and fully accounts for those essential forest functions that are often considered free 

and limitless; such as improving air and water quality, soil retention, and stabilizing climate change. 

The President’s Budget highlights an ecosystems 

services approach by including a legislative proposal 

authorizing five Ecosystems Services Demonstration 

Projects that will bring new partners together with the 

Forest Service in a broad effort to advance marketbased conservation. States, local governments, tribes, 

or non-profit organizations will have the opportunity 

to provide up to $10 million of funds or in-kind 

services for activities that restore, enhance, and 

protect ecosystem function on National Forest System 

lands. The projects will also introduce and refine 

methodologies that may be used in potential or emerging markets to quantify and value ecosystem 

services related to clean water, carbon sequestration and other critical benefits. 

Forest Service Research & Development is a world leader on the issue, having worked on global change 

research for over 20 years. Thirteen Forest Service scientists contributed documents to the 

Intergovernmental Panel on Climate Change (IPCC), which shared the 2007 Nobel Peace Prize with 

former Vice President Al Gore. The FY 2009 budget includes $31 million for research on how climate 

“Implementing the redesign will enable us to 

apply our increasingly limited resources in a 

more targeted and meaningful way—improving 

our ability to shape and influence forest land 

use in a way that maximizes public benefits and 

addresses nationally significant priorities.” 

— Deputy Chief for State and Private Forestry, 

Jim Hubbard 

"Approaching management of forests and 

grasslands through an ecosystem services lens 

will help us protect these services - like water 

filtration, flood control, pollination, soil retention, 

carbon sequestration, etc - that are so critical to 

human health and sustenance. Because many of 

these services are not valued in the marketplace, 

their protection requires deliberate action." 

—Associate Chief, Sally Collins 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page 1-6

change, air and water pollution, land uses, and extreme events affect forest and rangeland sustainability 

and the benefits they provide to society. 

Organizational Efficiency & Transformation

In order to update the Forest Service management structure and direct maximum resources toward 

mission delivery, the agency is in the process of restructuring regional office, Northeastern Area, and 

national headquarters organizations. The current organizational structure was designed in the 1950s, and 

does not take advantage of the communication technology and integrated operating systems that define 

today’s business environment. Furthermore, some program areas currently spend as much as 68 percent 

of their budgets on personnel costs, and that percentage will only grow as inflation increases in the 

coming years. This unsustainable structure leaves little flexibility in accomplishing mission critical work. 

In FY 2007, the agency convened a Transformation Team 

with executive oversight from Business Operations Deputy 

Chief Hank Kashdan, National Forest System Deputy Chief 

Joel Holtrop, and Northern Regional Forester Tom Tidwell. 

The team examined historic agency restructuring efforts, 

analyzed workforce data, and engaged agency leadership and 

employees in identifying new roles and responsibilities for the 

regional offices, Northeastern Area, and national headquarters. 

By the end of FY 2009, the Forest Service will reduce 

operating costs by approximately 25 percent at the regional 

offices, national headquarters, and Northeastern Area. This 

effort will not only result in directing maximum resources toward on-the-ground mission delivery, but 

also in a flexible, efficient management structure equipped to meet the natural resource management 

challenges of the 21st century. 

Recognizing Integrated Program and Partnership Accomplishments

In FY 2008, the Forest Service is changing business rules 

for accomplishment reporting to incorporate not only 

directly funded work, but also accomplishments achieved 

through integration between program areas or partnerships 

with external groups. This change is designed to shift 

focus from a highly functionalized approach to one that 

naturally aligns other programs and partner organizations 

to achieve multiple goals. By changing how 

accomplishments are counted, the agency hopes to change 

how managers plan and implement their work, and ensure 

fullest possible value per Federal expenditure. 

Conclusion

The Forest Service presents its FY 2009 budget in a management environment that demands more than 

dollars to ensure organizational success. The budget supports national priorities of deficit reduction, 

maintains a safe and effective fire suppression organization, and maintains other high priority programs. 

Just as importantly, it also reflects reforms and proposes fundamental changes in the way the agency 

approaches its work by pursuing an ecosystem services perspective, redesigning State and Private 

“This effort will literally transform the 

Forest Service organization from one 

designed for issues of the 1950s to one 

that responds to today’s emerging global 

environmental concerns, focuses 

precious resources on the ground, and 

has the flexibility to adapt to the 

challenges of the future.” 

— Deputy Chief for Business 

Operations, Hank Kashdan 

"The new business rules will allow us to 

display a more complete picture of our total 

accomplishments both to Congress and the 

public." 

— Deputy Chief for National Forest Systems 

Joel Holtrop 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page 1-7

Forestry program delivery, reforming wildland fire management, transforming the top two organizational 

levels of the Forest Service, and altering accomplishment reporting to encourage integration and external 

partnerships. This suite of initiatives will enable the Forest Service to continue to deliver outstanding 

science and effectively manage the resources of the national forest and grasslands while adapting to the 

challenges of the coming decades. 

Legislative Proposals 

Ecosystems Services Demonstration Projects

The FY 2009 budget includes Ecosystems Services Demonstration Projects that will advance marketbased conservation. The Forest Service will work closely with partners to implement restoration projects 

on national forests. Outcomes from these projects will demonstrate the value of clean water, carbon 

sequestration, and other critical services that forests provide. The measurement and monitoring of 

ecosystem services will play an integral role in project design, to provide an understanding of how 

ecosystem services can be quantified and valued in potential or emerging markets. These projects will 

benefit the Forest Service and a partner - defined as either a State, political subdivision of a State, Indian 

tribe, or non-profit organization - and be expanded or accelerated using the funds or services provided by 

a partner. 

The Budget provides the Secretary of Agriculture with the authority to implement up to five 

demonstration projects that restore, enhance, and protect ecosystem functions on National Forest System 

lands, including projects that rehabilitate watersheds damaged by fire or other natural catastrophic events. 

Examples of management activities include improving water quality, restoring long leaf pine forests, or 

reducing the risk of catastrophic wildfires. Each project will be consistent with applicable land and 

resource management plans and will comply with environmental laws and regulations. Partnering entities 

could carry out the project for the Secretary, provide funds for project implementation up to a total of $10 

million for all projects, or provide a combination of funds and services. 

Sample Project: Fuel reduction treatment 

An Ecosystem Services Demonstration Project will engage partners in forest restoration that restores, 

enhances, and protects multiple ecosystem service benefits. As one example of many potential 

opportunities, restoration through fuel reduction activities will protect watersheds that sustain the region’s 

inhabitants, restore ecological health, and reduce the risk of catastrophic wildfire for nearby communities. 

Key Benefits: 

• Avoided wildfire emissions and suppression costs, and protected social and economic values. 

The size and severity of wildfires on public and private lands has increased substantially over the 

past 10 years. Fuel reduction activities can reduce carbon emissions, suppression costs, and the 

impacts of subsequent wildfires, ultimately protecting lives and property. 

• Watershed protection. Typically, National Forest System lands encompass the upland watersheds 

for river systems. Fuels reduction activities in the uplands are designed to prevent negative 

effects of fire on the watershed, including flooding, increased sediment loading from erosion and 

runoff, and loss of soil carbon. 

• Biomass fuel. Significant amounts of woody biomass fuel may offset fossil fuel emissions and 

provide an economic opportunity for the surrounding communities. 

• Biodiversity enhancements. Restoration projects will improve wildlife habitat and enhance 

forage for wildlife. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page 1-8

Temporary Extension of Secure Rural Schools

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393) provided 

temporary payments to counties impacted by the reduction of shared receipts associated with lower levels 

of timber harvesting on Federal lands. The Act expired in 2006, but Congress provided for an additional 

year of payments under Public Law 110-28. The Budget includes a legislative proposal that provides 

$200 million above the current baseline for a four-year extension of USDA and Department of the Interior 

forest county safety net payments, which will be targeted to the most affected areas, capped, adjusted 

downward each year, and phased out. For administrative convenience, USDA will make the payments on 

behalf of both agencies. Offsets for the Administration's proposal are provided within the topline of the 

President's Budget throughout the Department of Agriculture and elsewhere. For the FY 2008 payment 

(to be made in FY 2009), the Administration continues to be prepared to work with Congress to identify 

mutually agreeable offsets.
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page 1-9

Appendices 

A - Forest Service Mission, Goals & Objectives 

B – Forest Service Organization 

C – Ten-Year Graph of Forest Service Budget Authority 

D – Three-Year Budget Summary of Appropriations 

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

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

G - Activity Output Table 

H - FY 2008 Capital Improvement Projects 

I - Timber Harvest Volume, FY 2006-FY 2008 

J - FY 2008 Proposed Forest Legacy Program 

K – Five-Year Healthy Forest Initiative Funding & Accomplishment Table 
(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page A-1 

Appendix A 

Forest Service Mission, Goals, and Objectives 

Mission 

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

to meet the needs of present and future generations. 

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

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

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

providing economic wealth for the Nation. 

Goals and Objectives 

The Forest Service Strategic Plan for FY 2007 – 2012 outlines the agency’s over-arching goals 

and objectives. These priorities are addressed in seven strategic goals: 

Goal 1. Restore, Sustain, and Enhance the Nation’s Forests and Grasslands 

Goal 2. Provide and Sustain Benefits to the American People 

Goal 3. Conserve Open Space 

Goal 4. Sustain and Enhance Outdoor Recreation Opportunities 

Goal 5. Maintain Basic Management Capabilities of the Forest Service 

Goal 6. Engage Urban America With Forest Service Programs 

Goal 7. Provide Science-Based Applications and Tools 

Strategic objectives in each goal (outlined in the Budget and Strategic Plan section of the Budget 

Justification) include indicators of agency performance, with baselines and FY 2012 targets. 

Means and strategies by which agency programs accomplish strategic goals and objectives are 

provided. Foundational business management standards are also documented. 
(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page B-1 

Appendix B 

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 four deputy chiefs for the following areas: 

National Forest System; State and Private Forestry; Research and Development; and Business 

Operations.

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-theground 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 five research stations, the Forest Products Laboratory, and the International 

Institute of Tropical Forestry. Station directors, like regional foresters, report to the Chief. 

Research stations include Northern, Pacific Northwest, Pacific Southwest, Rocky Mountain, and 

Southern. There are approximately 500 scientists located at 67 sites throughout the United States. 

Centralized Business Services: In FY 2006 the Agency began the process of centralizing three 

major functional areas: Budget and Finance (B&F), Office of the Chief Information Officer 

(OCIO), and Human Capital Management (HCM). As of the end of FY 2007, two of the areas, 

B&F and OCIO, have been centralized. The HCM organization is currently transitioning to the 

goal organization and is on schedule to complete the transition by the end of FY 2008. Most 

employees in two of these areas, B&F and HCM, are (or will be) located at the Albuquerque 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page B-2 

Service Center (ASC). Some OCIO employees are also located in Albuquerque 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 2009 President’s Budget

February 5, 2008 Appendix C: 

Ten Year Graph of Forest Service Budget Authority 

Forest Service Budget

2000-2008 Enacted, 2009 President's Budget

$0

$500

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

Nominal Dollars(millions)

Discretionary 2,811 3,179 3,784 3,956 4,192 4,238 4,201 4,327 4

Mandatory 632 828 665 658 876 892 795 721 

Supplementals and Emergency 242 1,257 346 919 724 582 177 370 

2000 2001 2002 2003 2004 2005 2006 2007 2
(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

Revised February 25, 2008 Page D-1 

Appendix D 

Three-Year Summary of Appropriations 

 

 FY 2009 Percent 

 FY 2007 FY 2008 FY 2009 vs of 

Enacted Enacted Pres Budget FY 2008 Change 

(dollars in thousands) 

Discretionary Appropriations 

 

Forest & Rangeland Research 

Research and Development $280,488 $285,926 $263,000 -$22,926 -8%

Forest Inventory Analysis–included above [$59,380] [$60,372] [$62,300] [$1,928] [3%]

Total, Forest & Rangeland Research $280,488 $285,926 $263,000 -$22,926 -8%

 

State and Private Forestry 

Forest Health Management 

Forest Health Fed Lands $53,963 $54,110 $45,000 -$9,110 -17%

Forest Health Coop Lands $47,104 $44,542 $10,000 -$34,542 -78%

Total, Forest Health Mmgt $101,067 $98,652 $55,000 -$43,652 -44%

 

Cooperative Fire Assistance 

State Fire Assistance $32,895 $32,605 $25,000 -$7,605 -23%

Volunteer Fire Assistance $5,912 $5,906 $5,000 -$906 -15%

Total, Cooperative Fire Assistance $38,807 $38,511 $30,000 -$8,511 -22%

 

Cooperative Forestry 

Forest Stewardship $41,947 $29,532 $5,000 -$24,532 -83%

Forest Legacy $56,536 $52,317 $12,500 -$39,817 -76%

Urban & Community Forestry $30,130 $27,691 $5,000 -$22,691 -82%

Economic Action $0 $4,206 $0 -$4,206 -100%

Forest Res Info & Analysis $4,588 $4,516 $0 -$4,516 -100%

Total, Cooperative Forestry $133,201 $118,262 $22,500 -$95,762 -81%

 

International Forestry $6,886 $7,383 $2,000 -$5,383 -73%

 

Subtotal, Regular Appropriations $279,961 $262,808 $109,500 -$153,308 -58%

 

Emergency & Supplemental Funding $0 $0 $0 $0 

 

Total, S&PF $279,961 $262,808 $109,500 -$153,308 -58%

 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

Revised February 25, 2008 Page D-2

Three-Year Summary of Appropriations 

 

 FY 2009 Percent 

 FY 2007 FY 2008 FY 2009 vs of 

Enacted Enacted Budget FY 2008 Change 

(dollars in thousands) 

 

National Forest System 

Land Management Planning $57,675 $48,833 $52,607 $3,774 8%

Inventory & Monitoring $166,638 $166,580 $146,462 -$20,118 -12%

Recreation, Wilderness & Heritage $258,797 $262,635 $237,000 -$25,635 -10%

Wildlife & Fish Management $131,734 $132,385 $117,633 -$14,752 -11%

Grazing Management $47,826 $48,163 $47,025 -$1,138 -2%

Forest Products $319,614 $322,503 $322,666 $163 0%

Vegetation & Watershed Management $176,849 $177,437 $165,309 -$12,128 -7%

Minerals & Geology Management $84,164 $84,143 $70,835 -$13,308 -16%

Landownership Management $90,932 $91,299 $75,000 -$16,299 -18%

Law Enforcement Operations $115,000 $131,910 $115,000 -$16,910 -13%

Valles Caldera $3,500 $3,691 $0 -$3,691 -100%

Ecosystem Services Pilot Projects $0 $0 [10,000] N/A N/A

Rescission of Prior-Year Unobligated Funds $0 $0 -$5,000 -$5,000 N/A

Subtotal, Regular Appropriations $1,452,729 $1,469,579 $1,344,537 -$125,042 -9%

 

Supplemental & Emergency Funding $12,000 $0 $0 $0 

 

Total, NFS $1,464,729 $1,469,579 $1,344,537 -$125,042 -9%

 

 

Wildland Fire Management 

Preparedness $665,382 $665,819 $588,375 -$77,444 -12%

 

Fire Operations - Suppression 

Regular Appropriations $741,477 $845,620 $993,947 $148,327 18%

 Supplemental & Emergency funding $370,000 $432,000 $0 -$432,000 

Total, Fire Ops - Suppression $1,111,477 $1,277,620 $993,947 -$283,673 -22%

 
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

 February 5, 2008 Page D-3 

Three-Year Summary of Appropriations 

 

 FY 2009 Percent 

 FY 2007 FY 2008 FY 2009 vs of 

Enacted Enacted Budget FY 2008 Change 

(dollars in thousands) 

Fire Operations - Other 

Hazardous Fuels $301,258 $310,086 $297,000 -$13,086 -4%

Rehab & Restoration $6,189 $10,828 $0 -$10,828 -100%

Fire Research & Development $22,789 $23,519 $22,000 -$1,519 -6%

Joint Fire Sciences Program $7,882 $7,875 $8,000 $125 2%

NFP Forest Health - Fed Lands $14,779 $14,030 $14,252 $222 2%

NFP Forest Health - Coop Lands $9,853 $9,858 $10,014 $156 2%

NFP State Fire Assistance $46,221 $47,967 $35,004 -$12,963 -27%

NFP Volunteer Fire Assistance $7,773 $7,875 $8,000 $125 2%

Total, Regular Appropriations $416,744 $432,038 $394,270 -$37,768 -9%

 Supplemental & Emergency funding $0 $105,000 $0 -$105,000 

Total, Fire Operations $416,744 $537,038 $394,270 -$142,768 -27%

 

Subtotal, Regular Appropriations $1,823,603 $1,943,477 $1,976,592 $33,115 2%

 

Supplemental & Emergency funding 

 $370,000 $537,000 $0 -$537,000 

Total, WFM $2,193,603 $2,480,477 $1,976,592 -$503,885 -20%

 

Capital Improvement & Maintenance 

Facilities $130,140 $121,755 $119,647 -$2,108 -2%

Roads $223,798 $227,924 $227,000 -$924 0%

Trails $73,362 $76,365 $50,041 -$26,324 -34%

Deferred Maintenance $9,100 $8,958 $9,100 $142 2%

Legacy Roads and Trails $0 $39,766 $0 -$39,766 -100%

Subtotal, Regular Appropriations $436,400 $474,768 $405,788 -$68,980 -15%

 

Supplemental & Emergency Funding $0 $14,000 $0 -$14,000 

Total, CI&M $436,400 $488,768 $405,788 -$82,980 -17%

Land Acquisition 

Land Acquisitions $41,936 $41,827 $5,000 -$36,827 -88%

Acquisition of Lands for National 

 Forests, Special Acts $1,053 $1,037 $1,050 $13 1%

Acquisition of Lands to Complete 

 Land Exchanges $3,678 $227 $250 $23 10%

Subtotal, Regular Appropriations $46,667 $43,091 $6,300 -$36,791 -85%

 

Total, Land Acquisition $46,667 $43,091 $6,300 -$36,791 -85%
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

Revised February 25, 2008 Page D-4 

Three-Year Summary of Appropriations 

 

 FY 2009 Percent 

 FY 2007 FY 2008 FY 2009 vs of 

 Enacted Enacted Budget FY 2008 Change 

 (dollars in thousands) 

Other Appropriations 

Gifts, Donations, and Bequests for 

 Research $63 $55 $50 -$5 -9%

Range Betterment Fund $2,876 $3,750 $3,600 -$150 -4%

Subsistence Mgmt (R10) $5,009 $4,974 $0 -$4,974 -100%

Total, Other Appropriations $7,948 $8,779 $3,650 -$5,129 -58%

 

Subtotal, Discretionary Appropriations -- 

 non-emergency 

$4,327,796 $4,488,428 $4,109,367 -$379,061 -8%

 

Supplemental & Emergency Funding $370,000 $551,000 $0 -$551,000 

 

Total, Discretionary Appropriations $4,697,796 $5,039,428 $4,109,367 -$930,061 -18%

 

Mandatory Appropriations

 

Permanent Appropriations 

Brush Disposal $10,514 $10,000 $10,000 $0 0%

Licensee Program $74 $65 $65 $0 0%

Restoration of Forestlands & 

 Improvements $21,289 $1,600 $2,500 $900 56%

Federal Lands Recreation 

 Enhancement Fund $61,042 $62,000 $65,000 $3,000 5%

Federal Lands and Facilities 

 Enhancement Fund $22,792 $46,000 $50,000 $4,000 9%

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

Timber Salvage Sale $49,996 $45,000 $45,000 $0 0%

Stewardship Contracting $1,261 $4,300 $4,500 $200 5%

Timber Sales Pipeline Restoration $4,191 $5,400 $5,500 $100 2%

Roads and Trails $16,440 $12,000 $13,100 $1,100 N/A

Midewin - Rental Fees $790 $910 $910 $0 0%

Midewin - Restoration $0 $0 $0 $0 N/A

Operation & Maintenance of Quarters $7,746 $6,700 $6,700 $0 0%

LBL Management Fund $3,838 $4,100 $4,250 $150 4%

Administration of Rights 0f Way $2,224 $3,500 $4,600 $1,100 31%

Forest Botanical Products $1,646 $1,700 $1,870 $170 10%

Valles Caldera Fund $2,485 $750 $1,000 $250 33%

Total, Permanent Appropriations $213,128 $208,025 $218,995 $6,970 5%

 

Payment to States $377,429 $428,100 $88,100 -$340,000 -79%

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page D-5 

Three-Year Summary of Appropriations 

 

 FY 2009 Percent 

 FY 2007 FY 2008 FY 2009 vs of 

Enacted Enacted Budget FY 2008 Change 

(dollars in thousands) 

Trust Funds 

Cooperative Work - KV $56,761 $55,000 $55,000 $0 0%

Cooperative Work - Other $43,672 $45,800 $50,000 $4,200 9%

Subtotal, Cooperative Work $100,433 $100,800 $105,000 $4,200 4%

LBL Trust Fund $78 $290 $250 -$40 -14%

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

Total, Trust Funds $130,511 $131,090 $135,250 $4,160 3%

 

Total, Mandatory Appropriations $721,068 $767,215 $442,345 -$328,870 -42%

 

Subtotal, FS non-emergency $5,048,864 $5,255,643 $4,551,712 -$703,931 -13%

 

Subtotal, FS supplemental & emergency $370,000 $551,000 $0 -$551,000 

 

Grand Total, FS $5,418,864 $5,806,643 $4,551,712 -$1,254,931 -22%

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

Overview of FY 2009 President’s Budget

February 5, 2008 Page E-1 

Appendix E 

Three-Year Summary of Full-Time Equivalents 

 

 FY 2009

 FY 2007 FY 2008 FY 2009 vs 

 FTEs FTEs FTEs FY 2008

Discretionary Appropriations 

 

Forest & Rangeland Research 

Forest & Rangeland Research 2,151 2,151 2,041 -110

Fire Research & Development 132 132 132 0

Joint Fire Sciences Program 0 0 0 0

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

Total, Forest & Rangeland Research 2,283 2,283 2,173 -110

 

State & Private Forestry 

Forest Health Management 

Forest Health - Fed Lands 325 325 280 -45

NFP Forest Health - Fed Lands 98 94 93 -1

Forest Health - Coop Lands 62 62 23 -39

NFP Forest Health - Coop Lands 15 16 16 0

Total--Forest Health Management 500 497 412 -85

 

Cooperative Fire Protection 

State Fire Assistance 51 51 34 -17

NFP State Fire Assistance 3 3 0 -3

Volunteer Fire Assistance 0 0 0 0

NFP Volunteer Fire Assistance 0 0 0 0

Total--Cooperative Fire Protection 54 54 34 -20

 

Cooperative Forestry 

Forest Stewardship 83 82 22 -60

Forest Legacy 22 22 17 -5

Urban & Community Forestry 48 48 11 -37

Forest Res Info & Analysis 12 12 0 -12

Total--Cooperative Forestry 165 164 50 -114

 

International Forestry 24 24 27 3

Total, State & Private Forestry 743 739 523 -216

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page E-2 

Three-Year Summary of Full-Time Equivalents 

 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 FTEs FTEs FTEs FY 2008

 

National Forest System 

Land Management Planning 370 282 301 19

Inventory & Monitoring 1,066 1,025 830 -195

Recreation, Wilderness, & Heritage 2,219 2,293 1,997 -296

Wildlife & Fish Management 1,017 990 860 -130

Grazing Management 421 366 347 -19

Forest Products 2,797 2,785 2,665 -120

Vegetation & Watershed Management 1,339 1,317 1,238 -79

Minerals & Geology Management 590 570 451 -119

Landownership Management 707 720 545 -175

Law Enforcement Operations 717 786 739 -47

Valles Caldera National Preserve 0 0 0 0

NFP-Rehabilitation and Restoration 27 23 0 -23

Emergency Supplemental 17 0 0 0

Total, National Forest System 11,286 11,156 9,973 -1,183

 

Wildland Fire Management 

Preparedness 5,532 5,578 5,132 -446

Fire Operations - Suppression 3,489 3,509 3,490 -19

Fire Operations - Other 

Hazardous Fuels 2,125 2,149 2,023 -126

 

Total, Wildland Fire Management(WFi) 11,146 11,236 10,645 -591

 

Capital Improvement & Maintenance 

Facilities 509 475 471 -4

Roads 1,363 1,289 1,261 -28

Trails 610 601 352 -249

Deferred Maintenance 22 21 20 -1

Emergency Supplemental 7 0 0 0

Total, Capital Improvement & Maintenance 2,511 2,386 2,104 -282

 

Land Acquisitions 

Land Acquisitions 76 61 37 -24

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 76 61 37 -24

 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page E-3 

Three-Year Summary of Full-Time Equivalents 

 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 FTEs FTEs FTEs FY 2008

Other Appropriations 

Range Betterment Fund 12 15 14 -1

Management of NF Lands for Subsistence Uses 25 24 0 -24

Total--Other Appropriations 37 39 14 -25

 

Total, Discretionary Appropriations 28,082 27,900 25,469 -2,431

 

Total, Mandatory Appropriations 3,085 2,541 2,232 -309

Total, Working Capital Fund 557 557 550 -7

Total, External Reimbursables * 776 767 807 40

Total, Allocation ** 1,412 1,415 1,415 0

Grand Total, Forest Service 33,912 33,180 30,473 -2,707

 

* External Reimbursable FTEs are total FTEs paid by offseting collections received through reimbursable 

agreements with another Federal or nonfederal entity. In FY 2009, 40 FTEs are associated with the Ecosystem 

Services Pilot Project under NFS. Budget Justifications prior to FY 2009 distributed these FTEs to associated 

BLIs. 

** Allocation FTEs are total FTEs paid by budget authority allocated to the Forest Service by other Federal 

agencies such as Federal Highways Administration, Job Corps, and Southern Nevada Public Lands. Budget 

Justifications prior to FY 2009 distributed these FTEs to associated BLIs. 
(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page F-1 

Appendix F 

Three-Year Receipts by Source and Payments to States 

Revenue, Receipts, and Transfers 

FY 2007 FY 2008 FY 2009 

 1908 Act 

Receipt 

 ACTUAL ESTIMATE ESTIMATE 

Timber Management 

National Forest Fund (NFF) Receipts 45,256 50,000 60,000 Yes 

Mandatory Transfers from NFF: 

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

Acquisition of Lands for National Forests, Special Acts 1/ (400) (400) (500) 

Ten-Percent Roads and Trails Fund 1/ (6,400) (4,900) (5,900) 

Timber Sale Area Improvement (Knutson-Vandenberg Fund) 56,761 55,000 55,000 Yes 

Timber Salvage Sales 43,558 45,000 45,000 Yes 

Timber Sales Pipeline Restoration Fund 5,353 5,400 5,500 Yes 

Credits to Timber Purchasers (not receipts) 

Credits for Road Construction (sales before April 1, 1999) (244) (150) (50) Yes 

Specified Road Costs (15,712) (20,000) (20,000) Yes 

Brush Disposal 10,514 10,000 10,000 

Forest Botanical Products 1,646 1,700 1,870 

 

Total Timber Management Receipts 163,088 167,100 177,370 

Total Timber Management Receipts and Credits 179,044 187,250 197,420 

Total Timber Management Deposits to NFF 31,656 40,700 49,600 

Grazing Management 

National Forest Fund (NFF) Receipts 5,250 5,000 5,000 Yes 

Grasslands and Land Utilization Projects (LUP) 557 500 500 Yes 

Mandatory Transfers from NFF & Grasslands & LUP's: 

Range Betterment Fund (50 Percent Grazing) (2,876) (2,500) (2,500) 

Acquisition of Lands for National Forests, Special Acts 1/ (47) (40) (40) 

Ten-Percent Roads and Trails Fund 1/ (819) (500) (500) 

 

Total Grazing Management Receipts 5,807 5,500 5,500 

Total Grazing Management Deposits to NFF & Grasslands 

Fund 2,065 2,460 2,460 

Minerals Management 

National Forest Fund (NFF) Receipts 2,439 2,600 2,800 Yes 

Grasslands and Land Utilization Projects (LUP) 42,061 46,000 50,000 Yes 

Mandatory Transfers from NFF: 

Acquisition of Lands for National Forests, Special Acts 1/ (22) (20) (20) 

Ten-Percent Roads and Trails Fund 1/ (344) (300) (300) 

 

Mineral Leases on Public Domain Lands, Acquired Lands, and 

Oregon and California Grant Lands, estimated 2/ 266,000 291,000 320,000 

 

Total Minerals Management Receipts 44,500 48,600 52,800 

Minerals Management Receipts incl DOI reciepts 310,500 339,600 372,800 

Total Minerals Management Deposits to NFF and 

Grasslands Fund 44,134 48,280 52,480 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page F-2 

Three-Year Receipts by Source and Payments to States 

Revenue, Receipts, and Transfers FY 2007 FY 2008 FY 2009 

 1908 Act 

Receipt 

Landownership Management 

National Forest Fund (NFF) Receipts - Land Uses 12,619 12,700 12,700 Yes 

National Forest Fund (NFF) Receipts - Power 2,427 2,600 2,600 Yes 

Grasslands and Land Utilization Projects (LUP) -Land Uses 158 160 160 Yes 

Mandatory Transfers from NFF: 

Acquisition of Lands for National Forests, Special Acts 1/ (136) (130) (120) 

Ten-Percent Roads and Trails Fund 1/ (2,122) (1,500) (1,500) 

Acquisition of Lands to Complete Land Exchanges 3,657 234 234 

Administration of Rights-of-Way, Other Land Uses 2,224 3,500 4,600 

Power Licenses on Public Domain Lands, estimated 2/ 20,000 20,000 20,000 

 

Total Landownership Management Receipts 20,927 19,034 20,134 

Landownership Management Receipts incl DOI reciepts 40,927 39,034 40,134 

Total Minerals Management Deposits to NFF and 

Grasslands Fund 12,946 13,830 13,840 

Recreation Management Revenues and Receipts 

National Forest Fund - Recreation, Admission, and User Fees 48,567 50,000 50,000 Yes 

Mandatory Transfers from NFF: 

Acquisition of Lands for National Forests, Special Acts 1/ (400) (400) (400) 

Ten-Percent Roads and Trails Fund 1/ (6,850) (4,900) (4,900) 

Federal Lands Recreation Enhancement Fund 61,042 62,000 65,000 

Land Between the Lakes (LBL) Management Fund 3,838 4,100 4,250 

Land Between the Lakes (LBL) Trust Fund 78 290 250 

 

Total Recreation Management Receipts 113,525 116,390 119,500 

Total Recreation Management Deposits to NFF 41,317 44,700 44,700 

Other Revenues and Receipts 

Grasslands and Land Utilization Projects (LUP)- all other 9 10 10 Yes 

Stewardship Contracting retained receipts 1,261 4,300 4,500 

Cooperative Contributions 43,672 45,800 50,000 

Midewin NTP Restoration Fund & Rental Fees 790 910 910 

Licensee Programs 74 65 65 

Operation and Maintenance of Quarters 7,746 6,700 6,700 

Federal Land and Facility Enhancement Fund 22,792 46,000 50,000 

Restoration of Forestlands and Improvements 21,289 1,600 2,500 

Gifts, Donations, and Bequests for Research 63 65 65 

Valles Caldera Fund 2,485 750 1,000 

 

Total Other Receipts 100,181 106,200 115,750 

Total Other Deposits to Grasslands Fund 9 10 10 

Total Forest Service Revenue and Receipts 448,028 462,824 491,054 

Total Revenue and Receipts from Forest Service Lands 734,028 773,824 831,054 

Total Deposits to NFF & Grasslands Fund 132,126 149,980 163,090 

Deposits & Credits Basis for Act of 1908 (25% Fund) 280,971 295,120 309,320 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page F-3 

Three-Year Receipts by Source and Payments to States 

Revenue, Receipts, and Transfers FY 2007 FY 2008 FY 2009 

 1908 Act 

Receipt 

Payments and Transfers for States and Counties. 3/ 

 

Payments and Transfers from National Forest Fund Receipts 

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

Payments to States, Act of 1908 6,385 6,000 74,000 

Secure Rural Schools & Community Self-Determination 

Act 

Payment to States, Title I & III 70,684 67,000 0 

Transfer to Forest Service, Title II 24,042 27,000 0 

Payments from U.S. Treasury funds 

Secure Rural Schools & Community Self-Determination 

Act 

Payment to States, Title I & III 261,983 315,000 0 

Payments from National Grasslands and Land Utilization Project 

receipts 

Payments to Counties 12,234 11,000 12,000 

 

Total Payments and Transfers for States and Counties 377,429 428,100 88,100 

Funds to Treasury for National Forest Fund Receipts after 

Payments and Transfers 4/ 32,365 0 27,000 

 

Funds to Treasury for National Grasslands and Land 

Utilization Projects after Transfers by Special Acts 4/ 125,175 32,000 35,000 

 

1/ Acquisition of Lands for National Forests, Special Acts are transferred from receipts of certain national forests. 

Ten-Percent Roads and Trails Fund are transferred from National Forest Fund receipts. These funds are split in this 

report based on an estimated proration against the various activities in order to show approximate activity totals, 

however the amounts are not determined, nor recorded, on an activity by activity basis as shown here. Total 

amounts transferred from NFF are shown below: 

 

Acquisition of Lands for National Forests, Special Acts 1,053 1,070 1,070 

Ten-Percent Roads and Trails Fund 16,440 12,000 13,100 

 2/ Represents receipts from NFS lands which are deposited directly to Department of Interior and Department of 

Energy. 

3/ 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/ FY 2007 Transfers includes $115 million from prior years activity that were determined to be excess. 
(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Appendix G 

Activity and Output/Outcome Measures by Appropriation and BLI 

Appropriation Output/Outcome by Activity

Budget Line Item

Measure

Forest and Rangeland Research

Customer satisfaction index score for R&D * na 72% 72% 72% Number of patent applications filed (3-year average) [13] actual for year [12] actual for year na 11 

Percent of R&D programs that have been externally peerreviewed within the last 5 years 0% 25% na 50% 

Number of R&D programs that have been externally peer reviewed in the last 5 years 0 2 na 2 

Percent of peer-reviewed R&D programs that achieve a rating of satisfactory or excellent during the last 5 years 0% 100% na 100% Percent of Nation with accessible FIA data ** 84% 84% 88% 88% Quality Science Index - peer-reviewed fire science 

publications per scientist year on a 3-year rolling average 3.1 3.5 3.5 3.5 

Output Efficiency Index - total fire science products per scientist year on a 3-year rolling average 4.7 5.1 5.0 5.0 

Invasive species tools developed, delivered, and used on a 5-year rolling average 157 171 142 170 

Cost per invasive species tool on a 5-year running average adjusted for budgets. $273 $242 $426 $238 

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

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

FY 2005 

Actual

FY 2006 

Actual

FY 2007

Plan

FY 2007 

Actual

FY 

P
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasure

State and Private Forestry

Forest Health Management - Federal LandsFederal acres treated - Invasives N/A 111,600 89,863 60,029 148,815 Federal acres treated - Native pests N/A 26,846 47,214 49,136 35,722 

Forest Health Management - Cooperative LandsCooperative lands acres treated - Invasives N/A 589,298 517,384 580,629 610,966 Cooperative lands acres treated - Native pests N/A 134,346 91,234 152,440 105,720 State Fire AssistanceCommunities assisted (number) 7,723 4,290 5,278 16,658 5,455 Volunteer Fire AssistanceVolunteer fire departments assisted (number) 4,056 3,062 2,800 10,157 3,500 Forest StewardshipPercentage of nonindustrial private forest acres in important forest resource areas being managed sustainably, as defined by a current Forest Stewardship Plan

N/A N/A N/A 0.5% 10% 

Forest Legacy ProgramAcres of environmentally important forests 

protected from conversion 46,181 361,467 120,000 88,091 107,000 

Parcelization of forests avoided (number of parcels 

prevented) * N/A 19,342 6,400 2,880 4,600 

* The FY 2007-FY 2009 targets reflect only 1 year of parcelization data; eventually, a 3-year average will be used.Urban and Community ForestryPercentage of people living in communities managing 

programs to plant, protect, and maintain their urban and community trees and forests.

N/A 37% 38% 38% 37% 

Percentage of people living in communities developing programs and/or activities to plant, protect, and maintain their urban and community trees and forests.

N/A 36% 35% 34% 20% 

* The FY 2009 President's Budget does not provide funding for State programs

FY 2008 

Plan

FY 2005 

Actual

FY 2006 

Actual

FY 2007

Plan

FY 2007 

Actual
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasure

National Forest System

Land Management PlanningNumber of land management plan amendments underway 44 23 33 36 3Number of land management plan revisions or creations underway 48 50 41 41 4

Inventory and MonitoringAcres of inventory data collected and acquired N/A N/A 17,309,350 20,860,388 22,642,20

Number of annual monitoring requirements completed N/A N/A 1,250 1,487 1,20Number of land mangement plan assessments completed * 149 97 53 52 3* Measure name changed from "ecosystem assessments completed" starting in FY 2009.Recreation, Heritage, and WildernessNumber of recreation site capacity (PAOT* days) operated to standard 92,780,394 82,482,208 70,240,000 69,686,938 70,230,00

Percentage of NFS lands covered by travel management plans resulting in visitor safety, resource protection using best management practices and less visitor conflict with off-road vehicle useage

N/A 0.3% 16% 13% 40

Number of recreation special use authorizations administered to standard 15,062 10,091 9,375 9,524 9,01Number of priority heritage assets managed to standard N/A N/A 2,082 1,982 2,29

Number of wilderness areas managed to minimum stewardship level 48 61 74 67 7

Number of wild & scenic river areas meeting statutory requirements** N/A 47 51 45 4

Customer satisfaction with value for fee paid N/A N/A 84% 83% 85

* PAOT is Persons At One Time** Definition changed from "...areas managed to standard" in FY 2008

FY 200

Plan

FY 2007

Plan

FY 2007 

Actual

FY 2005 

Actual

FY 2006 

Actual
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasure

National Forest System

Wildlife and Fisheries Habitat ManagementMiles of stream habitat restored or enhanced 1,623 1,655 1,300 1,542 1,Acres of lake habitat restored or enhanced 19,250 15,996 9,755 13,002 12,Acres of terrestrial habitat enhanced 230,867 278,811 152,840 273,562 1,250,Grazing ManagementAllotment acres administered to 100 percent of Forest Plan standards 36,503,278 49,583,208 34,482,080 42,775,483 36,860,

Number of grazing allotments with signed decision notices 543 443 460 670 Forest ProductsVolume of regular timber sold (Hundred Cubic Feet (CCF))* N/A 2,956,316 4,002,000 3,111,523 4,000,

Volume of regular timber sold (million board feet N/A 1,530 2,001 1,610 2,Volume of total timber harvested (MMBF) ** 2,098 2,296 2,300 1,960 2,Volume of total timber harvested (CCF)** 3,966,544 4,427,703 3,900,000 3,794,744 4,200,

* Output changed from "timber volume offered" to "timber volume sold" in FY 2006.** Output includes reegular and salvage timber volume harvested.Vegetation and Watershed ManagementAcres of forest vegetation improved N/A 62,185 68,097 60,658 146,Acres of forest vegetation established N/A 33,827 33,773 73,921 217,Acres of rangeland vegetation improved 1,521,286 1,755,824 1,630,240 2,021,505 1,794,

Acres of watershed improvement 13,510 16,934 12,200 27,297 25,Acres of noxious weeds and invasive plants treated 120,040 79,069 115,700 128,223 191,

FY 2005 

Actual

FY 2006 

Actual

FY 2007

Plan

FY 2007 

Actual

FY 20

Pla
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasure

National Forest System

Minerals and Geology ManagementNumber of mineral operations administered 13,712 15,152 9,280 11,718 11,955 Number of mineral applications processed* 8,017 11,632 7,561 10,604 6,700 Number of AML safety risk features mitigated to "no further action** N/A 346 539 403 506 Number of administrative units where audits were conducted N/A 20 34 N/A 34 Percentage of contaminated sites mitigated *** N/A N/A N/A N/A 10% Number of new applications for permits to drill (APDs) processed within prescribed timeframes 29 115 325 502 325 

* Activity redefined in FY 2007 from "Number of mineral operations processed"**In FY 2008, accomplishments represent planned completion of muti-year projects. In FY 2006-2007, planned accomplishments included on-going multi-year projects that would not be completed until future years.

*** New activity starting in FY 2008.Landownership ManagementAcres of land adjustments to conserve the integrity of undeveloped lands and habitat quality* 353,770 14,719 12,030 27,002 39,044 Miles of landownership boundary line marked/maintained to standard 2,365 2,334 2,385 2,606 3,142 Number of land use authorizations administered to standard 6,740 12,708 12,170 14,797 9,323 Number of land use proposals and applications processed 4,083 4,611 4,375 5,111 4,259 * Activity redefined; FY2006 was "Land ownership acres adjusted", FY 2007 was "Acres acquired or conveyed"

FY 2008 

Plan

FY 2005 

Actual

FY 2006 

Actual

FY 2007

Plan

FY 2007 

Actual
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasure

National Forest System

Law Enforcement OperationsPercent of cases referred for adjudication* N/A N/A 4.3% 4.3% 4.5% Percent of documented law enforcement incidents per 10,000 forest visits* N/A N/A 6.3% 6.3% 6.8% 

Wildland Fire Management

PreparednessPercent change from the 10-year average for the number of wildfires controlled during initial attack* N/A -0.4% +/-0.5% -1.0% +/-0.5% Percent change from the 10-year average for the number of human-caused wildfires* N/A 4.5% -2.0% -0.9% -2.0% * New activity beginning in FY 2007.Fire OperationsSuppressionPercent of fires not contained in initial attack that exceed a Stratified Cost Index (SCI) N/A 26.5% 21.0% 22.0% 20.0% Three-year percent of fires not contained in initial attack that exceed a Stratified Cost Index (SCI)* N/A N/A 25.3% 23.9% 23.1% *New activity beginning in FY 2007.Hazardous FuelsTotal acres treated in Wildland Urban Interface (WUI) and non-WUI and also acres treated for other vegetation management activities that achieved fire objectives as a secondary benefit.

2,721,872 2,547,586 2,900,000 3,026,707 2,950,000 

Percentage of total National Forest System land base for which fire risk is reduced though movement to a better condition class.

N/A 1.1% 2.0% 1.9% 3.0% 

Acres moved to a better condition class per million dollars 

gross investment. N/A 1,934 2,550 1,809 2,700 * Definitions changed for FY 2007 from prior years. Baseline established in FY 2007.

FY 2005 

Actual

FY 2006 

Actual

FY 2007

Plan

FY 2007 

Actual

FY 2008 

Plan
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasure

Wildland Fire Management

Hazardous FuelsNumber of acres treated to restore fire-adapted ecosystems 

which are moved toward desired conditions N/A 991,075 1,160,000 1,350,169 1,18Percent of acres treated to restore fire-adapted ecosystems which are moved toward desired conditions N/A 39.0% 40.0% 72.0% 4Number of acres treated to restore fire-adapted ecosystems which are maintained in desired conditions. N/A 830,081 1,015,000 378,710 1,12Percent of acres treated to restore fire-adapted ecosystems which are maintained in desired conditions. N/A 33.0% 35.0% 13.3% 3Percent of treated acres identified in Community Wildfire Protection Plans or equivalent plans. N/A 17.0% 22.5% 24.7% 2Rehabilitation (NFP)Rehabilitation projects completed 137 N/A 20 986 Fire Research and Development (NFP)Customer satisfaction index score for R&D * na 72% 72% 72% Forest Health Management - Federal Lands (NFP)Federal acres treated under NFP-Invasives N/A 1,588 0 1,602 Federal acres treated under NFP-Native pests N/A 39,668 20,455 21,146 1Forest Health Management - Cooperative Lands (NFP)Acres treated on cooperative lands under NFP-Invasives N/A 192,850 150,174 158,234 13Acres treated on cooperative lands under NFP-Native N/A 8,441 6,745 12,456 1State Fire Assistance (NFP)Communities at risk from wildfire assisted-NFP 11,413 7,150 6,765 29,064 Volunteer Fire Assistance (NFP)Volunteer fire departments assisted-NFP 5,377 4,058 5,650 5,789 

FY 2005 

Actual

FY 2006 

Actual

FY 2007

Plan

FY 2007 

Actual

FY 2

Pl
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

Revised February 25, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasure

Capital Improvement and Maintenance

FacilitiesFacilities condition index * 88% 89% 87% 89% Percent of facilities with "Good" or "Fair" condition rating** N/A 64% 67% 66% Number of outdoor recreation facilities maintained to standard N/A 9,770 9,837 10,231 FAO facilities maintained to standard N/A N/A 12,228 11,881 * A ratio of the cost of remedying maintenance deficiencies to the current replacement value, commonly used by private  firms to monitor condition of facilities.** Facility condition rating is a subset of the facility condition index. The rating percentage applies to those facilities with a completed condition survey (92% completed) and does not represent anticipated improvements to overall facility condition.RoadsMiles of high clearance and closed roads receiving maintenance* 25,094 28,598 24,252 20,725 Miles of passenger car roads receiving maintenance 42,896 43,073 44,280 39,453 Miles of roads decommissioned 938 682 692 402 Miles of road reconstruction and capital improvement 333 179 315 617 Percent of road and trail rights-of-way acquired that provide public access through easement acquisitions or land adjustments**

N/A 94% 90% 90% 

* Activity includes closed roads up to and including FY 2006, but not in later years.**Activity is accomplished with multiple funds (CIM roads, CIM Deferred Maintenance, Roads& Trails 10% Fund, CIM Trail and NF Land Management Planning

Trails

Miles of trail maintained to standard 25,208 24,860 22,470 25,696 Miles of system trail improved to standard 1,378 1,410 1,130 1,594 

FY 2005 

Actual

FY 2006 

Actual

FY 2007

Plan

FY 2007 

Actual

FY 

P
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasure

Land Acquisition

Number of acres acquired or donated* 48,216 49,363 25,160 125,742 25,260 Priority acres acquired or donated that reduce the conversion of forests, grasslands, and aquatic and riparian ecosystems to incompatible uses in order to improve and maintain ecological conditions for federally listed and candidate species, species of concern, and species of interest

29,553 31,460 17,700 20,377 12,700 

*Activity "National Forest System acres acquired" 

Other Appropriations

Brush DisposalAcres of harvest related woody fuels treated 32,047 29,130 32,000 70,940 38,000 Timber Sale PipelineTimber Pipeline volume sold 248 448 N.A. 264 300 Forest Botanical ProductsSold value of forest botanical products $1,418,860 $2,244,191 NA $2,503,442 $2,800,000 

Timber Salvage SalesSalvage timber volume sold (hundred cubic feet (CCF))* N/A 974 650 517 460 Salvage timber volume sold (million board feet (MMBF))* N/A 1,862,175 1,300,000 978,050 920,000 * New output measure starting in FY 2006

Range Betterment Fund

Structures Improved* 422 44 500 270 500 * FY 2006 accomplishment data underreported in the database of record. Reporting instructions clarified for FY 2007 forward.

FY 2008 

Plan

FY 2007

Plan

FY 2007 

Actual

FY 2005 

Actual

FY 2006 

Actual
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasureCooperative Work - Knutson-Vandeberg (CWKV)

Acres of forest vegetation established 67,430 63,112 N/A 62,195 117Acres of forestland vegetation improved 66,190 59,426 N/A 61,381 63Highest priority acres treated annually for noxious weeds & invasive plants on NFS lands 21,500 14,119 N/A 19,977 28Acres of lake habitat restored or enhanced with nonWildlife funds N/A 11 N/A 1,118 1Miles of stream habitat restored or enhanced N/A 19 N/A 2 Acres of wildlife habitat (terrestrial) (TES and NonTES) restored or improved with non-Wildlife dollars 100,000 N/A N/A 99,663 232Miles of road decommissioning N/A 18 N/A 61 Miles of high clearance system roads improved N/A N/A N/A 33 Miles of passenger car system roads improved N/A N/A N/A 13 Number of stream crossings constructed or reconstructed to provide for aquatic organism passage

N/A N/A N/A 15 

Acres of hazardous fuels treated to reduce risk of catastrophic fire 137,000 N/A N/A 129,864 Acres of rangeland vegetation improved N/A 1,178 N/A 168 2Acres of water or soil resources protected, maintained or improved to achieve desired watershed conditions

N/A N/A N/A 4,670 6

FY 2

Pl

FY 2005 

Actual

FY 2006 

Actual

FY 2007 

Plan

FY 2007 

Actual
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasureCooperative Work - Knutson-Vandeberg Regional (CWK2)

Acres of forest vegetation established N/A 3,675 6,134 39,641 3,200 

Acres of forestland vegetation improved N/A N/A N/A 0 

4,570

Forestlands treated to achieve healthier conditions N/A N/A 38,852 57,756 17,000 

Hundred Cubic Feet (CCF) of timber volume sold N/A 621,919 746,000 716,408 280,000 Million Board Feet (MMBF) of timber volume sold N/A 329 373 372 140 Miles of property line maintained to standard N/A N/A N/A 0 

14

Miles of property line marked/maintained to standard N/A N/A N/A 0 

36

Miles of property line marked to standard N/A N/A N/A 0 

22

Miles of high clearance system roads receiving maintenance N/A 692 N/A 1,811 0 Miles of road maintenance N/A 1,908 1,240 3,609 0 

Miles of passenger car system roads receiving maintenance N/A 1,216 1,240 1,799 0 Acres of hazardous fuels treated to reduce risk of catastrophic fire N/A N/A 87,252 45,951 0 Acres of hazardous fuels treated to reduce risk of catastrophic fire N/A N/A N/A 10,363 0 Acres of wildland-urban interface (WUI) high-priority hazardous fuels treated N/A 110,893 48,400 35,588 0 Highest priority acres treated annually for noxious weeds & invasive plants on NFS lands N/A 40,798 5,365 6,993 0 Acres of rangeland vegetation improved N/A 860 N/A 00

Acres of water or soil resources protected, maintained or improved to achieve desired watershed conditions

N/A 773 400 242 0 

Acres of lake habitat restored or enhanced with nonWildlife funds N/A 12 N/A 345 0 Miles of stream habitat restored or enhanced N/A N/A 100 2 0 

Acres of wildlife habitat (terrestrial) (TES and NonTES) restored or improved with non-Wildlife dollars N/A N/A 20,000 9,769 0 

FY 2007 

Plan

FY 2007 

Actual

FY 2008 

Plan

FY 2005 

Actual

FY 2006 

Actual
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 

Appropriation Output/Outcome by Activity

Budget Line ItemMeasureReforestation Trust Fund 

Acres of forest vegetation established N/A N/A 55,000 70,290 57,500 55

Acres of forestland vegetation improved N/A N/A 2,600 22,782 13,300 14

Stewardship Contracting

Acres of forest vegetation established 47 1,264 N/A 111 50 

Acres of forestland vegetation improved 13,008 6,108 N/A 14,275 13,000 14,3

Acres of noxious weeds/ invasive plant treatments 2,769 30 N/A 193 50 Acres of wildlife habitat restored or improved 4,988 4,022 N/A 12,196 8,000 8,8Miles of stream habitat restored or enhanced 42 1.5 N/A 87 80 Miles of road decommissioning 90 68 N/A 29 26 

Miles of high clearance system roads improved N/A 1 N/A 1 N/A 129 116 1

Miles of passenger car system roads improved N/A 1 N/A 1 N/A 35 32 Hundred cubic feet of timber volume sold 196,079 471,996 N/A 655,072 400,000 750,0Million board feet of timber volume sold N/A 241 N/A 331 200 3Green tons of biomass made available for energy production 37,464 70,147 N/A 383,767 273,000 342,0Acres of stewardship contracts / agreements 34,491 60,344 N/A 77,676 91,000 107,0Acres of hazardous fuels treated to reduce the risk of catastrophic fires 2 52,944 59,152 N/A 49,938 50,000 52,0

Acres of WUI treatments 3 29,324 35,727 N/A 34,285 34,000 35,0Number of stewardship contracts / agreements contributing to watersheds in fully functioning condition (number)

5 4 7 N/A 4 7 

1 Road improvements not broken out by road type in FY 2005-2006. Total road improvements were 18 and 533, respectively.2 For FY 2005 - includes hazardous fuels in condition class 2 or 3 in fire regimes 1, 2, or 3 treated outside the 

 wildland-urban interface (WUI), as well as hazardous fuels in fire regimes 1, 2, or 3 moved to a better condition class.

2 For FY 2006 - includes hazardous fuels in condition class 2 or 3 that result in a desired change in condition class 

 (WUI and non-WUI), as well as non-WUI hazardous fuels treated.

2 For FY 2007 - includes non-WUI hazardous fuels treated under stewardship contracting, as well as

 non-WUI hazardous fules treated.

3 For FY 2005-2006 - includes WUI high priority fuels treated; for FY 2007 includes WUI treatments to reduce the risk 

 of catastrophic wildland fire under stewardship contracting.

4 For FY 2005 only - reported as the number of watershed where conditions improved due to stewardship contracting.

FY 2007 

Plan

FY 2007 

Actual

FY 2008 

Plan

FY 20

Plan

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Actual
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

Revised February 25, 2008 Page H-1 FY 2009 FACILITIES PROGRAM ($ in thousands) Region 1 Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS Regionwide Planning & Design * 30 200 30 200 230 1,200 250 Regionwide Minor Improvement Projects ** 1,528 1,528 1,528 519 783 R101 MT 1 Gallatin Cooke City Guard Station/Office/Residence N 700 700 700 50 R102 ID 1 Idaho Panhandle Sandpoint Ranger Station Office N 355 355 355 R103 MT 1 Beaverhead-Deerlodge Office Energy Reduction N 260 260 260 3 R104 ID 1 Idaho Panhandle Avery Office Renovation N 370 370 370 R105 ID 1 Clearwater Kelly Work Center Water System N 355 355 355 250 R106 MT 1 Flathead Doris Creek Complex--Hungry Horse 

(Phase 1)

N 265 265 265 275 20

 TOTAL $ 30 $ 1,793 $ 985 $ 1,255 $ 1,015 $ 3,048 $ 4,063 $ 794 $ 1,105 $ 1,200 $ 250

Region 2

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 75 100 30 30 105 130 235 100 4,728 1,076

R201 CO 2 White River Crooked Creek Reservoir Outlet N 195 128 195 128 323 205 R202 WY 1 Bighorn Dead Swede Campground/Picnic Site 

Rehabilitation

 N 380 247 380 247 627 283 380 5 2

R203 CO 3 Grand Mesa, 

Uncompagre, Gunnison

Lost Lake Campground Rehabilitation N 186 108 186 108 294 192 153 21

R204 CO 3 Grand Mesa, 

Uncompagre, Gunnison

Grand Mesa Visitors Center Rehabilitation N 516 356 516 356 872 516

R205 WY 1 Shoshone Island Lake Campground Rehabilitation N 503 503 0 503 150 217 46

R206 CO 3 Rio Grande Big Meadows Campground Rehabilitation N 267 203 267 203 470 200 198 

R207 SD 1 Black Hills Hell Canyon District Office Addition N 125 1,443 125 1,443 1,568 91

 TOTAL $ 2,122 $ 1,142 $ 155 $ 1,473 $ 2,277 $ 2,615 $ 4,892 $ 925 $ 1,760 $ 4,800 $ 1,078

Region 3

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 87 52 403 87 455 542 3,040 1,504

R301 AZ 1 Prescott Verde Valley Administrative Site N 1,654 1,654 1,654 1,302 R302 NM 1 Cibola Capulin Snow Play N 278 265 278 265 543 218 84

R303 AZ 1 Coconino Oak Creek Complex N 777 777 777 253 728

 TOTAL $ 1,142 $ 317 $ 2,057 $ 1,142 $ 2,374 $ 3,516 $ 471 $ 2,114 $ 3,040 $ 1,504

OUTYEAR FUNDING

Construction costs beyond

FY 2009

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities FundingFY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

Construction costs beyond

FY 2009
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

Revised February 25, 2008 Page H-2 FY 2009 FACILITIES PROGRAM ($ in thousands) Region 4 Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS Regionwide Planning & Design * 45 100 145 145 45 2,490 R401 CA 3 Humbolt-Toiyabe Markleeville-Turtlerock Fire Station Relocation 

(Phase 3)

Y 230 230 230 230 460 246

R402 UT 2 Dixie Pine Valley Recreation Area Reconstruction 

(Phase 2)

N 1,200 1,200 1,200 1,645 216 460 930

R403 NV 2 Humbolt-Toiyabe Cason District Barracks Y 35 1,850 35 1,850 1,885 300

 TOTAL $ 1,245 $ 265 $ 2,180 $ 265 $ 3,425 $ 3,690 $ 1,690 $ 762 $ 2,950 $ 930

Region 5

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 13 13 30 103 43 116 158 5,534 1,639

Regionwide Minor Improvement Projects ** 189 223 412 412 211

R501 CA 21 Sierra Falls Beach Rehabilitation N 368 368 368 270 296 R502 CA 4 Lassen Almanor Group Campground N 1,100 1,100 1,100 668 113

R503 CA 25 Inyo Rock Creek Barracks Y 687 687 687 74 390 45 5

R504 CA 4 LakeTahoe Basin 

Management Unit

Fallen Leaf Water System N 964 964 964 500 

R505 CA 2 Shasta-Trinity McCloud District Office N 945 945 945 11 525

R506 CA 21 Sequoia Princess Campground N 451 451 451 759 247

 TOTAL $ 2,528 $ 570 $ 975 $ 1,013 $ 3,503 $ 1,583 $ 5,085 $ 1,782 $ 2,282 $ 5,579 $ 1,644

Region 6

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 110 325 435 435 1,350

Regionwide Minor Improvement Projects ** 509 860 1,369 1,369 1,195

R601 OR 5 Mount Hood Timberline Lodge Chimneys N 728 728 728 633 

R602 OR 2 Mount Hood Cloud Cap Inn East Wing (Phase 2) N 100 100 100 316

R603 OR 2 Mount Hood Barlow Ranger Station Office Addition N 1,000 1,000 1,000 150

R604 WA 3 Mount Baker - 

Snoqualmie

Snoqualmie Ranger Station Sewer System N 500 500 500 500

R605 WA 5 Colville Growden Dam Removal N 350 350 350 735 R606 WA 4 Okanogan and 

Wenatchee 

25 Mile Creek Dock & Boathouse N 1,260 1,260 1,260 90

 TOTAL $ 828 $ 619 $ 4,295 $ 828 $ 4,914 $ 5,742 $ 3,619 $ 1,350 $ 0

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

Revised February 25, 2008 Page H-3 FY 2009 FACILITIES PROGRAM ($ in thousands) Region 8 Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS Regionwide Planning & Design * 85 205 85 205 290 1,900 R801 TX 1 NFs in Texas Texas Supervisors Office - Phase 2 N 1,450 1,450 1,450 R802 FL 8 NFs in Florida River Forest Group Area Rehabilitation N 410 410 410 507 R803 SC 6 Francis Marion and Sumter Francis Marion Ranger District Office 

(Phase 1)

N 1,050 1,050 1,050 712 1,080

R804 AR 4 Ouachita Albert Pike Campground Rehabilitation N 265 265 265 100 161 

R805 MS 1 NFs in Mississippi Choctaw Lake Recreation Area Electrical 

Rehabilitation

 N 275 275 275 50 168 

 TOTAL $ 1,035 $ 2,705 $ 1,035 $ 2,705 $ 3,740 $ 150 $ 1,548 $ 2,980 $ 0

Region 9

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 435 435 435 50 5,215 750

Regionwide Minor Improvement Projects ** 141 141 141 

R901 NH 2 White Mountain White Mountain Administrative Site 

(Phase 3)

N 1,303 1,303 1,303 

R902 MI 1 Ottawa Watersmeet Administrative Site (Phase 2) N 2,716 2,716 2,716 750 2,172 2,172 100

R903 MI 1 Hiawatha Whitefish Bay National Scenic Byway Sites 

Rehab

N 494 96 494 96 590 440 275

 TOTAL $ 494 $ 237 $ 4,454 $ 494 $ 4,691 $ 5,185 $ 1,240 $ 2,447 $ 7,387 $ 850

Region 10

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

AK At large Regionwide Planning & Design * 84 94 126 266 210 360 570 1,979 300

AK At large Regionwide Minor Improvement Projects ** 732 732 732 383

R1001 AK At large Tongass Ketchikan Misty Ranger District Admin Site 

Renovation

N 875 2,203 875 2,203 3,078 875

 TOTAL $ 84 $ 826 $ 1,001 $ 2,469 $ 1,085 $ 3,295 $ 4,380 $ 0 $ 1,258 $ 1,979 $ 300

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

Revised February 25, 2008 Page H-4 FY 2009 FACILITIES PROGRAM ($ in thousands) Research Stations Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS ID State District Station/Lab Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS Research Wide Planning & Design * 234 234 234 234 468 8,663 Research Wide Minor Improvement Projects ** 362 362 362 362 724 400

0

S001 WI 2 Forest Products Lab, 

Madison

Forest Products Lab Modernization (Phase 3) N 5,564 9,944 5,564 9,944 15,508 5,564

S002 CO 2 Rocky Mountain Station, 

Fraser

Fraser Experimental Forest Headquarters Complex Upgrades

N 376 421 376 421 797 376

S003 CA 2 Pacific Southwest Station, 

California

Meadow Valley Barracks Construction N 765 765 765

S004 NC 11 Southern Station, Bent Cr Bent Creek Conference Center N 514 590 514 590 1,104 514 S005 MN 4 Northern Station, St Paul Building Envelope Renovation N 1,450 378 1,450 378 1,828 1,450S006 PR N/A International Institute of 

Tropical Forestry, Sabana

Sabana Deferred Maintenance & Capital Improvement

N 160 121 160 121 281 160

 TOTAL $ 8,660 $ 12,815 $ 8,660 $ 12,815 $ 21,475 $ 8,464 $ 8,663 $ 0

Area

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Area Unit Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 170 170 170 1,415

NA01 PA 10 Grey Towers Water Distribution System Rehabilitation N 450 450 450 450

NA02 WV 3 Wood Education and 

Resource Center

Maintenance and Storage Building Construction

N 240 240 240 

 TOTAL $ 620 $ 240 $ 620 $ 240 $ 860 $ 450 $ 1,415 $ 0

Technology Development Centers

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Tech Center Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

TD01 CA 26 San Dimas Tech 

Development Center

HVAC Replacement N 500 500 500 400

TD02 CA 26 San Dimas Tech 

Development Center

Pavement Maintenance N 776 776 776 500

TD03 MT 1 Missoula Tech 

Development Center

Solar Roof Photo Voltaic N 350 0 350 350

 TOTAL $ 1,276 $ 350 $ 1,276 $ 350 $ 1,626 $ 900 $ 0 $ 0

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

Construction costs beyond

FY 2009

OUTYEAR FUNDING
U.S. Department of Agriculture - Forest Service 

 Overview of FY 2009 President’s Budget

Revised February 25, 2008 Page H-5 FY 2009 FACILITIES PROGRAM ($ in thousands) TOTALS FOR REGIONS, STATIONS, AREA, and TECH CENTERS RECREATION RECREATION FA&O FA&O TOTAL TOTAL FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS Regions Subtotal $ 8,263 $ 6,749 $ 3,381 $ 21,901 $ 11,644 $ 28,650 $ 40,294 $ 7,052 $ 16,895 $ 31,265 $ 6,556 Stations Subtotal $ 0 $ 0 $ 8,660 $ 12,815 $ 8,660 $ 12,815 $ 21,475 $ 0 $ 8,464 $ 8,663 $ 0 Area and Tech Centers Subtotal $ 0 $ 0 $ 1,896 $ 590 $ 1,896 $ 590 $ 2,486 $ 0 $ 1,350 $ 1,415 $ 0 TOTAL, MAJOR PROJECT LIST $ 8,263 $ 6,749 $ 13,937 $ 35,306 $ 22,200 $ 42,055 $ 64,255 $ 7,052 $ 26,709 $ 41,343 $ 6,556 Recreation Maintenance Under $250,000 $ 41,209 $ 0 $ 0 $ 0 $ 41,209 $ 0 $ 41,209 $ 0 $ 0 $ 0 $ 0 Washington Office $ 1,803 $ 618 $ 1,051 $ 3,030 $ 2,854 $ 3,648 $ 6,502 $ 0 $ 0 $ 0 Albuquerque Service Center Business Management $ 3,690 $ 503 $ 898 $ 2,590 $ 4,588 $ 3,093 $ 7,681 $ 0 $ 0 $ 0 $ 0 TOTAL, OTHER PROGRAM SUPPORT $ 46,702 $ 1,121 $ 1,949 $ 5,620 $ 48,651 $ 6,741 $ 55,392 $ 0 $ 0 $ 0 $ 0 TOTAL FACILITIES $ 54,965 $ 7,870 $ 15,886 $ 40,926 $ 70,851 $ 48,796 $ 119,647 $ 7,052 $ 26,709 $ 41,343 $ 6,556 Notes: * Planning and Design (P&D) for capital investment projects costing more than $250,000. Project names are provided in the associated fact sheet. ** Capital improvement projects costing less than $250,000. FY 2009 Facilities Funding Amt. of Facilities Deferred Maintenance Eliminated by FY 2009 Investment OUTYEAR FUNDING Construction costs beyond FY 2009
(This page inserted for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page I-1 

Appendix I

Program Components and Costs of the Timber Sales Program 

FY 2007 – FY 2009 

 

CUBIC FEET 2007 2008 2009 

Final Programmed Estimate 

National Forest System Forest Products 

 Funding (Dollars in thousands) $319,614 $322,503 $322,666 

 Volume Sold (CCF) 3,111,523 4,000,000 4,200,000 

 Additional Opportunity Volume Sold (CCF) 2

 1,450,000 

 

Salvage Sale Fund 

 Funding (Dollars in thousands) $67,770 $61,300 $52,000 

 Volume Sold (CCF) 978,050 920,000 750,000 

 Additional Opportunity Volume Sold (CCF) 2

 600,000 

 

Knutson - Vandenberg Funds (with Forest Products produced) 

 Funding (Dollars in thousands) $39,760 $16,000 $0 

 Volume Sold (CCF) 716,408 280,000 0 

 

Timber Sales Pipeline Restoration Fund (Sale Preparation only) 

 Funding (Dollars in thousands) $3,143 $6,000 $3,900 

 

Purchaser Election 

 Funding (Dollars in thousands) $0 $15,000 $0 

 Volume Sold (CCF) 0 200,000 0 

 

Total, Timber Sales Program 

 Funding (Dollars in thousands) $430,287 $420,803 $378,566 

 Volume Sold (CCF) 4,805,981 5,400,000 4,950,000 

 Average unit cost ($/CCF) $90 $78 $76 

 Additional Opportunity Volume Sold (CCF) 2

 2,050,000 

 Total Volume Sold (CCF) 4,805,981 5,400,000 7,000,000 

 

Total, Timber Harvested (CCF) 1

 3,794,734 4,200,000 4,600,000 

 

Road Construction/Reconstruction for Timber Sales and Land 

Stewardship Contracting (Dollars in thousands) 

 Forest Service Engineering Support for Forest Products $58,000 $60,400 $57,500 

 

Notes: 

1 Includes both regular and salvage timber volume. 2

 The Additional Opportunity is based on improvements in the housing market and lumber prices. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page I-2 

Program Components and Costs of the Timber Sales Program 

FY 2007 – FY 2009 

 

BOARD FEET 2007 2008 2009 

Final Programmed Estimate 

National Forest System Forest Products 

 Funding (Dollars in thousands) $319,614 $322,503 $322,666 

 Volume Sold (MMBF) 1,610 2,000 2,100 

 Additional Opportunity Volume Sold (MMBF) 2

 725 

 

Salvage Sale Fund 

 Funding (Dollars in thousands) $67,770 $61,300 $52,000 

 Volume Sold (MMBF) 517 460 375 

 Additional Opportunity Volume Sold (MMBF) 2

 300 

 

Knutson -Vandenberg Funds (with Forest Products produced) 

 Funding (Dollars in thousands) $39,760 $16,000 $0 

 Volume Sold (MMBF) 372 140 0 

 

Timber Sales Pipeline Restoration Fund (Sale Preparation only) 

 Funding (Dollars in thousands) $3,143 $6,000 $3,900 

 

Purchaser Election 

 Funding (Dollars in thousands) $0 $15,000 $0 

 Volume Sold (MMBF) 0 100 0 

 

Total, Timber Sales Program 

 Funding (Dollars in thousands) $430,287 $420,803 $378,566 

 Volume Sold (MMBF) 2,499 2,700 2,475 

 Average unit cost ($/MBF) $172 $156 $153 

 Additional Opportunity Volume Sold (MMBF) 2

 1,025 

 Total Volume Sold (MMBF) 2,499 2,700 3,500 

 

Total, Timber Harvest (MMBF) 1

 1,960 2,100 2,300 

 

Road Construction/Reconstruction for Timber Sales and Land 

Stewardship Contracting (Dollars in thousands) 

 Forest Service Engineering Support for Forest Products $58,000 $60,400 $57,500 

 

Notes: 

1

 Includes both regular and salvage timber volume. 

2

 The Additional Opportunity is based on improvements in the housing market and lumber prices. 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page J-1 

Appendix J

FY 2009 Proposed Forest Legacy Program 

FY2009 Project List 

 (Order reflects rank in priority) 

Rank State Project Name Funding 

1 ME Machias River $3,450,000 

2 CA Chalk Mountain Area $3,000,000 

3 MN Koochiching $3,050,000 

 Administrative Funds $3,000,000 

 TOTAL $12,500,000 
(This page inserted to format for duplex printing) 
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page K-1 

Appendix K

UNITED STATES DEPARTMENT OF AGRICULTURE 

Healthy Forests Initiative 

(Dollars and Acres in Thousands) 

 

 

2004 

Enacted 

2005 

Enacted 

2006 

Enacted 

2007 

Enacted 

2008 

Enacted 

2009 

Budget

Department of the Interior1/ 

Hazardous Fuels $183,896 $201,409 $208,113 $199,787 $199,628 $202,792

Additional Haz Fuels (Southern 

California) $10,000 

Joint Fire Sciences 3,951 3,945 2,956 2,956 2,953 2,000

Forest Management 44,277 49,068 50,302 52,214 53,233 49,792 

Vegetation & Watershed 8,143 9,746 9,724 9,688 12,221 12,234

Wildlife & Fish 9,843 12,560 15,044 15,006 16,101 15,961 

Rangeland Management 23,375 23,059 23,059 22,631 23,566 23,155

DOI Total 273,485 299,787 309,198 302,282 317,702 305,934

 

Forest Service 

Research 19,000 19,285 24,000 28,000 30,930 28,000

State & Private Forestry: 

 Forest Health Management 5,030 29,575 26,502 22,409 19,063 7,000

 State Fire Assistance (SFA) 7,500 14,443 30,788 31,500 55,729 48,853

 SFA - Emergency Supplemental for 

 Southern California 10,000 0 0 0 0 0

 Economic Action Programs 1,000 0 0 0 0 0

National Forest System: 

 Forest Products 39,988 54,640 68,310 94,610 106,692 106,746

 Vegetation & Watershed 48,710 56,884 75,834 28,978 31,004 28,083

 Wildlife & Fish 13,649 17,170 17,721 10,359 12,147 10,531

 Stewardship Contracting 2/ 0 32,400 53,460 64,800 71,000 78,400

Wildland Fire Management: 

 Hazardous Fuels 3/ 258,332 262,593 281,793 301,258 310,086 297,000

Additional Haz Fuels (Southern 

California) 0 30,000 0 0 80,000 0

 National Fire Plan R&D 11,000 14,339 13,000 13,000 13,898 13,000

 Joint Fire Sciences 4,000 3,944 6,000 4,875 3,938 4,000

FS Total 418,209 535,273 597,408 599,790 734,487 621,613

 

Grand Total Funding 691,694 835,060 906,606 902,072 1,052,189 927,547
U.S. Department of Agriculture - Forest Service 

Overview of FY 2009 President’s Budget

February 5, 2008 Page K-2 

UNITED STATES DEPARTMENT OF AGRICULTURE 

Healthy Forests Initiative 

(Dollars and Acres in Thousands) 

 

Acres treated for Hazardous Fuels Reduction: 

 - Acres Treated with Haz Fuels 4/ 1,261 1,269 1,106 1,333 1,097 1,001

 - Accomplish with Other Funds 370 350 350 350 350 350

 

DOI Total 1,631 1,619 1,456 1,683 1,447 1,351

 

Forest Service - Haz Fuels Funds 

 - Acres Treated Inside WUI 4/ 1,311 1,194 1,045 1,139 1,120 995

 - Acres Treated Outside WUI 492 470 409 587 680 605

 

 - Accomplish With Other Funds 5/ 758 1,058 1,093 1,301 1,150 843

FS Total 2,561 2,722 2,547 3,027 2,950 2,443

 

Grand Total Acres 4,192 4,341 4,003 4,710 4,397 3,794

 1/ Department of the Interior (DOI) budget figures were extrapolated from the existing DOI budget structure to fit the 

categorical format of this table. 

2/ Accomplishments from large Stewardship Contracts (>100,000 acres) are reported in the year in which task orders 

are issued for the work, rather than the entire scope of the contract. 3/ FY 2004 and FY 2005 hazardous fuels figures include supplemental for So. California fuels treatments. 

4/ 2008 targets do not include an estimated 24,000 acres to be treated by DOI and 34,000 acres to be treated by Forest 

Service with Southern California Storm Supplemental funding. 

5/ Forest Service FY 2006, FY 2007 and FY 2008 targets for Hazardous Fuels Reduction accomplished with other 

funds include acres treated as a secondary benefit to other land management activities, and estimated acres treated 

through: Wildland Fire Use events, Hazard Mitigation Grants awarded under the State Fire Assistance program, and 

activities of the Southern Nevada Public Lands Management Act. 
2 

Budget At A Glance 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification 

Budget at a Glance 2-1

FY 2009 Forest Service Budget at a Glance 

FY 2007 

Enacted

FY 2008 

Enacted

Pay & Other 

Cost Changes 

(1)

Cost 

Reductions 

(2)

Program 

Changes

P

280,488 285,926 6,157 0 -29,083 

 Fire and Fuels 25,657 26,993 545 0 -4,269 

 Invasive Species 32,915 34,397 698 0 -5,264 

 Recreation Research & Development 4,032 4,113 85 0 -563 

 Resource Management & Use 86,478 85,757 1,845 0 -8,803 

 Water and Air Research & Development 33,878 35,379 718 0 -5,436 

 Fish and Wildlife Research & Development 29,939 30,541 634 0 -4,087 

Inventory & Monitoring 8,209 8,374 174 0 -1,131 

Forest Inventory & Analysis 59,380 60,372 1,458 0 470 

* R&D categorizes work by Strategic Goal rather than specific activities 

279,961 262,808 1,824 -1,588 -153,544 

53,963 54,110 1,234 -1,147 -9,197 

47,104 44,542 101 -138 -34,505 

32,895 32,605 150 -156 -7,599 

5,912 5,906 0 0 -906 

41,947 29,532 97 -41 -24,588 

56,536 52,317 75 -8 -39,884 

30,130 27,691 48 -41 -22,698 

Economic Action Programs 0 4,206 0 0 -4,206 

4,588 4,516 0 0 -4,516 

6,886 7,383 119 -57 -5,445 

1,452,729 1,469,579 29,350 -45,530 -103,862 

57,675 48,833 886 -1,225 4,113 

Maintain Land Management Plans 35,615 26,935 496 -674 2,674 

Create/Revise Land Management Plans 22,060 21,898 390 -551 1,439 

166,638 166,580 2,443 -3,613 -18,947 

Conduct Strategic Resource Inventories 62,727 76,932 1,187 -1,757 -5,178 

Conduct Land Management Plan Monitoring 90,146 79,673 1,065 -1,575 -15,311 

Conduct Ecosystem Assessments 13,765 9,983 191 -281 1,533 

(1) Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation payments, and 

Fund charges.(2) Cost Reductions result from Forest Service transformation efforts

International Forestry

National Forest System

Land Management PlanningInventory & MonitoringForest LegacyUrban & Community ForestryForest Resource Inventory & AnalysisForest Health Cooperative LandsState Fire AssistanceVolunteer Fire AssistanceForest Stewardship

Appropriation  Budget Line Item 

 Activity

Forest and Rangeland Research *State and Private Forestry

Forest Health Federal Lands
FY 2009 Budget Justification 

Budget at a Glance 2-2

FY 2009 Forest Service Budget at a Glance 

FY 2007 

Enacted

FY 2008 

Enacted

Pay & Other 

Cost Changes 

(1)

Cost 

Reductions 

(2)

Program 

Changes

P

1,452,729 1,469,579 29,350 -45,530 -103,862 

258,797 262,635 5,877 -9,827 -21,685 

Manage Recreation Operations 158,640 162,633 3,659 -6,119 -12,605 

Administer Recreation Special Use Authorizations 43,250 37,375 844 -1,412 -2,778 

Manage Heritage Resources 26,027 26,696 617 -1,032 -1,415 

Manage Wilderness and Wild & Scenic Rivers 30,880 35,931 757 -1,264 -4,886 

131,734 132,385 2,531 -3,823 -13,460 

Manage Aquatic Habitat 47,624 47,650 993 -1,500 -1,003 

Manage Terrestrial Habitat 73,800 74,324 1,386 -2,096 -9,176 

Provide Wildlife Interpretation & Education 10,310 10,411 152 -227 -3,280 

47,826 48,163 1,021 -1,633 -526 

Manage Grazing Allotments 23,234 24,510 511 -828 -640 

Prepare Grazing Allotment NEPA 24,592 23,673 510 -805 94 

319,614 322,503 7,843 -11,636 3,956 

Plan and Prepare Timber Sales 243,705 234,192 5,758 -8,381 5,334 

Administer Timber Sales 69,480 88,311 2,085 -3,255 -1,378 

Special Forest Products 6,429 0 000 

176,849 177,437 3,643 -6,084 -9,687 

Improve Forest Vegetation 40,947 38,159 757 -1,263 -3,300 

Establish Forest Vegetation 38,684 39,199 798 -1,333 -2,466 

Manage Rangeland Vegetation 20,193 20,641 489 -819 1,857 

Maintain & Improve Watershed Conditions 50,353 52,034 1,049 -1,747 -3,748 

Manage Noxious Weeds and Invasive Plants 22,134 22,895 440 -735 -2,642 

Manage Air Quality 4,538 4,509 111 -187 612 

84,164 84,143 1,327 -2,343 -12,293 

Administer Minerals Operations 30,325 31,815 510 -998 -4,113 

Process Mineral Applications 23,543 24,198 386 -762 -3,248 

Manage Geologic Resources & Hazards 7,745 8,703 136 -236 -1,337 

Manage Environmental Compliance 2,974 3,610 54 -104 -673 

Manage Environmental Restoration 13,576 9,696 149 -194 -1,679 

AML Safety Risk Mitigated 6,001 6,122 92 -49 -1,242 

(1) Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation payments, and 

Fund charges.(2) Cost Reductions result from Forest Service transformation efforts

Forest ProductsVegetation and Watershed ManagementMinerals and Geology Management

National Forest System

Recreation, Heritage, and WildernessWildlife and Fisheries Habitat ManagementGrazing Management

Appropriation  Budget Line Item 

 Activity
FY 2009 Budget Justification 

Budget At A Glance 2-3 

FY 2009 Forest Service Budget at a Glance 

FY 2007 

Enacted

FY 2008 

Enacted

Pay & Other 

Cost Changes 

(1)

Cost 

Reductions 

(2)

Program 

Changes

P

1,452,729 1,469,579 29,350 -45,530 -103,862 

90,932 91,299 1,604 -2,718 -15,185 

Adjust Land Ownership 14,938 14,470 251 -427 -2,571 

Protect Land Ownership Title 9,423 8,351 136 -230 -1,907 

Locate Land Boundaries 25,953 32,019 577 -971 -4,635 

Administer Land Use Authorizations 20,467 21,041 373 -636 -3,333 

Process Land Use Proposals 20,151 15,417 267 -453 -2,741 

115,000 131,910 2,175 -2,630 -16,455 

Enforce Laws & Regulations 69,934 80,231 1,323 -1,600 -10,022 

Investigate Crime 45,066 51,679 852 -1,030 -6,433 

3,500 3,691 0 0 -3,691 

Ecosystem Service Pilot Projects (3) 0 0 0 0 0 

Rescission of Prior Year Obligations 0 0 0 0 -5,000 

1,823,603 1,943,477 33,918 -14,469 13,666 

665,382 665,819 15,929 -5,352 -88,021 741,477 845,620 10,832 0 137,495 301,258 310,086 6,279 -8,392 -10,973 

Non-Wildland-Urban Hazard Fuels 74,816 77,573 1,351 -2,722 -12,301 

Wildland-Urban Hazard Fuels 226,442 232,513 4,928 -5,670 1,328 

6,189 10,828 0 0 -10,828 

22,789 23,519 398 -233 -1,684 

7,882 7,875 0 0 125 

14,779 14,030 410 -423 236 

9,853 9,858 70 -58 144 

46,221 47,967 0 -11 -12,952 

7,773 7,875 0 0 125 

(3) Ecosystem Services Pilot Projects is a reimbursable account as proposed legislation and not a budget line item.(1) Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation payments, and 

Fund charges.(2) Cost Reductions result from Forest Service transformation efforts

NFP Forest Health Cooperative LandsNFP State Fire AssistanceNFP Volunteer Fire AssistanceNFP Rehabilitation and RestorationNFP Fire R&DJoint Fire SciencesNFP Forest Health Federal Lands

Wildland Fire Management

PreparednessFire Operations - SuppressionHazardous FuelsLandownership ManagementLaw Enforcement OperationsValles Caldera National Preserve

National Forest SystemAppropriation  Budget Line Item 

 Activity
FY 2009 Budget Justification 

Budget At A Glance 2-4 Revised February 25, 2008 

FY 2009 Forest Service Budget at a Glance 

FY 2007 

Enacted

FY 2008 

Enacted

Pay & Other 

Cost Changes 

(1)

Cost 

Reductions 

(2)

Program 

Changes

P

Capital Improvement & Maintenance 436,400 474,768 6,114 -9,601 -65,493 

130,140 121,755 1,369 -2,312 -1,164 

Maintain Facilities 60,725 64,193 782 -1,554 4,927 

Improve Facilities 69,415 57,562 587 -758 -6,092 

Roads 223,798 227,924 3,664 -5,062 473 

Maintain Passenger Car Roads 94,994 95,398 1,405 -1,714 -8,078 

Maintain High Clearance & Closed Roads 14,370 16,153 431 -648 10,735 

Decommission Roads 3,610 4,778 59 -105 -1,069 

Improve Roads 110,824 111,595 1,770 -2,595 -1,115 

Trails 73,362 76,365 1,023 -2,227 -25,120 

Maintain Trails 49,980 50,271 698 -1,482 -15,331 

Improve Trails 23,382 26,094 325 -745 -9,788 

Deferred Maintenance 9,100 8,958 58 0 84 

Legacy Roads & Trails 0 39,766 0 0 -39,766 

Land Acquisition 46,667 43,091 240 -33 -36,998 

Land Acquisition 41,936 41,827 240 -33 -37,034 

Land Acquisition Management 12,000 9,844 240 -33 -5,051 Purchase Land 29,936 31,983 0 0 -31,983 

Acquire Lands Special Acts 1,053 1,037 0 0 13 

Complete Land Exchanges 3,678 227 0 0 23 

7,948 8,779 31 0 -5,160 

63 55 0 0 -5 

2,876 3,750 31 0 -181 

Subsistence Management (R10) 5,009 4,974 0 0 -4,974 

Total - Discretionary Funds 4,327,796 4,488,428 77,635 (71,221) (380,474) 

Total - Mandatory Funds Budget Authority 721,068 767,215 5,241 -4,778 -325,333 

Grand Total 5,048,864 5,255,643 82,876 -75,999 -705,807 

(1) Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation payments, and Depar

Fund charges.

(2) Cost Reductions result from Forest Service transformation efforts

Other Appropriations

Gifts & DonationsRange Betterment FundFacilities

Appropriation  Budget Line Item 

 Activity
FY 2009 Budget Justification USDA Forest Service

Budget at a Glance 2-5

Explanation of Pay & Other Cost Changes 

(Dollar amounts shown in thousands) 

Additional Operational Costs from 2008 and 2009 January Pay Raises 

2008 Pay Raise (final quarter of 2008) Compensation.................................+$17,289 

 Benefits.................................. +$4,975 

2009 Pay Raise (first three quarters of 2009) Compensation.................... +$42,975 

 Benefits........................... +$12,365 

Total Compensation....................................................................... +$60,264 

Total Benefits.......................................................................... +$17,340 

Total Pay Costs........................................................................ +$77,640 

These adjustments are for an additional amount needed in 2009 to fund the remaining 3-month 

portion of the estimated cost of the (on average) 3.5 percent annual pay increases effective in 

January 2008, and the costs of funding three-fourths of an estimated 2.9 percent January 2009 

pay increase for GS-series employees, as well as the associated pay rate changes made in other 

pay series. These adjustments include employee compensation and benefits. 

Other Uncontrollable Cost Changes 

Rental Payments to General Service Administration (GSA) and Others........+$4,104 

The 2009 increase is based on actual 2007 agency payments for rent to GSA, rent to others, and 

communications and utilities costs projected forward using OMB non-pay inflation factors of 

2.4% for 2008 and 2.2% for 2009. The adjustment is for changes in changes in rates for office 

and non-office space. payable to General Service Administration (GSA) and other related 

businesses. 

USDA Working Capital Fund & Greenbook Changes ..........................TBD 

The change reflects expected changes in the charges for services funded through the USDA 

Working Capital Fund (WCF) and Greenbook. Greenbook charges for GSA Space, 

Unemployment Compensation, and Worker’s Compensation are not included in this calculation. 

Unemployment Compensation Charge Changes .................................+$827 

Unemployment Compensation is not reflected in the benefits included in Pay Costs above. The 

2009 increase is based on 2008 agency payments for Unemployment Compensation charges 

projected forward using OMB non-pay inflation factors of 2.4% for 2008 and 2.2% for 2009. 

The adjustment is for estimated changes in the costs of unemployment compensation claims to 

be paid to the Department of Labor, Federal Employees Compensation Account, in the 

Unemployment Trust Fund, pursuant to Public Law 96–499.
(This page inserted to format for duplex printing) 
3 

Strategic Plan & Performance 

Management 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-1 

Strategic Plan and Performance Management 

Strategic Plan Overview

The Forest Service Strategic Plan for FY 2007 – 2012 identifies agency priorities over the planning period 

for fulfilling the agency’s mission to “Sustain the health, diversity, and productivity of the Nation’s 

forests and grasslands to meet the needs of present and future generations.” These priorities are 

addressed in seven strategic goals: 

Goal 1: Restore, Sustain, and Enhance the Nation’s Forests and Grasslands 

Goal 2: Provide and Sustain Benefits to the American People 

Goal 3: Conserve Open Space 

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities 

Goal 5: Maintain Basic Management Capabilities of the Forest Service 

Goal 6: Engage Urban America With Forest Service Programs 

Goal 7: Provide Science-Based Applications and Tools 

Each goal is composed of strategic objectives as well as indicators of agency performance, with baselines 

and FY 2012 targets. The document also includes means and strategies by which agency programs 

accomplish strategic goals and objectives as well as foundational business management standards. 

This exhibit discusses how the agency’s work – past and present – addresses these goals and objectives 

through the management of National Forest System lands, non-industrial private forest lands, and urban 

and community forest lands, as well as resource science, applications, and tools provided by Forest 

Service Research and Development (FS R&D). The agency’s approach is demonstrated in terms of the 

budget as well as programs. The exhibit also analyses program performance on the Strategic Goal level, 

including detailed information on Goal-level analyses, such as the Program Assessment Rating Tool 

(PART) assessment. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-2 

FY 2009 Budget Request by Strategic Goal (in thousands) 

Strategic Plan Goal FY 2007 

Enacted 

FY 2008 

Enacted 

FY 2009 

Pres Budget 

Goal 1: Restore, Sustain, & Enhance Forests & Grasslands $3,754,558 $4,121,452 $3,110,653

Goal 2: Provide and Sustain Benefits $411,320 $427,957 $377,975

Goal 3: Conserve Open Space $180,931 $162,242 $53,818

Goal 4: Sustain & Enhance Outdoor Recreation $582,348 $635,492 $636,446

Goal 5: Maintain Basic Management Capabilities $431,508 $451,653 $378,699

Goal 6: Engage Urban America $35,148 $32,914 $9,665

Goal 7: Provide Science Applications and Tools $100,761 $103,018 $90,750

Total, All Funds – Non Emergency $5,126,573 $5,383,728 $4,653,007

Emergency Funding $370,000 --- ---

TOTAL, ALL FUNDS $5,496,573 $5,934,728 $4,653,007

FY 2009 Budget by Strategic Goal

Goal 7 

2%

Goal 6 

Goal 5 1%

8%

Goal 4 

11%

Goal 3 

3%

Goal 2 

7%

Goal 1 

68%

Goal 1: Restore, Sustain, & Enhance Forests &

Grasslands 

Goal 2: Provide and Sustain Benefits

Goal 3: Conserve Open Space

Goal 4: Sustain & Enhance Outdoor Recreation

Goal 5: Maintain Basic Management Capabilities

Goal 6: Engage Urban America

Goal 7: Provide Science Applications and Tools
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-3 

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

1.1 Reduce the risk to communities and natural resources from wildfire 

1.2 Suppress wildfires efficiently and effectively 

1.3 Build community capacity to suppress and reduce losses from wildfire 

1.4 Reduce adverse impacts from invasive and native species, pests, and diseases 

1.5 Restore and maintain healthy watersheds and diverse habitats 

FY 2009 Budget Request (in thousands) 

Appropriation FY 2007 Enacted FY 2008 Enacted FY 2009 Request 

Forest & Rangeland Research $139,900 $142,312 $131,100

State & Private Forestry $139,874 $137,163 $85,000

National Forest System $577,853 $578,060 $559,162

Wildland Fire Management $1,823,603 $1,943,477 $1,976,592

Capital Improvement & 

Maintenance $75,817 $117,724 $78,469

Other Approps: Subsistence Mgmt $5,009 $4,974 $0

Permanent Funds $455,915 $508,942 $158,630

Trust Funds $167,487 $137,800 $121,700

Total $3,384,558 $4,121,452 $3,110,653

Goal 1 Outcome: Forests and grasslands with the capacity to maintain their health, productivity, 

diversity, and resistance to unnaturally severe disturbance. 

Healthy forests and rangelands, and their watersheds and ecosystems, provide many benefits for current 

and future generations. Since its creation a century ago, the Forest Service has balanced land stewardship 

with meeting public desires for goods and services from National Forest System (NFS) lands. Despite 

past successes, challenges persist, especially as forest health issues are identified. United States 

population growth and expanding urban centers raise demand for goods, services, and amenities from the 

Nation’s private and public forests and rangelands at the same time that invasive pests, natural 

disturbances and other non-natural changes increase stress and risk of catastrophic wildfire for forest and 

rangeland ecosystems. 

Disturbance is a natural process in all ecosystems, in many cases required to maintain or restore desired 

ecological components and relationships. However, the Forest Service and partners are challenged to 

manage disturbance to sustain healthy ecosystems while avoiding intolerable impacts to the goods and 

services provided to us by these wildlands. Fire is a natural component of most forest ecosystems, but 

when fires occur in uncharacteristically heavy fuel conditions, during periods of prolonged drought and 

high winds, or within the wildland urban interface, they threaten both communities and the environment. 

Over-crowded forest stands and drought have also increased the extent and frequency of insect and 

disease outbreaks. Such uncharacteristic disturbance has been of particular concern to the public, the 

Administration, Congress, and land management agencies. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-4 

Invasive species, particularly insects, pathogens, plants, and aquatic pests, pose a long-term risk to forest 

and rangeland health. Forest Service efforts to restore and enhance ecosystem health address the quantity 

and quality of water produced from public and private forests and rangelands, and improve terrestrial and 

aquatic habitat for wildlife and fish. Through management actions on national forests and grasslands and 

through support for State and private management of non-Federal lands, the Nation’s wildland 

ecosystems will be restored and more resilient and able to respond to future climate change and other 

disturbances. 

To achieve this goal and restore the resiliency of the Nation’s forest and grassland ecosystems, the Forest 

Service is focusing its efforts on the following five objectives: 

Principal Programs to Achieve Goal 1

Many Forest Service programs contribute toward achieving the outcome of Goal 1. Some of the 

programs critical to maintaining forest and rangeland health, productivity, diversity, and resistance to 

disturbance are presented below. 

Forest and Rangeland Research has developed FS Pro, a tool for predicting fire spread and likely 

perimeter locations to inform fire fighting decisions and improved safety, protection of property, and 

expenditure of suppression funds. The network of Forest Service Experimental Forests has provided the 

most comprehensive understanding of the relationship between vegetation management and water quality 

and quantity in the world, resulting in new solutions for natural resource managers. 

Forest Health programs for Federal lands and cooperative lands contribute to achievement of Goal 1 

results by addressing monitoring, identification, survey, and control efforts on both land ownerships on a 

landscape basis. Additional State & Private Forestry programs contributing to Goal 1 are State Fire 

Assistance and Volunteer Fire Assistance. 

Wildlife and fish habitat is restored and enhanced as both a direct result of funds appropriated for that 

purpose as well as a secondary benefit of other vegetation management programs. Timber management is 

critical for not only providing timber to support the economy, an outcome of Goal 2, but also to produce 

multiple secondary benefits in reducing hazardous fuels, restoring wildlife habitat, and enhancing 

watershed quality. Watershed improvement funds provide both direct and secondary benefits. Additional 

protection and recovery of watershed health results from Minerals & Geology program funds that address 

hazardous materials associated with active and abandoned mines and hydrocarbon development. 

Wildland Fire Management provides the largest direct budgetary investment for achieving the desired 

outcome of Goal 1 on NFS lands. Prior-year investments in fire management planning have developed 

the criteria to expand the scope of appropriate management responses to naturally occurring fires. This 

allows for Wildland Fire Use where fires are burning within pre-determined conditions that will produce 

desired reduction in hazardous fuels and restore fire-adapted ecosystem conditions without presenting 

significant risk to communities and the environment. Hazardous Fuel Management directly reduces the 

risk of catastrophic fire to communities and resources while also producing secondary benefits for 

restoring fire-adapted ecosystems, enhancing wildlife habitat, and increasing forest health and watershed 

quality. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-5 

Strategic Objectives and Key Performance Measures 

1.1 Reduce the risk to communities and natural resources from wildfire 

1.2 Suppress wildfires efficiently and effectively 

1.3 Build community capacity to suppress and reduce losses from wildfires 

Performance Assessment

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

1.1.a. Number and percentage of acres 

treated to restore fire-adapted 

ecosystems 

 

(1) moved toward desired conditions: 

• Number (acres) 991,000 

(2006) 1,350,169 1,180,000 1,200,000 1,600,000 

• percentage 39% 72% 40% 40% 40% 

(2) maintained in desired conditions 

• Number (acres) 830,000 

(2006) 378,710 1,121,000 1,200,000 2,000,000 

• percentage 33% 13.3% 38% 40% 50% 

1.2.a. Percentage of fires not 

contained in initial attack that exceed 

a stratified cost index 

26.5% 

(2006) 22% 20% 20% 14% 

1.3.a. Percentage of acres treated in 

the wildland-urban interface that have 

been identified in community wildfire 

protection plans or equivalent plans 

17% (2006) 24.7% 28% 33.5% 50% 

PART Performance Measures 

PART Measure FY 2007 Actual FY 2008 Target FY 2009 Target 

Percentage of total National Forest System land 

base for which fire risk is reduced through 

movement to a better condition class (Wildland Fire 

PART) 

1.9% 3.0% 4.0% 

Percent of fires not contained in initial attack that 

exceed a Stratified Cost Index (Wildland Fire 

PART) 

22% 20% 20% 

Number of acres maintained and improved by 

treatment category (prescribed fire, mechanical, and 

wildland fire use) and of those improved the percent 

that change condition class (Wildland Fire PART) 

Not Available 

Baseline will be 

established in 

FY 2008 

Not Available 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-6 

PART Measure FY 2007 Actual FY 2008 Target FY 2009 Target

Percent change from the 10 year average for (1) 

number of wildfires controlled during initial attack 

and (2) number of human caused wildfires 

(Wildland Fire PART) 

 

• (1) number of wildfires controlled during 

initial attack -1% +/- 0.05% +/- 0.05% 

• (2) number of human caused wildfires -0.9% -2% -1% 

Total acres treated in Wildland Urban Interface 

(WUI) and non-WUI and also acres treated for other 

vegetation management activities that achieved fire 

objectives as a secondary benefit (Wildland Fire 

PART) 

3,026,707 2,950,000 2,442,500 

Number of acres restored and maintained per 

million dollars gross investment (Wildland Fire 

PART) 

Not Available 

Baseline will be 

established in 

FY 2008 

Not Available 

Acres moved to a better condition class per million 

dollars gross investment (Wildland Fire PART) 1,809 2,700 2,835 

Wildland Fire Management 

PART Assessment and Other Independent Reviews 

Current PART Rating: Adequate 

In FY 2007, the Forest Service addressed the following actions contained in the PART Improvement 

Plan: refining program delivery, improving procedures for allocating hazardous fuels reduction funds, and 

improving data to reduce the risk of catastrophic fire. The Forest Service also responded to independent 

reviews conducted by the Office of Inspector General (OIG), Government Accountability Office (GAO), 

and the Secretary of Agriculture’s Independent Large Wildfire Cost Panel. Resulting actions from these 

analyses are detailed below. 

Land Management Planning and Incident Analysis: 

In FY 2007 the Forest Service developed a technical guide that identifies the items and strategic nature of 

discussions in land management plans and is currently developing a new Forest Plan template, which 

should be available by the end of FY 2008. 

Cost Containment

In FY2007, several large fire cost containment audit reports were issued. The Office of Inspector General 

(OIG) issued their report containing 18 recommendations. The Forest Service has completed actions on 

two recommendations, including development of a new Master Cooperative Wildland Fire Management 

Agreement template. Work is ongoing on all open recommendations. 

Upon its analysis of Wildland Fire cost containment, the Secretary’s Independent Panel recommended 

that the Forest Service establish a collaborative cost management strategy to provide a better picture of 

fire suppression costs over the incident span, establish short term cost plans for fire resource ordering and 

procurement, and reaffirm the regional and national role in pricing fire resources (Federal, State and local, 

private contractor, and military). In response, the Forest Service is working with a multi-agency taskforce 

to develop a cost management strategy formulation process for the life of an incident with an expected 

delivery in 2009. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-7 

Fuel Reduction, Rehabilitation, and Restoration

The GAO report titled, Wildland Fire Management: Better Information and a Systematic Process Could 

Improve Agencies’ Approach to Allocating Fuel Reduction and Selecting Projects, found that Forest 

Service is already implementing the report recommendations, including prior work with the Ecosystem 

Management Decision Support (EMDS) application and LANDFIRE. The Forest Service expects to 

complete other recommendations by October 2008. 

The GAO Report titled, Wildland Fire Rehabilitation and Restoration: Forest Service and BLM Could 

Benefit from Improved Information on Status of Needed Work, recommended that the Forest Service track 

post-fire rehabilitation needs and accomplishments. A post-recovery team is developing policy, guidance, 

and tools to provide rapid assessment following fires and other events. The Forest Service is working to 

complete the recommendations of this audit by the end of fiscal year 2009. Implementing these 

recommendations will enable the agency to prioritize the rehabilitation work, along with the regular 

program of work, to assure the highest priority of work is funded and accomplished. 

Wildland Fire Research and Development

In FY 2007, Forest Service Research and Development conducted an external peer review of 

effectiveness of the wildland fire research and development program. The review panel, composed of 

researchers and managers from universities, other agencies, and other FS deputy areas evaluated the 

program on its relevance, quality and performance in context of the 2006 Wildland Fire R&D Strategic 

Plan. Panel recommendations will be used to reassess Wildland Fire R&D priorities, evaluate scientific 

capability and capacity to meet these goals, and make recommendations for implementation to leadership. 

Forest Service R&D conducts external program reviews at four to five year intervals. 

 

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

Strategic Plan Measures 

Actual Targets 

Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 

2012 

1.4.a. Percentage of priority acres restored and/or 

protected from invasive species on Federal lands 

and cooperative program lands 

• NFS 

• S&PF 

 

 90% 

(2002) 

75.8% 

19% 

50% 

20% 

50% 

20% 90% 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-8 

PART Performance Measures 

PART Measure FY 2007 

Actual 

FY 2008 

Target 

FY 2009 

Target 

Comments 

Percent of acres at risk of mortality 

due to insect pests and diseases, or of 

infestation by invasive plants on which 

risk is reduced (Invasive Species 

PART) 

10% 11% 13% 

Includes only data for Forest Health 

- Federal Lands and Forest Health - 

Cooperative Lands Programs 

Number of priority acres successfully 

treated for invasive species annually 

(Invasive Species PART) 

1,008,474 816,636 477,338 Includes NFS lands and 

Cooperative lands 

Cost per acre treated to reduce risk 

(Invasive Species PART) $84.11 $95.20 $93.44 Includes only Forest Health 

Program accomplishments 

Number of treated acres monitored 

annually (Invasive Species PART) 806,065 220,800 140,100 Includes NFS lands and 

Cooperative lands 

Score of Research and Development 

(R&D) customers reporting 

satisfaction with accessibility, 

relevance, outcome and cost 

effectiveness of tools developed, 

delivered, and used (Invasive Species 

PART) 

72 72 74 

The 5-year running average of the 

number of Research and Development 

(R&D) tools developed, delivered, and 

used (Invasive Species PART) 

170 142 155 

Cost per Research and Development 

(R&D) tool developed, and used 

(Invasive Species PART) 

$238,000 $426,000 $426,000 

Invasive Species 

PART Assessment and Progress 

Current PART Rating: Adequate 

As a result of the Invasive Species PART Assessment, the Forest Service has focused the program around 

outcome-based activities that reduce the impact of invasive species on priority Federal and non-Federal 

forest and grasslands and tie directly to the USDA and Forest Service Strategic Plans. Performance 

measures track treatment prioritization based on risk, treatment efficacy, and implementation costs; 

development, delivery, and use of tools; and customer satisfaction with tools produced. The Forest 

Service is also implementing an improved system of tabular and spatial record keeping for all invasive 

species management projects. 

New performance measures tracking outputs, outcomes, and efficiencies - developed during the PART 

Assessment process – help the agency to better determine program success. Field units have been 

tracking these measures for the past two years. New measures also help the agency to reward good 

performance. For example, allocation criteria for treatment funding are directly tied to performance in the 

previous year. Similarly, FS R&D is developing methodology and criteria to allocate funds based on the 

performance of tools and customer assistance. A recent audit of the invasive species program by USDAOIG will provide additional opportunities to continue improvements and adjustments in the program. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-9 

1.5 Restore and maintain healthy watersheds and diverse habitats. 

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

1.5.a. Percentage of watershed in class 

1 condition 30% (2005) 30% 30% 30% 32% 

1.5.b. Acres and miles of terrestrial 

and aquatic habitat restored consistent 

with forest plan direction 

 

• acres of terrestrial habitat 

restored 

642,000 

(2005) 393,769 1,250,000 900,000 903,358 

• miles of stream habitat 

restored 

4,600 

(2005) 1,562 1,900 1,500 6,473 

• acres of lake habitat restored 18,000 

(2005) 14,464 12,500 9,000 25,328 

1.5.c. Percentage of acres needing 

reforestation or timber stand 

improvement that were treated 

13% (2005) 14% 15% 16% 20% 

PART Performance Measures 

PART Measure FY 2007 

Actual 

FY 2008 

Target 

FY 2009 

Target 

Comments 

Acres of watershed improvement 

(Watershed PART) 27,297 25,500 22,000 

Acres or miles of aquatic habitat 

enhanced to achieve desired 

ecological conditions as described in 

Forest Land Management Plans 

(Watershed PART) 

 

• lake habitat acres 14,464 12,500 9,000 

• stream habitat miles 1,562 1,900 1,500 

Acres of terrestrial habitat enhanced 

to achieve desired ecological 

conditions described in Forest Land 

Management Plans (Watershed 

PART) 

393,769 1,250,000 900,000 

Allotment acres and percent 

administered to 100 percent of 

Forest Plan standards (Watershed 

PART) 

42,775,483 

47% 

36,860,000 

41% 

35,500,000 

39% 

Establish Forest Vegetation in Acres 

(Watershed PART) 213,255 217,450 203,900 

Acres of non-industrial private 

forest (NIPF) land under approved 

stewardship management plans 

(Watershed PART) 

1,715,206 2,000,000 350,000 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-10 

PART Measure FY 2007 

Actual 

FY 2008 

Target 

FY 2009 

Target 

Comments 

The number of National Forest 

System impaired water segments 

removed from the EPA/States listing 

of impaired waters (CWA Section 

303 (d)) (Watershed PART) 

NA 24 NA 

Watershed 

PART Assessment and Progress 

Current PART Rating: Results Not Demonstrated

The Forest Service is responding to the Watershed PART Assessment by developing new policy, 

protocols, and tools to improve the Program’s delivery and effectiveness. The agency has identified a 

consistent approach for determining watershed condition on NFS lands, supporting efforts to prioritize 

watershed improvement activities. In response to the assessment, the Forest Service has also developed 

aquatic inventory and monitoring protocols for NFS lands and GIS-based tools to help States identify and 

prioritize critical forest areas on non-Federal lands. Through these applications and others, NFS and State 

and Private Forests (S&PF) are exploring meaningful ways to measure effectiveness of programs 

pertaining to watershed improvement. 

The agency is beginning to implement elements of the PART Improvement Plan to improve the 

Program’s rating of Results Not Demonstrated. These actions consist of 1) developing a nationally 

consistent methodology for determining watershed condition class as basis for prioritizing watersheds 

management and 2) developing a national approach to describe and monitor the status and trend of 

aquatic resources. Additionally, the Forest Service and OMB recently negotiated an “Action Plan for the 

Development of a Watershed Efficiency Measure and a National Watershed Condition Class Rating 

System,” establishing a process and timetable for improvement. 

In FY 2007, a Watershed Condition Technical Team and an Advisory Team completed a report entitled 

“A Conceptual Framework for Determining and Tracking Changes in Watershed Condition on Lands 

Managed by the USDA Forest Service.” The agency plans to finalize the framework and develop an 

improved GIS-based watershed condition class rating system in FY 2008. The Forest Service will also 

begin a pilot test program on selected national forests, modify the approach as appropriate, and negotiate 

final efficiency and performance measures with OMB for implementation beginning in FY 2010. 

In FY 2007, the agency also formed an Aquatic Ecological Inventory Science Team to develop an 

approach for national aquatic status and trend monitoring. A draft technical guide will be available for 

review by October 1, 2008. It will be reviewed and revised as necessary during FY 2009 for potential 

implementation beginning in FY 2010. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-11 

Goal 2: Provide and Sustain Benefits to the American People 

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

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

local communities. 

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

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

2.3 Help meet energy resource needs. 

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

FY 2009 Budget Request for Goal 2 by Appropriation (in thousands) 

Appropriation FY 2007 Enacted FY 2008 Enacted FY 2009 Request 

Forest & Rangeland Research $33,600 $33,758 $30,900

State & Private Forestry $0 $4,206 $0

National Forest System $244,915 $251,309 $220,524

Capital Improvement & 

Maintenance 

$72,482 $73,346 $73,531

Other Approps: Range Betterment $2,876 $3,750 $3,600

Permanent Funds $26,309 $36,388 $28,220

Trust Funds $31,137 $25,200 $21,200

Total $411,320 $428,460 $377,975

Goal 2 Outcome: Forests and grasslands with sufficient long-term multiple socioeconomic benefits 

to meet the needs of society. 

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

the needs of present and future generations. Forest Service lands contain abundant natural resources and 

opportunities to help meet the demands and needs of the American people. Sustainable management of 

these resources ensures that the availability of goods and services continues into the future and that land 

productivity is maintained. 

The forest reserves that formed the first units of the NFS were created in 1897 for the purposes of 

improving and protecting land, securing favorable water flows, and providing a continuous supply of 

timber. The Multiple-Use Sustained Yield Act of 1960 directed that the national forests be administered 

for outdoor recreation, rangeland, timber, watershed, and wildlife and fish. National forest and grassland 

management provides for a variety of uses while maintaining wildlife diversity, supplies of wood 

products, energy sources and transmission infrastructure, wildlife and domestic livestock forage, water 

supplies, and other goods and services. 

Primarily through State and Private Forestry programs, the Forest Service provides technical, financial, 

and educational assistance to support the management of non-industrial forest lands in the United States. 

International technical assistance is also provided through the agency’s International Programs office. 

Forest Service research provides a solid scientific foundation for the sustainable management of forests 

and grasslands and improvements in the use and marketing of forest products and services. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-12 

Performance Assessment

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

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

communities. 

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

2.1.a. Amount of wood fiber 

provided each year to help meet the 

Nation’s demand for forest 

products in an environmentally 

sustainable manner 

5,400,000 

CCF1

 (2006) 

4.806,000 

CCF 

5,400,000 

CCF 

6,000,000 

CCF 

8,000,000 

CCF 

2.1.b. Number of green tons and/or 

volume of woody biomass from 

hazardous fuel reduction and 

restoration treatments on Federal 

land that are made available 

through permits, contracts, grants, 

agreements, or the equivalent 

NA (2006) 2,768,000 2,700,000 2,700,000 2,700,000 

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

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

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

2.2.a. Acres of national forests and 

grasslands under grazing permit 

that are sustainably managed for all 

rangeland products 

81,560,000 

(2006) 90,197,781 81,560,000 81,560,000 81,560,000 

2.3 Help meet energy resource needs 

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

2.3.a. Percentage of land Special 

Use Permit applications for energyrelated facilities that are completed 

within prescribed timeframes 

50% (2005) 45% 45% 45% 50% 

2.3.b. Percentage of energymineral applications that are 

processed within prescribed 

timeframes 

45% (2006) 11% 10% 10% 55% 

 

1

 1 CCF = 100 cubic feet 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-13 

PART Performance Measures 

PART Measure FY 2007 

Actual 

FY 2008 

Target 

FY 2009 

Target 

Comments 

Percentage of backlog (existing at the 

end of FY03) in APDs reduced 

(Energy PART) 

100% Not 

Available

Not 

Available 

 Backlog no longer exists after FY 

2007. 

Percentage of lease applications 

processed within prescribed 

timeframes (Energy PART) 

11% 10% 10% 

Percentage of backlog (existing at the 

end of 2003) in lease applications 

reduced (Energy PART) 

18% Not 

Available 

Not 

Available 

Backlog from 2003-2007 no longer 

exists after FY 2007. FS is 

updating this measure. 

Number of new applications for permit 

to drill (ADPs) processed within 

prescribed timeframes (Energy PART) 

502 325 325 

Number of new lease applications 

processed within prescribed 

timeframes (Energy PART) 

501 1,000 1,000 

Number and percentage of operations 

administered to standard (Energy 

PART) 

2,358 

46% 

1,000 

20% 

1,000 

20% 

Percentage of applications for permit 

to drill (APDs) processed within 

prescribed timeframes (Energy PART) 

48% 50% 50% 

Energy 

PART Assessment and Progress 

Current PART Rating: Adequate 

 

In response to the PART assessment on the oil and gas energy resources program, the Forest Service 

refined performance measures to track compliance with agency Strategic Plan goals and objectives, 

emphasizing the agency’s ability to process lease applications in a timely manner. The new performance 

measures have helped the agency to direct funding and resources to reduce project processing times while 

assuring compliance with remediation measures. Also a result of the PART assessment, the Forest 

Service now holds regular coordination meetings with the Bureau of Land Management, with it manages 

the energy minerals program. Regular meetings have eased implementation of MOUs, facilitating more 

efficient program delivery. 

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

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

2.4.a. Number of States that have 

agreements with the Forest Service 

to help private forest landowners 

market ecosystem services 

1 

(2006) 

Not 

Available 

Not 

Available 

Not 

Available 14 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-14 

Principal Programs to Achieve Goal 2

Many Forest Service programs contribute toward achieving the outcome of Goal 2. Some of the 

programs critical to providing benefits to the American people from the Nation’s forests and rangelands 

are discussed below. 

Forest Service Research and Development has developed rules and guidelines reporting the impact of 

forest management practices on offsetting and reducing greenhouse gas emissions. Dissemination these 

protocols will to support State and national efforts to develop carbon and other ecosystem service 

markets. The Forest Service has also developed processes to convert woody hemicellulose to ethanol and 

has obtained patents and commercial licenses for ethanol and other high-value specialty and industrial 

chemicals based on wood as a feedstock. 

The Forest Service actively manages forest vegetation through the Forest Products Program to provide 

one of the most energy-conserving building materials to the American people, and maintain active 

vegetation management as a critical tool for producing multiple secondary benefits for other programs, 

such as hazardous fuel reduction, wildife habitat restoration, and enhancement of watershed quality. 

The Forest Service also administers grazing allotments to meet the NEPA schedule established under the 

provisions of the 1995 Rescissions Act. This requires the Forest Service to complete NEPA analyses on 

6,886 allotments with expired or expiring permits, which will, in turn, increase permittee implementation 

of actions identified in NEPA decisions. 

The Minerals & Geology program administers mineral operations to ensure adequate protection of surface 

resources and meet resource objectives of the Energy Policy Act of 2005. In order to help increase the 

Nation’s supply of renewable energy, the Forest Service will continue to implement the agency’s Woody 

Biomass Utilization Strategy. 

Other programs such Landownership Management and the Capital Improvement and Maintenance 

programs provide necessary infrastructure and management support to enable the Forest Service to supply 

goods and services to the American public, and also help meet critical resource needs. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-15 

Goal 3: Conserve Open Space 

3.1 Protect forests and grasslands from conversion to other uses. 

3.2 Help private landowners and communities maintain and manage their land as sustainable forests 

and grasslands. 

FY 2009 Budget Request for Goal 3 by Appropriation (in thousands) 

Appropriation FY 2007 Enacted FY 2008 Enacted FY 2009 Request 

Forest & Rangeland Research $1,900 $1,944 $1,800

State & Private Forestry $98,483 $81,849 $17,500

National Forest System $31,473 $31,778 $25,468

Land Acquit ion $46,667 $43,091 $6,300

Permanent Funds $386 $780 $250

Trust Funds $2,022 $2,800 $2,500

Total $180,931 $162,242 $53,818

Goal 3 Outcome: Maintain the environmental, social, and economic benefits of forests and 

grasslands by reducing and mitigating their conversion to other uses. 

Open space provides many environmental, social, and economic benefits to rural, suburban, and urban 

communities. Undeveloped forests and grasslands - including working farms, ranches, and timber lands - 

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

They offer recreation opportunities and contribute to America’s scenic beauty. Current trends show a 

steady transition of these vital open spaces to more developed uses. 

The Forest Service works with States and private landowners to conserve environmentally important 

forests, ensuring their value and use for current and future generations. The Forest Service also provides 

cutting edge technology to identify critical private forest landscape areas where conservation threats and 

opportunities converge. State foresters work with the Forest Service to target technical assistance where 

it is most needed to manage the land for clean water, wildlife, timber, biodiversity, carbon sequestration, 

recreation, and aesthetics, ensuring the greatest return on program investments for both the public and 

individual landowners. 

Land acquisition and exchange programs conserve the integrity of undeveloped lands and prevent their 

conversion to incompatible uses, while responding to urban and community needs. The Forest Service 

acquires lands, waters, and related interests through purchase, donation, or exchange within the NFS for 

such purposes as outdoor recreation, wildlife habitat conservation, watershed protection and 

enhancement, and resource management. 

The Forest Service also provides grazing permits on NFS lands, extending grazing opportunities for 

ranchers. Foraging land can be expensive. Without the forage provided on NFS and other public lands, 

ranchers may face economic pressure to sell, sub-divide, or develop their own property. Properly 

managed grazing supports ranching operations while preserving high quality waters and diverse fish and 

wildlife habitat on ranch lands. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-16 

Revised February 25, 2008 

Principal Programs to Achieve Goal 3

Forest Service programs that contribute toward conservation of open space involve Research & 

Development, National Forest System, and State & Private Forestry programs. 

The Forest Inventory and Analysis program tracks a nationwide system of forest inventory plots in a 

statistically sound lands inventory matrix. This data provides detailed information on stand 

characteristics and complement the more broad-based Natural Resource Inventory carried out on nonFederal lands by the Forest Service’s sister USDA agency, the Natural Resources Conservation Service. 

The Landownership Management Program supports land acquisition through land exchanges that improve 

public access for outdoor recreation, watershed protection, implementation of priority vegetation 

management, conservation of the integrity of undeveloped lands, and habitat quality. Over 700 miles of 

boundary lines will be marked and maintained to protect, secure, and defend the title, land ownership, and 

use of the public estate. Cooperative and joint land surveys with other agencies and adjacent landowners 

maximize cost effectiveness of this program, with priority given to challenge cost-share agreements. 

Land acquisition projects that have already been funded will be completed. 

The Forest Service also works in close cooperation with the States and local land trusts to identify 

priorities for Forest Legacy Program projects. High-priority, lower-cost priorities allow purchase of 

conservation easements and their donation for management to the States. 

Performance Assessment

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

3.1.a. Acres of environmentally 

important forests and grasslands 

protected from conversion 

1,360,000 

(2006) 88,091 116,000 13,600 2,000,000 

3.2.a. Acres of non-industrial private 

forest land that are being managed 

sustainably under forest stewardship 

management plans 

1,760,000 

(2007) 1,715,206 2,000,000 350,000 2,000,000 

PART Measures 

PART Measure FY 2007 Actual FY 2008 Target FY 2009 Target 

Percentage of acquisition cases completed within 18 

months (Land Acquisition PART) 64% 75% 80% 

Percentage of total acquisition cost per acre attributed to 

third party and private landowners (Land Acquisition 

PART) 

30% 30% 40% 

Dollar cost or expenditure per acre purchased or donated 

(Land Acquisition PART) $1,680 $1,500 $1,375 

Percentage of priority acres acquired or donated that reduce 

the conversion of forests, grasslands, and aquatic and 

riparian ecosystems to incompatible uses in order to 

improve and maintain ecological conditions for federally 

listed and candidate species, species of concern, and species 

of interest (Land Acquisition PART) 

72% 70% 70% 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-17 

PART Measure FY 2007 Actual FY 2008 Target FY 2009 Target 

Priority acres acquired or donated that reduce the 

conversion of forests, grasslands, and aquatic and riparian 

ecosystems to incompatible uses in order to improve and 

maintain ecological conditions for federally listed and 

candidate species, species of concern, and species of 

interest (Land Acquisition PART) 

20,377 12,700 6,350 

Percentage of priority acres acquired or donated that 

provide for public access for high quality outdoor 

recreational opportunities on National Forest System land 

(Land Acquisition PART) 

90% 90% 90% 

Priority acres acquired or donated that provide for public 

access for high quality outdoor recreational opportunities 

on National Forest land (Land Acquisition PART) 

25,585 16,300 8,165 

Acres of land adjustments to conserve the integrity of 

undeveloped lands and habitat quality (Legacy PART) 88,091 107,000 13,600 

Parcelization of forests avoided (parcels prevented) 

(Legacy PART) 2,880 4,600 730 

Percentage of private forest acres in priority areas that are 

protected from conversion to non-forest uses by the Forest 

Legacy Program (Legacy PART) 

.75% .8% .81% 

Number of perpetual conservation easements (Legacy 

PART) 25 26 7 

Number of fee simple purchases (number of tracts 

purchased) (Legacy PART) 21 11 4 

Total FLP cost or expenditure per acre protected from 

conversion (Legacy PART) $541 $489 $625 

Average length of time between project proposal, funding 

and completion (Legacy PART) 31 months 24 months 24 months 

Land Acquisition 

PART Assessment and Progress 

Current PART Rating: Adequate 

The Forest Service has used this PART process to improve land validation, ensuring that land purchases 

and donations meet the agency's Strategic Plan Goals and Objectives. The agency has adopted two new 

measures for land acquisition into the Performance and Accountability System and the Workplan systems. 

The Forest Service has also recently updated the Agency Land Purchase Digest system to include case 

specific information for these performance measures, as well as three new efficiency measures. With 

these improvements, the agency will be able to more accurately assess program effectiveness. 

Forest Legacy Program 

PART Assessment and Progress 

Current PART Rating: Moderately Effective 

Following its PART assessment, the Forest Legacy Program (FLP) developed seven performance 

measures and national strategic direction to further ensure that Federal dollars are spent on those projects 

of highest national importance. FLP revised its national scoring guidance for annual project selection 

panel to increase the emphasis on protecting nationally important resources that fit within a larger, 

regional or national conservation landscape level plan. In addition, FLP is reducing the average length of 

time it takes to complete a project. States with significant unspent funds or a lagging track record for 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-18 

closing projects have been penalized during the project selection process. FLP is also working to ensure 

timely quality appraisals to reduce the average project completion time. This may result in providing 

training and resources to State partners, as well as developing a standardizing pre-appraisal package. 

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities 

4.1 Improve the quality and availability of outdoor recreation experiences. 

4.2 Secure legal entry to national forest lands and waters. 

4.3 Improve the management of off-highway vehicle use. 

Goal 4 Outcome: A variety of high-quality outdoor recreational opportunities on the Nation’s 

forests and grasslands are available to the public. 

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

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

Each year the agency experiences an average of 192 million visits on national forests. America’s 

population is projected to increase by nearly 50 percent by the middle of this century. Increasing 

population demands and declining public access to privately-owned forestland place extensive pressure 

on public lands to provide recreational opportunities. 

The Forest Service explores and implements scientifically verified management solutions in order to 

support recreation needs without incurring adverse resource impacts. Agency research provides new 

technologies, methods, and models to address current problems. Researchers also examine anticipated 

future recreation management problems, opportunities, and needs, and apply social science research to 

analyze the changing public perceptions of the value and importance of outdoor recreation opportunities. 

With an understanding public opinion and need, the agency can best inform and develop policies and 

decisions on national forest and grasslands. 

Preserving high-quality recreation opportunities also requires maintaining lands, recreation facilities, 

roads, and trails. This infrastructure enables the Forest Service to provide opportunities to interact with 

wildlife, explore wilderness and heritage resources, engage in educational activities, and access offhighway vehicle trails. Partners contribute significant resources supporting tourism, interpretive 

services, recreation special uses, congressionally designated areas, and national forest scenic by-ways. 

FY 2009 Budget Request for Goal 4 by Appropriation (in thousands) 

Appropriation FY 2007 Enacted FY 2008 Enacted FY 2009 Request 

Forest & Rangeland Research $6,900 $7,067 $6,400

National Forest System $259,175 $261,109 $230,313

Capital Improvement & 

Maintenance 

$218,601 $223,951 $199,158

Permanent Funds $80,036 $127,940 $187,450

Trust Funds $17,635 $15,425 $13,125

Total Goal 4 $582,348 $635,492 $636,446
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-19 

Principal Programs to Achieve Goal 4 

The principal programs for accomplishing the desired outcome of Goal 4 are the Recreation, Heritage, 

and Wilderness Programs. Research and Development produces recreation science and management 

tools to inform recreation managers on outdoor recreation trends and desires, as well as tools to improve 

management efficiency. 

Wildlife and fish habitat is restored and enhanced as both a direct result of funds appropriated for that 

purpose as well as a secondary benefit of other vegetation management programs. 

Performance Assessment

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY2008 FY2009 FY 2012 

4.1.a. Percentage of recreation sites 

maintained to standard 65% (2005) 67% 60% 45% 81% 

4.1.b. Percentage of total recreation 

capacity at developed recreation sites 

that meets accessibility standards 

10% 

(2006) Not Available 25% 25% 40% 

4.1.c. Percentage of trails that meet 

national quality standards 60% (2006) 39% 40% 40% 60% 

4.1.d. Percentage of customers who 

are satisfied with recreational 

facilities, services, and settings 

80% (2004) 90% 90% 90% 85% 

4.1.e. Percentage of road system 

intended for passenger-car use which 

is suitable for passenger-car use 

29% (2006) 90% 89% 88% 75% 

4.2.a. Percentage of high-priority 

access rights-of-way acquired 

90% 

(2007) 90% 90% 90% 95% 

4.3.a. Percentage of NFS lands 

covered by new motor vehicle use 

maps reflecting a designated-use 

system of roads, trails, and areas 

0% (2002) 12% 40% 86% 100% 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-20 

PART Performance Measures 

PART Measure FY 2007 Actual FY 2008 Target FY 2009 Target 

Number of NFS travel management plans completed 

(Recreation PART) 38 83 150 

Number of wild and scenic rivers meeting statutory 

requirements (Recreation PART) 45 50 50 

Number and percentage of outdoor recreation facilities 

maintained to standard (Recreation PART) 

10,231 

67% 

9,175 

60% 

9,175 

60% 

Cost per visitor at developed and recreation fee sites 

(Recreation PART) $3.17 $3.15 $3.15 

Percentage of Research and Development products and 

services that meet customer expectations (Recreation 

PART) 

72% 72% 73% 

Cost per visitor contact (Recreation PART) $1.36 $1.35 $1.35 

Percent of road and trail rights-of-way acquired that 

provide public access through easement acquisitions and 

land adjustments (Recreation PART) 

90% 90% 90% 

Percent of recreation site capacity operated and maintained 

to standard (Recreation PART) 24% 25% 20% 

Percent of NFS visitors participating in outdoor based 

physical activities (Recreation PART) 70 % 70 % 70 % 

Number of wilderness areas managed to minimum 

stewardship level (Recreation PART) 67 71 80 

Percent of recreation customers satisfied with outdoor 

recreation services and facilities provided in a sustainably 

managed natural setting (Recreation PART) 

90% 90% 90% 

Percentage of NFS lands covered by travel management 

plans resulting in visitor safety, resource protection using 

best management practices and less visitor conflict with 

off-road vehicle usage (Recreation PART) 

12% 40% 86% 

Number of rights-of-way acquired to provide public access 

(Recreation PART) 215 220 220 

Percent of national forest route designations completed 

(Recreation PART) 12% 40% 86% 

Customer satisfaction with value for fee paid (Recreation 

PART) 83% 85% 85% 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-21 

Recreation 

PART Assessment and Progress 

Current PART Rating: Moderately Effective 

The Forest Service is using the PART assessment to focus business planning and improve cost accounting 

in the developed recreation sites program. The agency is currently undergoing a Recreation Facility 

Analysis (RFA) process to prioritize recreation site improvements, to reduce deferred maintenance and 

improve cost analysis. Under this analysis, national forests weigh and compare facilities’ ability to serve 

public needs and wants with the forest’s capacity to operate and maintain existing structures at desired 

quality standards. One of the primary goals of RFA is to reduce recreation site deferred maintenance by 

20 percent in five years, on each national forest. The RFA process is currently in progress on 114 national 

forests; the Forest Service anticipates completing the RFA completion on all national forests by the end of 

calendar year 2008. 

Goal 5: Maintain Basic Management Capabilities of the Forest Service

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

use of data and technology in resource management. 

5.2 Improve the administration of national forest lands and facilities in support of the agency’s 

mission. 

FY 2009 Budget Request for Goal 5 by Appropriation (in thousands) 

Appropriation FY 2007 Enacted FY 2008 Enacted FY 2009 Request 

International Forestry $6,886 $7,383 $2,000

National Forest System $339,313 $347,323 $314,069

Capital Improvement & 

Maintenance 

$69,500 $59,747 $54,630

Permanent Funds $15,810 $37,200 $8,000

Trust Funds $0 $0 $0

Total $431,508 $451,653 $378,699

Goal 5 Outcome: Administrative facilities, information systems, and landownership management 

with the capacity to support a wide range of natural resource challenges. 

Natural resources are affected by a wide range of forces, including natural events, overuse, and various 

management and law enforcement activities. The Forest Service maintains a workforce with the skills and 

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

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

requires quality data, strategic unit plans, law enforcement officials, and facility maintenance, to meet 

these needs. 

Land management plans, required of each unit in the National Forest System, facilitate the 

implementation of governing laws and regulations. Public involvement and regular updates ensure that 

Forest Service units continually address changing conditions and public needs. Inventory and monitoring 

activities provide verifiable data and spatial resource information to support land management planning, 

ecosystem assessments, and other program management needs. The Forest Service also maintains and 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-22 

manages dams, fire and administrative facilities, and supporting infrastructure critical to achieving 

resource management goals and objectives. 

Principal Programs to Achieve Goal 5

Many Forest Service programs contribute toward achieving the outcome of Goal 5. Some of the 

programs include Land management Planning, Law Enforcement, Inventory and Monitoring, FA&O (fire, 

administrative and other) Facilities and International Programs. 

Performance Assessment 

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

5.1.a. Percentage of selected data in 

information systems that is current to 

standard 

44 % (2006) 46% Not 

Available 

Not 

Available 100% 

5.2.a. Percentage of administrative 

facilities that are being maintained to 

standard 

60% (2006) 66% 66% 66% 75% 

5.2.b. Percentage of newly reported 

encroachments and title claims 

administered to standard 

60% 

(2006) 

Not 

Available 

Not 

Available 60% 90% 

PART Performance Measures 

PART Measure FY 2007 Actual FY 2008 Target FY 2009 Target 

Facilities Condition Index (a ratio of the cost of remedying 

maintenance deficiencies to the current replacement value, 

commonly used by private firms to monitor condition of 

facilities) (NF Improvement and Manitenance PART) 

89% 88% 87% 

Miles of trail maintained to standard (NF Improvement and 

Manitenance PART) 25,749 20,790 17,300 

Miles of passenger car road maintenance and capital 

improvement (NF Improvement and Maintenance PART) 66% 66% 66% 

Ratio of facilities deferred maintenance eliminated to 

annual funding for major facilities projects (NF 

Improvement and Maintenance PART) 

0.37 0.24 0.45 

Percentage of Road System open for highway legal vehicles 

that is in good or fair condition (NF Improvement and 

Maintenance PART) 

NA 30% 30% 

Miles of highway legal vehicle road maintenance (NF 

Improvement and Maintenance PART) 39,453 42,000 38,000 

Cost of capital improvement and maintenance per mile of 

highway legal vehicle road in good or fair condition (NF 

Improvement and Maintenance PART) 

NA $5,750 $5,500 

Cost per trail mile maintained and improved to standard 

(NF Improvement and Maintenance PART) $2,682 $3,468 $3,423 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-23 

Capital Improvement and Maintenance 

PART Assessment and Progress 

Current PART Rating: Results Not Demonstrated 

The PART process for Capital Improvement and Maintenance aligned the Forest Service with USDA and 

OMB’s Real Property Initiatives and Asset Management Plans. The performance measures developed as a 

result of the assessment have improved planning and assessment of the agency’s infrastructure, resulting in 

better priority setting criteria and project selection. Better planning and assessment supports the agency’s 

effort to determine an optimal infrastructure level, keeping only what is necessary to implement the 

agency’s mission and meet public. To further inform infrastructure maintenance, the agency has adopted 

the industry standards for the Facility Condition Index. The Index is a general metric that tracks national 

trends in the condition of the agency’s portfolio with respect to the deferred maintenance backlog. At the 

local level, the Index allows local decision makers to prioritize individual assets for funding, repair, or 

disposal, based on relative conditions. 

The Forest Service has completed a trend analysis in response to Audit report No. 08601-02-HY, “Followup on Recommendations made on the Maintenance of Forest Service’s Infrastructure” (June 14, 2006). The 

agency has also developed a format and report for the agency’s corporate data warehouse to track trends in 

deferred maintenance in accordance with the agency’s Asset Management Plan. The Forest Service is 

developing long-term outcome-based performance measures that fully cover the program, including safety, 

condition sustainability and environmental suitability, utilization, and mission dependency. It will also 

develop and implement a strategy to prioritize road, facility and trail improvements that reflect investment 

strategies as a common criteria for reducing the deferred maintenance backlog. Finally, the agency has 

utilized disposal authorities to convey excess or unneeded properties through the Facilities Realignment and 

Enhancement Act. 

Goal 6: Engage Urban America With Forest Service Programs

6.1 Promote conservation education to increase environmental literacy through partnerships with 

groups that benefit and educate urban populations.

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

benefits. 

Goal 6 Outcome: Broader access by Americans to the long-term environmental, social, economic, 

and other types of benefits provided by the Forest Service. 

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

including its urban forests. The National Forest System, State and Private Forestry, and Research and 

Development all contribute to an integrated approach for natural resources stewardship to better connect 

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

The agency uses environmental education to make connections between the public --especially children-- 

and nature, and to build support for environmental conservation and natural resource management. 

Interpretive services continue to grow in popularity and provide the public with knowledge and 

understanding of conservation issues on public lands and connect visitors with our Nation’s natural 

wonders and cultural resources. Through partnerships, the agency builds relationships between rural and 

urban communities. The agency also enhances land values with green space and community tree 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-24 

plantings, and helps provide ecosystem services such as air and water quality, flood control, climate 

stabilization, and noise abatement from well-managed forested landscapes. 

FY 2009 Budget Request for Goal 6 by Appropriation (in thousands) 

Appropriation FY 2007 Enacted FY 2008 Enacted FY 2009 Request 

Forest & Rangeland Research $5,000 $5,198 $4,600

State & Private Forestry $30,130 $27,691 $5,000

Permanent Funds $18 $25 $65

Trust Funds $0 $0 $0

Total $35,148 $32,914 $ 9,665

Principal Programs to Achieve Goal 6

Many Forest Service programs contribute toward achieving the outcome of Goal 6, including the Urban 

and Community Forestry, and Licensee Programs.

Performance Assessment

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

6.1.a. Number of people who 

annually participate in Forest 

Service environmental literacy 

programs and activities. 

2,500,000 

(2005) 

Not 

Available 

Not 

Available 

Not 

Available 3,200,000 

6.2.a Number of communities with 

developing or established urban and 

community forestry programs 

resulting from Forest Service 

assistance 

6,564 (2006) 6,326 5,890 3,075 10,000 

* PART or other independent assessments have not been conducted for programs under this Goal. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-25 

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

Management

Strategic Objective

7.1 Increase the use of applications and tools developed by Forest Service Research & 

Development and Technology & Development Centers.

 

Goal 7 Outcome: Management decisions are informed by the best available science-based 

knowledge and tools. 

The Forest Service provides science and technology solutions for clients and partners to sustainably 

manage forests and grasslands. Science-based applications and tools inform policy and resource 

management decisions to help achieve desired outcomes. To accomplish this goal, Research and 

Development (R&D) and Technology and Development (T&D) Centers will focus on organizational 

effectiveness as applied to natural resources management by public and private organizations. This 

includes applications of social sciences; organizational behavior; decision science and implementing 

effective fire management; response to global climate change; inventory and monitoring activities; 

landscape alteration; watershed management; energy demand; technology management; and policy 

analysis. 

Important components of this work include developing and testing innovative methods of synthesizing 

available science; transforming science and technology into usable technologies and tools; and creating 

and disseminating science applications to users. Partnerships with educational institutions and others are 

critical to program success and effectiveness. 

FY 2009 Budget Request for Goal 7 by Appropriation (in thousands) 

Appropriation FY 2007 Enacted FY 2008 Enacted FY 2009 Request 

Forest & Rangeland Research $94,088 $95,647 $88,200

State & Private Forestry $4,588 $4,516 $0

Other Approps: Gifts, Donations & 

Bequests 

$63 $55 $50

Permanent Funds $0 $0 $0

Trust Funds $2,022 $2,800 $2,500

Total $100,761 $103,184 $90,750

Performance Assessment

Strategic Plan Measures 

Actual Targets Performance Measure Baseline 

(Year) FY 2007 FY 2008 FY 2009 FY 2012 

7.1.a. Customer satisfaction with R&D 

products and services (ACSI score2

) 72 (2005) 72 72 73 75 

7.1.b. Number of patent applications 

filed 10 (2005) 11 10 10 13 

 

2

 The ACSI assesses the satisfaction of private and other external customers with the relevance, usefulness, and accessibility of 

Research and Development products and services. 
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-26 

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 1: Restore, Sustain, and Enhance the Nation's Forests and Grasslands

Forest & Rangeland Research $139,000 1,063 $142,312 1,066 $131,100 1,016 -$11,212 -50

State & Private Forestry $139,874 438 $137,163 438 $85,000 336 -$52,163 -102

National Forest System $577,853 4,549 $578,060 4,539 $559,162 4,244 -$18,899 -295

Wildland Fire Management $1,823,603 11,421 $1,943,477 11,504 $1,976,592 10,886 $33,115 -618

Capital Improvement & Maintenance $75,817 359 $117,724 340 $78,469 333 -$39,255 -6

Other Approps: Subsistence Management $5,009 25 $4,974 24 $0 0 -$4,974 -24

Total, Appropriated Funds $2,761,156 17,855 $2,923,710 17,911 $2,830,323 16,815 -$93,387 -1,096

Permanent Funds $455,915 721 $508,942 559 $158,630 397 -$350,312 -162

Trust Funds $167,487 1,092 $137,800 870 $121,700 744 -$16,100 -126

Subtotal, Non-emergency funding $3,384,558 19,667 $3,570,452 19,340 $3,110,653 17,956 -$459,799 -1,384

Emergency Funding $370,000 $551,000 $0 -$551,000 

TOTAL, ALL FUNDS 3,754,558 18,576 $4,121,452 18,470 $3,110,653 17,212 -$1,010,799 -1,384

Goal 2: Provide and Sustain Benefits to the American People

Forest & Rangeland Research $33,600 259 $33,758 258 $30,900 240 -$2,858 -18

State & Private Forest $0 0 $4,206 0 $0 0 -$4,206 0

National Forest System $244,915 2,122 $251,309 2,024 $220,524 1,730 -$30,785 -294

Capital Improvement & Maintenance $72,482 605 $73,346 566 $73,531 565 $185 -1

Other Approps: Range Betterment Fund $2,876 12 $3,750 15 $3,600 14 -$150 -1

Total, Appropriated Funds $353,873 2,998 $366,369 2,862 $328,555 2,549 -$37,814 -313

Permanent Funds $26,309 206 $36,388 177 $28,220 182 -$8,168 5

Trust Funds $31,137 233 $25,200 173 $21,200 142 -$4,000 -31

TOTAL, ALL FUNDS $411,320 3,436 $427,957 3,213 $377,975 2,873 -$49,982 -340

Goal 3: Conserve Open Space

Forest & Rangeland Research $1,900 15 $1,944 15 $1,800 12 -$144 -3

State & Private Forestry $98,483 105 $81,849 104 $17,500 39

National Forest System $31,473 247 $31,778 251 $25,468 192 -$6,310 -59

Land Acquistion $46,667 76 $43,091 61 $6,300 37 -$36,791 -24

Total, Appropriated Funds 178,523 443 158,662 431 51,068 280 -43,245 -86

Permanent Funds $386 1 $780 0 $250 $0 -$530 0

Trust Funds $2,022 12 $2,800 12 $2,500 $11 -$300 -1

TOTAL, ALL FUNDS $180,931 456 $162,242 443 $53,818 291 -$44,075 -87

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities

Forest & Rangeland Research $6,900 54 $7,067 53 $6,400 49 -$667 -4

National Forest System $259,175 2,172 $261,109 2,226 $230,313 1937 -$30,796 -289

Capital Improvement & Maintenance $218,601 1,316 $223,951 1,262 $199,158 977 -$24,793 -285

Total, Appropriated Funds $484,676 3,542 $492,127 3,541 $435,871 2963 -$56,256 -578

Permanent Funds $80,036 640 $127,940 601 $187,450 625 $59,510 24

Trust Funds $17,635 129 $15,425 99 $13,125 82 -$2,300 -17

TOTAL, ALL FUNDS $582,348 4,311 $635,492 4,240 $636,446 3,670 $954 -570

Goal 5: Maintain Basic Management Capabilities of the Forest Service

International Forestry $6,886 24 $7,383 24 $2,000 28 -$5,383 4

National Forest System $339,313 2,152 $347,323 2,093 $314,069 1,870 -$33,254 -223

Capital Improvement & Maintenance $69,500 224 $59,747 219 $54,630 229 -$5,117 10

Total, Appropriated Funds $415,699 2,400 $414,453 2,336 $370,699 2,127 -$43,754 -209

Permanent Funds $15,810 40 $37,200 37 $8,000 37 -$29,200 0

Trust Funds $0 0 $0 0 $0 0 $0 0

TOTAL, ALL FUNDS $431,508 2,440 $451,653 2,373 $378,699 2164 -$72,954 -209

Goal 6: Engage Urban America with Forest Service Programs

Forest and Rangeland Research $5,000 38 $5,198 38 $4,600 37 -$598 -1

State and Private Forestry $30,130 48 $27,691 48 $5,000 11 -$22,691 -37

Total, Appropriated Funds $35,130 86 $32,889 86 $9,600 48 -$23,289 -38

Permanent Funds $18 0 $25 0 $65 0 $40 0

Trust Funds $0 0 $0 0 $0 0 $0 0

TOTAL, ALL FUNDS $35,148 86 $32,914 86 $9,665 48 -$23,249 -38

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

Forest and Rangeland Research $94,088 722 $95,647 721 $88,200 687 -$7,447 -34

State and Private Forestry $4,588 12 $4,516 12 $0 0 -$4,516 -12

Other Approps: Gifts, Donations & Bequests $63 0 $55 0 $50 0 -$5 0

Total, Appropriated Funds $98,739 734 $100,218 733 $88,250 687 -$11,968 -46

Permanent Funds $0 0 $0 0 $0 0 $0 0

Trust Funds $2,022 12 $2,800 12 $2,500 11 -$300 -1

TOTAL, ALL FUNDS $100,761 746 $103,018 745 $90,750 698 -$12,268 -47

TOTAL, ALL GOALS

Forest & Rangeland Research $280,488 2,151 $285,926 2,151 $263,000 2,041 -$22,926 -110

State and Private Forestry $279,961 627 $262,808 626 $109,500 414 -$88,959 -147

National Forest System * $1,452,729 11,242 $1,469,579 11,133 $1,344,537 9,973 -$125,042 -1,160

Wildland Fire Management $1,823,603 11,421 $1,943,477 11,504 $1,976,592 10,886 $33,115 -618

Capital Improvement & Maintenance $436,400 2,504 $474,768 2,386 $405,788 2,104 -$68,980 -282

Land Acquistion $46,667 76 $43,091 61 $6,300 37 -$36,791 -24

Other Appropriations $7,948 37 $8,779 39 $3,650 14 -$5,129 -25

Subtotal, Appropriated Funds $4,327,796 28,058 $4,488,428 27,900 $4,109,367 25,469 -$314,712 -2,366

Permanent Funds $578,474 1,608 $711,275 1,375 $382,615 1,242 -$328,660 -133

Trust Funds $220,303 1,477 $184,025 1,166 $161,025 990 -$23,000 -176

Subtotal, Non-emergency funding $5,126,573 31,143 $5,383,728 30,441 $4,653,007 27,701 -$666,372 -2,675

Emergency Funding ** $370,000 24 $551,000 0 $0 0 -$551,000 0

Working Capital Fund FTEs --- 557 --- 557 --- 550 --- -7

Discretionary Reimbursable FTEs --- 776 --- 767 --- 807 --- 40

Allocation FTEs --- 1,412 --- 1,415 --- 1,415 --- 0

TOTAL, ALL FUNDS $5,496,573 33,912 $5,934,728 33,180 $4,653,007 30,473 -$1,217,372 -2,706

* $5 million rescission of prior year unobligated funds included in total but not shown within goals.

(dollars in thousands)

FY 2007 - FY 2009 Funding and FTEs by Strategic Goal

Permanent Funds and Trust Funds show Program Level amounts, so totals for this chart will differ from the Three Year Budget Authority table in the Overview 

section

** Emergency & Suppplemental funding in FY 2007 from P.L. 110-28 provides $370 million for suppression. In FY 2008, funding comes from P.L. 110-161, which provided $222 

million for fire suppression, as well as P.L. 110-116. The latter provides $329 million, including $110 million for fire suppression, $80 million for hazardous fuels reduction 

(including $30 million for State fire assistance grants), $25 million for rehabilitation and restoration, $100 million for repayment of funds to accounts that transferred funds for fire 

suppression, and $14 million transferred to Capital Improvement and Maintenance.

FY 2007 Enacted FY 2008 Enacted FY 2009 President's Budget FY 2009 vs FY 2008
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-27 

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 1: Restore, Sustain, and Enhance the Nation's Forests and Grasslands

$139,000 1,063 $142,312 1,066 $131,100 1,016 -$11,212 -50

S&PF: Forest Health Management - Federal Lands $53,963 325 $54,110 325 $45,000 279 -$9,110 -46

S&PF: Forest Health Management - Coop Lands $47,104 62 $44,542 62 $10,000 23 -$34,542 -39

$32,895 51 $32,605 51 $25,000 34 -$7,605 -17

$5,912 0 $5,906 0 $5,000 0 -$906 0

$13,432 120 $15,629 139 $13,742 114 -$1,886 -25

$121,424 943 $121,974 918 $110,577 806 -$11,396 -112

$232,056 1,970 $229,483 1,974 $241,750 1,927 $12,267 -47

$176,849 1,339 $177,437 1,317 $165,309 1,238 -$12,128 -79

$22,551 84 $19,427 81 $15,781 66 -$3,646 -15

$11,541 93 $14,111 110 $12,003 93 -$2,108 -17

$0 0 $0 0 [$10,000] 0 N/A 0

$665,382 5,532 $665,819 5,578 $588,375 5,132 -$77,444 -446

$741,477 3,489 $845,620 3,509 $993,947 3,490 $148,327 -19

$301,258 2,125 $310,086 2,149 $297,000 2,023 -$13,086 -126

$6,189 27 $10,828 23 $0 0 -$10,828 -23

$22,789 132 $23,519 132 $22,000 132 -$1,519 0

$7,882 0 $7,875 0 $8,000 0 $125 0

$14,779 98 $14,030 94 $14,252 93 $222 -1

$9,853 15 $9,858 16 $10,014 16 $156 0

$46,221 3 $47,967 3 $35,004 0 -$12,963 -3

$7,773 0 $7,875 0 $8,000 0 $125 0

$75,817 359 $77,958 340 $78,469 333 $511 -6

$0 0 $39,766 0 $0 0 -$39,766 0

$5,009 25 $4,974 24 $0 0 -$4,974 -24

Total-Appropriated Funds (Non-Emergency) $2,761,156 17,855 $2,923,710 17,911 $2,830,324 16,815 -$93,386 -1,096

Permanent Funds $455,915 721 $508,942 559 $158,630 397 -$350,312 -162

Trust Funds $167,487 1,092 $137,800 870 $121,700 744 -$16,100 -126

$370,000 24 $551,000 --- --- --- --- ---

$3,131,156 19,691 $3,474,710 17,911 $2,830,324 16,815 -$93,386 -1,096

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 2: Provide and Sustain Benefits to the American People

$33,600 259 $33,758 258 $30,900 240 -$2,858 -18

SPF: Economic Action Programs $0 0 $4,206 0 $0 0 -$4,206 0

$47,826 421 $48,163 366 $47,025 347 -$1,138 -19

$87,558 827 $93,020 810 $80,916 738 -$12,104 -72

$61,613 507 $64,716 489 $55,054 385 -$9,662 -104

$47,918 368 $45,410 359 $37,529 260 -$7,881 -99

$72,482 605 $73,346 566 $73,531 565 $185 -1

$2,876 12 $3,750 15 $3,600 14 -$150 -1

Total-Appropriated Funds $353,873 2,998 $366,369 2,862 $328,555 2,549 -$37,849 -312

$26,309 206 $36,388 177 $28,220 182 -$8,168 5

Trsuut Funds $31,137 233 $25,200 173 $21,200 142 -$4,000 -31

$380,182 3,204 $402,757 3,040 $356,775 2,731 -$46,017 -307

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 3: Conserve Open Space

$1,900 15 $1,944 15 $1,800 12 -$144 -3

$41,947 83 $29,532 82 $5,000 22 -$24,532 -60

$56,536 22 $52,317 22 $12,500 17 -$39,817 -5

$31,473 247 $31,778 251 $25,468 192 -$6,310 -59

$46,667 76 $43,091 61 $6,300 37 -$36,791 -24

Total -Appropriated Funds $178,523 443 $158,662 431 $51,068 280 -$107,594 -151

$386 1 $780 0 $250 0 -$530 0

Trust Funds $2,022 12 $2,800 12 $2,500 11 -$300 -1

$180,931 456 $162,242 443 $53,818 291 -$108,424 -152

Permanent Funds

Total Funding - Goal 3

S&PF: Forest Stewardship 

S&PF: Forest Legacy

NFS : Landownership Management

Land Acquisition

NFS: Grazing Management

FY 2007 Enacted FY 2008 Enacted

Permanent Funds

CI&M: Roads

Other: Range Betterment Fund

CI&M: Roads

FY 2009 President's Budget FY 2009 vs FY 2008

Forest & Rangeland Research

NFS: Forest Products

NFS: Vegetation and Watershed Management

WFM: NFP Research & Development

WFM: NFP Volunteer Fire Assistance

WFM: NFP State Fire Assistance

NFS: Minerals and Geology Management

WFM: Fire Preparedness 

WFM: NFP Cooperative Lands-Forest Health 

WFM: Joint Fire Sciences

Total Funding - Goal 2

(dollars in thousands)

FY 2007 Enacted FY 2008 Enacted FY 2009 President's Budget FY 2009 vs FY 2008

Forest & Rangeland Research

NFS: Landownership Management

WFM: NFP Federal Lands-Forest Health Management

NFS: Forest Products

NFS: Minerals and Geology Management

NFS: Landownership Management

Total Funding - Goal 1

* Emergency & Suppplemental funding in FY 2007 from P.L. 110-28 provides $370 million for suppression. In FY 2008, funding comes from P.L. 110-161, which 

provided $222 million for fire suppression, as well as P.L. 110-116. The latter provides $329 million, including $110 million for fire suppression, $80 million for 

hazardous fuels reduction (including $30 million for State fire assistance grants), $25 million for rehabilitation and restoration, $100 million for repayment of funds to 

accounts that transferred funds for fire suppression, and $14 million transferred to Capital Improvement and Maintenance.

Emergency Funds*

NFS: Recreation, Heritage, and Wilderness

NFS: Wildlife and Fish Habitat Management

(dollars in thousands)

FY 2007 Enacted FY 2008 Enacted FY 2009 President's Budget

NFS: Ecosystem Services Pilot Projects

WFM: Hazardous Fuels

WFM: NFP Rehabilitation

Forest & Rangeland Research

S&PF: State Fire Assistance

S&PF: Volunteer Fire Assistance

FY 2009 vs FY 2008

FY 2007 - FY 2009 Funding and FTEs by Strategic Goal

(dollars in thousands)

Other: Subsistence Management

WFM: Fire Suppression

CIM:Legacy Roads and Trails
FY 2009 Budget Justification USDA Forest Service

Strategic Plan and Performance Management 3-28 

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 4: Sustain and Enhance Outdoor Recreation Opportunities

$6,900 54 $7,067 53 $6,400 49 -$667 -4

$245,365 2,098 $247,007 2,154 $223,258 1,883 -$23,749 -271

$10,310 74 $10,411 72 $7,056 54 -$3,356 -18

$3,500 0 $3,691 0 $0 0 -$3,691 0

$60,640 285 $62,008 256 $65,017 242 $3,009 -14

$75,499 399 $76,620 384 $75,000 363 -$1,620 -21

$73,362 610 $76,365 601 $50,041 352 -$26,324 -249

$9,100 22 $8,958 21 $9,100 20 $142 -1

$484,676 3,542 $492,127 3,541 $435,871 2,963 -$56,256 -578

$80,036 640 $127,940 601 $187,450 625 $59,510 24

$17,635 129 $15,425 99 $13,125 82 -$2,300 -17

Total Funding - Goal 4 $582,348 4,311 $635,492 4,240 $636,446 3,670 $954 -570

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 5: Maintain Basic Management Capabilities of the Forest Service

$6,886 24 $7,383 24 $2,000 28 -$5,383 4

$57,675 370 $48,833 282 $52,607 301 $3,774 19

NFS: Inventory and Monitoring $166,638 1,066 $166,580 1,025 $146,462 830 -$20,118 -195

NFS: Law Enforcement Operations $115,000 717 $131,910 786 $115,000 739 -$16,910 -47

CI&M: Facilities $69,500 224 $59,747 219 $54,630 229 -$5,117 10

Total -Appropriated Funds $415,699 2,400 $414,453 2,336 $370,699 2,127 -$1,609 23

$15,810 40 $37,200 37 $8,000 37 -$29,200 0

Trust Funds $0 0 $0 0 $0 0 $0 0

$431,508 2,440 $451,653 2,373 $378,699 2,164 -$30,809 23

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

Goal 6: Engage Urban America with Forest Service Programs

$5,000 38 $5,198 38 $4,600 37 -$598 -1

S&PF: Urban and Community Forestry $30,130 48 $27,691 48 $5,000 11 -$22,691 -37

Total -Appropriated Funds $35,130 86 $32,889 86 $9,600 48 -$23,289 -38

$18 0 $25 0 $65 0 $40 0

Trust Funds $0 0 $0 0 $0 0 $0 0

$35,148 86 $32,914 86 $9,665 48 -$23,249 -38

Amount Staff Years Amount Staff Years Amount Staff Years Amount Staff Years

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

$94,088 722 $95,647 721 $88,200 687 -$7,447 -34

S&PF: Forest Resource Information and Analysis $4,588 12 $4,516 12 $0 0 -$4,516 -12

Other Apppropriations: Gifts, Donations & Bequests $63 0 $55 0 $50 0 -$5 0

Total -Appropriated Funds $98,739 734 $100,218 733 $88,250 687 -$11,968 -46

$0 0 $0 0 $0 0 $0 0

Trust Funds $2,022 12 $2,800 12 $2,500 11 -$300 -1

$98,739 734 $100,218 733 $88,250 687 -$11,968 -46

Forest & Rangeland Research

Permanent Funds

Total Funding - Goal 7

(dollars in thousands)

FY 2007 Enacted FY 2008 Enacted FY 2009 President's Budget FY 2009 vs FY 2008

Total Funding - Goal 5

(dollars in thousands)

FY 2007 Enacted FY 2008 Enacted FY 2009 President's Budget FY 2009 vs FY 2008

International Forestry

NFS: Land Masnagement Planning

Permanent Funds

Trust Funds

(dollars in thousands)

FY 2007 Enacted FY 2008 Enacted FY 2009 President's Budget FY 2009 vs FY 2008

Forest & Rangeland Research

NFS: Wildlife and Fish Habitat Management

Permanent Funds

CI&M Infrastructure Improvement

NFS: Valles Caldera National Preserve

CI&M: Facilities

CI&M: Roads

CI&M: Trails

NFS: Recreation, Heritage and Wilderness

Total - Appropriated Funds

FY 2007 Enacted FY 2008 Enacted FY 2009 President's Budget FY 2009 vs FY 2008

(dollars in thousands)

Total Funding - Goal 6

Forest & Rangeland Research

Permanent Funds

FY 2007 - FY 2009 Funding and FTEs by Strategic Goal
4 

National Fire Plan 

 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-1

Wildland Fire Management – The Interagency National Fire Plan 

Background 

In response to the unprecedented fire season of 2000, the President requested a report recommending how 

to respond to severe, ongoing fire activity, reduce impacts of fires on rural communities and the 

environment, and ensure sufficient firefighting resources in the future. The report, Managing the 

Impacts of Wildfire on Communities and the Environment: A Report to the President in Response to 

the Wildfires of 2000, became the cornerstone of what is known as the National Fire Plan (Plan or NFP). 

The NFP 10-Year Strategy Implementation Plan has been adopted by Federal agencies and western 

governors, in collaboration with county commissioners, State foresters, and tribal officials. 

The Plan (www.forestsandrangelands.gov) addresses five key points: Firefighting, Rehabilitation, 

Hazardous Fuels Reduction, Community Assistance, and Accountability. Working collaboratively, the 

United States Department of Agriculture (USDA), Forest Service, the Department of the Interior (DOI), 

and the four DOI wildfire management bureaus (the Bureau of Indian Affairs, Bureau of Land 

Management, National Park Service, and Fish and Wildlife Service) developed consistent guidelines, 

policies and actions that provide seamless wildland fire protection. The Departments continue to work 

together on improved coordination of national planning and budgeting processes. 

The Wildland Fire Leadership Council (WFLC) provides oversight for implementation of the Plan. This 

Council includes executive level members from both the Departments of the Interior and Agriculture, the 

individual bureaus, and representatives from the U.S. Fire Administration, the Western Governor’s 

Association, the National Association of Counties, the National Association of State Foresters, and the 

Inter-Tribal Timber Council. The Council addresses key policy issues such as strategic policy 

coordination, common performance measures, direction for an effective hazardous fuel reduction 

program, and managing large fire suppression costs. 

Recent Efforts 

Biomass

The Federal agencies continue progress for those National Fire Plan commitments outlined above. In 

2007, the Interagency Woody Biomass Utilization Working Group published a desk guide to help land 

managers start or build upon existing biomass utilization programs. This effort builds on the 2003 

Memorandum of Understanding signed by the Departments of Agriculture, Energy, and the Interior on 

policy principles for woody biomass utilization for restoration and fuel treatments. This strategy will 

result in more diverse forest, woodland, and rangeland ecosystems and provide an alternative residue 

management strategy contributing to rural economic vitality and national energy security. 
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-2

Partnership for Performance

In 2007, the agencies began reporting additional performance measures under the updated 10-Year 

Implementation Plan (December 2006). This updated Plan includes significant revisions of both 

performance measures and implementation tasks developed in collaboration with both Departments and 

representatives from the governors. These changes were prompted because many of the action items set 

forth in the original implementation plan had been completed. Importantly, our partners have taken a key 

role in promoting and reporting community assistance efforts (Goal Four of the Plan). Departments 

adopted the new Plan measures beginning in FY 2007, efforts to implement and report other key NFP 

interagency measures continue. 

Strategic Fuels Reduction and Allocation

In February 2006, the Departments released a Cohesive Fuels Treatment Strategy (Strategy). The 

Strategy addresses the need to reduce the risk of catastrophic wildland fires by reducing fuels build-up in 

forests and woodlands and by reducing threats from flammable invasive species on rangelands in the most 

efficient and effective manner possible. The Strategy centers around four principles: Prioritization, 

Coordination, Collaboration, and Accountability, and emphasizes creating effective fuel treatments (areas 

of reduced fire behavior such as lower flames and/or slower spread) across the landscape, by using a 

scientific approach to remove fuels. 

Increased numbers and frequency of large fires have drawn increasing attention to hazardous fuels 

reduction programs and the method by which areas are prioritized for treatment and funding allocated for 

the Forest Service and the Department of the Interior bureaus. A consistent, spatially relevant process to 

manage funding allocation decisions was developed in FY 2007 to begin informing allocation decisions. 

By employing this decision support system the agencies are able to more effectively implement hazardous 

fuels projects and allocate funding in order to have the greatest impact. Decision criteria in this system 

are weighed by national program leaders to set priorities based on the following: 

• Wildfire potential (based on fuels, weather and large fire occurrence potential), 

• Negative consequence associated with catastrophic fire (values at risk), 

• Past performance and other opportunities (other funding sources and restoration 

objectives). 

Relationship to Other Initiatives 

In August 2002, the Healthy Forests Initiative (HFI) was launched with the intent to reduce the risks 

severe wildfires pose to people, communities, and the environment. This initiative implements both core 

components of the National Fire Plan and the 10-Year Comprehensive Strategy through administrative 

reforms, reducing the adverse human and environmental impacts of wildland fire. 

The HFI effort garnered broad support that led to the enactment of the Healthy Forests Restoration Act 

of 2003 (HFRA). The primary goal of HFRA is to reduce fire danger and return the nation’s forests and 

rangelands to a more resilient state. Community Wildfire Protection Plans (CWPPs), which encourage 

collaboration and local input on setting priorities regarding fuels reduction projects on adjacent Federal 

lands, are integral to HFRA. Tools provided by congressional actions and by HFI, such as expanded 

authorities on the use of categorical exclusions to meet environmental analysis requirements, can save 

time and money. HFRA improvements allow for streamlined analysis of management actions proposed 

to help protect communities and resources from fires. These initiatives help to improve the condition of 

public lands; increase firefighter and public safety; and conserve landscape attributes valued by society. 
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-3

Recent examples of progress under the HFI/HFRA by DOI and the Forest Service include: 

• Increased training and communication efforts internally, which resulted in increased use of the 

provisions of the HFRA and HFI, to better protect communities and the environment from the 

impacts of catastrophic wildland fire. 

• Provided technical and professional assistance toward the creation of CWPPs which analyze and 

prioritize fuel hazard reduction and forest restoration projects across land ownerships. 

 

• Implemented actions recommended within CWPPs, which strengthens collaborative efforts with 

stakeholders, to address landscape level, integrated, hazardous fuels treatments for high priority 

areas across all ownerships.

A complete Healthy Forests Report is posted on the website listed above. 

Fire Research and Technology 

During the late 1990s, the United States experienced a dramatic increase in wildland fire activity. On the 

heels of this increase, the Joint Fire Science Program (JFSP) was established to provide scientific 

information and support for wildland fuel and fire management programs. The purpose of JFSP is to 

provide fire and fuels information and tools to specialists and managers, helping them to make the best 

possible decisions and develop sound, scientifically valid plans. JFSP received specific direction from 

Congress to address fuels inventory and mapping, evaluation and scheduling of fuels treatments, 

development of protocols for monitoring, post-fire rehabilitation and stabilization, local assistance, and 

aircraft-based remote sensing. Research sponsored by JFSP also examines fire-related issues including 

air quality, smoke management, and social aspects of fire and fuels management. 

Examples of tools generated by Forest Service and JFSP research teams include integrated fire and 

weather maps to generate 3-to-12 month fire forecasts; imagery-based, burn-severity maps used by 

Burned Area Emergency Response (BAER) teams to stabilize soils and reduce erosion; and development 

of a fiberboard structural product made from by-products of hazardous fuels treatments. Current and 

future plans include:

• Developing and improving tools such as fire behavior models to help managers make riskinformed decisions based on probabilities and values at risk. 

• Studying the various aspects of wildland fire management including firefighter and public safety, 

fire weather and behavior, smoke dispersion, and post-fire susceptibility to invasive species, in 

order to address current and anticipated management problems. 

• Synthesizing a large body of fire science into a fully linked and searchable hypertext system via 

the internet, the Encyclopedia of Southern Fire Science. 
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-4

Summary 

In the 7 years since the inception of the National Fire Plan, the guiding principles of prioritization, 

coordination, collaboration, and accountability have resulted in major changes in the fire program and 

public land management. 

• The strategies, policies, and oversight of the WFLC contribute to the significant progress the 

Departments have made in NFP efforts toward a seamless wildland fire management program. 

• Increased collaboration with State, local community, and tribal partners to identify and treat high 

priority hazardous fuels problems, focused in the wildland-urban interface (WUI), continues 

important progress toward implementation of the NFP. 

• The Departments continue to emphasize and provide for expanded community and private sector 

involvement, enhanced contracting opportunities for local communities, and local participation in 

setting fuel treatment priorities. 

• Standards for accountability and measuring program performance have been established, ensuring 

continued improvement in our ability to track and support program planning, implementation, and 

effectiveness. 
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-5

NATIONAL FIRE PLAN – COMMON PERFORMANCE MEASURES

DEPARTMENT OF THE INTERIOR AND FOREST SERVICE FY 2007—2009* 

 INTERAGENCY COMBINED MEASURES 

FY 2007 

Actual FY 2008 Plan 

FY 2009 

Request 

Percent of unplanned and unwanted fires 

controlled during initial attack 97% 97% 97% 

Number of high-priority acres treated in the WUI. 2,008,000 1,924,000 1,906,000 

Number of acres in condition class 2 or 3 treated 

outside the WUI in fire regimes 1, 2, or 3. 1,129,000 916,000 843,000 

Number of acres in fire regimes 1, 2, or 3 moved 

to a better condition class 1,530,000 1,398,000 1,551,000 

Number of acres in fire regimes 1, 2, or 3 moved 

to a better condition class per million dollars gross 

investment A/ 

5,159 5,870 6,249 

 A/ This measure includes only Hazardous Fuels Reduction accomplishments and funding, not all acres with 

change in condition class. 
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-6 

Revised February 25, 2008 

10-YEAR IMPLEMENTATION PLAN – COMMON PERFORMANCE MEASURES

DEPARTMENT OF THE INTERIOR AND FOREST SERVICE FY 2007—2009 

 INTERAGENCY COMBINED MEASURES 

GOAL 1 

Improve Fire Prevention and Suppression

FY 2007 

Actual 

FY 2008 

Plan 

FY 2009 

Request 

Percent change from 10-year average for: percent 

wildfires controlled during initial attack 

 FS -1% 

DOI -0.5% 

FS +/- 0.5% 

DOI +/- 0.5% 

FS +/- 0.5% 

DOI +/- 0.5% 

Percent of fires not contained in initial attack that 

exceed a stratified cost index 

FS - 22% 

DOI – 10% 

FS - 20% 

DOI – 10% 

FS - 20% 

DOI – 10% 

GOAL 2 

Reduce Hazardous Fuels 

 

Number of acres treated per million dollars gross 

investment in WUI and non-WUI areas 

FS $5,382 

DOI $ 6,556 

FS $5,400 

DOI $ 5,495 

FS $5,400 

DOI $ 4,936 

Percent of collaboratively identified high priority 

acres treated where fire management objectives 

are achieved as identified in applicable 

management plans or strategies 

FS 58% 

DOI 73%, 

FS 58% 

DOI 75% 

FS 58% 

DOI 78% 

GOAL 3 * 

Restoration and Post-Fire Recovery of FireAdapted Ecosystems 

 

Number and percent of acres treated to restore 

fire-adapted ecosystems which are: moved to a 

better [lower] condition class 

FS 1,601,000 

53% 

DOI 539,938 

40% 

FS 1,601,000 

54% 

DOI 445,000 

41% 

FS 1,601,000 

55% 

DOI 410,000 

41% 

GOAL 4 

Promote Community Assistance

 

Number of green tons and/or volume of woody 

biomass from hazardous fuel reduction and 

restoration treatments on Federal land that are 

made available for utilization through permits, 

contracts, grants, agreements, or equivalent 

FS 2.8 million 

green tons 

DOI 0.2 

million green 

tons 

FS 2.8 million 

green tons 

DOI 0.2 

million green 

tons 

FS 2.8 million 

green tons 

DOI 0.2 

million green 

tons 

*Goal 3 – Forest Service acres moved to a better condition class include total acres from all integrated programs 

that reduce hazardous fuels 
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-7 

Revised February 25, 2008 

Interagency 

Three-Year National Fire Plan Funding Table 

(dollars in thousands) 

AGENCY/Program 

FY 2007 

Enacted

FY 2008 

Enacted

FY 2009 

President's 

Budget 

FY 2009

 vs.

FY 2008

 INTERIOR 

Preparedness 274,863 276,482 277,718 +1,236

Suppression 249,185 289,805 335,191 +45,386

Other Operations: 

 Hazardous Fuels Reduction 199,787 199,628 202,792 +3164

 Burned Area Rehabilitation 22,786 24,207 24,305 +98

 Fire Facilities 7,734 6,137 6,137 0

 Joint Fire Science Program 4,000 5,906 4,000 -1,906

 State and Local Assistance 0 5,906 0 -5,906

Other Operations Total 234,307 241,784 237,234 -4,550

Subtotal, DOI 758,355 808,071 850,143 +42,072

Supplementals 95,000 249,000 0 -249,000

Total, DOI 853,355 1,057,071 850,143 -206,928

 FOREST SERVICE 

Preparedness 665,382 665,819 588,375 -77,444

Fire Suppression Operations 741,477 845,620 993,947 +148,327

Other Operations: 

 Hazardous Fuels Reduction 301,258 310,086 297,000 -13,086

 Rehabilitation 6,189 10,828 0 -10,828

 Fire Plan Research and Development 22,789 23,519 22,000 -1,519

 Joint Fire Science Program 7,882 7,875 8,000 + 125

 Forest Health Management (Federal lands) 14,779 14,030 14,252 + 222

 Forest Health Management (Cooperative lands) 9,853 9,858 10,014 + 156

 State Fire Assistance 46,221 47,967 35,004 -12,963

 Volunteer Fire Assistance 7,773 7,875 8,000 + 125

Other Operations Total 416,744 432,038 394,270 -37,768

Subtotal, Forest Service 1,823,603 1,943,477 1,976,592 33,115

Supplementals 370,000 537,000 0 -537,000

Total, Forest Service 2,193,603 2,480,477 1,976,592 -503.885 
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-8 

Revised February 25, 2008 

Interagency 

Three-Year National Fire Plan Funding Table 

(dollars in thousands)

AGENCY/Program 

FY 2007 

Enacted 

FY 2008 

Enacted 

FY 2009 

President's 

 Budget 

FY 2009 

 vs.

 FY 2008

 INTERIOR & FOREST SERVICE 

 

Preparedness 940,245 942,301 866,093 -76,208

Fire Suppression Operations 990,662 1,135,425 1,329,138 193,713

Other Operations: 

Hazardous Fuels Reduction 501,045 509,714 499,792 -9,922

Rehabilitation 28,975 35,035 24,305 -10,730

Joint Fire Science Program 11,882 13,781 12,000 -1,781

Fire Plan Research and Development 22,789 23,519 22,000 -1,519

Forest Health Management (Federal lands) 14,779 14,030 14,252 222

Forest Health Management (Cooperative lands) 9,853 9,858 10,014 156

State Fire Assistance 46,221 47,967 35,004 -12,963

Volunteer Fire Assistance 7,773 7,875 8,000 125

State and Local Assistance 0 5,906 0 -5,906

Other Operations Total 643,317 667,685 625,367 -42,318

Subtotal 2,574,224 2,745,411 2,820,598 75,187

Supplementals 465,000 686,000 0 --

Grand Total 3,039,224 3,431,411 2,820,598 -610,813

2009 PLANNED ACTIVITIES

Strategic Priorities 

• Continue to work in a collaborative manner with States, tribes, non-governmental 

organizations, and other partners to ensure the accomplishment of mutual objectives. 

• Continue the integration of program funding to accomplish HFI and HFRA objectives 

efficiently and effectively. 

• Emphasize the integration of Community Wildfire Protection Plans with Federal hazardous 

fuels mitigation priorities. 

• Continue working, on an interagency basis, to most effectively prioritize projects to realize 

risk reduction across ownerships and landscapes. 

 

Goal 1 – Improve Fire Suppression and Prevention

• Continue to implement large fire suppression operations cost containment strategies. 

• Report on percent change from 10-year average for: percent wildfires controlled during 

initial attack.

• Continue implementation and expanded use of Appropriate Management Response (riskedbase approach) and Wildland Fire Use to reduce suppression cost. These efforts will include 

a more extended use of wildland fire decision support information and analytical tools to 

examine values-at-risk and potential risk associated with individual incidents.
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-9

• Researchers will continue working to improve firefighting preparedness through tools and models 

developed to predict activities such as wildfire behavior and effects. Examples are FSPRO, which 

helps managers make informed decisions based on probabilities of fire spread and behavior, and 

values at risk models such as RAVAR, which assists in prioritization of suppression efforts. 

• Implement Fire Program Analysis, the decision support tool that will enable land managers to budget 

and allocate resources more effectively across multiple land unit boundaries. 

Goal 2 - Reduce Hazardous Fuels

• Treat approximately 3.4 million acres of hazardous fuel to reduce flammability of forests, woodlands, 

shrublands, and grasslands, including 1.4 million acres in the WUI areas 2 million acres in areas 

outside of WUI areas. 

• Reduce fuel loads on an estimated additional 910,000 acres as a secondary benefit of other vegetation 

management activities, Wildland Fire Use events, Hazard Mitigation Grants awarded under the State 

Fire Assistance program, and activities of the Southern Nevada Public Lands Management Act. 

• Continue participation in the Federal Woody Biomass Utilization Working Group to promote and 

support the utilization of woody biomass and woody biomass products from forest and woodland 

treatments. 

Goal 3 - Restoration and Post-Fire Recovery of Fire-Adapted Ecosystems 

Part A – Restoration of Fire Adapted Ecosystems 

• Promote the increase of wildland fire use, consistent with land and resource management plans and 

public and firefighter safety and continue to report these acres annually in future Budget 

Justifications. 

Part B – Post Fire Recovery of Fire Adapted Ecosystems 

• Implement emergency stabilization treatments on lands that are severely burned in 2008. 

• Rehabilitate and restore burned areas through reforestation, seeding, road and trail restoration, 

invasive plant treatment, heritage site restoration, grazing management, insect and disease treatment, 

and watershed and stream restoration. 

• Continue to reforest burned areas through a five-year cost-share agreement with American Forests for 

Wildfire ReLeaf. 

• Continue the Interagency Program to Supply and Manage Native Plant Materials, a long-term strategy 

to improve nursery and plant material center infrastructure, monitoring of restoration effects, and 

public/private partnerships. 

Goal 4 – Promote Community Assistance

• Partner with the National Fire Protection Association, State, Federal, and nonprofit partners to 

encourage community responsibility for hazard mitigation through land use planning, building codes, 

landscaping codes, zoning, and community fire protection planning through the Firewise 

Communities Program. 

• Provide technical assistance, training, supplies, and equipment to more than 5,575 small rural 

communities and 5,600 volunteer fire departments. 

• Use CWPPs to help guide fuel hazard reduction and forest restoration project selection across 

ownership on a landscape scale. 

• Increase firefighting capacity by providing technical assistance, training, supplies, and equipment to 

5,600+ small rural communities through Ready Reserve (DOI) and Volunteer Fire Assistance (Forest 

Service) programs. 

• Provide more than $35 million for technical and financial assistance to States to enhance firefighting 

capacity at the State and local levels. 
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-10

2007: A PROGRESS REPORT FROM THE DEPARTMENTS OF THE INTERIOR AND AGRICULTURE

HAZARDOUS FUELS REDUCTION & LANDSCAPE RESTORATION PROJECTS

An excessive accumulation of hazardous or unusually flammable fuels in our forests, woodlands, and 

grasslands contributes significantly to the unprecedented fire risk facing our public lands. Land managers 

remove hazardous fuels via programs funded specifically for that purpose and in other programs whose 

principal goals are to achieve a variety of resource management objectives that can be broadly labeled 

landscape restoration. Treatments occur both inside and outside the WUI. 

1. Inside the WUI treatments reduce fuels around homes, communities, and resources to slow or stop 

wildland fires from threatening these high-value areas. 

2. Beyond the WUI, treatments not only help protect communities by creating conditions that enable 

firefighters to more successfully suppress fires before they enter the WUI but also reduce fire severity and 

its impact on valued landscapes and natural resources. 

From 2001 through 2007, Federal land management agencies have treated over 24 million acres of 

Federal lands under the Healthy Forests Initiative and the National Fire Plan. The effectiveness of these 

treatments in protecting communities and resources from wildfire has been demonstrated numerous times.
FY 2009 Budget Justification USDA Forest Service

National Fire Plan 4-11

Wildland Urban Interface Non-Wildland Urban Interface

Rx Fire Mechanical Other Total Rx Fire Mechanical Other Total Grand Total

2001

FS 0.461 0.140 0.011 0.612 0.685 0.064 0.001 0.750 1.362

DOI 0.088 0.075 0.001 0.164 0.419 0.110 0.035 0.564 0.728

Total 0.549 0.215 0.012 0.776 1.104 0.174 0.036 1.314 2.090

2002

FS 0.711 0.051 0.002 0.764 0.433 0.061 0.000 0.494 1.258

DOI 0.069 0.125 0.015 0.209 0.635 0.149 0.066 0.850 1.059

Total 0.780 0.176 0.017 0.973 1.068 0.210 0.066 1.344 2.317

2003

FS 0.970 0.143 0.001 1.114 0.281 0.058 0.000 0.339 1.453

DOI 0.218 0.158 0.104 0.480 0.567 0.103 0.109 0.779 1.259

Total 1.188 0.301 0.105 1.594 0.848 0.161 0.109 1.118 2.712

2004

FS* 1.163 0.436 0.101 1.700 0.491 0.357 0.013 0.861 2.561

DOI 0.250 0.294 0.016 0.560 0.572 0.299 0.200 1.071 1.631

Total 1.413 0.730 0.117 2.260 1.063 0.656 0.213 1.932 4.192

2005

FS* 1.044 0.515 0.099 1.658 0.688 0.343 0.033 1.064 2.722

DOI 0.284 0.276 0.049 0.609 0.598 0.233 0.180 1.011 1.620

Total 1.328 0.791 0.148 2.267 1.286 0.576 0.213 2.075 4.342

2006

FS* 0.812 0.683 0.095 1.590 0.580 0.356 0.021 0.957 2.547

DOI 0.243 0.236 0.108 0.587 0.420 0.229 0.220 0.869 1.456

Total 1.055 0.919 0.203 2.177 1.000 0.585 0.241 1.826 4.003

2007

FS* 1.018 0.392 0.244 1.654 0.858 0.504 0.011 1.373 3.027

DOI* 0.332 0.244 0.275 0.851 0.663 0.168 0.105 0.936 1.787

Total 1.350 0.636 0.519 2.505 1.521 0.672 0.116 2.309 4.814

FS Total 6.179 2.360 0.553 9.092 4.016 1.743 0.079 5.838 14.930

DOI Total 1.484 1.408 0.568 3.460 3.874 1.291 0.915 6.080 9.540

Grand Total 7.663 3.768 1.121 12.552 7.890 3.034 0.994 11.918 24.470

* All treatment work that reduces hazardous fuel or improves condition class, including State Fire Assistance Hazard Mitigation Grants and 

Wildland Fire Use
(This page inserted to format for duplex printing) 
5 

Appropriations Language 

Changes 

 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-1 

Appropriation Language and Proposed Changes in Language (Title IV)

Material proposed for deletion is enclosed in bold brackets; new language is underlined 

and bold. Changes are based on the Department of the Interior, Environment, and 

Related Agencies Appropriations Act, 2008, as Division F of P.L. 110-161, the 

Consolidated Appropriations Act, 2008. 

FOREST AND RANGELAND RESEARCH 

1. 

2. 

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

[$290,457,000] $263,000,000, to remain available until expended[: Provided, That 

of the funds provided, $61,329,000 is for the forest inventory and analysis 

program].

1. Reflects change in the level of funding. 

2. Unnecessarily restricts agency discretion in implementation of the FIA 

program. 

STATE AND PRIVATE FORESTRY 

1. 

2. 

1. 

For necessary expenses of cooperating with and providing technical and financial 

assistance to States, territories, possessions, and others, and for forest health 

management, including treatments of pests, pathogens, and invasive or noxious 

plants and for restoring and rehabilitating forests damaged by pests or invasive 

plants, cooperative forestry, and education and land conservation activities and 

conducting an international program as authorized, [$266,974,000] $109,500,000, 

to remain available until expended, as authorized by law; [of which $7,500,000 is 

for the International Program;] and of which [$53,146,000] $12,500,000 is to be 

derived from the Land and Water Conservation Fund. 

1. Reflects change in the level of funding. 

2. Unnecessarily restricts agency discretion in implementation of International 

Programs. 

NATIONAL FOREST SYSTEM (Including Transfer of Funds) 

1. 

 2. 

 

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

management, protection, improvement, and utilization of the National Forest 

System, [$1,492,868,000] $1,349,537,000 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 year 2008 shall be displayed by budget line item in the fiscal year 2009 

budget justification: Provided further, That of the funds provided under this 

heading for Forest Products, $4,000,000 shall be allocated to the Alaska Region, in 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-2 

addition to its normal allocation for the purposes of preparing additional timber for 

sale, to establish a 3-year timber supply and such funds may be transferred to other 

appropriations accounts as necessary to maximize accomplishment.] 

ECOSYSTEM SERVICES DEMONSTRATION PROJECTS. 

(a) IN GENERAL. The Secretary of Agriculture (referred to in this section as 

"Secretary") may prepare and implement up to 5 ecosystem services 

demonstration projects that—

(1) restore, enhance, or protect ecosystem function on National Forest 

System lands (including projects to rehabilitate watersheds damaged by 

fire or other natural catastrophic events);

(2) that mutually benefit the Secretary and a partnering entity (that for 

purposes of this section shall be limited to a State, political subdivision of a 

State, an Indian tribe or organization recognized under section 104 of the 

Federally recognized Indian Tribe List Act of 1994 (25 U.S.C. 479a-1), or a 

nonprofit organization described in section 501(c)(3), and exempt from tax 

under section 501(a), of the Internal Revenue Code of 1986); and

(3) include a research component to analyze and quantify the flow and 

value of ecosystem services from each project. 

(b) PREPARATION AND IMPLEMENTATION.--In developing and 

implementing an ecosystem services demonstration project, the Secretary may 

enter into an agreement with partnering entity—

(1) for the partnering entity to carry out the project for the Secretary in 

accordance with subsections (c ) through (f);

(2) to receive funds from a partnering entity for the Secretary to carry out 

the project in accordance with subsection (g); or

(3) for any combination of paragraphs (1) and (2).

(c) PROJECT REQUIREMENTS.--Any ecosystem services demonstration 

project covered under subsection (b)(1) shall be consistent with the applicable 

land and resource management plan developed under section 6 of the Forest 

and Rangeland Renewable Resources Planning Act of 1974 (16 U.S.C. 1604) 

for National Forest System lands; and be approved by the Secretary in the 

Secretary's sole discretion.

(d) PREPARATION OF ANALYSIS.--For any ecosystem service 

demonstration project for which a contract or agreement is authorized under 

subsection (b)(1), the Secretary may authorize a partnering entity to 

prepare—

(1) any analysis required by the National Environmental Policy Act of 1969 

(42 U.S.C. 4321 et seq.);

(2) any biological assessment or biological evaluation prepared pursuant to 

the Endangered Species Act of 1973 (16 U.S.C. 1531 et seq.); 

(3) any document or study required by the National Historic Preservation 

Act (16 U.S.C. 470 et seq.); or 

(4) any analysis, survey, or other documentation required by any other 

environmental law.
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-3 

(e) CONSIDERATION OF NEPA ALTERNATIVES.--If an environmental 

assessment or environmental impact statement is prepared under section 

102(2) of the National Environmental Policy Act of 1969 (42 U.S.C. 4332(2)) 

for an ecosystem services demonstration project under this section, such 

environmental assessment or environmental impact statement may describe 

and analyze only(A) the proposed agency action; and(B) the alternative of no 

action.

(f) ADMINISTRATIVE PROVISIONS.

(1) NATIONAL FOREST MANAGEMENT ACT OF1976.--Subsections 

(d) and (g) of section 14 of the National Forest Management Act of 1976 (16 

U.S.C. 472a) shall not apply to an agreement under subsection (b)(1). 

(2) ASSUMPTION OF LIABILITY.--A partnering entity shall assume 

liability, to the extent allowed by Federal, State and local fiscal law, for the 

actions or omissions of its employees or subcontractors in preparing or 

implementing an agreement under subsection (b)(1).

(3) SUBCONTRACTING BY A PARTNERING ENTITY.--A partnering 

entity may subcontract to the extent allowed by State and local law to 

prepare or implement an agreement under subsection (b)(1).

(4) BONDING.--Except as otherwise determined by the Secretary, a bond 

shall be required by the Secretary of any party to an agreement under 

subsection (b)(1).

(g) FUNDS FROM PARTNERING ENTITY.--Subject to subsection (h), the 

Secretary shall deposit funds received from the partnering entity for an 

ecosystem services demonstration project covered under subsection (b)(2) into 

the National Forest System account, to remain available without further 

appropriation and until expended, for carrying out this section.

(h) LIMITATION.--The Secretary may not accept a total amount, in the 

aggregate, of more than $10 million from partnering entities for ecosystem 

services demonstration projects to be carried out under subsection (b)(2).

(i) PROPERTY RIGHTS.--No property right shall accrue to a partnering 

entity because of funds provided by the partnering entity for a project under 

this section. (j) RELATION TO OTHER AUTHORITIES.--Nothing in this 

section shall prohibit the Secretary from applying an authority otherwise 

available to carry out an ecosystem services demonstration project.

1. Reflects change in the level of funding. 

 2. Provision requires unnecessary reporting requirements and unnecessarily 

 restricts agency discretion. 

 3. Proposal for new reimbursable program related to ecosystem service 

 demonstration projects. 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-4 

WILDLAND FIRE MANAGEMENT (Including Transfer of Funds) 

1. 

 

 2. 

 

 

 

 

 

 2. 

 

 

 

 

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, [$1,974,276,000] $1,976,592,000, 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 2007 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 activities of the Forest Service: [Provided further, That of the funds 

provided, $315,000,000 is for hazardous fuels reduction activities, $11,000,000 is 

for rehabilitation and restoration, $23,892,000 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.), $48,727,000 is for 

State fire assistance, $8,000,000 is for volunteer fire assistance, $14,252,000 is for 

forest health activities on Federal lands and $10,014,000 is for forest health 

activities on State and private lands:] Provided further, That amounts in this 

paragraph may be transferred to the ‘‘State and Private Forestry’’, ‘‘National 

Forest System’’, and ‘‘Forest and Rangeland Research’’ accounts to fund State fire 

assistance, volunteer fire assistance, forest health management, forest and 

rangeland research, the Joint Fire Science program, vegetation and watershed 

management, heritage site rehabilitation, and wildlife and fish habitat management 

and restoration: [Provided further, That transfers of any amounts 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 explanatory statement accompanying this Act: Provided further, 

That up to $10,000,000 of the funds provided under this heading for hazardous 

fuels treatments may be transferred to and made a part of the “National Forest 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-5 

 2. 

 

 

 

 1. 

 

 1. 

 

 2. 

 3. 

System” account at the sole discretion of the Chief of the Forest Service thirty days 

after notifying the House and the Senate Committees on Appropriations:] Provided 

further, That the costs of implementing any cooperative agreement between the 

Federal Government and any non-Federal entity may be shared, as mutually agreed 

on by the affected parties: [Provided further, That in addition to funds provided for 

State Fire Assistance programs, and subject to all 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 funds made 

available to implement the Community Forest Restoration Act, Public Law 106–

393, title VI, shall be available for use on non-Federal lands in accordance with 

authorities 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 [$10,000,000] 

$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 

[$7,000,000] $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 cost pools on the same basis as such assessments are calculated 

against other agency programs] of the funds provided under this heading, the 

Forest Service shall employ not less than 10,480 wildland firefighters.

1. Reflects change in level of funding. 

2. Provision unnecessarily restricts agency discretion. 

3. Provides a minimum level of wildland firefighters for the program. 

CAPITAL IMPROVEMENT & MAINTENANCE (Including Transfer of Funds) 

1. 

 2. 

 3. 

 

 

 

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

[$456,895,000] $405,788,000, to remain available until expended for construction,

capital improvement, maintenance and acquisition of buildings and other facilities 

and infrastructure; and for construction, capital improvement, decommissioning, 

and maintenance of forest roads and trails by the Forest Service as authorized by 16 

U.S.C. 532-538 and 23 U.S.C. 101 and 205[ and in addition $25,000,000 to be 

transferred from the timber roads purchaser election fund and merged with this 

account, to remain available until expended]: Provided, [That $40,000,000 shall be 

designated for urgently needed road decommissioning, road and trail repair and 

maintenance and associated activities, and removal of fish passage barriers, 

especially in areas where Forest Service roads may be contributing to water quality 

problems in streams and water bodies which support threatened, endangered or 

sensitive species or community water sources and for urgently needed road repairs 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-6 

 1. 

 2. 

 

required due to recent storm events: Provided further,] That up to [$40,000,000]

$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 the decommissioning of unauthorized roads not part 

of the official transportation system shall be expedited in response to threats to 

public safety, water quality, or natural resources: Provided further, That funds 

becoming available in fiscal year 2008 under the Act of March 4, 1913 (16 U.S.C. 

501) shall be transferred to the General Fund of the Treasury and shall not be 

available for transfer or obligation for any other purpose unless the funds are 

appropriated: Provided further, That notwithstanding any other provision of law, 

the Forest Service shall provide $1,197,000 appropriated in Public Law 110-5 

within the Capital Improvement and Maintenance appropriation as an advance 

direct lump sum payment to West Virginia University for the planning and 

construction of a research greenhouse facility as the Federal share in the 

construction of the new facility]. 

1. Reflects change in the level of funding. 

2. Provision unnecessarily restricts agency discretion 

3. Provision was for a one-time transfer of funds and is no longer necessary. 

LAND ACQUISITION 

1. 

For expenses necessary to carry out the provisions of the Land and Water 

Conservation Fund Act of 1965, as amended (16 U.S.C. 460l–4 through 11), 

including administrative expenses, and for acquisition of land or waters, or interest 

therein, in accordance with statutory authority applicable to the Forest Service, 

[$42,490,000] $5,000,000, to be derived from the Land and Water Conservation 

Fund and to remain available until expended. 

1. Reflects change in the level of funding. 

ACQUISITION OF LANDS FOR NATIONAL FORESTS SPECIAL ACTS 

 

 1. 

For acquisition of lands within the exterior boundaries of the Cache, Uinta, and 

Wasatch National Forests, Utah; the Toiyabe National Forest, Nevada; and the 

Angeles, San Bernardino, Sequoia, and Cleveland National Forests, California, as 

authorized by law, [$1,053,000] $1,050,000, to be derived from forest receipts. 

1. Reflects change in level of funding. 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-7 

ACQUISITION OF LANDS TO COMPLETE LAND EXCHANGES 

 

For acquisition of lands, such sums, to be derived from funds deposited by State, 

county, or municipal governments, public school districts, or other public school 

authorities, and for authorized expenditures from funds deposited by non-Federal 

parties pursuant to Land Sale and Exchange Acts, pursuant to the Act of December 

4, 1967, as amended (16 U.S.C. 484a), to remain available until expended. (16 

U.S.C. 4601-516-617a, 555a; P.L. 96-586; P.L. 76-589, 76-591; and 78-310.)

RANGE BETTERMENT FUND 

 For necessary expenses of range rehabilitation, protection, and improvement, 50 

percent of all moneys received during the prior fiscal year, as fees for grazing 

domestic livestock on lands in National Forests in the 16 Western States, pursuant 

to section 401(b)(1) of Public Law 94-579, as amended, to remain available until 

expended, of which not to exceed 6 percent shall be available for administrative 

expenses associated with on-the-ground range rehabilitation, protection, and 

improvements. 

GIFTS, DONATIONS, AND BEQUESTS FOR FOREST AND RANGELAND 

RESEARCH 

1. For expenses authorized by 16 U.S.C. 1643(b), [$56,000] $50,000, to remain 

available until expended, to be derived from the fund established pursuant to the 

above Act. 

1. Reflects change in the level of funding. 

MANAGEMENT OF NATIONAL FOREST LANDS FOR SUBSISTENCE USES 

 1. [For necessary expenses of the Forest Service to manage Federal lands in Alaska 

for subsistence uses under title VIII of the Alaska National Interest Lands 

Conservation Act (Public Law 96–487), $5,053,000, to remain available until 

expended.]

1. Provision unnecessarily restricts agency discretion 

ADMINISTRATIVE PROVISIONS 

 

 

 

Appropriations to the Forest Service for the current fiscal year shall be available 

for: (1) purchase of passenger motor vehicles, acquisition of passenger motor 

vehicles from excess sources, and hire of such vehicles; purchase, lease, operation, 

maintenance, and acquisition of aircraft from excess sources to maintain the 

operable fleet for use in Forest Service wildland fire programs and other Forest 

Service programs; notwithstanding other provisions of law, existing aircraft being 

replaced may be sold, with proceeds derived or trade-in value used to offset the 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-8 

purchase price for the replacement aircraft; (2) services pursuant to 7 U.S.C. 2225, 

and not to exceed $100,000 for employment under 5 U.S.C. 3109; (3) purchase, 

erection, and alteration of buildings and other public improvements (7 U.S.C. 

2250); (4) acquisition of land, waters, and interests therein pursuant to 7 U.S.C. 

428a; (5) for expenses pursuant to the Volunteers in the National Forest Act of 

1972 (16 U.S.C. 558a, 558d, and 558a note); (6) the cost of uniforms as authorized 

by 5 U.S.C. 5901-5902; and (7) for debt collection contracts in accordance with 31 

U.S.C. 3718(c). 

 

 

 

 1. 

Any appropriations or funds available to the Forest Service may be transferred to 

the Wildland Fire Management appropriation for forest firefighting, emergency 

rehabilitation of burned-over or damaged lands or waters under its jurisdiction, and 

fire preparedness due to severe burning conditions upon notification of the House 

and Senate Committees on Appropriations [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]. 

 1. Provision unnecessarily restricts agency discretion. Also, combined with Federal 

Government accounting procedures, this provision could cause stoppage of wildlife 

suppression activities. Once all suppression funds are obligated, account balances 

will be at zero and at that point, the Forest Service could have to stop suppression 

activities. To avoid this situation, transfers must be initiated prior to balances 

reaching zero. 

 

 

Funds appropriated to the Forest Service shall be available for assistance to or 

through the Agency for International Development in connection with forest and 

rangeland research, technical information, and assistance in foreign countries, and 

shall be available to support forestry and related natural resource activities outside 

the United States and its territories and possessions, including technical assistance, 

education and training, and cooperation with United States and international 

organizations. 

 

 

None of the funds made available to the Forest Service in this Act or any other Act 

with respect to any fiscal year shall be subject to transfer under the provisions of 

section 702(b) of the Department of Agriculture Organic Act of 1944 (7 U.S.C. 

2257), section 442 of Public Law 106-224 (7 U.S.C. 7772), or section 10417(b) of 

Public Law 107-107 (7 U.S.C. 8316(b)). 

 1. 

 

[None of the funds available to the Forest Service may be reprogrammed with the 

advance approval of the House and Senate Committees on Appropriations in 

accordance with the reprogramming procedures contained in the explanatory 

statement accompanying this Act.]

1. Provision unnecessarily restricts agency discretion. 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-9 

 1. [Not more than $73,285,000 of funds available to the Forest Service shall be 

transferred to the Working Capital Fund of the Department of Agriculture and not 

more than $24,021,000 of funds available to the Forest Service shall be transferred 

to the Department of Agriculture for Department Reimbursable Programs, 

commonly referred to as Greenbook charges. Nothing in this paragraph shall 

prohibit or limit the use of reimbursable agreements requested by the Forest 

Service in order to obtain services from the Department of Agriculture's National 

Information Technology Center.]

1. Provision unnecessarily restricts agency discretion. 

 

Funds available to the Forest Service shall be available to conduct a program of up 

to $5,000,000 for high priority projects within the scope of the approved budget, 

of which $2,500,000 shall be carried out by the Youth Conservation Corps and 

$2,500,000 shall be carried out under the authority of the Public Lands Corps 

Healthy Forests Restoration Act of 2005, Public Law 109-154. 

Of the funds available to the Forest Service, $4,000 is available to the Chief of the 

Forest Service for official reception and representation expenses. 

 1. 

 

 2. 

 3. 

 

 

 4. 

Pursuant to section 405(b) and 410(b) of Public Law 101-593, of the funds 

available to the Forest Service, [$3,000,000] up to $2,000,000 may be advanced in 

a lump sum to the National Forest Foundation to aid conservation partnership 

projects in support of the Forest Service mission, without regard to when the 

Foundation incurs expenses, for administrative expenses or projects on or 

benefitting National Forest System lands or related to Forest Service programs: 

Provided, That of the Federal funds made available to the Foundation, no 

more than $200,000 shall be available for administrative expenses: Provided 

further, That the Foundation shall obtain, by the end of the period of Federal 

financial assistance, private contributions to match on at least one-for-one basis 

funds made available by the Forest Service: Provided further, That the Foundation 

may transfer Federal funds to Federal or a non-Federal recipient for a project at 

the same rate that the recipient has obtained the non-Federal matching funds: 

Provided further, That authorized investments of Federal funds held by the 

Foundation may be made only in interest-bearing obligations of the United Sates or 

in obligations guaranteed as to both principal and interest by the United States. 

1. Provides for agency discretion in level of funds transferred. 

2. Reflects a change in level of funding authorized for administrative expenses. 

3. Adds clarification to the subsequent provision. 

4. Authorizes that funds may be transferred to other Federal offices, including 

Forest Service offices. 

 1. Pursuant to section 2(b)(2) of Public Law 98-244, up to $2,650,000 of the funds 

available to the Forest Service shall be advanced to the National Fish and Wildlife 

Foundation in a lump sum to aid cost-share conservation projects, without regard to 

when expenses are incurred, on or benefitting National Forest System lands or 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-10 

 

 

related to Forest Service programs: Provided, That such funds shall be matched on 

at least a one-for-one basis by the Foundation or its subrecipients: Provided 

further, That the Foundation may transfer Federal funds to a Federal or nonFederal recipient for a project at the same rate that the recipient has obtained the 

non-Federal matching funds. 

1. Provides for agency discretion in level of funds transferred. 

 

 

 1. 

Funds appropriated to the Forest Service shall be available for interactions with 

and providing technical assistance to rural communities and natural resource based 

business for sustainable rural development purposes: Provided, That no more 

than 5 percent of the funds in any 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. Provides agency discretion in level of funding. 

 1. 

 

[Funds appropriated to the Forest Service shall be available for payments to 

counties within the Columbia River Gorge National Scenic Area, pursuant to 

sections 14(c)(1) and (2), and section 16(a)(2) of Public Law 99-663.]

 1. Provision unnecessarily restricts agency discretion. 

 1. 

 

[An eligible individual who is employed in any project funded under title V of the 

Older American Act of 1965 (42 U.S.C. 3056 et seq.) and administered by the 

Forest Service shall be considered to be a Federal employee for purposes of 

chapter 171 of title 28, United States Code.]

1. Provision no longer necessary as the Forest Service does not participate in the 

 program. 

 1. 

 

[Any funds appropriated to the Forest Service may be used to meet the non-Federal 

share requirement in section 502(c) of the Older American Act of 1965 (42 U.S.C. 

3056(c)(2)).]

1. Provision no longer necessary as the Forest Service does not participate in the 

 program. 

 1. 

 2. 

 

Funds available to the Forest Service, not to exceed [$45,000,000] $50,000,000, 

shall be assessed for the purpose of performing fire, administrative and other

facilities maintenance[.] as authorized by 7 U.S.C. 2250. 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. Reflects change in the level of funding 

2. Enhances agency discretion in use of assessed funds for fire, administrative 

 and other facilities maintenance. 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-11 

 

 

 1. 

Notwithstanding any other provision of law, any appropriations or funds available 

to the Forest Service not to exceed $500,000 may be used to reimburse the Office 

of the General Counsel (OGC), U.S. Department of Agriculture, for travel and 

related expenses incurred as a result of OGC assistance or participation requested 

by the Forest Service at meetings, training sessions, management reviews, land 

purchase negotiations and similar non-litigation related matters. [Future budget 

justifications for both the Forest Service and the Department of Agriculture should 

clearly display the sums previously transferred and the requested funding 

transfers.]

 1. Provision imposes unnecessary reporting requirements. 

 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 with the consent of 

the House and Senate Committees on Appropriations.]

 1. Unnecessarily restricts agency discretion. 

GENERAL PROVISIONS (Title IV) 

(Including transfer of funds) 

 

SEC. 401. The expenditure of any appropriation under this Act for any consulting 

service through procurement contract, pursuant to 5 U.S.C. 3109, shall be limited 

to those contracts where such expenditures are a matter of public record and 

available for public inspection, except where otherwise provided under existing 

law, or under existing Executive Order issued pursuant to existing law. 

SEC. 402. No part of any appropriation contained in this Act shall be available for 

any activity or the publication or distribution of literature that in any way tends to 

promote public support or opposition to any legislative proposal on which 

Congressional action is not complete other than to communicate to Members of 

Congress as described in 18 U.S.C. 1913.

SEC. 403. No part of any appropriation contained in this Act shall remain 

available for obligation beyond the current fiscal year unless expressly so provided 

herein. 

SEC. 404. None of the funds provided in this Act to any department or agency 

shall be obligated or expended to provide a personal cook, chauffeur, or other 

personal servants to any officer or employee of such department or agency except 

as otherwise provided by law. 

SEC. 405. Estimated overhead charges, deductions, reserves or holdbacks from 

programs, projects, activities and subactivities to support government-wide, 

departmental, agency or bureau administrative functions or headquarters, regional 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-12 

1. 

 2. 

 1. 

or central operations shall be presented in annual budget justifications [and subject 

to approval by the Committees on Appropriations. Changes]. Advance notice of

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

[for approval]. 

1. Provision unnecessarily restricts agency discretion. 

 2. Provides for agency discretion on timing of notification of the Committees. 

 1. [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.]

 1. Provision unnecessarily restricts agency discretion. 

 1. 

 2. 

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 [2006] 2008. 

1. Corrects section number. 

2. Updates fiscal year. 

1. 

2. 

SEC. [408] 407. (a) LIMITATION OF FUNDS. – None of the funds appropriated 

or otherwise made available pursuant to this Act shall be obligated or expended to 

accept or process applications for a patent for any mining or mill site claim located 

under the general mining laws. 

(b) EXCEPTIONS. – The provisions of subsection (a) shall not apply if the 

Secretary of the Interior determines that, for the claim concerned: (1) a patent 

application was filed with the Secretary on or before September 30, 1994; and (2) 

all requirements established under sections 2325 and 2326 of the Revised Statutes 

(30 U.S.C. 29 and 30) for vein or lode claims and sections 2329, 2330, 2331, and 

2333 of the Revised Statutes (30 U.S.C. 35, 36, and 37) for placer claims, and 

section 2337 of the Revised Statutes (30 U.S.C. 42) for mill site claims, as the case 

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

(c) REPORT. - On September 30, [2008] 2009, the Secretary of the Interior shall 

file with the House and Senate Committees on Appropriations and the Committee 

on Resources of the House of Representatives and the Committee on Energy and 

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

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

Related Agencies Appropriations Act, 1997 (Public Law 104-208). 

(d) MINERAL EXAMINATIONS. – In order to process patent applications in a 

timely and responsible manner, upon the request of a patent applicant, the 

Secretary of the Interior shall allow the applicant to fund a qualified third-party 

contractor to be selected by the Bureau of Land Management to conduct a mineral 

examination of the mining claims or mill sites contained in a patent application as 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-13 

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

responsibility to choose and pay the third-party contractor in accordance with the 

standard procedures employed by the Bureau of Land Management in the retention 

of third-party contractors. 

1. Corrects section number. 

2. Updates fiscal year. 

 1. SEC. [409] 408. Not applicable to the USDA Forest Service. 

 1. Updates section number. 

1.2. SEC. [410] 409. Prior to October 1, [2008] 2009, the Secretary of Agriculture 

shall not be considered to be in violation of subparagraph 6(f)(5)(A) of the Forest 

and Rangeland Renewable Resources Planning Act of 1974 (16 U.S.C. 

1604(f)(5)(A)) solely because more than 15 years have passed without revision of 

the plan for a unit of the National Forest System. Nothing in this section exempts 

the Secretary from any other requirement of the Forest and Rangeland Renewable 

Resources Planning Act (16 U.S.C. 1600 et seq.) or any other law: Provided, That 

if the Secretary is not acting expeditiously and in good faith, within the funding 

available, to revise a plan for a unit of the National Forest System, this section 

shall be void with respect to such plan and a court of proper jurisdiction may order 

completion of the plan on an accelerated basis. 

 1. Updates section number. 

 2. Extends provision until the end of FY 2009. 

 1. [SEC. 411. 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 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-14 

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.] 

 1. Provision unnecessarily restricts agency discretion. 

1. SEC. [412] 410. No funds provided in this Act may be expended to conduct 

preleasing, leasing and related activities under either the Mineral Leasing Act (30 

U.S.C. 181 et seq.) or the Outer Continental Shelf Lands Act (43 U.S.C. 1331 et 

seq.) within the boundaries of a National Monument established pursuant to the 

Act of June 8, 1906 (16 U.S.C. 431 et seq.) as such boundary existed on January 

20, 2001, except where such activities are allowed under the Presidential 

proclamation establishing such monument. 

 1. Updates section number. 

1. 

2. 

SEC. [413] 411. In entering into agreements with foreign countries pursuant to the 

Wildfire Suppression Assistance Act (42 U.S.C. 1856m) the Secretary of 

Agriculture and the Secretary of the Interior are authorized to enter into reciprocal 

agreements in which the individuals furnished under said agreements to provide 

wildfire services are considered, for purposes of tort liability, employees of the 

country receiving said services when the individuals are engaged in fire 

suppression: Provided, That the Secretary of Agriculture or the Secretary of the 

Interior [shall] should not enter into any agreement under this provision unless the 

foreign country (either directly or through its fire organization) agrees to assume 

any and all liability for the acts or omissions of American firefighters engaged in 

firefighting in a foreign country: Provided further, That when an agreement is 

reached for furnishing fire fighting services, the only remedies for acts or 

omissions committed while fighting fires shall be those provided under the laws of 

the host country, and those remedies shall be the exclusive remedies for any claim 

arising out of fighting fires in a foreign country: Provided further, That neither the 

sending country nor any legal organization associated with the firefighter shall be 

subject to any legal action whatsoever pertaining to or arising out of the 

firefighter’s role in fire suppression. 

 1. Updates section number. 

 2. Change allows Secretaries needed discretion. 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-15 

1. SEC. [414] 412. In awarding a Federal contract with funds made available by this 

Act, notwithstanding Federal Government procurement and contracting laws, the 

Secretary of Agriculture and the Secretary of the Interior (the “Secretaries”) may, 

in evaluating bids and proposals, give consideration to local contractors who are 

from, and who provide employment and training for, dislocated and displaced 

workers in an economically disadvantaged rural community, including those 

historically timber-dependent areas that have been affected by reduced timber 

harvesting on Federal lands and other forest-dependent rural communities isolated 

from significant alternative employment opportunities: Provided, That 

notwithstanding Federal Government procurement and contracting laws the 

Secretaries may award contracts, grants or cooperative agreements to local nonprofit entities, Youth Conservation Corps or related partnerships with State, local 

or non-profit youth groups, or small or micro-business or disadvantaged business: 

Provided further, That the contract, grant, or cooperative agreement is for forest 

hazardous fuels reduction, watershed or water quality monitoring or restoration, 

wildlife or fish population monitoring, or habitat restoration or management: 

Provided further, That the terms “rural community” and “economically 

disadvantaged” shall have the same meanings as in section 2374 of Public Law 

101-624: Provided further, That the Secretaries shall develop guidance to 

implement this section: Provided further, That nothing in this section shall be 

construed as relieving the Secretaries of any duty under applicable procurement 

laws, except as provided in this section. 

 1. Updates section number. 

1. [SEC. 415 (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 2008, 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 2008 for programs, projects, and activities for which funds are 

appropriated by this Act. 

 (2) None of the funds made available by this or any other Act may be used 

in fiscal year 2008 for competitive sourcing studies and any related activities 

involving Forest Service personnel. 

 (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 postcompetition accountability guidelines where a competitive sourcing study involved 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-16 

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 all costs attributable to 

conducting the competitive sourcing competitions and staff work to prepare for 

competitions or to determine the feasibility of starting 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 Department of the 

Interior employees, the Secretary of Interior 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 Department of the Interior to effectively 

and efficiently fight and manage wildfires.]

 1. Provision unnecessarily restricts agency discretion. 

 1.. [SEC. 416. 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 “2006” and inserting “2012”; and 

(2) in subsection (b) by striking “2006” and inserting “2012”.]

1. Provision not needed; section 331 already extended. 

 1. [SEC. 417. Section 321 of the Department of the Interior and Related Agencies 

Appropriations Act, 2003, regarding Forest Service cooperative agreements with 

third parties that are of mutually significant benefit (division F of Public Law 108-

7; 117 Stat. 274; 16 U.S.C. 565a-1 note) is amended by striking “September 30, 

2007” and inserting “September 30, 2010”.]

1. Provision not needed; section 331 already extended. 

 [SEC. 418.] Provision not applicable to the Forest Service. 

 1. [SEC. 419. Unless otherwise provided herein, no funds appropriated in this Act for 

the acquisition of lands or interests in lands may be expended for the filing of 

declarations of taking or complaints in condemnation without the approval of the 

House and Senate Committees on Appropriations: Provided, That this provision 

shall not apply to funds appropriated to implement the Everglades National Park 

Protection and Expansion Act of 1989, or to funds appropriated for Federal 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-17 

assistance to the State of Florida to acquire lands for Everglades restoration 

purposes.]

 1. Provision unnecessarily restricts Executive Branch discretion. 

 1. 

 2. 

SEC. [420] 413. Section 337(a) of the Department of the Interior and Related 

Agencies Appropriations act, 2005 (Public Law 108-447; 118 Stat. 3012) is 

amended by striking [“September 30, 2006” and inserting] “September 30, 2008” 

and inserting in lieu thereof “September 30, 2009”. 

 1. Updates section number. 

2. Extends provision until the end of FY 2009. 

 1. 

 2. 

SEC. [421] 414. Section 339 [of division E] of the Consolidated Appropriations 

Act, 2005 (Public Law 108-447; 118 Stat. 3103) is amended [–] by striking “2005 

through 2008” and inserting “2005 thrugh 2011”

 [(1) by striking “2005 through 2007” and inserting “2005 through [2008]

 2011”; and 

 (2) by adding at the end the following new sentence: “The categorical 

 exclusion under this section shall not apply with respect to any allotment in a 

 federally designated wilderness area.”]. 

1. Updates section number. 

2. Extends provision until the end of FY 2011. 

 1. 

 

 [SEC. 422. A permit fee collected during fiscal year 2007 by the Secretary of 

Agriculture under the Act of March 4, 1915 (16 U.S.C. 497) for a marina on the 

Shasta-Trinity National Forest shall be deposited in a special account in the 

Treasury established for the Secretary of Agriculture, and shall remain available to 

the Secretary of Agriculture until expended, with further appropriation, for 

purposes stated in section 808(a)(3)(A-D) of title VIII of division J of Public Law 

108-447 (16 U.S.C. 6807) and for direct operating or capital costs associated with 

the issuance of a marina permit.]

1. Provision unnecessarily restricts agency discretion. 

 1. 

 

 [SEC. 423. The Forest Service shall allocate to the Regions of the Forest Service, 

$15,000,000 from the current balance in the “timber roads purchaser election 

fund”, to remain available until expended, for the following purposes: vegetative 

treatments in timber stands at high risk of fire due to insect, disease, or drought; 

road work in support of vegetative treatments to support forest health objectives; 

and maintaining infrastructure for the processing of woody fiber in Regions where 

it is critical to sustaining local economies and fulfilling the forest health objectives 

of the Forest Service.]

 1. Provision unnecessarily restricts agency discretion. 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-18 

 1. 

 

 [SEC. 424. (a) LAND SALE AUTHORIZATION- To offset the acreage acquired 

by the Federal Government upon the acquisition of the Elkhorn Ranch in Medora, 

North Dakota, the Secretary of Agriculture (in this section referred to as the 

`Secretary') shall sell all right, title, and interest of the United States to between 

5,195 or 5,205 acres of National Forest System lands located in Billings County, 

North Dakota. It is the intent of Congress that there will be no net gain in federally 

owned land in North Dakota as a result of these land conveyances. 

(b) LAND SALES- The Secretary may prescribe reservations, terms, and 

conditions of sale under this section, and may configure the descriptions of the land 

to be sold under this section to enhance the marketability of the land or for 

management purposes. The Secretary may utilize brokers or other third parties in 

the sale of land and, from the proceeds of the sale, may pay reasonable 

commissions or fees for services rendered. 

(c) CONSIDERATION- As consideration for the purchase of land sold under this 

section, the purchaser shall pay to the Secretary an amount, in cash, equal to the 

fair market value of the land, as determined by the Secretary by appraisal or 

competitive sale consistent with Federal law applicable to land sales. The Secretary 

may reject any offer made under this section if the Secretary determines, in the 

absolute discretion of the Secretary, that the offer is not adequate or not in the 

public interest; 

(d) INITIAL OFFER- Under such terms, conditions, and procedures as the 

Secretary may prescribe, any base property landowner holding a current permit to 

graze any land authorized for sale under this section shall have a non-assignable 

first right to buy the land, provided that right must be exercised within 6 months 

after the date of the offer from the Secretary; 

(e) TREATMENT OF PROCEEDS- Using the proceeds from the sale of land 

under this section, the Secretary shall cover direct expenses incurred by the 

Secretary in conducting the sale. Any remaining proceeds shall be deposited into 

the fund established by the Act of December 4, 1967 (commonly known as the 

Sisk Act; 16 U.S.C. 484a), and shall be available, until expended, for the 

acquisition of land for inclusion in the National Forest System. 

(f) LAND TRANSFERS- The lands are to be conveyed from fiscal years 2008 to 

2009. In the conveyance of any land authorized by this section, the Secretary shall 

not be required to conduct additional environmental analysis, including heritage 

resource analysis, and no sale, offer to sell, or conveyance shall be subject to 

administrative appeal. 

(g) ELKHORN RANCH- The grazing land lease terms in effect on the date of the 

enactment of this Act relating to the acquired Elkhorn Ranch in Medora, North 

Dakota, shall remain in effect until December 31, 2009. After that date, Federal 

land grazing use of the Elkhorn Ranch shall be managed through the grazing 

agreement between the Medora Grazing Association and the Forest Service. The 

Animal Unit Months (AUMs) for both Federal and private lands encompassing the 

Elkhorn Ranch shall become part of the grazing agreement held by Medora 

Grazing Association to be reallocated to its members in accordance with their rules 

in effect as of the date of the enactment of this Act. 

(h) The multiple uses of the acquired Elkhorn Ranch shall continue.]
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-19 

1. Provision unnecessarily restricts agency discretion. 

 1. 

 

[SEC. 425. In fiscal year 2008 and thereafter, the Forest Service shall not change 

the eligibility requirements for base property, and livestock ownership as they 

relate to leasing of base property and shared livestock agreements for grazing 

permits on the Dakota Prairie Grasslands that were in effect as of July 18, 2005.]

 1. Provision unnecessarily restricts agency management discretion. 

 [SEC. 426] . Provision not applicable to the Forest Service.

 1. [SEC. 427. In accordance with authorities available in section 428, of Public Law 

109-54, the Secretary of Agriculture and the Secretary of the Interior shall execute 

an agreement that transfers management and oversight of the Great Onyx, Harper's 

Ferry, and Oconaluftee Job Corps Centers to the Forest Service. These Job Corps 

centers shall continue to be administered as described in section 147(c) of Public 

Law 105-220, Workforce Investment Act of 1998.]

 1. Direction to be completed in FY 2008. Provision no longer necessary. 

 1. [SEC. 428. The United States Department of Agriculture, Forest Service shall 

seek to collaborate with stakeholders or parties in Sierra Forest Legacy, et al v. 

Weingardt, et al, Civil No. C 07-001654 (E.D. Cal.), and Sierra Club, et al v. 

Bosworth, et al, Civil No. C 05-00397 (N.D. Cal.), regarding harvest operations 

outside of the Giant Sequoia National Monument in relation to the decisions 

approving the Revised Ice Timber Sale and Fuels Reduction Project and the Frog 

Project, and taking into account the terms of the contracts for those projects, and in 

relation to the Record of Decision for the Kings River Project, and as appropriate 

in regard to other disputed fuel reduction projects in the area.]

 1. Direction to be completed in FY 2008. Provision no longer necessary. 

 1. [SEC. 429. (a) IN GENERAL- Section 636 of division A of the Treasury, Postal 

Service, and General Government Appropriations Act, 1997 (5 U.S.C. prec. 5941 

note; Public Law 104-208), is amended-- 

(1) in subsection (b)-- 

(A) in paragraph (1), by striking `or'; 

(B) in paragraph (2), by striking the period and inserting `; or'; and 

(C) by adding at the end the following: 

`(3) a temporary fire line manager.'; and 

(2) in subsection (c)-- 

(A) in paragraph (3), by striking `, and' and inserting a semicolon; 

(B) in paragraph (4)(B), by striking the period at the end and inserting `; and'; and 

(C) by adding at the end the following: 

`(5) notwithstanding the definition of the terms `supervisor' and `management 

official' under section 7103(a) of title 5, United States Code, the term `temporary 

fire line manager' means an employee of the Forest Service or the Department of 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-20 

the Interior, whose duties include, as determined by the employing agency-- 

`(A) temporary supervision or management of personnel engaged in wildland or 

managed fire activities; 

`(B) providing analysis or information that affects a decision by a supervisor or 

manager about a wildland or managed fire; or 

(C) directing the deployment of equipment for a wildland or managed fire.'. 

(b) EFFECTIVE DATE- The amendment made by subsection (a) shall take effect 

on the date of enactment of this Act.]

1. Provision not needed; this was a one-time change. 

 [SEC. 430. GLOBAL CLIMATE CHANGE. (a) The Congress finds that-- 

(1) greenhouse gases accumulating in the atmosphere are causing average 

temperatures to rise at a rate outside the range of natural variability and are posing 

a substantial risk of rising sea-levels, altered patterns of atmospheric and oceanic 

circulation, and increased frequency and severity of floods, droughts, and wildfires; 

(2) there is a growing scientific consensus that human activity is a substantial cause 

of greenhouse gas accumulation in the atmosphere; and 

(3) mandatory steps will be required to slow or stop the growth of greenhouse gas 

emissions into the atmosphere. 

(b) It is the sense of the Congress that there should be enacted a comprehensive and 

effective national program of mandatory, market-based limits and incentives on 

emissions of greenhouse gases that slow, stop, and reverse the growth of such 

emissions at a rate and in a manner that: (1) will not significantly harm the United 

States economy; and (2) will encourage comparable action by other nations that are 

major trading partners and key contributors to global emissions.]

 1. [SEC. 431. None of the funds made available in this Act may be used to purchase 

light bulbs unless the light bulbs have the `ENERGY STAR' or `Federal Energy 

Management Program' designation, except in instances where the agency 

determines that ENERGY STAR or FEMP designated light bulbs are not costeffective over the life of the light bulbs or are not reasonably available to meet the 

functional requirements of the agency.]

 1. Unnecessarily restricts Executive Branch discretion. 

 [SEC. 432.] Provision not applicable to the Forest Service. 

 [SEC. 433.] Provision not applicable to the Forest Service. 

 1. [SEC. 434. Section 401 of the Herger-Feinstein Quincy Library Group Forest 

Recovery Act, Public Law 105-277, division A, Sec. 101(e) [title IV], 112 Stat. 

2681-305, is amended-- 

(1) In section (g) by striking `until' and all that follows and inserting `until 

September 30, 2012.'; 

(2) By striking subsection (i) and inserting the following: `By June 1, 2008, the 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-21 

 Forest Service shall initiate a collaborative process with the Plaintiffs in Sierra 

Nevada Forest Prot. Campaign v. Rey, Case No. CIV-S-05-0205 MCE/GGH (E.D. 

Cal.), appeal docketed sub nom. Sierra Forest Legacy v. Rey, No. 07-16892 (9th 

Cir. Oct. 23, 2007) and the Quincy Library Group to determine whether 

modifications to the Pilot Project are appropriate for the remainder of the Pilot 

Project.'; and 

(3) By adding at the end the following: 

`(m) Sections 104-106 of Public Law 108-148 shall apply to projects authorized by 

this Act.'. ] 

1. Direction to be completed in FY 2008. Provision no longer necessary. 

 [SEC. 435.] Provision not applicable to the Forest Service. 

 [SEC. 436.] Provision not applicable to the Forest Service. 

 1. [SEC. 437 (a) ACROSS-THE-BOARD RESCISSIONS- There is hereby 

rescinded an amount equal to 1.56 percent of the budget authority provided for 

fiscal year 2008 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 programs, 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 2008, shall 

apply only to the first dollar amount in the paragraph and the distribution of the 

rescission shall be 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. 

(d) OMB REPORT- Within 30 days after the date of the enactment of this section 

the Director of the Office of Management and Budget shall submit to the 

Committees on Appropriations of the House of Representatives and the Senate a 

report specifying the account and amount of each rescission made pursuant to this 

section.]

 1. FY 2008 rescission only. Provision no longer necessary. 
FY 2009 Budget Justification USDA Forest Service

Appropriation Language Changes 5-22 

Revised February 25, 2008 

 SEC. 415. Of the unobligated balances available under the National Forest 

System Account of the Forest Service, $5,000,000 ar hereby permanently 

cancelled.

 1. SEC. 416. Section 330 of Public Law 106-291 (114 Stat. 996), as amended by 

section 428 of Public Law 109-54 (119 Stat. 555-556), is further amended by 

striking “20008” and inserting in lieu thereof “2011”.

 1. Extends existing authority until the end of FY 2011. 

 1. SEC. 417. Title V, Section 503 of the Forest Service Realignment and 

Enhancement Act, 2005, Public Law 109-54, 119 Stat. 559-563; 16 U.S.C. 580d 

note, is amended in subsection (f) by striking “2008” and inserting in lieu 

thereof “2011”.

 1. Extends existing authority until the end of FY 2011. 

 1. SEC. 418. Title III, Section 325, of the Department of the Interior and 

Related Agencies Appropriations Act, 2004, Public Law 108-108, 117 Stat. 

1307; is amended by striking “fiscal years 2004-2008” and inserting in lieu 

thereof “fiscal year 2009”.

1. Proposed to extend existing authorities until the end of FY 2009. 
6 

Forest & Rangeland Research 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service 

Forest and Rangeland Research 6-1

Appropriation Forest and Rangeland Research 

Forest & Rangeland Research Increase or Decrease Program 

 Appropriation FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $280,488 $285,926 $6,157 $0 -$29,083 $263,000 -10% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority (BA) $280,488 $285,926 $6,157 $0 -$29,083 $263,000 

Full Time Equivalents (FTEs) 2,151 2,151 -110 2,041 

Enacted Funding By Activity 

Fire and Fuels $25,657 $26,993 $545 $0 -$4,269 $23,269 -16% 

Invasive Species $32,915 $34,397 $698 $0 -$5,264 $29,831 -15% 

Recreation R&D $4,032 $4,113 $85 $0 -$563 $3,635 -14% 

Resource Management & Use $86,478 $85,757 $1,845 $0 -$8,803 $78,799 -10% 

Water and Air R&D $33,878 $35,379 $718 $0 -$5,436 $30,661 -15% 

Fish and Wildlife R&D $29,939 $30,541 $634 $0 -$4,087 $27,088 -13% 

Inventory & Monitoring * $8,209 $8,374 $174 $0 -$1,131 $7,417 -14% 

Enacted Budget Authority by BLI 

Forest Inventory & Analysis (FIA) * $59,380 $60,372 $1,458 $0 $470 $62,300 1% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Inventory and Monitoring includes both FIA and Resource Data & Analysis as described in text. 

Forest Inventory & Analysis Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $59,380 $60,372 $1,458 $0 $470 $62,300 1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $59,380 $60,372 $1,458 $0 $470 $62,300 1% 

Full Time Equivalents (FTEs) 455 456 7 462 1% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $263,000,000 for Forest and Rangeland Research, a decrease 

in budget authority of $22,926,000 from FY 2008. Funds under this appropriation are split among seven 

strategic program areas, listed as activities in the table above. The budget includes $62,300,000 for the 

Forest Inventory and Analysis program, an increase in budget authority of $1,928,000 above FY 2008. 
FY 2009 Budget Justification USDA Forest Service 

Forest and Rangeland Research 6-2

Wildland Fire and Fuels R&D1 (-$3,724,000) 

FY 2009 Program Changes 

The request includes $23,269,000 to support wildland fire and fuels research and development, a decrease 

in budget authority of $3,724,000 from FY 2008. Funds will support continued development of new 

knowledge and tools to guide planning and decision-making related to Appropriate Management 

Response to wildland fires, hazardous fuel reduction, maintenance and enhancement of the health and 

productivity of fire-affected ecosystems, post-fire emergency response and recovery, and effective work 

with communities and partners. 

For example, in FY 2009, Wildland Fire and Fuels R&D will improve the agency’s system for predicting 

emissions, smoke trajectories, and air quality impacts from wildland fires. More accurate estimates of 

annual wildfire emissions will result from integrating data from satellite observations, National 

Interagency Fire Center (NIFC), and LANDFIRE with fuel consumption and emission models. The Fire 

Spread Probability (FSPro) model performance and the impacts of implementing FSPro and associated 

models on costs of wildfire suppression will be analyzed during 2009. 

The information and tools developed through this program will assist managers and policy makers in 

making cost-effective and environmentally-sound fire management decisions to sustain and enhance 

resource values and minimize negative impacts. Products from wildland fire and fuels research ensure 

that the best science is available to meet these management needs. 

Past Performance 

In FY 2007, tools developed by the program, such as FSPro 

and the Rapid Assessment of Values at Risk (RAVAR) were 

used to evaluate potential fire growth, values at risk, and 

cost-efficiency of firefighting on over 100 large wildland fire 

events. Models and other tools from Wildland Fire & Fuels 

R&D are used regularly to predict fire behavior, impacts of 

fire on air quality, and fire effects; to make decisions on 

appropriate Burned Area Emergency Rehab treatments; to 

plan hazardous fuels treatments; and to work with 

communities in the FIREWISE program and in development 

of Community Wildfire Protection Plans. 

--------- 

1

 Forest Service Research and Development manages a total of $53,269,000 for fire research. Forty-four percent of 

this is under Forest and Rangeland Research (narrative above). The other 56 percent is funded through the Wildland 

Fire Management (WFM) appropriation under the National Fire Plan ($22,000,000) and under the Joint Fire 

Sciences Program ($8,000,000), with narratives in the WFM section of this document. 

Invasive Species R&D (-$4,566,000) 

FY 2009 Program Changes 

The request includes $29,831,000 for invasive species research, a decrease in budget authority of 

$4,566,000 from FY 2008. Funds will support essential ongoing research to develop new knowledge and 

tools for priority invasive species such as the Sirex wood wasp, emerald ash borer, hemlock woolly 

adelgid, the Sudden Oak Death pathogen, white pine blister rust, invasive plants, and other invasive 

aquatic species in the West. New knowledge and technology is needed to improve on-the-ground 

“People, Fire, and Forests” 

The Forest Service published “People, 

Fire, and Forests,” a book that integrates 

social science findings into a rich body 

of knowledge to better inform 

management decisions. Topics include 

public perception of wildfire risk, 

acceptability of fire management 

policies, and the community impacts of 

wildfire. 
FY 2009 Budget Justification USDA Forest Service 

Forest and Rangeland Research 6-3

operations by preventing invasive species introduction and spread; controlling key invasive insects, 

diseases, and plants; monitoring newly introduced species; addressing the impacts of climate change; and 

economically restoring impacted ecosystems. 

Research in FY 2009 will include the development of molecular tools for identification and 

characterization of laurel wilt and other key invasive pathogens, and improved tools for early detection of 

invasive bark beetles and emerald ash borer. There will also be work done on the identification, 

evaluation and release of biological controls of invasive plants in the West and high priority invasive 

species in the East. Research will also address understanding and predicting the effects of climate, fire 

and other disturbances on the potential for white pine blister rust, bark beetles, invasive plants, and other 

key species to establish and spread, thereby affecting western ecosystems. 

Past Performance 

In 2007, the Forest Service developed and delivered 170 

tools used by customers. These highly diverse tools 

included: the development and release of a native 

pathogen, Nosema lymantriae, for control of the gypsy 

moth; development of a molecular tool for identifying larva 

of the Sirex wood wasp; identification of a native 

pathogen, Pyrenophora semeniperda, that kills cheatgrass 

seeds; and the formation of partnerships with National 

Aeronautics and Space Administration (NASA), the 

National Environmental Modeling and Analysis Center at 

University of North Carolina at Asheville, and others that are key to the development of an early warning 

system based on rapid assessment of changes in our Nation’s forests. Customers need and use this 

technology and knowledge to prevent, detect, and manage priority invasive species and 

restore/rehabilitate the function and diversity of impacted ecosystems. 

Recreation R&D (-$478,000) 

FY 2009 Program Changes 

The request includes $3,635,000 for recreation research, a decrease in budget authority of $478,000 from 

FY 2008. These funds will be used to support research related to understanding and measuring recreation 

participation and behavior, including demographic trends, visitor experiences, and compatible uses. A 

priority will be research in support of the Chief’s theme of reconnecting people with nature, including the 

More Kids in the Woods initiative. Research efforts will be directed at interactions between children and 

nature, links between outdoor activity and visitor health, restoration of recreation sites, visitor’s 

perceptions of safety, visitor communication, and impacts of wildfire on recreation activities. This 

research is key to managing the increasing numbers of visitors to natural areas, including providing for 

their health and safety, because it provides the knowledge and information needed by managers to 

effectively maintain facilities and services associated with visitor activities. 

Past Performance 

A recent prominent product is a study conducted in response to the Healthier U.S. Presidential Initiative 

that measured the use of public lands for healthful pursuits and the outdoor infrastructure needed to 

pursue these activities. Managers will use participation and behavior information to improve recreation 

sites to facilitate and encourage physical rather than sedentary activity of visitors. 

Detecting Invasive Pests 

DNA Barcode technology detects larvae and 

tests for presence of Sirex noctilio, a major 

nonnative invasive woodwasp. This larval 

detection tool can help forest managers 

identify and prioritize control areas, monitor 

the movement and geographic dispersal of 

the pest, and assess for hazards. 
FY 2009 Budget Justification USDA Forest Service 

Forest and Rangeland Research 6-4

Resource Management and Use (-$6,958,000) 

FY 2009 Program Changes 

The request includes $78,799,000 for resource management and use research, a decrease in budget 

authority of $6,958,000 from FY 2008. The requested funds will be invested in the development and 

delivery of the science and technology to sustainably grow and manage biomass crops for strategic use 

such as energy, improve harvest and transportation systems, develop new conversion technologies for 

wood-to-ethanol, develop new conversion technologies for wood-to-specialty chemicals - including 

synfuels - to displace oil-based products, develop biomass management and utilization strategies and 

guidelines, and understand and manage carbon emissions and sequestration to reduce greenhouse gases. 

These investments are needed to continue to address U.S. energy and environmental requirements 

including the Presidential goal of replacing 75 percent of imported oil with renewable energy by 2025, the 

“30X30” goal which requires renewable energy displace 30 percent of our Nation’s 2004 transportation 

fuel consumption by the year 2030, and the President’s Advanced Energy Initiative which calls for 

making cellulosic ethanol cost-competitive by 2012 and producing 20 billion gallons of alternate fuels by 

2017. 

Past Performance 

In 2007, the Forest Service was awarded a patent titled “Xylose-Fermenting Recombinant Yeast Strains.” 

The patent disclosed yeast strains and methods for fermenting five-carbon sugars in wood to ethanol. 

Other significant contributions in FY 2007 include the development of web-based tools for assessing the 

amounts and locations of biomass availability, computer model for evaluating biomass supply options for 

southwest Oregon, synthesis on systems options and costs for wood removal, a Forest Residue Trucking 

Simulator, advancing the durability of woodbased products, improving the quality of woodbased composites and making major 

contributions to the Pine Genome project. The 

continued investment in this research will 

improve energy security of the U.S. and 

decrease the Nation’s dependence on imported 

oil, improve living standards and life quality of 

U.S. citizens and better position the U.S. to 

supply the needs of an expanding population 

and changing lifestyles. 

Water, Air, and Soil R&D (-$4,718,000) 

FY 2009 Program Changes 

The request includes $30,661,000 for water, air, and soil research, a decrease in budget authority of 

$4,718,000 from FY 2008. This funding will support research and development on how climate change, 

air pollution, water pollution, land uses, and extreme events affect forest and rangeland sustainability, and 

the benefits they provide to society. The Forest Service supports the research goals of the U.S. Climate 

Change Science Program with the specific objectives of defining climate change policy and best 

management practices for forests and ranges to sustain ecosystem health, and to optimize a wide range of 

ecosystem services (“adaptation”), while also increasing carbon sequestration (“mitigation”), under 

changing climate conditions. FS R&D is providing the basic understanding and decision-support tools to 

effectively address both climate changes to date and predicted future changes. 

2007 Nobel Peace Prize on Climate Change 

Thirteen Forest Service scientists contributed documents

to the Intergovernmental Panel on Climate Change 

(IPCC), which shared the 2007 Nobel Peace Prize with 

Vice President Al Gore. Their contributions help 

expand the knowledge and understanding of climate 

change and lay the foundation towards reducing climate 

change and its impacts. 
FY 2009 Budget Justification USDA Forest Service 

Forest and Rangeland Research 6-5

Climate change research will develop and refine decision support tools with the capacity to explore 

climate changes already observed and those predicted for the future. Ecosystem research will address 

outcome-based efficiency measures for the National Watershed Condition Assessment being 

implemented to improve the performance of programs in the Federal government. This work will 

improve the value of ecosystem resources from the Nation’s forests and grasslands. 

Past Performance 

In FY 2007, to address climate change adaptation, hydrology models were developed to evaluate regional 

demand for water under future warming, population changes, and vegetation cover changes. To address 

climate change mitigation, analyses by program scientists determined the amount of carbon sequestered 

in U.S. forests, urban trees, and wood products. Mitigation research also evaluated interactions among 

ozone air pollution, susceptibility of trees to drought stress, and carbon sequestration. New knowledge 

was gained about ecosystem processes at local to global scales, including: designing water quality buffers 

using USDA Natural Resources Conservation Service soil surveys; a new method to evaluate biological 

activity in soils; and an ecosystem process model to predict water yield, annual primary productivity, and 

nitrogen retention in biomass. The Forest Service developed partnerships with the National Science 

Foundation for the National Ecological Observatory Network, Long Term Ecological Research, and 

Critical Zone Observatory programs to use FS R&D facilities and collaborate with Forest Service 

scientists. These monitoring activities are augmented by initiation of a formal Experimental Forest and 

Range network to synthesize data from the past 100 years to answer critical questions about ecosystem 

change. 

Fish and Wildlife R&D (-$3,453,000)

FY 2009 Program Changes 

The request includes $27,088,000 to support fish and wildlife research and development, a decrease in 

budget authority of $3,453,000 from FY 2008. These funds will support the development of new 

knowledge and applications that ensure scientifically 

sound and cost-effective management of fish and 

wildlife habitats, threatened and endangered species, 

and biological diversity. This research is essential, 

given growing demand for water, energy, recreation, 

along with threats from climate change, invasive 

species, catastrophic wildfires, natural disasters, and 

other disturbances. Research will improve our ability 

to detect and manage changes in these resources in 

response to disturbance and of forested and grassland 

environments. 

Fish and wildlife research in FY 2009 will focus on the effective management of biodiversity. This 

requires the ability to characterize patterns diversity within sensitive species, such as cutthroat trout and 

bull trout. If diversity can be linked to patterns in landscapes, it can be used to identify potential 

important watersheds for conservation management. Forest Service scientists have identified the habitat 

needs for the Pacific fisher, a rare California mammal that is a candidate for reintroduction efforts and 

listing under the Endangered Species Act. Land manages can apply the research to examine areas for 

reintroduction, identify barriers to natural dispersal, plan habitat restoration, and explore climate change 

implications. 

Fire-Dependent Bird Populations 

The Wings Across the America's Conservation 

Research and Management Partnership Award 

was given to the Birds and Burns partnership. 

The project showed the effects of prescribed fire 

on populations and habitats of birds that are 

dependent on fire-maintained habitats, and are 

designated as Management Indicator Species and 

Sensitive Species. 
FY 2009 Budget Justification USDA Forest Service 

Forest and Rangeland Research 

Revised February 25, 2008 

6-6

Past Performance 

In 2007, the Forest Service Research and Development played a key role in completion of the U.S North 

American Bird Conservation Initiative, “Opportunities for Improving Avian Monitoring” report. This 

guide will influence how Federal agencies and other partners complete bird monitoring across the U.S. 

Using predictions from two climate models, Forest Service scientists produced a regional map of current 

wild trout habitat and developed models to project future distributions over a range of increased 

temperature. Between 53 and 97 percent of trout habitat could be lost, resulting in both increased 

population fragmentation and increased threat to native trout biodiversity. The results of this research 

have been disseminated through newspapers and the internet, and are used by policy makers and 

educators to inform the discussion about impacts of a warmer climate. 

Inventory and Monitoring R&D 

Resource Data and Analysis (-$957,000)

Forest Inventory and Analysis (+$1,928,000)

FY 2009 Program Changes 

Inventory and Monitory is comprised of Resource Data and Analysis and Forest Inventory and Analysis 

(FIA). This request includes $7,417,000 for Resource Data and Analysis, a decrease in budget authority 

of $957,000 from FY 2008, and $62,300,000 for FIA, an increase in budget authority of $1,928,000 from 

FY 2008. 

Funds will support the Resource Data and Analysis program and continued Forest Inventory and Analysis 

work in 47 States. The FIA program uses continuous forest census information to evaluate wildlife 

habitat conditions, assess sustainability of current ecosystem practices, monitor forest health, support 

planning and decision making activities undertaken by public and private enterprises, document the 

changes in forest carbon on an annual basis, and study and predict the effects of global change. The 

information and tools developed with FIA data and analyses support the National Insect Disease and 

Risk Map used to identify current and potential hot-spots of insect and disease outbreaks. FIA activities 

provide baseline forest information to support management decision-making in response to wildland fire. 

FS R&D researchers are combining satellite imagery and GIS data to determine best sites and species for 

planting 1 million trees in the “Greening of Los Angeles.” Additional activities supported by the 

Resource Data and Analysis program includes the Birds and Burns study that examines effects of 

prescribed fire on populations and habitats of birds within pine forests in eight Western States, and targets 

cavity nesting birds and songbirds. 

Past Performance 

In FY 2007, inventory research produced by the FIA program was used to evaluate changes and trends in 

forest resources for 47 States. FIA developed new spatial data products and maps for national 

assessments of biomass potential that are use to assess supply and infrastructure development for biofuels and other bio-based forest products. FIA released a new on-line forest inventory tool, Forest 

Inventory Data Online. FIA works closely with the interagency management community and with 

partners in universities and many other public and private organizations in planning and carrying out 

research and developing products. Through strength of partnerships, FIA leverages 1 partner dollar for 

every 6 Federal dollars, among the best rates in the agency. Results from the “Greening of Los Angeles” 

research are instrumental in the development and approval of California’s Proposition 84, which provides 

$90 million for urban forestry and urban greening. Results from the Birds and Burn study are being used 

in planning and treating burns in Regions 1, 2, 4, 5, and 6 of the National Forest System. 
FY 2009 Budget Justification USDA Forest Service 

Forest and Rangeland Research 6-7

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Outcome Measure Actual Actual Plan Actual Plan Plan FY 2008 

Customer satisfaction index score for 

R&D * N/A 72% 72% 72% 72% 73% 1%

Number of patent applications filed (3-

year average) 

[13] 

actual 

for year 

[12] 

actual 

for year N/A 11 10 10 0%

Percent of R&D programs that have 

been externally peer-reviewed within 

the last 5 years 0% 25% N/A 50% 75% 100% 0.3

Number of R&D programs that have 

been externally peer reviewed in the last 

5 years 0 2 N/A 2 2 2 0

Percent of peer-reviewed R&D 

programs that achieve a rating of 

satisfactory or excellent during the last 

5 years 0% 100% N/A 100% 100% 100% 0%

Percent of Nation with accessible FIA 

data ** 84% 84% 88% 88% 90% 90% 0

Quality Science Index - peer-reviewed 

fire science publications per scientist 

year on a 3-year rolling average 3.1 3.5 3.5 3.5 3.5 3.5 0

Output Efficiency Index - total fire 

science products per scientist year on a 

3-year rolling average 4.7 5.1 5.0 5.0 5.0 5.0 0

Invasive species tools developed, 

delivered, and used on a 5-year rolling 

average 157 171 142 170 142 155 13

Cost per invasive species tool on a 5-

year running average adjusted for 

budgets. $273 $242 $426 $238 $426 $426 $0

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

independently administered survey. 

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

years. 

Program Description

Program Overview 

Forest and Rangeland Research provides scientific information and new technologies to support 

sustainable management of the Nation’s forests and rangelands. These products and services increase the 

basic biological and physical knowledge of the composition, structure, and function of forest, rangeland, 

and aquatic ecosystems. FS R&D is federally mandated to provide new knowledge and technologies to 

foster healthy watersheds, forest products, wildlife protection, recreation opportunities, and other benefits, 

across all U.S. territories and States (including both Federal and non-Federal lands.) 

FS R&D carries out programs and activities unique to forestry research. These programs and activities 

are enhanced by long-term research projects; a broad-ranging cadre of leading scientists; a committed 

land base including experimental forests, watersheds, rangelands, demonstration areas, and research 

natural areas. 
FY 2009 Budget Justification USDA Forest Service 

Forest and Rangeland Research 6-8

sites located throughout the United States. In order to form strategic partnerships and leverage 

intellectual capital invested in scientists, we are developing a plan to increase the percentage of funding 

available to conduct extramural research to 15 percent by the year 2012. 

Strategic Program Areas

The Forest and Rangeland Research appropriation is organized in seven strategic program areas that align 

to the goals and objectives of the Forest Service 2007-2012 Strategic Plan as well as the Chief’s Climate 

Change, Kids in the Woods, and Water initiatives. These seven strategic areas are: Wildland Fire and 

Fuels; Invasive Species; Recreation; Resource Management and Use; Water, Air, and Soil; Fish and 

Wildlife; and Inventory and Monitoring. 

Wildland Fire and Fuels: The Wildland Fire and Fuels strategic area provides research-derived knowledge 

and science-based applications, and leadership services. This knowledge advances the science, supports 

science-based policy and science-based fire management which results in the reduction of losses to 

society from fire, and improves and maintains the resilience and sustainability of wildland ecosystems. 

Invasive Species: The Invasive Species strategic area addresses threats to the Nation’s forests and 

grasslands from invasive insects, pathogens, plants, wildlife and fish. This research develops the 

knowledge and tools needed to prevent, reduce, or eliminate the impact from the introduction, 

establishment or spread, of invasive species. 

Recreation: The Recreation strategic area provides recreation research services to customers, partners, 

and other stakeholders to support informed management decisions and to improve recreation 

opportunities for current and future generations while sustaining healthy ecosystems and wilderness. 

Resource Management and Use: The Resource Management and Use strategic area provides science, 

management, and technology research to forest and rangeland owners, managers, policy makers, 

scientists, and the public to support informed management and use of forest and rangeland resources. 

This program includes portions of research on forest products and utilization, forest harvesting and 

operations, silviculture, urban forestry, economics, social science, forest and range ecology and 

management, plant sciences, and soil science. 

Water, Air, and Soil: The Water, Air, and Soil strategic area provides scientific information, methods, 

and technology application services to help protect ecosystems and air and water quality. 

Fish and Wildlife: The Fish and Wildlife strategic area provides research publications, presentations, 

training opportunities, and scientific advice on the Nation’s terrestrial and aquatic resources. 

Inventory and Monitoring: The Inventory and Monitory strategic area incorporates Resource Data and 

Analysis, as well as FIA. Combined, they provide inventory, assessment, quantitative analysis, and 

technique development services to landowners, land managers, policy makers and other interest groups to 

help inform scientifically sound land use, management, and policy decisions. 
FY 2009 Budget Justification USDA Forest Service 

Forest and Rangeland Research 6-9

Allocation 

Forest and Rangeland Research priorities are based on the agency’s mission, direction from Congress, and 

Executive Branch priorities. The base FS R&D program is established using input from the field. The 

research stations, Forest Products Laboratory, and International Institute of Tropical Forestry prioritize 

research in response to local and regional needs. Field requests are reviewed, coordinated with critical 

needs identified at the national level, and then merged into a national research program. Funds are 

distributed to support the seven strategic program areas. 

Partnerships 

FS R&D partners include Federal and State agencies, universities, industry, nongovernmental 

organizations, tribal groups, and foreign government research cooperators. One of the most important 

functions of Forest Service Research is the distribution of information to forest managers and users 

implementing land management projects. The agency provides valuable technology transfer to our 

research partners, land management practitioners, State agencies, urban planners, private forest owners, 

private organizations, horticultural organizations, agricultural interests, as well as forest practitioners 

internal to the Forest Service. Seeking and forging strategic partnerships is a critical activity of FS R&D. 
(This page inserted to format for duplex printing) 
7 

S&PF 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-1

Appropriation State and Private Forestry 

The Fiscal Year (FY) 2009 President’s Budget proposes $109,500,000 for programs under the 

State and Private Forestry appropriation, a decrease in budget authority of $153,308,000 from FY 

2008. 

State & Private Forestry Increase or Decrease Program 

 Appropriation FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $279,961 $262,808 $1,824 -$1,588 -$153,544 $109,500 -58% 

Emergency & Supplemental Appropriations* $0 $0 $0 

Total Enacted Budget Authority $279,961 $262,808 $1,824 -$1,588 -$153,544 $109,500 

Full Time Equivalents (FTEs) 627 626 -212 414 

Enacted Budget Authority by BLI 

Forest Health Management - Federal Lands $53,963 $54,110 $1,234 -$1,147 -$9,197 $45,000 -17% 

Forest Health Management - Coop Lands $47,104 $44,542 $101 -$138 -$34,505 $10,000 -77% 

State Fire Assistance $32,895 $32,605 $150 -$156 -$7,599 $25,000 -23% 

Volunteer Fire Assistance $5,912 $5,906 $0 $0 -$906 $5,000 -15% 

Forest Stewardship $41,947 $29,532 $97 -$41 -$24,588 $5,000 -83% 

Forest Legacy Program $56,536 $52,317 $75 -$8 -$39,884 $12,500 -76% 

Urban & Community Forestry $30,130 $27,691 $48 -$41 -$22,698 $5,000 -82% 

Economic Action Program $0 $4,206 $0 $0 -$4,206 $0 -100% 

Forest Resources Information and Analysis $4,588 $4,516 $0 $0 -$4,516 $0 -100% 

International Forestry $6,886 $7,383 $119 -$57 -$5,445 $2,000 -74% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and departmental Working Capital Fund charges. 

State and Private Forestry Programs

State and Private Forestry (S&PF) 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. S&PF 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. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-2

Redesigning State and Private Forestry

In FY 2007, the Forest Service and the National Association of State Foresters agreed to redesign 

State and Private Forestry. The intent of the redesign is to focus and prioritize resources to better 

shape and influence forest land use on a scale and in a way that optimizes public benefits from 

trees and forests for current and future generations. The initial phase of national implementation 

has begun, including a new competitive process for a portion of S&PF funds. The Forest Service 

has committed to monitor implementation of the redesign approach, facilitate an annual review, 

and implement changes as needed. 

As a result of the redesign, the Forest Service will focus on challenges and issues of national 

importance, will prioritize work using the best available technology and information, and will 

work toward achieving meaningful outcomes at landscape and watershed scales. Toward this 

end, the States will conduct comprehensive assessments at the State level. S&PF will also 

conduct a national assessment to identify conditions, threats, and forest-related benefits and 

services. The information garnered will be used to set priorities at the national and other 

geographic levels. Furthermore, S&PF will increase accountability by competitively allocating 

Federal funds and documenting and communicating of the results of its investments. Programs 

will continue to be delivered with and through partners, ensuring that appropriate skills and 

organizational structures are in place to fund and carry out priority work. 

 

In FY 2009, at least 15 percent of available funds in Forest Health Management - Cooperative 

Lands and State Fire Assistance – in the State and Private Forestry and Wildland Fire 

Management appropriations - as well as Forest Stewardship and Urban and Community Forestry 

will be allocated for projects selected under the redesign themes. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-3

Budget Line Item Forest Health Management 

Overview and Allocation 

The Forest Health Management (FHM) program maintains healthy, productive forest ecosystems 

by preventing, detecting, and suppressing damaging insects, diseases, and invasive plants, and 

monitoring forest health trends across all types of land ownership. Allocations are based upon 

level of risk as defined in the National Invasive Disease Risk Map (NIDRM) and existence of a 

cost-effective tool. Other factors considered include probability of successfully implementing a 

treatment and ability to conduct necessary environmental compliance. The agency will continue 

to examine ways to more closely correlate the allocation of funds in a risk-based methodology. 

The NIDRM identifies acres at risk to 60 different pest agents and highlights acres where 

mortality exceeds 25 percent (predicted over the next 15 years) from these 60 agents. The risk 

map identified, in order of basal area loss, the following pests: mountain pine beetle (highest), 

red oak decline, southern pine beetle, root diseases, and gypsy moth. The allocations proposed in 

the FY 2009 Budget focus on treatments for mountain pine beetle and southern pine beetle, which 

directly reduce present and future beetle levels by either suppression or prevention techniques. 

Gypsy moth (fifth on the risk list) is funded only for eradication and prevention (the slow-thespread (STS) program), to prevent new infestations. STS is a highly effective, scientificallybased program that reduces the rate of spread into non-infested areas by 50 percent. 

In FY 2009, the Forest Service will consider developing new methods for allocating funding 

based upon integrated risk of mortality and other factors. 

Program Budget Line Items

The program has four budget line items, two in the State and Private Forestry appropriation, for 

Federal Lands and Cooperative Lands, and two in the Wildland Fire Management appropriation, 

for Federal Lands and Cooperative Lands, both related to the National Fire Plan. 

Forest Health Management-Federal Lands: FHM activities on Federal lands are carried out in 

cooperation with the National Forest System, other Federal agencies that manage forest lands, 

and tribal governments. These activities optimize efficiency in executing a coordinated Federal 

program to detect, monitor, evaluate, prevent and suppress insects and disease, and restore 

Federal forestlands and rangelands. 

Forest Health Management-Cooperative Lands: FHM activities on cooperative lands are carried 

out in cooperation with States and territories. These activities optimize efficiency in executing a 

coordinated program to restore forestlands and rangelands damaged by insects, disease, and 

invasive plants on lands owned by States, local governments, private organizations, and 

individual land owners. 

Funds, by budget line item, are shown on the next page. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-4

Budget Line Item Forest Health Management 

 

Forest Health Management Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $101,067 $98,652 $1,335 -$1,285 -$43,702 $55,000 -44% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $101,067 $98,652 $1,335 -$1,285 -$43,702 $55,000 -44% 

Full Time Equivalents (FTEs) 387 387 -84 303 

Enacted Budget Authority by EBLI 

Forest Health Management - Federal Lands $53,963 $54,110 $1,233 -$1,147 -$9,196 $45,000 -17% 

Forest Health Management - Coop Lands $47,104 $44,542 $101 -$138 -$34,505 $10,000 -77% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

The following chart is based on current information about insect outbreaks. The actual 

distribution will change once survey information is collected. Other factors could change the 

allocation such as a suitable NEPA or contractor availability. 

Selected Insects, Diseases, and Invasive Plants 

Program Discretionary Appropriations Funding by Fiscal Year (thousands) 

R&D (Research and Development Appropriation) 

S&PF (State and Private Forestry Appropriation) 

FY07 

Enacted 

FY08 

Enacted 

FY09 

Pres Bud 

Asian Longhorn Beetle (Total) $579 $347 $147 

 R&D $329 $147 $147 

 S&PF $250 $200 $0 

Emerald Ash Borer (Total) $2,954 $2,106 $1,611 

 R&D $1,254 $1,111 $1,111 

 S&PF $1,700 $995 $500 

Gypsy Moth (Total) $13,944 $15,277 $5,642 

 R&D $1,219 $1,192 $742 

 S&PF $12,725 $14,085 $4,900 

 Slow-the-spread $8,300 $8,613 $4,500 

 Suppression $4,001 $5,000 $0 

 Eradication $424 $472 $400 

 
FY 2009 Budget Justification USDA Forest Service

State and Private Forestry 7-5 

Selected Insects, Diseases, and Invasive Plants 

Program Discretionary Appropriations Funding by Fiscal Year (thousands) 

R&D (Research and Development Appropriation) 

S&PF (State and Private Forestry Appropriation) 

FY07 

Enacted 

FY08 

Enacted 

FY09 

Pres Bud 

Hemlock Woolly Adelgid (Total) $4,272 $4,219 $1,843 

 R&D $1,772 $1,719 $1,243 

 S&PF $2,500 $2,500 $600 

Invasive Plants (Total) $6,501 $6,200 $3,700 

 R&D $1,700 $1,700 $1,700 

 S&PF $4,801 $4,500 $2,000 

Oak Wilt (Total) $750 $719 $319 

 R&D $150 $119 $119 

 S&PF $600 $600 $200 

Port Orford Cedar Root Disease S&PF $186 $186 $100 

Sirex Woodwasp (Total) $842 $592 $392 

 R&D $92 $92 $192 

 S&PF $750 $500 $200 

Southern Pine Beetle (Total) $15,726 $11,222 $5,691 

 R&D $2,226 $2,191 $2,191 

 S&PF $13,500 $9,031 $3,500 

Subterranean Termites R&D $890 $890 $890 

Sudden Oak Death (Total) $3,280 $3,559 $2,172 

 R&D $2,488 $2,459 $2,072 

 S&PF $792 $1,100 $100 

Western Bark Beetles (Total) $10,961 $11,485 $5,553 

 R&D $2,053 $2,053 $2,053 

 S&PF $8,908 $9,432 $3,500 

Whitebark Pine Pests S&PF $200 $200 $100 

White Pine Blister Rust (Total) $2,836 $2,653 $2,203 

 R&D $2,053 $2,053 $2,053 

 S&PF $783 $600 $150 

 

Sub-Totals 

 R&D $16,226 $15,726 $14,513 

 S&PF $47,695 $43,929 $15,850 

TOTAL $63,921 $59,655 $30,363 
FY 2009 Budget Justification USDA Forest Service

State and Private Forestry 7-6 

Revised February 25, 2008 

Budget Line Item Forest Health Management 

Expanded Budget Line Item Federal Lands 

Forest Health Management Increase or Decrease Program 

 Federal Lands FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $53,963 $54,110 $1,234 -$1,147 -$9,197 $45,000 -17% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $53,963 $54,110 $1,234 -$1,147 -$9,197 $45,000 

Full Time Equivalents (FTEs) 325 325 -45 280 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $45,000,000 for Forest Health Management-Federal 

Lands, a decrease in budget authority of $9,110,000 from FY 2008. Funds will be used to 

conduct forest insect and disease surveys to provide technical assistance; to conduct forest insect 

and disease prevention, suppression, restoration, and eradication projects; and to monitor forest 

health on all Federal lands including Departments of Defense and the Interior lands. Funding is 

provided to highest priority activities that can demonstrate performance in a transparent manner. 

The request includes funding to meet the highest priority prevention and suppression needs of 

southern pine beetle, western bark beetles, hemlock woolly adelgid, slowing the spread of the 

gypsy moth, and eradication of new gypsy moth outbreaks on forest and grasslands managed by 

the Forest Service, other Federal agencies, and tribal governments. The request continues 

funding for the Eastern Forest Environmental Threat Assessment Center to provide information 

on how multiple threats interact with pests, focusing on the effects of climate change. Funding 

for the Western Wildland Environmental Threat Assessment Center is included in the request for 

the National Fire Plan, Federal Lands Forest Health Management program within the Wildland 

Fire Management appropriation. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Federal acres treated – Invasive 

species N/A 111,600 89,863 60,029 148,815 105,231 -43,584

Federal acres treated - Native 

pests N/A 26,846 47,214 49,136 35,722 18,452 -17,180

In FY 2007, the Forest Service treated native pest species on 49,136 acres and invasive species on 

60,029 acres. Priority treatments areas for native pests, such as the southern pine beetle and 

western bark beetle, focused on high priority large-scale watersheds. Priority treatments for 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-7

invasive pests focused on the gypsy moth slow-the-spread strategy on Federal lands across the 

advancing front of the gypsy moth infestation from North Carolina to Wisconsin. The program 

continued to protect critical forest 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. The program also addresses the threats of new invasive pests such as the emerald ash 

borer, Sirex wood wasp, and sudden oak death. 

Targets are based on the previous year’s unit costs, current year funding, and the changing 

dynamic of risk to forests. The program allocates based on pests posing the greatest risks, i.e. 

mountain pine beetle, southern pine beetle, and gypsy moth (prevention only, through the slowthe-spread program). Accomplishments reflect changes in pest conditions, treatment methods, 

and unit costs. In FY 2007, the agency overestimated the invasive species target primarily due 

to the selection of a suite of treatments methods for the gypsy moth slow-the-spread program, 

which had unit costs that differed from the target. 

Program Description

Program Overview 

The Forest Health Management – Federal Lands program monitors and assesses both short-term 

and long-term forest health conditions across the Nation. Funds support three primary purposes: 

to conduct pest surveys and provide technical assistance; to conduct prevention, suppression, 

restoration, and eradication projects; and to monitor the health of the Nation’s forests. These 

investments provide for detection, monitoring, evaluation, prevention, and suppression of forest 

insects and diseases on forest and rangelands managed by the Forest Service, other Federal 

agencies, and tribal governments. For invasive plants, the FHM program provides technical 

assistance to Federal land managers. 

Identifying priority treatment areas reduces the potential for new outbreaks. Treatments protect 

priority areas from damaging insects and disease, reduce the risks of mortality, from wildland 

fire, and prevent future outbreaks by increasing the resilience of treated areas. 

Allocation and Integration 

Annual priorities for mitigating the risk of future outbreaks are based, in large part, on the 

findings from the National Insect and Disease Risk Map and goals of the Healthy Forests 

Initiative and the Healthy Forests Restoration Act. 

Prevention and suppression programs for major 

pests such as the gypsy moth, western pine beetle, 

and southern pine beetle are directly related to the 

significance of these pests, areas at risk, and the 

availability of cost-effective treatment technologies. 

Some pests, such as southern pine beetle, are more 

amenable to management compared to others, such 

as red oak decline. The Forest Service is working to 

more closely align identified risk with allocation. 

The spatial placement and sequencing of treatments on National Forest System lands are planned 

and coordinated with other Forest Service vegetation management program areas, such hazardous 

The National Insect and Disease Risk 

Map (NIDRM) 

The NIDRM estimates 58 million acres at 

risk of forest mortality, attributed to 44 

indigenous and 14 non-native forest pest 

species including mountain pine beetle, 

oak decline, and southern pine beetle. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-8

fuels reduction and forest management, to optimize on-the-ground accomplishments and to 

improve the overall health of forest lands across the landscape. 

Partnerships 

This program funds the detection, evaluation, and suppression of forest insect and disease pests 

on lands managed by all other Federal agencies and tribal governments. Where proposed 

treatment locations are adjacent to other Federal lands or non-Federal lands, treatment scheduling 

is coordinated with non-NFS partners to optimize improvements to forest health across 

landownership boundaries. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-9

Budget Line Item Forest Health Management 

Expanded Budget Line Item Cooperative Lands 

Forest Health Management Increase or Decrease Program 

 Cooperative Lands FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $47,104 $44,542 $101 -$138 -$34,505 $10,000 -77% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $47,104 $44,542 $101 -$138 -$34,505 $10,000 

Full Time Equivalents (FTEs) 62 62 -39 23 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

The FY 2009 President’s Budget proposes $10,000,000 for Cooperative Lands Forest Health 

Management, a decrease in budget authority of $34,542,000 from FY 2008. Funds are used to 

provide technical and financial assistance to State forestry agencies and State Departments of 

Agriculture to conduct forest insect and disease surveys, to provide technical assistance; to 

conduct forest insect and disease prevention, suppression, restoration, and eradication projects; 

and to monitor forest health on State and private lands. Funding is provided to highest priority 

activities that can demonstrate performance in a transparent manner. 

The program will fund the highest priority prevention and suppression needs of southern pine 

beetle, hemlock woolly adelgid, oak wilt, and slowing the spread of the gypsy moth and 

eradication of new outbreaks on non-Federal lands. The request redirects funding from gypsy 

moth suppression to early detection, evaluation, and monitoring of nationwide threats to forest 

ecosystems from new invasive species, such as the Sirex wood wasp and emerald ash borer. 

The request includes funding to continue the use of Early Detection and Rapid Response efforts 

to find invasive insects and diseases early, thereby reducing future expenditures of resources for 

these pests. 

Program Performance

 Change 

 FY 

2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Cooperative lands acres treated 

– Invasive Plants N/A 589,298 517,384 580,629 610,966 138,473 -472,493

Cooperative lands acres treated 

- Native pests N/A 134,346 91,234 152,440 105,720 26,501 -79,219

In FY 2007, the Forest Service treated native species on 152,440 acres and invasive species on 

580,629 acres of State and private lands. Priority treatments areas for native pests such as the 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-10

southern pine beetle and western bark beetle focused on highest priority large-scale watersheds. 

Priority treatments for invasive pests focused on the gypsy moth slow-the-spread strategy on 

State and private lands across the advancing front of the gypsy moth infestation from North 

Carolina to Wisconsin. The program continued to protect critical forest ecosystems from 

established infestations of non-native insects and diseases, such as, Port-Orford cedar root 

disease, white pine blister rust, the hemlock woolly adelgid, and invasive plants. The program 

also continued to mitigate the threats of new invasive pests such as the emerald ash borer, Sirex 

wood wasp, and sudden oak death. 

Targets are based on the previous year’s unit costs, current year funding, and the changing 

dynamic of risk to forests. The program allocates based on pests posing the greatest risks, i.e. 

mountain pine beetle, southern pine beetle, and gypsy moth (prevention only, through the slowthe-spread program). Accomplishments reflect changes in pest conditions, treatment methods, 

and unit costs. In FY 2007, the agency overestimated the invasive species target primarily due 

to the selection of a suite of treatments methods for the gypsy moth slow-the-spread program, 

which had unit costs that differed from the target. The agency underestimated the target for 

native species due to lower than expected southern pine beetle prevention and suppression 

treatment costs and increased opportunities to implement treatments in partnership with State 

forestry agencies. 

Program Description

Program Overview 

The Forest Health Management – Cooperative Lands program provides technical and financial 

assistance to States and territories to monitor, assess, and mitigate forest health conditions on 

non-Federal lands across the nation. Identifying priority treatment acres reduces the potential for 

new outbreaks. Treatments protect priority acres from damaging insects, diseases, and invasive 

plants; reduce the risks of mortality and from wildland fire; protect highly valued sites; and 

prevent future outbreaks by increasing the resilience of treated areas. 

Funds are allocated to field units for three purposes: to conduct pest surveys and provide 

technical assistance; to conduct prevention, suppression, restoration, and eradication projects; and 

to monitor the health of the Nation’s forests. 

The Forest Service is working with several States to develop risk maps suitable for forest health 

specialists and resource managers to use as a landowner education tool and for assistance in 

selection of insect and disease project locations. Treatment placements are based on local level 

priorities including high-value stands, wildland-urban interface areas, municipal water supply 

areas, recreational sites, and administrative sites. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-11

Allocation and Integration 

Annual priorities for mitigating the risk of future 

outbreaks are based, in large part, on the findings 

from the National Insect and Disease Risk Map 

and goals of the Healthy Forests Initiative and the 

Healthy Forests Restoration Act. Some pests 

(southern pine beetle) are more amenable to 

management compared to others, such as red oak 

decline, for example. The Forest Service is 

working to more closely align identified risk with 

allocation. 

The program works with the Forest Health 

Management-Federal Lands program to identify 

priority lands and manage forest insects and diseases across the landscape. Prevention and 

suppression costs are shared with States and other non-Federal partners on a 1:1 basis. 

Partnerships 

This program provides technical and financial assistance to State forestry agencies and territories 

to detect, evaluate, and suppress forest insects, diseases, and invasive plant pests on non-Federal 

lands. When proposed treatment locations are adjacent to National Forest System lands or other 

Federal lands, treatment scheduling is coordinated to optimize improvements to forest health 

across landownership boundaries. Partnerships leverage Federal financial assistance with nonFederal resources to implement programs and projects that protect forest resources and improve 

the health of the Nation’s forests. 

Program activities are also coordinated closely with the Animal and Plant Health Inspection 

Service and State Departments of Agriculture to detect and monitor introductions of new invasive 

species such as the emerald ash borer, Asian long-horned beetle, and sudden oak death. 

“Slow the Spread” 

In 2007, the State-Federal gypsy moth slowthe-spread strategy was implemented on 

427,000 acres to reduce spread south and 

west along a band from North Carolina to 

Minnesota. 

Since 2003, Federal and State southern pine 

beetle prevention and restoration projects 

have been implemented across the South on 

nearly 600,000 acres. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-12

Budget Line Item Cooperative Fire Protection 

Cooperative Fire Protection Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $38,807 $38,511 $150 -$156 -$8,505 $30,000 -22% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $38,807 $38,511 $150 -$156 -$8,505 $30,000 -22% 

Full Time Equivalents (FTEs) 51 51 -17 34 

Enacted Budget Authority by EBLI 

State Fire Assistance $32,895 $32,605 $150 -$156 -$7,599 $25,000 -23% 

Volunteer Fire Assistance $5,912 $5,906 $0 $0 -$906 $5,000 -15% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

Cooperative Fire Protection provides technical and financial assistance to States and local fire 

agencies to promote efficient wildland fire protection on Federal, State, and private lands. 

Program activities are focused on mitigating hazards, protecting homes in the wildland-urban 

interface (WUI), and reducing Federal wildland fire suppression costs. Cooperative Fire 

Protection consists of two activities: State Fire Assistance and Volunteer Fire Assistance. See 

the following pages for a detailed description of these programs. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-13

Budget Line Item Cooperative Fire Protection 

Expanded Budget Line Item State Fire Assistance

State Fire Assistance Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $32,895 $32,605 $150 -$156 -$7,599 $25,000 -23% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $32,895 $32,605 $150 -$156 -$7,599 $25,000 

Full Time Equivalents (FTEs) 51 51 -17 34 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

The FY 2009 President’s Budget proposes $25,000,000 for State Fire Assistance, a decrease in 

budget authority of $7,605,000 from FY 2008. Funding will provide matching financial 

assistance to approximately 3,900 communities, compared to approximately 5,455 communities 

to be assisted in FY 2008. State Fire Assistance funds are used by the States to meet State and 

local government wildfire responsibilities and to support fire fighting capacity within each State, 

through a variety of programs. Robust initial attack capability is vital to addressing the risks and 

environmental impacts of unwanted wildfires. Funding is provided to highest priority activities 

that can demonstrate performance in a transparent manner. The agency will focus FY 2009 funds 

on areas covered by Community Wildfire Protection Plans or other equivalent collaboratively 

developed hazard mitigation plans, in order to focus on highest priorities. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Communities assisted (number) 7,723 4,290 5,278 16,658 5,455 3,900 -1,555

 

 Change 

 

FY 

2005 

FY 

2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Communities assisted (number) 7,723 4,290 5,278 16,658 5,455 3,900 -1,555

The Forest Service emphasis on funding in areas where Community Wildfire Protection Plans or 

equivalent plans have been completed helps ensure funding target areas where the highest priority 

needs have been identified. However, projects are planned, completed, and entered into the data 

base by the States and are therefore not under the direct control of the Forest Service. Based on 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-14

shifting priorities and fluctuations in fire danger, these numbers may vary significantly from year 

to year. Actual accomplishment figures will vary greatly from year to year depending on the 

types of projects States choose to implement in a given year. For example, if a large number of 

States fund high cost hazardous fuels reduction projects in targeted communities, the total number 

of communities assisted will be relatively low. On the other hand, if a majority of States spread 

funds across a large number of communities for fire prevention activities, as occurred in 2007, the 

total number of communities assisted increases significantly. The Forest Service estimates 

projected accomplishments; therefore, FY 2007 accomplishments are not an indicator of longterm sustainable capacity. 

Program Description

Program Overview 

 The State Fire Assistance (SFA) program 

provides matching financial assistance through 

partnership agreements to State Foresters for all 

fire management activities including training, 

planning, hazardous fuel treatments, purchase, 

and maintenance of equipment. Funding enables 

State and local fire protection organizations to be 

effective first responders for initial attack on 

wildland fires and to effectively respond to all 

types of disasters. Consultation and negotiation 

with the State Foresters achieved agreement about 

the use of “Communities Assisted” as the best 

measure for State Fire Assistance, given the variety of programs needs and uses. The Forest 

Service is now also tracking the number of Communities At Risk identified by the State foresters 

as being at “reduced risk”. 

Allocations and Integration 

A base level of funding is distributed to the State Foresters in order for all States to maintain and 

enhance coordination and communication with Federal agencies, as well as supply needed 

performance data. Remaining funds are allocated to each State, reflective of acres of non-Federal 

land, population, and level of fire protection required. Program funding is used for critical 

preparedness needs including firefighter safety, enhanced initial attack capability, and training. 

State Foresters make determinations about how to target funding to the highest priority needs 

identified in their State. This program also supports Firewise Communities/USA (Firewise), a 

highly successful program which stresses the importance of individual responsibility for fire 

hazard mitigation on community and private property. 

Partnerships 

State Fire Assistance delivers its program through partnerships with States, local agencies, local 

communities, and other organizations such as Fire Safe Councils, in coordinating wildland fire 

suppression and response to other types of natural disasters. 

Firewise Hazard Mitigation 

In 2007, the Forest Service and partners 

piloted three Firewise Hazard Mitigation 

Teams. One of these teams assisted 

Incident Commanders on the East Zone 

Complex on the Payette National Forest to 

evaluate defensibility of threatened homes. 

The team worked with homeowners to make 

their home more defendable ahead of the 

fire event. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-15

Budget Line Item Cooperative Fire Protection 

Expanded Budget Line Item Volunteer Fire Assistance

Volunteer Fire Assistance Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $5,912 $5,906 $0 $0 -$906 $5,000 -15% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $5,912 $5,906 $0 $0 -$906 $5,000 -15% 

Full Time Equivalents (FTEs) 0 0 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $5,000,000 for Volunteer Fire Assistance (VFA), a 

decrease in budget authority of $906,000 from FY 2008. Requested funds are matched to provide 

financial assistance to about 3,000 rural communities of less than 10,000 people. 

Accomplishment depends heavily on project selection, which is done by the States. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Volunteer fire departments 

assisted (number) 4,056 3,062 2,800 10,157 3,500 3,000 -500

In FY 2007, the Forest Service provided VFA funding in order to either establish or expand 53 

volunteer fire departments, train 28,397 firefighters, and assist 10,157 communities. Actual 

accomplishment figures will vary greatly from year to year depending on the types of projects 

States choose to implement in a given year. For example, if a large number of States fund high 

cost hazardous fuels reduction projects in targeted communities, the total number of communities 

assisted will be relatively low. On the other hand, if a majority of States spread funds across a 

large number of communities for fire prevention activities, the total number of communities 

assisted increases significantly. Therefore, the Forest Service can only estimate projected 

accomplishments. Funding is provided to highest priority activities that can demonstrate 

performance in a transparent manner. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-16

Program Description

Program Overview 

Through the Volunteer Fire Assistance (VFA) program, the Forest Service provides technical and 

financial assistance to local communities - through the States - to protect State and private 

forestlands threatened by wildfire. Volunteer Fire Assistance is for communities with 

populations of less than 10,000 individuals. The assistance and funding provides for training, 

development, organization, and equipment. Local fire agencies are the first line of defense for the 

initial attack on wildland fires, and therefore play a key role in meeting expanded fire protection 

needs within the wildland-urban interface (WUI). Through this program the Forest Service 

provides support to respond to natural and human-caused disasters in rural America. 

Allocation and Integration 

The program allocates funding based on acres of forestland to be protected and the number of fire 

departments serving communities with populations under 10,000 in each State. This formula 

provides a fixed percentage of funds to the regions, the Northeastern Area, and the International 

Institute of Tropical Forestry. 

Partnerships 

The VFA program directly supports local fire suppression initial attack efforts by providing 

technical assistance grants through the State foresters for training and fire department 

development. The program provides equipment for wildland fire suppression to rural volunteer 

fire departments serving communities with populations of less than 10,000. 
FY 2009 Budget Justification USDA Forest Service

State and Private Forestry 

Revised February 25, 2008 

7-17

Budget Line Item Cooperative Forestry 

Cooperative Forestry Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $128,613 $118,262 $220 -$90 -$95,892 $22,500 -81% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $128,613 $118,262 $220 -$90 -$95,892 $22,500 -81% 

Full Time Equivalents (FTEs) 165 164 50 

Enacted Budget Authority by EBLI 

Forest Stewardship $41,947 $29,532 $97 -$41 -$24,588 $5,000 -83% 

Forest Legacy Program $56,536 $52,317 $75 -$8 -$39,884 $12,500 -76% 

Urban & Community Forestry $30,130 $27,691 $48 -$41 -$22,698 $5,000 -82% 

Economic Action Program $0 $4,206 $0 $0 -$4,206 $0 -100% 

Forest Research Information and Analysis $4,588 $4,516 $0 $0 -$4,516 $0 -100% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

Cooperative Forestry promotes working in partnership with States, tribal governments, 

communities, and private landowners to improve management, protection, and use of forest-based 

goods and services while building civic capacity to achieve long-term goals for sustainable 

development. 

The Cooperative Forestry programs are Forest Stewardship, Forest Legacy Program, Urban and 

Community Forestry, Economic Action Program, and Forest Research Information and Analysis. 

See descriptions of these programs on the following pages. 
FY 2009 Budget Justification USDA Forest Service

State and Private Forestry 7-18

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Forest Stewardship Program 

Forest Stewardship Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $41,947 $29,532 $97 -$41 -$24,588 $5,000 -83% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $41,947 $29,532 $97 -$41 -$24,588 $5,000 -83% 

Full Time Equivalents (FTEs) 83 82 -60 22 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

The FY 2009 President’s Budget proposes $5,000,000 for the Forest Stewardship Program, a 

decrease in budget authority of $24,532,000 from FY 2008. Funds will target technical and 

planning assistance to encourage long-term active forest management on approximately 350,000 

acres. The program will target critical landscape areas where threats and opportunities converge 

to produce the greatest potential for return on Federal investments. 

Active forest management can help mitigate threats posed by emerging insect pests and diseases, 

invasive species, wildfire and most recently, global climate change. Most private forest 

landowners lack the information in these areas they need to make forest management decisions 

that will enable them to sustainably manage their forests and to continue provide important 

environmental benefits and services. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Percentage of nonindustrial 

private forest acres in important 

forest resource areas being 

managed sustainably, as defined 

by a current Forest Stewardship 

Plan N/A N/A N/A 0.5% 10% 10% 0%

In FY 2008, State partners will fully adopt spatial accomplishment tracking procedures that will 

enable more strategic, landscape-based planning. Field monitoring of management plan 

implementation will provide ongoing assessment of forest management outcomes and related 

public benefits that are the result of program assistance. States will also continue assessment 

work in FY 2009 to identify suburban landscape areas where coordinated S&PF program delivery 

will have the greatest lasting impact. Funding is provided to highest priority activities that can 

demonstrate performance in a transparent manner. 
FY 2009 Budget Justification USDA Forest Service

State and Private Forestry 7-19

Program Description

Program Overview 

The Forest Stewardship Program helps sustain our Nation’s critical private forest landscapes by 

providing forest landowners with long-term technical assistance and access to a variety of 

incentive and educational programs. The program contributes to the current and future production 

of high quality nursery stock. New seedling propagation protocols are developed and seed testing 

services, long-term germplasm storage, and technical assistance is provided to private, State, and 

tribal nurseries upon request. Program funds are not used for the production of nursery stock. 

Forest Stewardship management plans provide landowners with practical guidance for achieving 

their own unique objectives in a way that also maximizes public goods and services provided by 

forests. 

Allocation and Integration 

Program funding is allocated to Forest Service 

regions and the Northeastern Area based on 

statewide comprehensive program potential, 

priority forest resource areas, and past program 

performance. Statewide comprehensive 

program potential is based on number of nonindustrial private forestland (NIPF) owners and 

number of NIPF acres. Technical and planning 

assistance is targeted to strategically important 

forest resource areas, on a landscape scale, 

maximizing Federal investment. These areas are identified using GIS technologies. Program 

performance is based on: rolling 10-year average of the number of Forest Stewardship plans and 

acres encompassed by plans and by State, and percentage of high potential areas being managed 

under active Forest Stewardship management plans. States greatly enhance program performance 

by integrating programs and leveraging partnerships to intensify activity within high potential 

areas. 

 

Partnerships 

All Forest Stewardship activities are coordinated with and delivered through State and territorial 

forest agency partners; thus, the program leverages substantial non-Federal financial and human 

resources. States are required to match Federal funds dollar for dollar, but most far exceed this 

level. The Forest Stewardship Program partners with Forest Service Research and Development 

and the Natural Resources Conservation Service to support the National Agroforestry Center, 

which successfully transfers sustainable farm forestry and agroforestry technologies to thousands 

of land management professionals each year. 

The Spatial Analysis Project (SAP) 

The SAP is a GIS-based strategic management 

tool that allows participating State forestry 

agencies to identify and spatially display 

important forest lands (rich in natural 

resources, vulnerable to threat), tracts currently 

under Forest Stewardship Plans, and areas of 

opportunity to focus future Forest Stewardship 

Program efforts. 
FY 2009 Budget Justification USDA Forest Service

State and Private Forestry 

Revised February 25, 2008 

7-20

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Forest Legacy Program

Forest Legacy Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $56,536 $52,317 $75 -$8 -$39,884 $12,500 -76% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $56,536 $52,317 $75 -$8 -$39,884 $12,500 -76% 

Full Time Equivalents (FTEs) 22 22 -5 17 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

The FY 2009 President’s Budget proposes $12,500,000 for the Forest Legacy Program (FLP), a 

decrease in budget authority of $39,817,000 from FY 2008. These funds will support the 

protection of 13,600 acres, as well as assist with the completion of already funded projects. 

These funds protect important forests from conversion to development or other non-forest uses, 

thereby losing valuable public benefits. The program ensures Federal dollars are spent on 

projects with the highest national importance as well as improving Forest Legacy Program 

business practices. 

Forty-four States submitted 83 proposed projects to the Forest Service for FY 2009 funding 

consideration by the national selection panel. The proposed projects total more than $193 million 

and have combined support from 585 distinct individuals and organizations. Funding is provided 

to highest priority activities that can demonstrate performance in a transparent manner. 

FY2009 Project List 

 (Order reflects rank in priority) 

Rank State Project Name Funding 

1 ME Machias River $3,450,000 

2 CA Chalk Mountain Area $3,000,000 

3 MN Koochiching $3,050,000 

 Administrative Funds $3,000,000 

 TOTAL $12,500,000 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-21

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Acres of environmentally 

important forests protected from 

conversion 46,181 361,467 120,000 88,091 107,000 13,600 -93,400

Parcelization of forests avoided 

(number of parcels prevented) N/A 19,342 6,400 2,880 4,600 730 -3,870

In FY 2007, the FLP closed 46 tracts and leveraged Federal dollars with 68.5 percent of partner 

funds to protect a total of 88,091 acres. Completed acres were lower than anticipated due to the 

following factors: (1) the FLP closed a significant number of tracts, but tracts were smaller than 

average size. Almost as much effort is needed to close smaller tracts as is required by larger 

tracts. (2) Real estate negotiations are very unpredictable. Many tracts that were anticipated to 

close in FY 2007 were delayed, resulting in larger first quarter FY 2008 accomplishments (the 

FLP conserved 56,831acres across 7 tracts in 1st quarter FY 2008). 

Program Description

Program Overview 

Through the Forest Legacy Program, the Forest Service 

works with States, private landowners, and other 

conservation partners to protect environmentally 

important forests threatened by land conversion to 

development and other non-forest uses through 

conservation easements and fee-simple purchases. 

Fifty-seven percent (429 million acres) of our Nation’s 

forests are privately owned. Family forest owners and 

timber companies are facing increasing pressure to 

develop their land. The program provides financial 

incentives to private landowners to conserve their 

forests, thereby protecting recreation opportunities, fish 

and wildlife habitat, water quality, and resource-based 

economies. The program operates on a “willing buyer-willing seller” basis and is a nonregulatory, incentive-based land conservation program. 

Allocation 

Forest Legacy Program projects are nominated through a two-step competitive process (Statelevel identification and approval, and a national review and ranking), resulting in high-quality 

projects supported both locally and nationally. Each project is ranked using three standardized 

criteria: (1) importance – public benefits gained from the protection and management of the 

property; (2) threat – likelihood of conversion to non-forest uses resulting in a loss of forest 

values and public benefits; and (3) strategic – project fits with a larger conservation plan, 

strategy, and initiative, and enhances previous conservation investments. Projects management 

funds are allocated to the regions based on project management needs.

Bull Creek – Florida 

The Bull Creek project matched $2.2 

million of FLP dollars with $19 million 

from State and local agencies, the Nature 

Conservancy, and the U.S. Department 

of the Army. The project protects 3,071 

acres of important forestland that buffer 

Camp Blanding Military Base, providing

habitat connectivity between already 

protected lands, and protecting a 

groundwater recharge area. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-22

Partnerships 

To date, more than 1.6 million acres of 

environmentally important private lands have 

been protected through the FLP. States and 

landowners are the primary partners, but land 

trusts and other conservation organizations play a 

critical role in identifying and completing 

projects. While the program requires a 25 percent 

non-Federal match, the program averages a 50 

percent non-Federal match. 

Muschopauge Brook – Massachusetts 

The Muschopauge Brook project matched 

$630,000 of FLP dollars with $395,000 to 

protect the headwaters for an important 

municipal drinking water supply in one of 

the fastest growing towns in the state. The 

project provides public recreation, and 

connects with greater than 1,000 acres of 

forested and open protected land. 
FY 2009 Budget Justification USDA Forest Service

State and Private Forestry 

Revised February 25, 2008 

7-23

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Urban and Community Forestry 

Urban & Community Forestry Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $30,130 $27,691 $48 -$41 -$22,698 $5,000 -82% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $30,130 $27,691 $48 -$41 -$22,698 $5,000 -82% 

Full Time Equivalents (FTEs) 48 48 -37 11 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

The FY 2009 President’s Budget proposes $5,000,000 for the Urban and Community Forestry 

(U&CF) program, a decrease in budget authority of $22,691,000 from FY 2008. The program 

will focus on landscape scale demonstration projects that have regional and national significance 

for urban and community forest management across landscapes. Through transfer of strategic 

planning information, management tools, and technology to resource managers, urban trees and 

forests will optimize social, economic, and environmental services and benefits. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Percentage of people living in 

communities managing 

programs to plant, protect, and 

maintain their urban and 

community trees and forests. N/A 37% 38% 38% 37% N/A N/A

Percentage of people living in 

communities developing 

programs and/or activities to 

plant, protect, and maintain their 

urban and community trees and 

forests. N/A 36% 35% 34% 20% N/A N/A

 

In FY 2007, U&CF provided assistance to 6,326 communities, reaching a total population of 

162.3 million. The population served by the program in FY 2007 represented 72 percent of the 

people living in communities with the potential to develop programs to plant, protect, and 

manage their urban and community trees and forests. The program expects to provide assistance 

to 5,450 communities in FY 2008. In FY 2009, the Forest Service will shift U&CF Program 

emphasis toward participating in landscape scale demonstration projects of regional and national 

significance. The Forest Service is developing U&CF program criteria and new outcome 
FY 2009 Budget Justification USDA Forest Service

State and Private Forestry 7-24

measures for these projects. Funding is provided to highest priority activities that can 

demonstrate performance in a transparent manner. 

Program Description

Program Overview 

The Urban & Community Forestry Program assists 

cities, suburbs, and towns across the country to 

improve the condition and extent of community trees 

and forests. Active management of these assets 

secures the greatest economic, social, and 

environmental benefits for 80 percent of the Nation's 

population. U&CF delivers technical, financial, 

educational, and research assistance to communities in 

all 50 States, the District of Columbia, and 8 U.S. 

territories. Assistance is delivered to communities 

primarily through State forestry agencies. Program priorities emphasize increasing community 

tree canopy and improving urban forest management to deliver critical ecosystem services such 

as air and water quality, stormwater management, energy conservation, noise abatement, and 

wildlife habitat. 

Allocation and Integration 

U&CF allocates funds based on performance that is monitored using a web-based 

accomplishment reporting system based on 2000 Census data. Allocations focus on communities 

that have achieved one or more of the following four measures of a sustainable program: 1) 

professional urban forestry staff, 2) tree ordinances, 3) urban forest management plans, 4) tree 

boards or advisory organizations. In 2006, 164 million people benefited from living in 6,564 

program supported communities achieving one or more of these measures. 

U&CF and Forest Health Protection are piloting a program to monitor urban forest health in three 

states. The program will be expanded in 2008 to include additional States. U&CF is also 

working with FS Research and Development to develop, disseminate, support, and refine an 

urban and community forest benefits assessment and management tool called i-Tree, currently 

distributed to over 2,000 communities nationwide. 

Partnerships 

U&CF delivers its program through a continually expanding partnership network of State forestry 

agencies, other FS programs, other Federal agencies, local governments, community 

organizations, and volunteers. State programs leverage FS investment with other funding 

sources, by 150 percent, to deliver financial assistance to communities for urban and community 

forestry. U&CF is also working with the USDA National Agroforestry Center, The Conservation 

Fund, members of the National Association of Regional Councils, and the Western Forestry 

Leadership Coalition to support geographically-based training on designing and implementing 

green infrastructure as part of landscape-based planning and program delivery. 

Putting a Value on Urban Forests 

The Trust for Public Land matched 50-

50 an FS grant of $138,000 to determine 

and quantify the ecological and human 

benefits of parks and forests to a city.

The 4-year study documented specific 

numbers for test cities of Boston and 

Washington, D.C. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-25

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Economic Action Programs

Economic Action Programs Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $0 $4,206 $0 $0 -$4,206 $0 -100% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $0 $4,206 $0 $0 -$4,206 $0 

Full Time Equivalents (FTEs) 0 0 0 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget does not propose funding for Economic Action programs, a 

decrease in budget authority of $4,206,000 from FY 2008. 

Program Description

Economic Action Programs build capacity within communities to take strategic action and 

effectively engage in and contribute to the sustainable management of natural resources from the 

local to national level. Funds appropriated through this program 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; and support collaborative 

actions across ownership or agency boundaries. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-26

Budget Line Item Cooperative Forestry 

Expanded Budget Line Item Forest Resources Information and Analysis

Forest Resources Information & Analysis Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $4,588 $4,516 $0 $0 -$4,516 $0 -100% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $4,588 $4,516 $0 $0 -$4,516 $0 -100% 

Full Time Equivalents (FTEs) 12 12 -12 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

The FY 2009 President’s Budget proposes no funding for the Forest Resources Information and 

Analysis program, a decrease in budget authority of $4,516,000 from FY 2008. Funding for these 

activities in FY 2009 is requested under the Forest and Rangeland Research appropriation. 

Program Performance

In FY 2007, with Forest Resources Information and Analysis (FRIA) funding support, Forest 

Inventory and Analysis (FIA) completed an accelerated inventory of Mississippi to assess 

changes in and opportunities for sustaining Mississippi’s post-Katrina forest resources. The FIA 

program also developed and enabled the new online tool Forest Inventory Data Online (FIDO). 

FIDO enables enhanced public access to FIA data for mapping and other spatial and analytical 

analyses of forest inventory and monitoring data across the U.S. 

Program Description

Program Overview 

The Forest Resources Information and Analysis budget provides funding to support 

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 uses FRIA funds to provide cost-share assistance to participating States in coordination 

with Research and Development’s FIA program. FIA 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. 

Allocation and Integration 

The program funds support forest inventory activities and are cost-shared with States. State 

contributions represent approximately 12 percent of the entire program funds. In order to make 

efficient use of available resources, FIA contracts some services when partners can provide them 

at lower cost. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-27

Partnerships 

FIA is managed as a partnership, led by Forest Service Research & Development in cooperation 

with the National Forest System, State & Private Forestry, and the National Association of State 

Foresters. FIA customers include national forests and grasslands, State forestry agencies, Federal 

and State policy makers; corporations and consultants; researchers; environmental organizations; 

land managers; media; and anyone interested in reliable, current forest data. Partners make 

matching cash contributions or provide in-kind staff support for program implementation; as well 

as in-kind services that facilitate or add value to program outputs. 
FY 2009 Budget Justification USDA Forest Service 

State and Private Forestry 7-28

Budget Line Item International Forestry 

International Forestry Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $6,886 $7,383 $119 -$57 -$5,445 $2,000 -74% 

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 

Total Enacted Budget Authority $6,886 $7,383 $119 -$57 -$5,445 $2,000 -74% 

Full Time Equivalents (FTEs) 24 24 3 27 

The FY 2009 President’s Budget proposes $2,000,000 for the International Forestry program, a 

decrease in budget authority of $5,383,000 from FY 2008. The requested level will maintain 

priority investments in domestic natural resource conservation issues, including invasive species, 

climate change, biodiversity conservation, migratory species, and in advancing US policy 

interests. 

Program Description

Program Overview 

The International Forestry (IF) program promotes sustainable forest management overseas and 

brings important technologies and innovations back to the United States. Forest Service land 

managers and scientists deliver their expertise overseas through technical cooperation, training, 

and policy assistance, and in disaster preparedness and response. The program focuses on key 

natural resource needs in countries with significant forest resources and important forest product 

related trade with the United States. The program is critical in protecting U.S. investments in a 

wide array of domestic natural resource conservation issues, including invasive species, 

biodiversity conservation, migratory species, and in advancing forest conservation. Furthermore, 

the program fosters improved natural resource management worldwide, advancing international 

issues such as climate change, international policy, and global biodiversity. 

Allocation and Integration 

The program prioritizes work and directs 

funding in several different ways. 

Primarily, the program identifies critical 

activities necessary for prevention and 

mitigation efforts. The program 

collaborates closely with domestic 

partnership organizations working with 

Forest Service field units. IF focuses 

resources on those habitats and species in 

greatest need of migratory species 

conservation. Lastly, priorities are set in conjunction with the U.S. Department of State to 

address the most important international issues including climate change, illegal logging, and 

sustainable forest management. 

Partnership Breeds Success in the Bahamas 

FS International Programs (IP) helped conserve the 

Kirtland’s Warbler, an endangered migratory bird 

whose flyway spans from northern Michigan to the 

Bahamas. With partners, IP initiated data collection

in the Bahamas, where the bird spends most of the 

year, complementing efforts on Huron-Manistee 

National Forests, to protect the endangered bird 

throughout its range. 
8 

NFS 

 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-1 

Revised February 25, 2008 

Appropriation National Forest System 

National Forest System Increase or Decrease Program 

 Appropriation FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $1,452,729 $1,469,579 $29,350 -$45,530 -$103,862 $1,349,537 -7% 

Emergency & Supplemental Appropriations* $12,000 $0 $0 $0 $0 

Rescission of Prior Year Unobligated 

Balances --- --- --- --- --- -$5,000 

Total Enacted Budget Authority $1,464,729 $1,469,579 $29,350 -$45,530 -$103,862 $1,344,537 -7% 

Full Time Equivalents (FTEs) 11,242 11,133 9,973 

Enacted Budget Authority by BLI 

Land Management Planning $57,675 $48,833 $886 -$1,225 $4,113 $52,607 8% 

Inventory & Monitoring $166,638 $166,580 $2,443 -$3,613 -$18,947 $146,462 -11% 

Recreation, Heritage, and Wilderness $258,797 $262,635 $5,877 -$9,827 -$21,685 $237,000 -8% 

Wildlife & Fisheries Habitat Management $131,734 $132,385 $2,531 -$3,823 -$13,460 $117,633 -10% 

Grazing Management $47,826 $48,163 $1,021 -$1,633 -$526 $47,025 -1% 

Forest Products $319,614 $322,503 $7,843 -$11,636 $3,956 $322,666 1% 

Vegetation & Watershed Management $176,849 $177,437 $3,643 -$6,084 -$9,687 $165,309 -5% 

Minerals & Geology Management $84,164 $84,143 $1,327 -$2,343 -$12,293 $70,835 -15% 

Landownership Management $90,932 $91,299 $1,604 -$2,718 -$15,185 $75,000 -17% 

Law Enforcement Operations $115,000 $131,910 $2,175 -$2,630 -$16,455 $115,000 -12% 

Valles Caldera $3,500 $3,691 $0 $0 -$3,691 $0 -100% 

Ecosystem Services Demonstration 

 Projects [non-add] ** --- --- --- --- --- [$10,000] --- 

Rescission of Prior Year Unobligated Balances --- --- --- --- --- -$5,000 --- 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation payments, 

and Departmental Working Capital Fund charges. 

* Supplemental funding from P.L. 110-28 for law enforcement operations. 

** Ecosystem Services Pilot Projects is a reimbursable account as proposed legislation and not a budget line item. 

The National Forest System and Programs

The National Forest System (NFS) appropriation provides funds for the stewardship and 

management of the 193 million acres of national forests and grasslands. Funds in the NFS 

appropriation provide for the planning, assessment, and conservation of ecosystems while 

delivering multiple public services and uses. Management of these natural resources requires the 

complex integration of many different program areas. The suite of NFS programs support the 

planning, coordination, and implementation of activities which provide unique recreational 

opportunities, energy for the nation, wood products, habitat for wildlife, forage for domestic 

animals, and protection/improvement of soil and water quality. These activities are managed to 

best meet the needs of the Nation while maintaining or improving productivity of the land and 

protecting the environment. These lands make up one of the Nation’s most unique public land 

legacies.
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-2 

Recognizing Integrated Program and Partnership Accomplishments 

The Forest Service is changing its business rules for accomplishment reporting to incorporate not 

only directly funded work, but also accomplishments achieved through integration between 

program areas or partnerships with external groups. This reform improves performance and 

accountability by shifting focus from a highly functionalized approach to one that naturally aligns 

other programs and partner organizations to achieve multiple goals. By changing how it counts 

accomplishments, the Agency improves incentives and encourages managers to plan and 

implement their work, and ensure fullest possible value per federal expenditure. 

Accomplishments are now referred to as Unified Accomplishments. This represents the sum of 

core, integrated, and partnership accomplishments for a project and/or program. 

• Core Accomplishments are those accomplishments achieved through direct expenditure 

of Forest Service funds in the BLI associated with the resource measure. 

• Integrated Accomplishments are the results of integrated projects that achieve multiple 

goals and objectives. Integrated accomplishments are achieved using funds from one or 

more BLI that are not associated with the resource program tied to that particular 

accomplishment measure. 

• Partnership Accomplishments are achieved through the application and expenditure of 

dollars contributed by partners and cooperators, as well as through their in-kind 

contributions. In-kind or volunteer accomplishments include non-monetary contributions 

such as material, supplies, services, and labor. 

Forest Service programs have historically set targets and recorded accomplishments by program. 

The new system enables the Agency to plan for and report accomplishment in an integrated 

manner, reflecting the way work is actually accomplished on the ground by resource managers. 

Individual resource programs are now managed concurrently with other resource programs to 

achieve multiple resource management objectives. For example, timber sales are often used to 

meet wildlife habitat requirements, restore watersheds, and reduce wildfire risk to communities as 

well meeting timber sale requirements. The new business rules will encourage and highlight 

program integration, and will fully account for the great contributions made by partners and 

cooperators. 

Transformation 

The Forest Service is in the process of restructuring its organization at the regional office and 

headquarters levels. The Transformation effort will fundamentally change the way integrated 

leadership, direction, and oversight are delivered at the top two levels of the organization. The 

agency will measure the effort’s success based on how well the new structure helps direct 

maximum resources toward mission delivery, improves processes to help us better serve our 

customers and partners, integrates the most important current and emerging issues facing the 

Forest Service, and meets customer needs in carrying out our mission. 

Ecosystem Services 

The FY 2009 Budget proposes Ecosystems Services Demonstration Projects that will advance 

market-based conservation. The Forest Service will work closely with partners to implement 

restoration projects on national forests. Outcomes from these projects will demonstrate the value 

of clean water, carbon sequestration, and other critical services that forests provide. Ecosystem 

Services Demonstration Projects will engage partners in forest restoration that restores, enhances, 

and protects multiple ecosystem service benefits. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-3 

Budget Line Item Land Management Planning

Land Management Planning Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $57,675 $48,833 $886 -$1,225 $4,113 $52,607 8% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $57,675 $48,833 $886 -$1,225 $4,113 $52,607 8% 

Full Time Equivalents (FTEs) 370 282 19 301 

Enacted Funding by Activity 

Maintain Land Management Plans $35,615 $26,935 $496 -$674 $2,674 $29,430 10% 

Create/Revise Land Management Plans $22,060 $21,898 $390 -$551 $1,439 $23,177 7% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $52,607,000 for Land Management Planning, an 

increase in budget authority of $3,774,000 from FY 2008. The Land Management Planning 

(LMP) program will focus on accelerating completion of LMP revisions through efficiencies 

gained under the revised Planning Rule scheduled for release in FY 2008. The full LMP revision 

schedule can be found in Insert A. Other high priorities for FY 2009 include conducting roadless 

area evaluations and rulemaking, and completing critical LMP amendments. Specific priorities 

for each activity are as follows: 

Maintain Land Management Plans (+$2,495,000) - The request includes $29,430,000 for the 

maintenance of LMPs. The agency will amend, correct or adjust as needed the 90 plans not 

currently under revision, focusing on completing amendments to address critical issues. The 

increase in funds will accelerate work on 35 planned LMP amendments for FY 2009 that 

respond to energy corridor decisions on specific national forests. Some units with completed 

plan revisions will conduct comprehensive evaluations (funded by the Inventory and 

Monitoring budget line item) to determine whether their plans need to be updated. Up-todate plans provide the basis for identifying projects and management actions that will help 

achieve desired conditions in line with agency goals and objectives. 

Create/Revise Land Management Plans (+$1,279,000) - The request includes $23,177,000 to 

fund and support LMP revisions. Plans that are up-to-date in terms of desired conditions, 

objectives, and standards provide the basis for projects that will improve services and 

conditions on the ground. The increase in funds will accelerate completing the 18 LMP 

revisions currently scheduled for FY 2009 (see LMP Revision Schedule on following page). 

The agency completed 10 revisions in FY 2006 and FY 2007 under the FY 2005 Planning 

Rule, before the agency was required to temporarily suspend planning activity while 

responding to judicial action. The agency intends to complete all revisions currently in 

progress by the end of FY 2011. However, the existing plan revision schedule is dependent 

on the timely completion of the 2008 Planning Rule. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-4 

LMP Revision Schedule 

Cumulative 1st Round* Completions

12

6

30

66

84

93

99

116 118 119 120 120

124 127

10

35 41

54 55

55 55 55 55 25

19

12 12

2

21

31

39

0

20

40

60

80

100

120

140

19981999200020012002200320042005200620072008200920102011

Fiscal Year

Forest Plans

NFMA Original Schedule Completed LMPs Future LMP revisions

Program Performance

 Change 

 

FY 

2005 

FY 

2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Number of land management plan 

amendments underway 44 23 33 36 32 35 3 

Number of land management plan 

revisions or creations underway 48 50 41 41 40 38 -2

In FY 2007 some units were able to begin amending plans in response to the completion of the 

Western Energy Corridor EIS, contributing to overall accomplishment exceeding the initial 

target. These specific amendments should be completed in FY 2008. 

Program Description 

Program Overview 

Land management plans provide a long-term vision of 

what each NFS unit hopes to accomplish, and a 

management strategy of how to achieve that vision. 

To establish a framework for achieving this vision, 

each unit collaborates with the public to develop an 

overarching management plan addressing a wide 

variety of programs and issues. The LMP provides 

Revising Management Plans 

The Forest Service has developed 127 

LMPs to guide the management of 155 

national forests, 20 grasslands, and other 

unique units of the National Forest System. 

Since the late 1980s, 53 plans have been 

revised, about 40 percent of the total. The 

first round of revisions is expected to be 

completed by FY 2011.
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-5 

the basis for identifying, prioritizing, and implementing the programs and projects to move the 

unit towards achieving locally desired conditions and agency objectives. Such goals and 

objectives may include addressing climate change, ensuring abundant clean water, providing 

recreation opportunities, and restoring and maintaining forest and rangeland ecosystems. 

The National Forest Management Act (NFMA) requires that each unit of the National Forest 

System have an LMP that is formally revised every 10 to 15 years to address changing conditions 

and new information related to natural resources, management goals, and public use. 

The Land Management Planning program supports the following activities: 

Maintain Land Management Plans - Forest plan maintenance includes making amendments, 

corrections, and adjustments, conducting any analyses needed after legal notice initiating an 

amendment, and resolving any appeals, litigation, and objections to the amendment. 

Create/Revise Land Management Plans - Includes all work activities associated with plan 

revision and creation including those identified in the 2008 Planning Rule (e.g., public 

involvement, development of plan components, content analysis of public comments, etc.). 

This activity also involves resolving appeals, litigation and objections to the land 

management plan. 

Allocation 

Funds for this program support the development, revision, and maintenance of land management 

plans. Priority is given to those units currently revising their LMPs. Funding also supports 

Roadless Area evaluation activities where needed. 

Partnerships 

Collaboration with partners and the public is critical to developing, revising or amending LMP to 

identify needs, establish desired conditions, and craft alternatives or scenarios for future 

management. Both in plan development and revision, NFS units work closely with citizens and 

organizations with an interest in the management of the resource. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-6 

Insert A - Land Management Plan Revision Schedule 

The following tables display the revision status of the 127 land management plans that currently 

exist. All units are national forests unless otherwise noted (e.g., NG = National Grassland). The 

NFS Region (e.g., R-1, R-2, etc.) for each unit is also provided. 

Creations and Revisions Completed prior to FY 2009 (Total = 56) 

R-1 Beaverhead-Deerlodge* 

R-1 Dakota Prairie NG 

R-2 Arapaho-Roosevelt 

R-2 Black Hills 

R-2 Bighorn 

R-2 Cimarron-Comanche NG*

R-2 Medicine Bow 

R-2 Nebraska 

R-2 Rio Grande 

R-2 Routt 

R-2 Thunder Basin NG 

R-2 White River 

R-4 Boise 

R-4 Caribou 

R-4 Payette 

R-4 Sawtooth 

R-4 Targhee 

R-4 Uinta 

R-4 Wasatch-Cache 

R-5 Angeles 

R-5 Cleveland 

R-5 Los Padres 

R-5 San Bernardino 

R-5 Caribbean 

R-8 Chattahoochee-Oconee 

R-8 Cherokee 

R-8 Croatan 

R-8 Daniel Boone 

R-8 Francis Marion 

R-8 Jefferson 

R-8 Kisatchie 

R-8 Land Between the 

Lakes NRA (new plan) 

R-8 NFs in Alabama 

R-8 NFs in Florida 

R-8 NFs in Texas 

R-8 Ouachita 

R-8 Ozark-St. Francis 

R-8 Sumter 

R-9 Allegheny 

R-9 Chequamegon-Nicolet 

R-9 Chippewa 

R-9 Finger Lakes 

R-9 Green Mountain 

R-9 Hiawatha 

R-9 Hoosier 

R-9 Huron-Manistee 

R-9 Mark Twain 

R-9 Midewin National 

Tallgrass Prairie (new plan) 

R-9 Monongahela 

R-9 Ottawa 

R-9 Shawnee 

R-9 Superior 

R-9 Wayne 

R-9 White Mountain 

R-10 Chugach 

R-10 Tongass 

* Expected completions in FY 2008 (2) 

Revisions in Progress in FY 2009 (Total = 38)

R-1 Bitterroot*

R-1 Flathead * 

R-1 Idaho Panhandle*

R-1 Kootenai*

R-1 Lolo*

R-1 Clearwater*

R-1 Nez Perce*

R-2 Grand Mesa, 

Uncompahgre, Gunnison* 

R-2 San Juan 

R-2 Shoshone 

R-2 Pike-San Isabel 

R-3 Apache-Sitgreaves 

R-3 Cibola NG 

R-3 Coconino 

R-3 Coronado 

R-3 Kaibab 

R-3 Prescott 

R-3 Tonto 

R-4 Dixie* 

R-4 Fishlake* 

R-4 Manti-La Sal* 

R-4 Humboldt–Toiyabe 

R-4 Bridger-Teton 

R-4 Ashley 

R-5 Lake Tahoe Basin 

R-5 Modoc 

R-5 Sequoia 

R-6 Fremont 

R-6 Colville* 

R-6 Malheur* 

R-6 Okanogan* 

R-6 Umatilla * 

R-6 Wallowa-Whitman* 

R-6 Wenatchee* 

R-6 Winema 

R-8 NFs in Mississippi* 

R-8 George Washington 

 (2nd revision) 

R-8 Uwharrie* 

* Expected completions in FY 2009 (19) 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-7 

Revisions Starting in FY 2010 and Beyond (Total = 33)

R-1 Custer 

R-1 Gallatin 

R-1 Helena 

R-1 Lewis & Clark 

R-3 Carson 

R-3 Cibola 

R-3 Gila 

R-3 Lincoln 

R-3 Santa Fe 

R-4 Salmon-Challis 

R-5 Eldorado 

R-5 Inyo 

R-5 Klamath 

R-5 Lassen 

R-5 Mendocino 

R-5 Plumas 

R-5 Shasta-Trinity 

R-5 Sierra 

R-5 Six Rivers 

R-5 Stanislaus 

R-5 Tahoe 

R-6 Deschutes 

R-6 Gifford Pinchot 

R-6 Mt. Baker-Snoqualmie 

R-6 Mt. Hood 

R-6 Ochoco 

R-6 Olympic 

R-6 Rogue River 

R-6 Siskiyou 

R-6 Siuslaw 

R-6 Umpqua 

R-6 Willamette 

R-8 Nantahala-Pisgah
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-8 

Revised February 25, 2008 

Budget Line Item Inventory and Monitoring 

Inventory & Monitoring Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $166,638 $166,580 $2,443 -$3,613 -$18,947 $146,462 -11% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $166,638 $166,580 $2,443 -$3,613 -$18,947 $146,462 -11% 

Full Time Equivalents (FTEs) 1,066 1,025 -195 830 

Enacted Funding by Activity 

Conduct Strategic Resource Inventories $62,727 $76,932 $1,187 -$1,757 -$5,178 $71,184 -7% 

Conduct Land Management Plan Monitoring $90,146 $79,673 $1,065 -$1,575 -$15,311 $63,852 -19% 

Conduct Land Management Plan Assessments $13,765 $9,983 $191 -$281 $1,533 $11,425 15% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President's Budget proposes $146,462,000 for Inventory and Monitoring, a decrease 

in budget authority of $20,118,000 from FY 2008. The Budget reflects improvements in the 

Forest Service’s ability to assess the performance of National Forest System (NFS) management 

activities in meeting individual forest plan goals as well as NFS-wide changes on the landscape 

resulting from federal investments. National forests and grasslands will focus on forest plan 

monitoring, conducting comprehensive evaluations in advance of plan revisions, and ensuring 

that inventories, data management, and corporate data systems support these business 

requirements. The agency will place priority on the acquisition of data to establish baselines for 

standard national and locally-specific desired conditions and to determine, through monitoring, 

the progress being made towards achieving the desired conditions and objectives in land 

management plans (LMPs). The agency also intends to implement the requirements of Executive 

Order 13423 to establish Environmental Management Systems on all units in the agency. 

Conduct Strategic Resource Inventories (-$5,748,000) - The request includes $71,184,000 for 

inventory work on national forests and grasslands. Funding will support continued 

inventorying of high priority areas to support Plan revisions and amendments which establish 

direction for the future management of the unit. Over 20 million acres were inventoried in 

FY 2007 to obtain resource information supporting the 41 plan revisions in progress. 

Inventories will be conducted at the appropriate scales to establish baseline data for LMP 

desired conditions and objectives. The agency will also continue the important work of 

integrating and improving databases and migrating existing data to a centralized repository. 

These activities support the efficient implementation of the 2008 Planning Rule as well as 

project work on the ground. 

 

Conduct Land Management Plan (LMP) Monitoring (-$15,821,000) - The request includes 

$63,852,000 for Plan Monitoring of national forests and grasslands. In response to the 2008 

Planning Rule, the agency will emphasize monitoring desired conditions and other plan 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-9 

requirements, annual evaluations, and reports. The number of monitoring requirements that 

are met each year will increase over time. 

Thirty-three units will begin revisions within the next 3-4 years. Those units are currently 

completing and compiling monitoring information to help determine how much change the 

plan needs and the issues to be addressed in the revision. The agency will emphasize 

identifying standard monitoring requirements across national forests that will lead to 

efficiencies in data collection, mapping, storage, reporting and utilization. 

Conduct Land Management Plan Assessments (+$1,442,000) - The request includes 

$11,425,000 for conducting Plan development and implementation assessments, including 

comprehensive evaluations, on national forests and grasslands. The agency will work closely 

with its researchers to ensure data quality that are scalable, reliable, and can be integrated 

within the national framework for Environmental Management Systems (EMS). The agency 

will complete 30 assessments to address the requirements of the 2008 Planning Rule, 

including the need to change direction, and identify projects to implement land management 

plans. The agency completed over 50 assessments in FY 2007, supporting the 86 Plans being 

maintained by the agency. 

Program Performance

 Change 

 

FY 

2005 

FY 

2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Acres of inventory data 

collected and acquired N/A N/A 17,309,350 20,860,388 22,642,200 18,291,000 -4,351,200

Number of annual 

monitoring requirements 

completed N/A N/A 1,250 1,487 1,200 800 -400

Number of land 

management plan 

assessments completed * 149 97 53 52 30 30 0 

The agency exceeded its planned performance levels in FY 2007 because individual national 

forests took advantage of opportunities to conduct more landscape scale inventories covering 

larger amounts of acreage in preparation for plan revisions, amendments and LMP assessments. 

Program Description 

Program Overview 

The Inventory and Monitoring program funds the collection and analysis of integrated data, 

supporting a variety of business requirements and resource management needs. Examples of 

such data include - vegetation condition, wildlife habitat, social and economic data, air and soil 

quality, and recreation visitor use. Inventory and Monitoring activities help establish baselines of 

information, used to identify, prioritize, and frame objectives for achieving desired conditions, 

and are closely linked to the development and revision of land management plans. Program 

activities include the development of resource inventories; LMP monitoring, evaluation, and 

assessments; and development, maintenance,, and coordination activities in support of the 

following corporate applications and systems: ALP, Infra, NRIS, and GIS. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-10 

Specific program objectives include enhancing scientific understanding of ecosystems; fulfilling 

agreements for inventory and monitoring results with partners; providing data, information, and 

analyses to decision makers for National Forests and Grasslands; providing information necessary 

to assess viability and responsiveness of Forest Service programs; and supporting cost-effective 

program delivery. The Inventory and Monitoring program is delivered through the following 

activities: 

Conduct Resource Inventories - Provides resource inventories designed to meet LMP 

requirements. Resource inventory activities include data collection and acquisition, data entry 

(including migration of legacy data), and storage of data in corporate systems; data evaluation 

and analyses to ensure accuracy and determine data classifications; the documentation and 

implementation of quality control procedures and compilation of metadata; and resource 

mapping. 

Conduct Monitoring and Evaluation - Provides monitoring, evaluation and reporting needed 

to support the determination of the need to change direction. This includes implementation 

and effectiveness monitoring needed to evaluate progress toward achieving the desired plan 

conditions and objectives. The establishment of Environmental Management Systems (EMS) 

is partially funded by the Inventory and Monitoring budget line item. An EMS is a tool that 

supports focused natural resource management on activities to improve environmental 

performance at the forest level. 

Conduct Land Management Plan Assessments - LMP development and implementation 

assessments evaluate current and desired resource conditions at or above the watershed scale. 

These assessments include determinations of ecological, social, and economic sustainability, 

as well as comprehensive evaluations that determine the need to change direction. 

 

Allocation and Integration 

FY 2009 funding priorities include LMP monitoring, resource inventories, and data 

management. Allocations for forest monitoring and inventories are based on the number of units 

and total acreage in each region. Funding is dedicated to fully implementing the proposed 

national framework for producing forest-level EMSs.

Partnerships 

The Forest Service works with Federal, regional, and local partners to inventory and monitor its 

lands. Within the Federal Geographic Data Committee, the Forest Service has the lead 

responsibility on to work with other agencies to set standards for vegetation classification. It also 

works with governmental and non-governmental partners to collect data and set inventory and 

monitoring protocols for consistent data collection methods. 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-11 

Revised February 25, 2008 

Budget Line Item Recreation, Heritage, and Wilderness Management 

Recreation, Heritage & Wilderness Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $258,797 $262,635 $5,877 -$9,827 -$21,685 $237,000 -8% 

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 

Total Enacted Budget Authority $258,797 $262,635 $5,877 -$9,827 -$21,685 $237,000 

Full Time Equivalents (FTEs) 2,219 2,293 -296 1,997 

Enacted Funding by Activity 

Manage Recreation Operations $158,640 $162,633 $3,659 -$6,119 -$12,605 $147,568 -8% 

Administer Rec Special Use Authorizations $43,250 $37,375 $844 -$1,412 -$2,778 $34,028 -7% 

Manage Heritage Resources $26,027 $26,696 $617 -$1,032 -$1,415 $24,866 -5% 

Manage Wilderness and Wild & Scenic Rivers $30,880 $35,931 $757 -$1,264 -$4,886 $30,538 -14% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The President’s Budget proposes $237,000,000 for Recreation, Heritage, and Wilderness, a 

decrease in budget authority of $25,635,000 below FY 2008. Priority will be implementing the 

travel management rule and decisions resulting from the Recreation Facility Assessment (RFA) 

process. The agency will establish and strengthen partnerships, particularly those that help 

deliver youth programs, such as the “More Kids in the Woods” initiative that connects youth to 

the outdoors. The request reflects program efficiencies gained through the agency’s improved 

use of revenue and cost data, resource assessments, and business planning to drive management 

decision-making. Specific priorities within each activity include: 

Recreation Operations (-$15,065,000) - This request includes $147,568,000 for Recreation 

Operations. Funding is requested to complete 67 travel management plans, covering more 

than 44 percent of all National Forest System (NFS) acres (85 million acres). As a result, a 

total of approximately 167 million acres of NFS lands (86 percent) will be covered by motor 

vehicle use maps by the end of FY 2009. Current and accurate maps allow recreation visitors 

to easily and safely access the NFS administered lands. Travel management plans are 

developed using a comprehensive and collaborative process requiring completion of 

environmental analysis, system design and map publication and will assist in more effective 

management of the road and trail systems. In FY 2007, the agency completed 36 travel 

management plans, covering 12.5 percent of National Forest System lands. 

Funding is also requested to continue implementing the results of the RFA process for all 

national forests. RFA results are used to prioritize recreation site facilities that meet public 

needs and desires, while evaluating operational costs in order to maintain desired quality 

standards. The primary goals of the RFA are to reduce deferred maintenance, improve 

cost-benefit analysis and to focus investments by prioritizing recreation sites that are 

responsive to the public’s needs. To date, 42 national forests have completed development 

of a five-year program of work through the RFA process. It is projected that 114 forests 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-12 

will have completed their program analysis and development of their 5-year program of 

work (POW) by the end of FY 2009. 

Recreation Special Use Authorizations (-$3,347,000) - This request includes $34,028,000 

for Recreation Special Use Authorizations. Funding is requested to administer 

approximately 25 percent of special use permits to standard. Special use concessions are an 

important tool for delivering services at Forest Service recreation sites. Concessionaires 

operate a majority of the recreation sites to accommodate visitor demands. 

In FY 2007, the agency administered to standard a total of 9,524 recreation special use 

authorizations. Administering and monitoring these uses ensures that they serve the 

interest of the American people and provide protection of natural resources. The activity 

also ensures that the National Forest System receives fair market value for the uses that 

occur on its public lands. Recreation special use permits will provide approximately 

$50,000,000 in revenue to the U.S. Treasury in FY 2009. 

Heritage Resources (-$1,830,000) - This request 

includes $24,866,000 for Heritage Resources. 

Funding is requested to manage 1,930 priority 

heritage assets (PHAs) to standard. PHAs are 

those heritage assets recognized through a special 

designation (i.e., National Register of Historic 

Places) or prior investment in preservation, 

interpretation, and use. Implementation of the 

White House recommendations from the Preserve 

America Initiative will also continue, including a 

multi-year effort to provide challenge cost-share 

funding to the field to: 1) rehabilitate significant heritage assets that are linked to 

community development; and, 2) reduce the deferred maintenance backlog. 

In FY 2007, the agency administered to standard a total of 1,982 PHAs. The work of this 

activity supports fulfilling the Heritage Strategy, including stabilizing and protecting 

priority heritage assets, and provides opportunities for the public to help protect heritage 

resources. 

Wilderness and Wild and Scenic Rivers (-$5,393,000) - This request includes $30,538,000 

for Wilderness and Wild and Scenic Rivers. Funding is requested to manage an additional 

9 wilderness areas to minimum stewardship level, bringing the total to 80, or 19 percent of 

the total designated wilderness areas managed by the Forest Service. A total of 48 wild and 

scenic river areas will meet statutory requirements. Funding will also allow the agency to 

further progress on the 10 Year Wilderness Stewardship Challenge and the Wild and Scenic 

Rivers Program agenda. 

In FY 2007, the agency managed a total of 67 wilderness areas to minimum stewardship levels 

and met statutory requirements on 45 wild and scenic river areas. This activity supports visitor 

use monitoring, the development of education plans, working with guides and outfitters to 

provide public access opportunities to wilderness areas while protecting resources, and ensure 

attention is placed on wilderness and wild and scenic river values in overall forest planning. 

Leveraging Volunteer Resources 

In FY 2007, volunteers contributed 

$41.8 million worth of work in the 

Recreation and Heritage resource 

categories. This represents 84 percent 

of the $49.8 million total appraised 

value of volunteer work, representing 

1,047 person years of the agency’s 

1,313 person years total. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-13 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Number of recreation site 

capacity (PAOT* days) 

operated to standard 92,780,394 82,482,208 70,240,000 69,686,938 70,230,000 58,200,000 -12,030,000 

Percentage of NFS lands 

covered by travel management 

plans resulting in visitor safety, 

resource protection using best 

management practices and less 

visitor conflict with off-road 

vehicle usage N/A 0.3% 16.0% 12.5% 40.0% 86.0% 46.0% 

Number of recreation special 

use authorizations administered 

to standard 15,062 10,091 9,375 9,524 9,013 8,020 -993 

Number of priority heritage 

assets managed to standard N/A N/A 2,082 1,982 2,294 1,930 -364 

Number of wilderness areas 

managed to minimum 

stewardship level 48 61 74 67 71 80 9 

Number of wild & scenic river 

areas meeting statutory 

requirements** N/A 47 51 45 46 48 2 

Customer satisfaction with 

value for fee paid N/A N/A 84% 83% 85% 85% 0% 

* PAOT is Persons At One 

Time 

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

Percentage of NFS lands covered by travel management plans resulting in visitor safety, resource 

protection using best management practices and less visitor conflict with off-road vehicle usage –

The agency ended FY 2007 with 12.5 percent of NFS covered by travel management plans, 

accomplishing 78 percent of the target. Several changes to the schedule were approved during 

FY 2007 due to delays in map production, increased public involvement, and extended comment 

periods which resulted in less accomplishment for the fiscal year. 

Number of wilderness areas managed to minimum stewardship level (90 percent) and Number of 

wild and scenic river areas meeting statutory requirements (88 percent) – The agency fell short 

of meeting these two targets by 10 and 12 percent, respectively. The definition of the 

performance measure changed during FY 2006, causing confusion as to when to report actual 

accomplishments. Instructions and guides have since been provided to assist the field in better 

understanding how to report accomplishments. 

Through the Recreation PART assessment, the agency identified key program outcome and 

efficiency measures that focus on improving performance and targeting resources to visitor 

satisfaction. The agency’s PART Improvement Plan includes amending the Forest Service 

strategic plan to include Recreation Program performance measures that better link improvements 

in program performance with achievement of strategic goals and optimizing available resources 

by completing business plans for each national forest or grassland recreation area. In FY 2007, 

the agency incorporated PART performance measures into the 2007-2012 Forest Service 

Strategic Plan revision. By the end of FY 2009, the agency will have completed the multi-step 

process to develop the 5-year program of work on all national forests as part of the Recreation 

Facility Analysis. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-14 

Program Description

Program Overview 

The National Forest System offers a vast and diverse array of recreational opportunities across its 

193 million acres of national forests and grasslands. Approximately 192 million visits occur 

annually on national forests, with an increasingly diverse demographic of visitors engaging in 

activities such as camping, picnicking, winter sports, hunting, fishing, hiking, driving for 

pleasure, and visiting cultural sites and visitor centers. Population growth, combined with the 

decline of public access to privately owned land, is resulting in high demand for National Forest 

System lands to provide quality outdoor recreational opportunities. 

The Recreation, Heritage and Wilderness program manages and administers over 17,100 

developed recreation sites, over 29,000 recreation special use authorizations, 39 major visitor 

centers, 20 National Historic Landmarks, over 347,000 heritage assets, 418 designated 

wildernesses, and 104 wild and scenic rivers. Funding is allocated to units based on the needs 

and uses of the existing infrastructure, and regional performance. The program is supported 

through the following activities: 

Manage Recreation Operations - Provides for operation of developed sites, such as 

campgrounds, day-use areas, boat ramps, solid waste disposal facilities, and visitor centers; 

general forest areas, including snow play areas, lakes, streams, and roads; and interpretive 

and educational services. Activities provided for include: conducting recreation planning, 

cleaning facilities and sites, providing safety and security measures for visitors and 

employees; conducting prescribed inspections; managing partnerships and volunteers; and 

providing interpretive or educational programs, presentations, and products to visitors. 

Administer Recreation Special Use Authorizations – Processes new recreation special use 

authorizations and administer existing ones. Activities include providing responses, analyses, 

and/or decisions to proponents and applicants that request to use NFS lands. Activities also 

include providing inspection, oversight, and monitoring of authorizations issued to ensure 

compliance with the terms and conditions of the authorization. Downhill ski areas, 

campground management, organization camps, and outfitting and guiding recreation 

opportunities are made possible through special uses authorizations. 

Manage Heritage Resources – Provides for the protection of significant heritage assets and 

contributes interpretive, educational, site stewardship, and scientific and technical 

information to governmental entities, the public, and tribes. Activities include: identifying, 

evaluating, protecting, monitoring, and preserving heritage resources, sites and areas; and 

promoting heritage values through interpretation, Passport in Time (PIT) projects, 

presentations, and other public information and outreach efforts. 

Manage Wilderness and Wild and Scenic Rivers – Provides for the protection of designated 

wilderness and wild and scenic rivers and evaluates and makes recommendations for areas 

and rivers worthy of addition to the National Wilderness Preservation System and the 

National Wild and Scenic River System. Activities include education and outreach, 

inventory and monitoring, information management, providing adequate access to wilderness 

and wild and scenic river users, expanding the role of fire as a natural process, and, for wild 

and scenic rivers, evaluating water resources projects to protect free-flowing conditions. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-15 

Allocation and Integration 

Funding allocations are based on a process that combines support for core operations and national 

priorities with a set of competitive criteria that compares regional performance and needs. These 

performance and needs include developed recreation site use, processing and administering 

special use permits; and managing wilderness areas, wild and scenic rivers, and priority heritage 

assets. Adjustments may then be made between regions based on capability information 

submitted by the regions or to mitigate situations where proposed allocations would create 

undesirable transition effects. 

Integration with other land and resource programs occurs within the recreation and wilderness 

program in order to achieve multiple management objectives. Examples include addressing 

interpretation and education needs to connect the American public to nature and reducing 

hazardous fuels, managing fish and wildlife, and marking boundary lines in designated wilderness 

areas. This integration increases efficiency, provides public outreach, ensures resources are 

protected, helps avoid litigation, and ensures high public confidence in Forest Service 

management. 

Partnerships 

Partnerships are critical to enhancing the public’s use and enjoyment of resources on national 

forests and grasslands. This program consistently involves the highest number of volunteers 

within the agency Volunteers contribute significantly to the management of heritage resources, 

interpretive services, trail maintenance, youth programs, and campground management. The 

Wilderness and Wild and Scenic Rivers program works at a national level with partners such as 

the Federal Conservation Association and River Management Society on skills training and with 

the WILD Foundation on international exchanges. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-16 

Budget Line Item Wildlife and Fisheries Habitat Management 

Wildlife & Fish Management Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $131,734 $132,385 $2,531 -$3,823 -$13,460 $117,633 -10% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $131,734 $132,385 $2,531 -$3,823 -$13,460 $117,633 -10% 

Full Time Equivalents (FTEs) 1,017 990 -130 860 

Enacted Funding by Activity 

Manage Aquatic Habitat $47,624 $47,650 $993 -$1,500 -$1,003 $46,140 -2% 

Manage Terrestrial Habitat $73,800 $74,324 $1,386 -$2,096 -$9,176 $64,438 -12% 

Provide Wildlife Interpretation & Education $10,310 $10,411 $152 -$227 -$3,280 $7,056 -32% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $117,633,000 for Wildlife and Fisheries Habitat 

Management, a decrease in budget authority of $14,752,000 below FY 2008. Funds for essential 

activities ensure the restoration, recovery, and maintenance of wildlife and fish, particularly rare 

species, and their habitats. The agency enhances direct program contributions through 

partnerships, leveraging funds and increasing accomplishments. Internal integration of programs 

results in significant additional benefits, often at a landscape level. Specific priorities within each 

activity include: 

Manage Aquatic Habitat (-$1,510,000) A funding level of $46,140,000 will support the 

agency in continuing important relationships with States, non-governmental organizations, 

and tribes, to actively manage fisheries habitat and foster hundreds of aquatic habitat 

improvement partnership projects on national forests and grasslands. Integration with the 

engineering program for culvert replacement, both for road maintenance and for fish passage 

improvement, will reconnect fragmented stream segments. Core targets include 900 miles of 

streams and 5,500 acres of lakes restored or enhanced. The agency will improve an 

additional 600 miles of streams and 3,500 acres of lakes through partnerships or integrated 

accomplishments. The Forest Service will maintain recreational fishing opportunities for the 

15 million anglers who fish on national forests and grasslands and spend more than $2.2 

billion dollars in communities adjacent to National Forest System lands. 

Thousands of miles of streams in the National Forest System require work to stabilize banks, 

re-establish spawning areas, eradicate invasive species, and re-establish native assemblages 

of fish. Each year, the Forest Service restores and improves over 1,000 stream miles. In the 

past four years, the agency and its partners have reconnected over 300 miles of streams 

through culvert replacements in the Pacific Northwest. These actions are important for 

restoring salmon habitat and fishing opportunities guaranteed by treaty to tribes. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-17 

Revised February 25, 2008 

Manage Terrestrial Habitat (-$9,886,000) A funding level of $64,438,000 will direct 

terrestrial habitat improvement on 125,000 acres, and will foster hundreds of partnerships 

with non-governmental organizations. Close internal program integration will result in 

improvements on an estimated additional 875,000 acres of terrestrial habitat. For example, 

combined site specific actions - such as using terrestrial habitat funding to provide nesting 

structures, fuels reduction funding for prescribed fire, and timber sales funds to reduce tree 

density - reap multiple benefits. One such result is providing optimum habitat for the 

federally listed red-cockaded woodpecker, the wild turkey, and bobwhite quail. 

This budget level also supports the 

implementation of the President’s Executive 

Order 13443 “Facilitation of Hunting 

Heritage and Wildlife Conservation,” signed 

in 2007, which identifies Federal land 

management agency actions to support robust 

populations of wildlife for hunting and for 

hunter access. Each year, over 15.5 million 

people hunt on National Forest System lands 

and spend over $4 billion in adjacent 

communities. Restoration opportunities 

abound to help keep common species from 

becoming threatened or endangered, to maintain key habitats, and to contribute to the 

recovery of threatened and endangered species. In FY 2007, the agency exceeded its habitat 

improvement target by leveraging partnership funds and in-kind services, and made 

significant progress in contributing to recovery efforts of 151 species listed as threatened or 

endangered. 

Provide Wildlife Interpretation and Education (-$3,355,000) A funding level of $7,056,000 

will support programs and projects that provide opportunities for the approximately 36 

million people that visit national forests and grasslands to hunt, fish, or view wildlife. 

Wildlife and fisheries environmental education programs - many of which implement the 

agency’s “Kids in the Woods” initiative - will continue to provide both children and adults 

the opportunity to safely view and participate in activities and programs that raise their 

awareness, understanding, and enjoyment of wildlife, fish, and their habitats. 

Grizzly Bear -- Greater Yellowstone Area

To implement the Greater Yellowstone Area 

Conservation Strategy, the Forest Service 

completed thousands of projects on national 

forests in Montana, Wyoming, and Idaho, 

including habitat improvement, population 

monitoring, and minimizing bear-human 

conflict. In 2007 the Yellowstone Area 

Population was removed from Endangered 

Species status and declared recovered. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-18 

Program Performance

 Change 

 

FY 

2005 

FY 

2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Miles of stream habitat restored or 

enhanced 1,623 1,655 1,300 1,542 1,900 1,500 -400

Acres of lake habitat restored or 

enhanced 19,250 15,996 9,755 13,002 12,500 9,000 -3,500

Acres of terrestrial habitat 

enhanced 230,867 278,811 152,840 273,562 1,250,000 1,000,000 -250,000

Accomplishments through FY 2007 represent core program; starting in FY 2008, outputs represent 

unified accomplishments, including core, integrated, and partnership activities. 

 

Miles of stream habitat restored or enhanced – Target 1,300 miles, accomplished 1,542 miles 

(+19 percent), and Acres of lake habitat restored or enhanced – Target 9,755 acres, accomplished 

13,002 acres (+33 percent). The agency restored or enhanced additional stream and lake habitat 

through successful partnerships with other Federal and State agencies and private conservation 

groups in FY 2007. 

Acres of terrestrial wildlife habitat enhanced – Target 152,840, accomplished 273,562 acres (+79 

percent). Wildlife habitat enhancement efforts benefited from unusually favorable weather 

conditions in FY 2007, particularly in the Intermountain and Southern regions, allowing national 

forest to exceed their targets. The Intermountain Region maximized opportunities and 

efficiencies through close integration among program areas. The Pacific Northwest Region was 

particularly successful increasing its accomplishments through partnerships. 

Program Description

Program Overview 

The Wildlife and Fisheries Habitat Management program restores, sustains, and enhances habitats 

for wildlife, fish, and rare plants on national forests and grasslands, and provides for their 

sustainable use and enjoyment for the public. 

National forests and grasslands contain some of 

America’s most important fish and wildlife habitats 

as well as botanically significant resources. These 

resources include over 200,000 miles of fishable 

streams, more than 2 million acres of lakes, 5 

million acres of wetlands, 80 percent of the elk and 

bighorn sheep habitat in the lower 48 States, and 28 

million acres of wild turkey habitat. Of the 

thousands of species of plants and animals within 

our national forests and grasslands, over 400 are 

listed as threatened or endangered, and 3,100 are 

listed as sensitive because of concerns for their viability. 

Monongahela National Forest 

Received a national “Making Tracks” award 

from the National Wild Turkey Federation 

for an outstanding ongoing partnership with 

the Wild Turkey Federation and the West 

Virginia Division of Natural Resources. To 

date, over 40,000 acres of habitat have been 

improved for the wild turkey on this 

national forest. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-19 

The program is delivered through the following activities: 

Manage Aquatic Habitat - Activities include actions to restore native species; reduce 

fragmentation of stream systems including restoring fish passage, stream flows, and water 

quality; control aquatic invasive species; and improve fishing opportunities and access. 

Enhancing the resiliency of aquatic ecosystems to climate change is an important aspect of 

the program. 

Manage Terrestrial Habitat - Activities 

include restoring native plants and animals; 

maintaining important habitats such as early 

successional habitats and fire dependent 

ecosystems; seeding areas to improve 

forage conditions; developing drinking 

water sources in arid habitats; providing 

habitat to support harvestable populations 

of game species; and restoring habitat for 

sensitive, threatened, and endangered 

species. 

Provide Wildlife and Fish Interpretation & Education - Annually, approximately 36 million 

people visit national forests and grasslands to hunt, fish, or view wildlife. Activities include: 

developing and maintaining permanent wildlife viewing sites; disseminating information for 

hunting, fishing, and viewing opportunities; and sponsoring special events. 

Allocation and Integration 

Funding is allocated to maintain essential operations and meet priority needs. Competitive criteria 

evaluate projects’ abilities to ensure the restoration and maintenance of key habitats, encourage 

expansion of partnerships, and to respond to human use needs (hunting, fishing, and nonconsumptive use). 

Project implementation is highly integrated with other programs and with state and other federal 

agencies. For example, about a quarter of all terrestrial habitat improvements also reduce fuel 

loading. Funds from this program also are used to support NEPA costs for timber sales designed 

to improve habitat conditions. Fisheries programs are closely linked with watershed 

improvement goals and projects. Close coordination with state wildlife agencies, and the US Fish 

and Wildlife Service occurs in regards to managing habitats for recovery of threatened and 

endangered species. 

Partnerships 

Partnerships are a cornerstone of fisheries, wildlife, and rare plants programs. Partnerships foster 

long-term collaboration with local groups, non-governmental organizations, State, and Federal 

agencies that have an interest in these resources, and have resulted in significant achievements. 

Annually, the Forest Service completes over 2,000 partnership projects. Partner financial 

contributions and in-kind services typically exceed $40,000,000. 

Pacific Northwest National Forests 

Fisheries habitats are improved through 

integrated treatments, including meadow and 

floodplain restoration, stream channel 

reconstruction, fish passage restoration, nonsystem road closures, riparian thinnings, and 

fuels reduction. Recent examples include the 

Skokomish River, Skagit River, East Fork 

Lewis River, and Wenatchee River watersheds 

in Washington State. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-20 

Budget Line Item Grazing Management 

Grazing Management Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $47,826 $48,163 $1,021 -$1,633 -$526 $47,025 -1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $47,826 $48,163 $1,021 -$1,633 -$526 $47,025 -1% 

Full Time Equivalents (FTEs) 421 366 -19 347 

Enacted Funding by Activity 

Manage Grazing Allotments $23,234 $24,510 $511 -$828 -$640 $23,553 -3% 

Prepare Grazing Allotment NEPA $24,592 $23,673 $510 -$805 $94 $23,472 0% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $47,025,000 for Grazing Management, a decrease in 

budget authority of $1,138,000 from FY 2008. The proposed program of work will provide for 

effective management of rangeland resources on approximately 90 million acres of National 

Forest System (NFS) lands. Key program benefits include a sustainable supply of forage for 

livestock and wildlife, economic support for rural communities, and maintenance of open space 

and habitat connectivity across national forest and the associated private lands used for livestock 

production. 

Manage Grazing Allotments (-$957,000) - The request includes $23,553,000 to administer 

approximately 39 percent of grazing allotment acres to 100 percent of standard, down from 

47.4 percent in FY 2007. The output levels for FY 2008 and FY 2009 reflect the rebasing 

effects of a refined definition for the Allotment Acres Administered to 100 percent of Forest 

Plan Standards performance measure. The performance measure currently reflects the level 

of permit administration relative to implementation of all grazing management direction 

prescribed in forest plans, project level NEPA decisions, grazing permits or agreements, and 

other relevant documents. This change captures a more comprehensive picture of program 

performance compared to earlier years, and in turn will result in apparent lower outputs for 

FY 2008 and 2009 relative to FY 2007 accomplishments. 

Prepare Grazing Allotment NEPA (-$201,000) - The request includes $23,472,000 to 

complete the NEPA based environmental analysis and associated decision document for an 

estimated 455 grazing allotments. In FY 2007, the agency completed NEPA analysis for 670 

allotments, 521 of which utilized the now expired categorical exclusion authority provided by 

Congress. The Grazing Management program outlined here is designed to capitalize on the 

momentum for grazing NEPA accomplishment within the agency, recognizing that many of 

the most controversial and complex allotments are still on the horizon for analysis. This will 

result in an upward trend in NEPA unit costs. The proposed funding level reflects a 

continued commitment to complete NEPA analysis at the rate necessary to meet the total 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-21 

number of allotments with grazing NEPA decisions identified in the agency’s NEPA 

schedule developed under the provisions of The Rescissions Act of 1995 (P.L. 104-19, 

section 504). 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output 

Measure Actual Actual Plan Actual Plan Plan FY 2008 

Allotment acres 

administered to 

100 percent of 

Forest Plan 

standards 36,503,278 49,583,208 34,482,080 42,775,483 36,860,000 35,500,000 -1,360,000

Number of grazing 

allotments with 

signed decision 

notices 543 443 460 670 460 455 -5

Allotment acres administered to 100 percent of Forest Plan standards – The Forest Service 

exceeded its target in FY 2007 due to the following. First, cost efficiencies resulting from the 

categorical exclusion authority enabled the Forest Service to direct more funding to grazing 

administration than anticipated. Second, the agency’s focus on implementing allotment NEPA 

decisions resulted in higher administration accomplishments than anticipated. 

Number of grazing allotments with signed decision notices – The Forest Service surpassed the 

target of 460 due to the following: 1) Increased emphasis on accomplishment of this measure by 

field units; 2) benefit of cost efficiencies resulting from use of the categorical exclusion authority; 

and 3) completion of multi-year data collection necessary to support environmental analysis. 

 

Program Description

Program Overview 

The Grazing Management program manages the diverse rangeland resources. The program seeks 

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

privately owned lands managed for agricultural production, and to support rural communities by 

helping sustain private farms and ranches. The Forest Service works with nearly 8,700 permit 

holders on 7,700 active grazing allotments. The program is delivered through the following 

activities: 

Prepare Grazing Allotment NEPA - Involves all elements of NEPA compliance pertaining to 

decisions authorizing grazing on an allotment, including the resolution of appeals and 

litigation associated with these decisions. Activities include costs associated with rangeland 

inventories of range condition; public scoping; coordination with Federal, State, tribal, and 

local governments; development of alternatives; analysis of environmental effects; and 

preparation of the NEPA document. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-22 

Manage Grazing Allotments - Provides for the issuance and administration of grazing 

permits, processing permit transfers, preparation and processing of bills for collection, and 

development of annual operating instructions. Administration requires both compliance and 

effectiveness monitoring. Compliance monitoring determines if the terms and condition of 

the permit are being implemented, while effectiveness monitoring determines progress 

towards resource objectives, and evaluates the need for adjustments in management. 

Allocation and Integration 

Funding is allocated based on the number of term grazing permits, the number of acres in active 

allotments, scheduled NEPA, and the number of grazing allotments with NEPA decisions during 

the previous three fiscal years. 

The Grazing Management Program is closely integrated with rangeland vegetation improvement 

and other activities of the Vegetation and Watershed Management (NFVW) Program. Grazing 

improves rangeland health, and the “rangeland” component of the Vegetation and Watershed 

Management program provides monitoring data to determine the health of rangeland ecosystems, 

support collaborative and sustainable watershed restoration efforts, and inform management in 

supporting continued grazing. Data gathered through this monitoring is also used to prepare 

grazing NEPA analyses. 

Partnerships 

The agency supplements its capability to accomplish grazing permit administration through a 

variety of partnerships. Grazing permittees may be certified to conduct utilization monitoring, or 

may provide documentation demonstrating compliance with livestock distribution and other 

management requirements. Special interest groups also enter into agreements to conduct 

implementation monitoring, often in coordination with the grazing permittee. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-23 

Budget Line Item Forest Products 

Forest Products Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $319,614 $322,503 $7,843 -$11,636 $3,956 $322,666 1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $319,614 $322,503 $7,843 -$11,636 $3,956 $322,666 

Full Time Equivalents (FTEs) 2,797 2,785 -120 2,665 

Enacted Funding by Activity 

Plan and Prepare Timber Sales $243,705 $234,192 $5,758 -$8,381 $5,334 $236,903 2% 

Administer Timber Sales $69,480 $88,311 $2,085 -$3,255 -$1,378 $85,763 -2% 

Special Forest Products * $6,429 $0 $0 $0 $0 $0 0% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Special Forest Products activity dropped beginning in FY 2008. Funding for this activity is included in Administer Timber Sales. 

FY 2009 Program Changes 

The FY 2009 President’s Budget proposes $322,666,000 for Forest Products, an increase in 

budget authority of $163,000 from FY 2008. Funding is requested to analyze, prepare, offer for 

sale, award, and administer timber sales, stewardship contracts and special forest products 

permits on the National Forests. In order to accomplish a multitude of land and resource 

management objectives, such as improvement of forest health, restoration of wildlife habitat, and 

providing forest products to meet local and national needs. The increased funding will support 

the sale of about 4,950,000 CCF (about 2,475 MMBF), which includes 750,000 CCF (about 375 

MMBF) of salvage volume. Included in this funding is full implementation of the settlement 

agreement for the Northwest Forest Plan (NWFP), which would provide 1,600,000 CCF (800 

MMBF) of volume offered for sale. This NWFP offer volume will be accomplished through 

management reforms that will improve environmental analyses and reduce delays associated with 

litigation. 

The agency has additional capability to produce timber volume in FY 2009 as displayed on the 

Timber Program Components tables that begins on 8-26. This volume could be sold if there is an 

improvement in the housing market and lumber prices. 

Plan and Prepare Timber Sales (+$2,711,000) – The request includes $236,903,000 to plan 

and prepare timber sales. The Forest Service expects to sell 4,200,000 CCF (about 2,100 

MMBF) of timber volume in FY 2009 using appropriated funds, an increase of 200,000 CCF 

(about 100 MMBF) over FY 2008. These timber sales will allow the agency to accomplish 

fuels reduction, wildlife habitat restoration, and other land management objectives. 

Administer Timber Sales (-$2,548,000) – The request includes $85,763,000 to administer 

timber sales of timber undergoing harvest, while meeting all appropriate contractual 

provisions and environmental protection standards. The funding will also be used to prepare, 

issue, and administer special forest products permits. The Forest Service expects to harvest 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-24 

4,600,000 CCF (about 2,300 MMBF) of timber volume in FY 2009, and increase of 400,000 

CCF (about 200 MMBF) over FY 2008. This funding request will allow the agency to 

provide timber products and special forest products permits to meet local and national needs. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Volume of regular timber 

sold (Hundred Cubic Feet 

(CCF))* N/A 2,956,316 4,002,000 3,111,523 4,000,000 4,200,000 200,000

Volume of regular timber 

sold (million board feet 

(MMBF))* N/A 1,530 2,001 1,610 2,000 2,100 100

Volume of total timber 

harvested (CCF)** 3,966,544 4,427,703 3,900,000 3,794,744 4,200,000 4,600,000 400,000

Volume of total timber 

harvested (MMBF) ** 2,098 2,296 2,300 1,960 2,100 2,300 200

* Output changed from "timber volume offered" to "timber volume sold" in FY 2006. 

** Output includes regular and salvage timber volume harvested. 

The FY 2007 planned sold volume included full implementation of the Settlement Agreement for 

the Northwest Forest Plan. Regions 5 and 6 were only able to accomplish about 60 percent of the 

target because there was insufficient time to shift resources to ramp up to full implementation. 

Although, full funding for the Northwest Forest Plan was received, funds were invested in 

planning and sale preparation for the outyear program. In addition, the declining timber market 

as a result of the decline in the housing market had an effect, with about 270 MMBF of offer 

volume receiving no bids. 

Program Description

The Forest Products program utilizes timber sale contracts as a least-cost means to achieve 

vegetative management objectives on the national forests. These objectives include wildlife 

habitat maintenance and improvement, hazardous fuels reduction, and watershed restoration 

where trees with commercial value are removed. Forest products provide significant economic 

benefits to local communities. The program promotes the removal of small diameter material 

which can be used as a bio-energy source. 

The net annual growth of growing stock on timberland on the national forests is estimated to be 

about 4 billion cubic feet, or enough wood to build about 1 million houses. Timber sales and 

permits provide forest products in a sustainable manner that responds to the nation’s demand, 

while moving forest resources toward desired conditions. Revenues from forest product sales 

return funds to the U.S. Treasury and help offset the costs of national forest management. 

Stewardship contracting, also funded within this program, facilitates the accomplishment of 

various resource management objectives, including reduced fuels in the wildland urban interface, 

improved forest health, and enhanced wildlife habitat, while meeting the economic needs of local 

and rural communities. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-25 

The program is administered and managed through the following activities: 

 

Plan and Prepare Timber Sales - Includes determining the volume and value of the trees to 

be removed, planning and environmental analysis, sale layout and design, and timber sale 

contract and permit preparation. 

Administer Timber Sales - Covers the oversight of timber sale contracts, to ensure that terms 

and conditions are being fulfilled by contractors, and coordination with purchasers on annual 

operating plans, potential contract modifications, and financial transactions. This activity 

also includes the selling and administration of personal use permits for firewood, Christmas 

trees, ornamentals, floral components, berries and other forest products. 

Allocation and Integration 

Funding allocations are based on competitive criteria that compare regional capabilities and 

needs, including: improving fire regime condition class; responding to forest insect and disease 

infestations; dependence of local industry on the supply of forest products from National Forest 

System lands; the value provided by the materials harvested; the unit cost of preparing timber 

sales; and performance. 

Integration with other resource programs achieves multiple resource management objectives, 

such reducing wildfire risk to communities. These objectives are accomplished through the use 

of one or more innovative new authorities, including the application of receipts from timber sales 

toward the accomplishment of resource work. 

In addition to appropriations, timber sales are funded through other special authorities, including 

the Salvage Sale Fund, the Timber Sale Pipeline Restoration Fund, the K-V Fund, and the 

Stewardship Contracting Fund. All of these special funds receive a portion of the revenues 

received from timber sales. The following page contains an overall timber program summary 

(Timber Program Components tables). 

Partnerships 

Stewardship contracts and agreements are means of managing natural resources in collaboration 

with local communities, providing opportunities to achieve land and natural resource 

management goals while promoting closer public-private working relationships. Using a broad 

range of activities, stewardship contracting enables the agency to contribute to the development 

of sustainable rural communities, restore and maintain healthy forest ecosystems, and provide a 

continuing source of local income and employment. 

In 2007, the Forest Service entered into stewardship contracts on 76,500 acres, resulting in the 

sale of about 655,000 CCF (about 328 MMBF) of timber volume. Thus, stewardship contracting 

now comprises about 15 percent of the overall timber sale program. As the use of stewardship 

contracting increases, timber sale contractors grow increasingly important in helping the agency 

achieve desired vegetation management objectives. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-26 

Program Components and Costs of the Timber Sales Program 

FY 2007 – FY 2009 

 

CUBIC FEET 2007 2008 2009 

Final Programmed Estimate 

National Forest System Forest Products 

 Funding (Dollars in thousands) $319,614 $322,503 $322,666 

 Volume Sold (CCF) 3,111,523 4,000,000 4,200,000 

 Additional Opportunity Volume Sold (CCF) 2

 1,450,000 

 

Salvage Sale Fund 

 Funding (Dollars in thousands) $67,770 $61,300 $52,000 

 Volume Sold (CCF) 978,050 920,000 750,000 

 Additional Opportunity Volume Sold (CCF) 2

 600,000 

 

Knutson - Vandenberg Funds (with Forest Products produced) 

 Funding (Dollars in thousands) $39,760 $16,000 $0 

 Volume Sold (CCF) 716,408 280,000 0 

 

Timber Sales Pipeline Restoration Fund (Sale Preparation only) 

 Funding (Dollars in thousands) $3,143 $6,000 $3,900 

 

Purchaser Election 

 Funding (Dollars in thousands) $0 $15,000 $0 

 Volume Sold (CCF) 0 200,000 0 

 

Total, Timber Sales Program 

 Funding (Dollars in thousands) $430,287 $420,803 $378,566 

 Volume Sold (CCF) 4,805,981 5,400,000 4,950,000 

 Average unit cost ($/CCF) $90 $78 $76 

 Additional Opportunity Volume Sold (CCF) 2

 2,050,000 

 Total Volume Sold (CCF) 4,805,981 5,400,000 7,000,000 

 

Total, Timber Harvested (CCF) 1

 3,794,734 4,200,000 4,600,000 

 

Road Construction/Reconstruction for Timber Sales and Land 

Stewardship Contracting (Dollars in thousands) 

 Forest Service Engineering Support for Forest Products $58,000 $60,400 $57,500 

 

Notes: 

1 Includes both regular and salvage timber volume. 2

 The Additional Opportunity is based on improvements in the housing market and lumber prices. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-27 

Program Components and Costs of the Timber Sales Program 

FY 2007 – FY 2009 

 

BOARD FEET 2007 2008 2009 

Final Programmed Estimate 

National Forest System Forest Products 

 Funding (Dollars in thousands) $319,614 $322,503 $322,666 

 Volume Sold (MMBF) 1,610 2,000 2,100 

 Additional Opportunity Volume Sold (MMBF) 2

 725 

 

Salvage Sale Fund 

 Funding (Dollars in thousands) $67,770 $61,300 $52,000 

 Volume Sold (MMBF) 517 460 375 

 Additional Opportunity Volume Sold (MMBF) 2

 300 

 

Knutson -Vandenberg Funds (with Forest Products produced) 

 Funding (Dollars in thousands) $39,760 $16,000 $0 

 Volume Sold (MMBF) 372 140 0 

 

Timber Sales Pipeline Restoration Fund (Sale Preparation only) 

 Funding (Dollars in thousands) $3,143 $6,000 $3,900 

 

Purchaser Election 

 Funding (Dollars in thousands) $0 $15,000 $0 

 Volume Sold (MMBF) 0 100 0 

 

Total, Timber Sales Program 

 Funding (Dollars in thousands) $430,287 $420,803 $378,566 

 Volume Sold (MMBF) 2,499 2,700 2,475 

 Average unit cost ($/MBF) $172 $156 $153 

 Additional Opportunity Volume Sold (MMBF) 2

 1,025 

 Total Volume Sold (MMBF) 2,499 2,700 3,500 

 

Total, Timber Harvest (MMBF) 1

 1,960 2,100 2,300 

 

Road Construction/Reconstruction for Timber Sales and Land 

Stewardship Contracting (Dollars in thousands) 

 Forest Service Engineering Support for Forest Products $58,000 $60,400 $57,500 

 

Notes: 

1

 Includes both regular and salvage timber volume. 

2

 The Additional Opportunity is based on improvements in the housing market and lumber prices. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-28 

Budget Line Item Vegetation and Watershed Management 

Vegetation & Watershed Management Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $176,849 $177,437 $3,643 -$6,084 -$9,687 $165,309 -5% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $176,849 $177,437 $3,643 -$6,084 -$9,687 $165,309 -5% 

Full Time Equivalents (FTEs) 1,339 1,317 -79 1,238 

Enacted Funding by Activity 

Improve Forest Vegetation $40,947 $38,159 $757 -$1,263 -$3,300 $34,352 -9% 

Establish Forest Vegetation $38,684 $39,199 $798 -$1,333 -$2,466 $36,198 -6% 

Manage Rangeland Vegetation $20,193 $20,641 $489 -$819 $1,857 $22,167 9% 

Maintain and Improve Watershed 

Conditions $50,353 $52,034 $1,049 -$1,747 -$3,748 $47,587 -7% 

Manage Noxious Weeds and Invasive Plants $22,134 $22,895 $440 -$735 -$2,642 $19,958 -12% 

Manage Air Quality $4,538 $4,509 $111 -$187 $612 $5,046 14% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $165,309,000 for Vegetation and Watershed 

Management, a decrease in budget authority of $12,128,000 from FY 2008. The proposed FY 

2009 program of work will integrate several activities within this program area and others, as well 

as with external partners, to achieve healthy watersheds and ecological communities; and to 

provide an array of benefits for current and future generations including improved water quality 

and quantity, healthy forests and rangelands that provide a variety of products, a reduction of 

risks associated with wildfires; and greater resistance to establishment and spread of invasive 

species. 

Improve Forest Vegetation (-$3,807,000) - The request of $34,352,000 will fund an 

estimated 72,000 acres of timber stand improvement (TSI). An additional 62,900 acres 

will be accomplished through integration with other programs and through partnerships. 

The current need for TSI to meet long term forest health and desired condition objectives 

exceeds 2 million acres. The agency will continue to integrate accomplishment of high 

priority timber stand improvement needs with opportunities for fuel hazard reduction and 

community protection. 

The agency will also continue to accomplish program goals through stewardship 

contracts. Benefits include improvement of stand density, composition and structure to 

meet habitat needs; reduction of hazardous fuel levels; and improved future product 

quality. Timber stand improvement also generates a sustainable supply of biomass for 

bio-energy production, including personal use firewood, and, where the demand exists, 

material for commercial heating plants and electricity production. This material will also 

be available for sustainable production of bio-fuels as this technology becomes available. 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-29 

Revised February 25, 2008 

In FY 2007, the agency improved vegetation on over 60,000 acres. Actual TSI 

accomplishments were low in FY 2007 because units shifted priority and available funds, 

resulting in relatively high accomplishments in the reforestation activity. 

Establish Forest Vegetation (-$3,001,000) - The request of $36,198,000 will fund 

reforestation on approximately 63,900 acres. The agency will reforest an additional 

140,000 acres through partnership and integrated accomplishments. Currently, over 

1,400,000 acres of NFS lands need reforestation. This includes an additional 161,000 

acres needing reforestation, identified in FY 2007 due to widespread wildfires. Actual 

accomplishments can vary significantly, depending on the type of treatment necessary to 

meet restoration objectives and the cost of that treatment. For example, unit costs for 

seeding are significantly lower than growing and planting seedlings. The benefits of 

reforestation include soil stabilization and restoration of appropriate forest cover on 

impacted lands. These actions reduce the potential for severe erosion and flooding. 

Manage Rangeland Vegetation (+$1,526,000) - The request will fund rangeland 

vegetation improvement on approximately 1,800,000 acres, through a combination of 

core (100,000 acres) and integrated (1,700,000 acres) accomplishments. The request will 

also fund monitoring on approximately 4 million grazing allotment acres in support of 

completing grazing NEPA analyses on 455 allotments. The majority of rangeland 

vegetation improvement will occur through improved grazing management achieved by 

implementation of grazing NEPA decisions, and providing an estimated 95 percent of the 

unified rangeland improvement accomplishments. The request also provides 

approximately $1,750,000 for capture and care of excess wild horse and burro 

populations. 

Maintain and Improve Watershed 

Conditions (-$4,447,000) - The request will 

directly fund watershed improvement on 

approximately 12,500 acres. Close 

coordination with partners and integration 

within resource and engineering programs 

will net another 9,500 acres of integrated 

and partnership accomplishments, for a 

unified target of 22,000 acres of watershed 

improvement in FY 2009. 

In FY 2007, forests leveraged Federal funds 

to accomplish over 27,000 acres of soil and 

water improvements. 

The national forests were established, in part, to protect watersheds for public benefits 

including flood control and drinking water supplies. Currently about 55 percent of 

National Forest System watersheds are in good or improving condition. Work under this 

activity maintains and stabilizes watershed conditions following wildfires, protects soil 

and water quality, and improves watersheds in need, to meet condition class objectives. 

Manage Noxious Weeds and Invasive Plants (-$2,937,000) - The request will directly 

fund invasive plant treatment on approximately 86,200 acres of NFS land. The Forest 

Service will leverage this investment with approximately 62,500 acres of integrated and 

Trout Creek Restoration – Shasta 

Trinity NF 

Federal agencies, along with State 

agencies, local conservation, and youth 

groups, restored a 1.5 mile stretch of Trout 

Creek, enhancing Redband trout habitat, 

and restoring a degraded wetland meadow 

ecosystem. The project included 

construction of a new channel and new 

ponds along the old gully, and a new large 

backwater pond. 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-30 

partnership treatments, for an estimated unified accomplishment level of 

approximately149,000 acres. This reflects a decrease of about 42,000 core acres treated 

relative to FY 2007 accomplishment levels, and a total estimated decrease of 59,200 

acres of unified accomplishments. 

Data collected from Forest Service regions indicates that approximately 6-8 million acres 

of National Forest System lands are infested with invasive plants. The priority for the 

agency’s noxious weed and invasive plants program is prevention, early detection, 

eradication, and control of terrestrial noxious weeds. As the agency shifts focus toward 

increased treatment efficacy (including increased monitoring), on outcomes rather than 

outputs, treatment unit costs are increasing. Through increased emphasis on efficient 

treatments, the Forest Service expects to more effectively eradicate new infestations 

before they get a strong foothold, and to more effectively control targeted established 

infestations. 

Manage Air Quality (+$537,000) - The request will help sustain important Forest Service 

relationships with States, EPA and other Federal agencies to manage and protecting air 

quality; monitoring the effects of air pollution on aquatic, terrestrial, and visibility related 

resources; managing the air quality effects of our actions, including prescribed burning 

and oil and gas leasing; and weather monitoring to support fire and smoke management 

activities. The relationships and monitoring network stewarded by this program is vital 

to mission critical activities related to climate change and water quality management. 

Benefits include agency compliance with the Clean Air act, including review of State 

prepared Regional Haze Implementation plans; review of Prevention of Significant 

Deterioration permits; and monitoring of air quality effects related to 88 Class I 

wilderness areas. In addition, activity funds will maintain approximately 1,500 remote 

weather stations contributing to national fire danger ratings, and support Geographic Area 

Coordination Centers to provide weather data, products, and forecasts used in fire and 

smoke management. 

Program Performance 

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Acres of forest vegetation 

improved N/A 62,185 68,097 60,658 146,440 134,900 -11,540

Acres of forest vegetation 

established N/A 33,827 33,773 73,921 217,450 203,900 -13,550

Acres of rangeland 

vegetation improved 1,521,286 1,755,824 1,630,240 2,021,505 1,794,000 1,800,000 6,000

Acres of watershed 

improvement 13,510 16,934 12,200 27,297 25,500 22,000 -3,500

Acres of noxious weeds 

and invasive plants treated 120,040 79,069 115,700 128,223 191,575 148,775 -42,800

* Accomplishments through FY 2007 represent core program; starting in FY 2008, outputs represent unified 

accomplishments, including core, integrated, and partnership activities. 

Acres of forest vegetation improved and Acres of forest vegetation established. The agency 

improved fewer acres of forest vegetation than planned (-11 percent) and established more acres of 

forest vegetation than planned (+124 percent) due to shifts in priorities and available funds to 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-31 

Francis Marion – Sumter NF 

Restoration work performed in 2007 includes 

20 acres of wetland areas, 3 miles of 

entrenched stream channels, 43 acres of 

gullied lands, and 200 acres of native 

grassland. Project partners included the State 

of South Carolina, the Army Corps of 

Engineers, Clemson University, and the 

Native Plant Society. 

reforestation over improvement. 

Acres of watershed improvement – The agency exceeded this target by more than 200 percent 

across several Regions, primarily due to the ability to accomplish large, low-cost projects 

unexpectedly and successful leveraging of partnership funds. The agency is working to refine its 

metrics and reporting guidance through the PART process to more accurately reflect the scope 

and context of watershed improvement work. 

Acres of noxious weeds and invasive plants treated. – The agency surpassed this target by treating 

noxious weeds and invasive plants at 111 percent of its target. Several Regions benefited from 

favorable climatic conditions for treatment in tandem with relatively low treatment costs, 

efficiencies from cooperative treatment programs, and completed NEPA analysis that allowed the 

agency to expand treatment plans. 

Program Description

Program Overview 

The Vegetation and Watershed Management 

Program is the cornerstone for forest and 

rangeland restoration and enhancement 

activities on NFS lands. The program funds 

restoration-related management activities and 

accomplishes program objectives through 

integrated and partnership opportunities. 

Benefits include improved wildlife and fish 

habitat; improved range and forest stand 

conditions; improved water quality, quantity, 

and timing of stream flows; cleaner air; and 

effective, long-term carbon sequestration. The program is delivered through the following 

activities: 

Improve Forest Vegetation - Provides for release treatments through removal of 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 to maintain and improve soil quality. In addition, timber stand improvement 

supports energy production from biomass. 

 

Establish Forest Vegetation - Provides for maintaining appropriate forest cover on all 

forestlands. Also improves the quality and yield of the timber resource by accelerating the 

attainment of desired species composition. Activities include artificial regeneration, seeding, 

and natural regeneration. Seed collection provides for annual tree seedling production. Other 

key elements of this program include nursery operations to produce high quality tree 

seedlings; seed banking, and genetic resource improvement of seed and planting stock to 

enhance growth, yield, and long-term forest health. 

Manage Rangeland Vegetation - Provides for rangeland vegetation improvement, rangeland 

resource status and trend monitoring, and wild horse and burro management. Rangeland 

vegetation improvement is accomplished through revegetation, mechanical treatments, 

prescribed fire, pesticide or herbicide treatments, and structural improvements. Wild horse 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-32 

and burro management is achieved through collaborative planning, population and resource 

monitoring, and population management. 

Maintain and Improve Watershed Conditions - Provides for the protection, maintenance and 

restoration of water and soil resources in high priority watersheds; threatened and endangered 

species; special Federal or State protections or designations; collaborative restoration or 

conservation plans; and recent ecological degradation resulting from wildfire, hurricanes, 

floods, and other natural disasters. Typical improvements are designed to reduce soil erosion 

and surface runoff, prevent the loss of topsoil, ameliorate compacted soils, and reshape 

gullied lands. 

Manage Noxious Weeds and Invasive Plants - Guided by the USDA Forest Service National 

Strategy and Implementation Plan for Invasive Species Management, activities include 

prevention, detection, containment, and eradication of infestations across aquatic and 

terrestrial ecosystems. 

Managing Air Quality - Provides for the protection of sensitive areas from air pollution 

effects and mitigating effects of management activities. Activities include the operation of a 

national monitoring network for air quality which includes visibility, aerosol sampling, lake 

and stream chemistry, 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 of energy related industries. Weather 

forecasts are provided in support of fire suppression and smoke management activities. The 

program manages about 1,000 remote, surface-based weather observation stations nationally 

for development of national fire danger ratings. 

Allocation and Integration 

Allocation criteria combine support for essential operations with regional performance and needs. 

These criteria address restoration, protection, or maintenance of high-value or high-quality 

resources; improvement of watershed condition class; integration with internal or external 

partners to achieve mutual or multiple objectives; support from Federal, State, or local 

governments and resource advisory committees and/or watershed groups; and value of leveraged 

funding sources relative to attainment of effective and efficient project outcomes. 

Partnerships 

Using existing authorities, the Forest Service has entered into partnership agreements with several 

organizations (including American Forests, the National Arbor Day Foundation, and the National 

Garden Clubs) and businesses to increase the amount of national forest lands receiving 

reforestation treatments following catastrophic wildfires and other natural events. Through these 

partnerships, the Forest Service has planted over 5 million tree seedlings on approximately 

15,000 acres. 

In addition, the agency works with Federal, State, and non-governmental partners to maintain and 

improve watershed health. Partner funding and in-kind contributions often match agency program 

funds and may be as high as 5:1 for some projects. 

 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-33 

Budget Line Item Minerals and Geology Management 

Minerals & Geology Management Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $84,164 $84,143 $1,327 -$2,343 -$12,293 $70,835 -15% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $84,164 $84,143 $1,327 -$2,343 -$12,293 $70,835 -15% 

Full Time Equivalents (FTEs) 590 570 -119 451 

Enacted Funding by Activity 

Administer Mineral Operations $30,325 $31,815 $510 -$998 -$4,113 $27,214 -13% 

Process Mineral Applications $23,543 $24,198 $386 -$762 -$3,248 $20,574 -13% 

Manage Geologic Resources & Hazards $7,745 $8,703 $136 -$236 -$1,337 $7,266 -15% 

Manage Environmental Compliance $2,974 $3,610 $54 -$104 -$673 $2,887 -19% 

Manage Environmental Restoration $13,576 $9,696 $149 -$194 -$1,679 $7,972 -17% 

Mitigate Abandoned Mine Lands (AML) 

Safety Risk Features $6,001 $6,122 $92 -$49 -$1,242 $4,922 -20% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $70,835,000for Minerals and Geology Management, a 

decrease in budget authority of $13,308,000 from FY 2008. The program will emphasize 

environmental review of proposed operations, including processing the backlog of oil and gas 

lease applications. Other priorities include inspection and monitoring of ongoing mineral 

operations; providing professional expertise to ensure watershed health and public safety; and 

management of significant geologic resources. Specific priorities within each activity include: 

Administer Mineral Operations (-$4,601,000) - The request of $27,214,000 will fund the 

administration of an estimated 11,100 active mineral operations in FY 2009. The 

program will emphasize meeting minimum administration levels to ensure compliance 

with operating plan requirements, to ensure meeting specific environmental standards and 

protecting resources. 

Process Mineral Applications (-$3,624,000) - The request of $20,574,000 will fund 

processing an estimated 6,500 mineral applications in FY 2009. The actual number of 

applications received in FY 2009 may vary significantly due to market influences and 

variable demand for mineral resources from National Forest System lands. Processing 

mineral applications provides a valuable service to the public and ensures environmental 

standards and considerations are met. The energy component of the program will focus 

on increasing opportunities for development and supply of oil and gas, coal, and 

geothermal resources from Federal lands, in support of the Energy Policy Act (EPA) of 

2005. The implementation of EPA pilot offices will help the agency more efficiently 

process 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). 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-34 

Manage Geologic Resources and Hazards (-$1,437,000) - The request of $7,266,000 will 

fund the identification and management of an estimated 470 geologic hazards. 

Identifying and managing geologic hazards provides for the health and safety of the 

public by protecting the infrastructure, soil, and groundwater. The geologic component 

of this activity provides information on geologic and paleontologic conditions informing 

land management decisions and project design, evaluates resources such as ground water, 

and protects sites that have scientific or educational use. 

Manage Environmental Compliance (-$723,000) - The request of $2,887,000 will fund 

23 environmental compliance audits. These audits are an important tool to assure that 

employee and public health and safety are protected through agency compliance with 

environmental laws and regulations. This activity also provides funding for emergency 

response to illegal drug labs and hazardous material spills within, or affecting, National 

Forest System lands. 

Manage Environmental Restoration (-$1,724,000) - The request of $7,972,000 will fund 

the mitigation of approximately 10 percent of known hazardous material sites on NFS 

lands. The costs for each site vary widely, as does the total number of identified sites. 

Therefore, the funding request for FY 2009 – a decrease from 2008 – will support 

approximately the same level of accomplishment as in FY 2008. Cleanup of sites 

contaminated with hazardous materials is critical for the long-term protection of both 

surface and groundwater quality, as well as wildlife habitat, and public health and safety. 

The Environmental Compliance and Protection (ECAP) program provides for the cleanup 

of hazardous substances on NFS lands to improve and protect watershed conditions and 

human and ecological health. 

Abandoned Mine Land (AML) - Safety Risk Features Mitigated (-$1,200,000) - The 

request of $4,922,000 will fund the mitigation of an estimated 350 abandoned mine sites. 

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. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-35 

Program Performance 

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Number of mineral operations 

administered 13,712 15,152 9,280 11,718 11,955 11,095 -860 

Number of mineral applications 

processed* 8,017 11,632 7,561 10,604 6,700 6,490 -210 

Number of AML safety risk features 

mitigated to "no further action** N/A 346 539 403 506 350 -156 

Number of administrative units where 

audits were conducted N/A 20 34 N/A 34 23 -11 

Percentage of contaminated sites 

mitigated *** N/A N/A N/A N/A 10% 10% 0% 

Number of new applications for permits 

to drill (APDs) processed within 

prescribed timeframes 29 115 325 502 325 325 0 

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

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

accomplishments included on-going multi-year projects that would not be completed until future years. 

*** New activity starting in FY 2008. 

Fluctuations in accomplishments are driven by the market. As commodity prices rise, the number 

of applications and subsequent administration rises. Meeting that increased demand requires 

reducing other portions of the program in order to maintain a balance. In FY 2007, the number of 

mineral applications processed, mineral operations administered, and new applications for 

permits to drill increased proportionally to the variable fuels market. 

The number of AML Safety risk features mitigated to “no further action” consists of 

accomplishments of multi-year projects. FY 2007 actual accomplishment showed a slight 

increase over FY 2006 accomplishment with comparable budget. 

FY 2006 was a pilot year for the environmental compliance audit program followed by 

implementation in FY 2007. Outputs are established based on a 5-year maximum cycle for audit 

completion, or 20 percent of the appropriate facilities as defined by E.O. Executive Order 13423 - 

Strengthening Federal Environmental, Energy, and Transportation Management. The reporting 

mechanism to capture accomplishments was not in place by year end of FY 2007 and a waiver 

was granted with the expectation the reporting mechanism would be in place for FY 2008 

accomplishment reporting. 

Program Description

Program Overview 

The Minerals and Geology Management program is responsible for managing mineral and energy 

development activities, interpreting and protecting geologic resources, controlling pollution, and 

cleaning up abandoned mines and other contaminated sites on 193 million acres of NFS lands. 

The value of all energy and mineral production from NFS lands typically exceeds $2 billion per 

year. Over 5,000,000 acres of NFS lands are leased for oil, gas, coal, and phosphate. At any 

given time, the Forest Service administers approximately 90,000 mining claims, and manages 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-36 

approximately 8,000 mineral material sale contracts and permits, and more than 15,000 ongoing 

mineral and energy operations. In addition, the Forest Service works to mitigate potential threats 

to environment and human safety posed by thousands of abandoned mines and other 

contaminated sites located on NFS lands. NFS lands also contain geologic resources including 

caves and rare fossils, and are the largest single source of municipal water supply in the United 

States serving over 66 million people in 33 states. 

The Minerals and Geology Management program consists of the following activities: 

Process Mineral Applications - Provides for the review and approval of plans for proposed 

mineral activities including exploration and development of hardrock minerals under the 

authority of the 1872 Mining Law; coal, oil, and gas, and geothermal exploration and 

production under the Mineral Leasing Acts; and contracts for the extraction of mineral 

materials such as sand and gravel. 

Administer Mineral Operations - Provides for the inspection, oversight, and monitoring of 

approved mineral operations on NFS lands. Administration ensures compliance with 

approved plans and with State and Federal environmental laws and regulations, for the 

protection of public health and safety. 

Manage Geologic Resources and Hazards - Provides assessments of geologic settings and 

active geomorphic processes for land management planning, environmental protection and 

restoration, and cost effective management of roads, recreation sites and other infrastructure. 

Inventories and manages geologic resources such as caves and karst areas, paleontological 

resources, and groundwater. Under this activity, the program identifies, assesses, and 

manages potential risks to public health and safety from soil and water contamination and 

geologic hazards, such as landslides, debris flows, and karst collapse features. 

Mitigate Abandoned Mine Lands (AML) Safety Risk Features - Provides for the inventory, 

assessment, and mitigation of abandoned mine safety hazards and associated environmental 

damage. This work includes closing underground mine openings and vertical shafts; recontouring open pits, trenches, and associated roads; and removing or stabilizing abandoned 

buildings, equipment, and hazardous materials. Mitigation of the most severe hazards at 

publicly accessible abandoned mine sites helps ensure the protection of public health and 

safety and the protection of habitat and groundwater. 

Manage Environmental Compliance - This activity funds a national audit program which 

assesses Forest Service compliance with environmental statues and trains field personnel on 

compliance and pollution prevention. 

Manage Environmental Restoration - Environmental restoration provides for the inventory, 

assessment, and cleanup of abandoned or inactive mines, landfills, and administrative sites 

contaminated by hazardous substances or other pollutants. This restoration helps minimize or 

eliminate threats to human health and/or the environment. Cleanup projects are typically 

initiated under requirements of the Comprehensive Environmental Response, Compensation 

and Liability Act (CERCLA); Resource Conservation and Recovery Act (RCRA); or the 

Clean Water Act (CWA). 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-37 

Allocation and Integration 

Allocation criteria include projected workload in response to new and ongoing mineral 

exploration, development, production and reclamation activities; number of abandoned mines, the 

severity of existing hazards and the probability of human contact; projected need for inventory, 

interpretation, and protection of geologic resources; number of required environmental audits; 

and nationally prioritized environmental clean up projects. 

Partnerships 

The Forest Service works in partnership with the Bureau of Land Management (BLM) to manage 

the Federal minerals on NFS lands. The BLM, through the Secretary of the Interior, has 

management responsibilities for the Federal mineral estate, including Federal minerals that 

underlie NFS lands. The Forest Service is responsible for the management of surface resources 

on oil and gas projects proposed and operating on NFS lands. Of the total revenue collected from 

annual lease rentals, royalties on production, bonus bids for competitive leases, and mineral 

material sales, between 25 percent and 50 percent is returned to the State and county where 

production occurred. 

Emphasis for the Environmental Compliance and Protection (ECAP/AML) programs 

include cost recovery and efficient and effective use of partnerships to restore and 

remediate abandoned mine lands and disturbed ecosystems. Costs may be recovered 

when the potentially responsible party (PRP) is identified and the PRP provides resources 

to perform the restoration. ECAP/AML also receives transfer funds from the USDA 

Central Hazardous Materials Management Appropriation for use only on CERCLA and 

RCRA cleanup projects. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-38 

Budget Line Item Landownership Management 

Landownership Management Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $90,932 $91,299 $1,604 -$2,718 -$15,185 $75,000 -17% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $90,932 $91,299 $1,604 -$2,718 -$15,185 $75,000 -17% 

Full Time Equivalents (FTEs) 707 720 -175 545 

Enacted Funding by Activity 

Adjust Land Ownership $14,938 $14,470 $251 -$427 -$2,571 $11,723 -18% 

Protect Land Ownership Title $9,423 $8,351 $136 -$230 -$1,907 $6,349 -23% 

Locate Land Boundaries $25,953 $32,019 $577 -$971 -$4,635 $26,991 -14% 

Administer Land Use Authorizations $20,467 $21,041 $373 -$636 -$3,333 $17,446 -16% 

Process Land Use Proposals $20,151 $15,417 $267 -$453 -$2,741 $12,491 -18% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The President’s Budget proposes $75,000,000 for Land Ownership Management, a decrease in 

budget authority of $16,299,000 from FY 2008. The priority will be fulfilling critical boundary 

needs to support increased vegetative treatments on national forests and grasslands and meet the 

requirements of the Energy Policy Act of 2005. Specific priorities within each activity include: 

Adjust Landownership (-$2,747,000) - The request includes $11,723,000 for Adjust 

Landownership activities. Funding is requested to exchange, through acquisition or 

conveyance, approximately 17,000 acres of National Forest System (NFS) land. These 

adjustments help improve public access, conserve open space where its loss threatens the 

sustainability of the Nation’s forests and grasslands, and protect healthy forested lands and 

watersheds. In FY 2007, the Forest Service acquired or conveyed 27,002 acres. These and 

future land consolidations help reduce future management costs, respond to urban and 

community needs, reduce ownership fragmentation, and promote conservation. 

Protect Land Ownership Title (-$2,002,000) - The request includes $6,349,000 to Protect 

Land Ownership Title. Funding is requested to resolve approximately 250 critical title claims 

and encroachments, specifically those that involve litigation or are associated with 

management of Native American land and unauthorized uses. The agency will also identify 

and process critical changes in land classifications needed to protect natural resource areas. 

In FY 2007, the Forest Service resolved 351 title claims to standard. Resolution of these 

claims protects the interest of the United States and bona fide claimants, as well as the 

public’s land and resources. 

Locate Land Boundaries (-$5,028,000) - The request includes $26,991,000 to Locate Land 

Boundaries. Funding is requested to mark and maintain 2,630 miles of NFS property line. 

Within this amount, the agency will mark over 1,800 miles of critical boundary and corner 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-39 

maintenance to support fuels reduction and timber sale activities. Funds are also included to 

mark approximately 540 miles of property line to support full implementation of the 

settlement agreement for the Northwest Forest Plan. 

Encroachments and trespass on NFS lands continue to grow due to increasing development in 

the rural landscape and the rapidly expanding wildland-urban interface. In FY 2007, the 

agency marked or maintained to standard 2,606 miles of property lines. Marking and 

maintenance of property lines provide landownership protection, security, and title defense. 

Leaving property lines un-marked and un-maintained can result in expensive and protracted 

litigation and loss of public lands and public trust. To maximize cost efficiencies, the Forest 

Service will prioritize cooperative and joint land surveys with other agencies and challenge 

cost share agreements. 

Land Use Authorizations and Processing Proposals (-$6,521,000) - The request includes 

$29,937,000 for Land Use Authorizations and Proposals. Funding is requested to administer 

an estimated 9,000 (or 18 percent) special use authorizations to standard, with primary focus 

on those authorizations that address critical health and safety issues. The Forest Service will 

process approximately 3,000 new applications, focusing on those associated with statutory 

rights and energy related uses. High priority will be placed on meeting the requirements of 

the Energy Policy Act of 2005, particularly in the designation of utility rights-of-way 

corridors in 39 eastern states. 

Special use authorizations provide the authority for use of Federal lands for a wide variety of 

purposes. These include rights-of-way for roads, pipelines, communication sites, and electric 

transmission and distribution facilities. In FY 2007, the agency administered 14,797 land use 

authorizations to standard and processed 5,111 land use proposals and applications. 

Processing and authorizing these uses facilitate the development and transmission of 

affordable, reliable energy, support economic development, and promote the public health 

and safety of populations within, or in proximity to, national forests and grasslands 

throughout the country. 

Program Performance

 Change 

 

FY 

2005 

FY 

2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Acres of land adjustments to 

conserve the integrity of 

undeveloped lands and habitat 

quality* 353,770 14,719 12,030 27,002 39,044 16,805 -22,239

Miles of landownership boundary 

line marked/maintained to standard 2,365 2,334 2,385 2,606 3,142 2,630 -512

Number of land use authorizations 

administered to standard 6,740 12,708 12,170 14,797 9,323 9,000 -323

Number of land use proposals and 

applications processed 4,083 4,611 4,375 5,111 4,259 3,000 -1,259

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

conveyed" 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-40 

Acres of land adjustments to conserve the integrity of undeveloped lands and habitat quality – 

The agency accomplished 124 percent of its land adjustment target. In FY 2007, planned levels 

were exceeded due to several regions completing multiple complex cases which had been ongoing for 2 to 4 years, along with the accelerated completion of numerous Tripartite exchanges in 

the Eastern Region. 

Miles of landownership boundary line marked/maintained to standard – The agency surpassed its 

target to mark/maintain boundary line, accomplishing 109 percent of the target due to extensive 

boundary line maintenance activities to assist hurricane relief efforts in the Southern Region. 

Number of land use authorizations administered to standard – The agency surpassed this target, 

accomplishing 122 percent, attributable to a database transition effort. Many of the authorizations 

identified as accomplished took place in prior years but were not correctly coded. Ongoing 

improvements to the Special Uses and Infra databases will improve accuracy in accounting and 

consistency between targets and accomplishments. 

 

Number of land use proposals and applications processed – The agency surpassed this target, 

accomplishing 116 percent due to higher market demand than anticipated in FY 2007. 

Program Description

Program Overview 

The Landownership Management program secures and protects approximately 193 million acres 

of public lands and interests within the NFS in order to improve management efficiencies, 

provide protection of critical resources, protect ownership rights, and provide public access. 

Currently there are over 1 million property corners delineating 276,000 miles of NFS boundary 

line, of which 111,000 (40 percent) have been marked to Forest Service standards. The program 

administers approximately 50,000 land use authorizations annually, which utilize Federal lands 

for a wide variety of purposes, including rights-of-way for roads, pipelines, communication and 

navigation sites, and electric transmission and distribution facilities. 

The program is delivered through the following activities:

Adjust Land Ownership - Provides notification, analysis, valuation, and realty case processing 

services to public and private landowners and managers to improve land ownership patterns 

for more effective and efficient resource protection and use. Land ownership adjustment is 

carried out principally through exchanges, conveyances, and rights-of-way acquisitions. 

Protect Land Ownership Title - Provides title defense and resolution affecting landownership 

activities related to land title claims, trespass, encroachments, other unauthorized uses, land 

sales, and grants and selections, including work associated with title claim identification, 

inventory, and investigation. Also includes managing the land status record system which 

maintains the location and landownership interests and rights of the NFS. 

Locate Land Boundaries - Provides professional land surveying services, including property 

boundary surveys, locating and marking NFS property boundary lines, boundary and property 

corner maintenance and perpetuation, legal land description preparation and review, land title 

research, expert witness testimony, and geospatial and geodetic services, in order to protect 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-41 

Revised February 25, 2008 

the title, land ownership, and use of the public estate. The chart below highlights the land 

boundaries by region. 

TOTAL MILES OF PROPERTY LINE THRU 2006 = 276,061,

MARKED THRU 2006 = 111,202 (40%), MARKED TO STANDARD = 30,728 (11%),

MARKED & LOST = 80,474 (29%), MILES UNMARKED = 164,836 (60%)

27,276

8,634

6,911

27,930

36,517

17,173

12,003

14,780 13,613

11,236

14,581

8,237

5,228

4,297

5,340

1,588

11,599 18,304

16,019

505

1,883

2,229

2,315

822

1,488

2,412

3,141

0

5000

10000

15000

20000

25000

30000

35000

40000

45000

50000

R-01 R-02 R-03 R-04 R-05 R-06 R-08 R-09 R-10

MILES

UNMARKED MARKED & LOST MARKED

27,725

44,086

18,053 20,960

26,700

25,627

 41,234 41,653

30,023

Administer Land Uses Authorizations - Provides inspection, oversight, and monitoring of 

existing authorizations to ensure compliance with the terms and conditions of the 

authorization while ensuring the health and safety of the public; protection of the 

environment; compliance with Federal, State, and local laws and regulations; and, protection 

of the interests of the United States. 

Process Land Use Proposals - Provides responses, analyses, and decisions to requests to 

occupy and use NFS lands. Many of these land uses include communications sites, 

hydropower facilities, oil and gas pipelines, electric transmission lines, and other energy 

related uses to facilitate the delivery of reliable energy resources and communication links. 

Allocation and Integration 

The Forest Service allocates funds using a process that combines support for essential operations 

and national priorities with a competitive process comparing regional performance and needs. 

These performance and needs include: marking and maintaining boundary lines, acquiring or 

conveying NFS land; processing and administering special use permits; and protecting ownership 

rights. 

Integration with other resource programs occurs where land and resource management activities 

require marking and maintenance or NFS property lines or protection of forest resources. In 

such cases, boundary management resources are allocated directly to those areas of increasing 

demand, such as for fuels reduction activities, timber sales, and other land and resource 

management activities, particularly in the protection of specially designated management areas 

such as Wilderness. If critical land and resource management needs are not met, the 

consequences can result in trespasses, encroachments, title claims, expensive and protracted 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-42 

litigation, and loss of public lands, as well as damage or destruction of special areas, plants, and 

fish and wildlife. 

Partnerships 

The agency cooperates with many other Federal agencies - such as the Bureau of Land 

Management, the National Park Service, and the Department of Defense - State, interagency 

working groups, local, and tribal governments; non-Federal exchange parties; and private 

landowners. The program identifies and secures cost-share and partnership opportunities in order 

to eliminate or reduce redundant efforts, such as leveraging funds to secure high priority resource 

lands for public access and resource protection. 
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-43 

Budget Line Item Law Enforcement Operations 

Law Enforcement Operations Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $115,000 $131,910 $2,175 -$2,630 -$16,455 $115,000 -12% 

Emergency & Supplemental Appropriations * $12,000 $0 $0 $0 $0 

Total Enacted Budget Authority $127,000 $131,910 $2,175 -$2,630 -$16,455 $115,000 -12% 

Full Time Equivalents (FTEs) 717 786 -47 739 

Enacted Funding by Activity 

Enforce Laws & Regulations $69,934 $80,231 $1,323 -$1,600 -$10,022 $69,932 -12% 

Investigate Crime $45,066 $51,679 $852 -$1,030 -$6,433 $45,068 -12% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Emergency & Supplemental funding came from P.L. 110-28. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $115,000,000 for Law Enforcement and Investigations 

(LEI), a decrease in budget authority of $16,910,000 from FY 2008. Agency Law Enforcement 

would provide at approximately the same levels as FY 2007, and personnel will continue to 

prioritize response to emergency and life-threatening situations. There are 739 FTEs funded in 

the 2009. In FY 2009, the LEI the program will continue to place priority on addressing drug 

trafficking organizations along the southwest and northern borders. The program will continue to 

emphasize crime prevention through cooperative law enforcement agreements with the National 

Sheriff’s Association and continue to support of the National Fire Plan by prioritizing arson 

investigations and assign all necessary resources. 

Program Performance

 Change 

 

FY 

2005 

FY 

2006 *FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Outcome Measure Actual Actual Plan Actual Plan Plan FY 2008 

Percent of cases referred for 

adjudication N/A N/A 4.3% 4.3% 4.5% 4.3% -0.2%

 Percent of documented law 

enforcement incidents per 10,000 

forest visits N/A N/A 6.3% 6.3% 6.8% 6.3% -0.5%

* Definition changed in FY 2007 from prior years.
FY 2009 Budget Justification USDA Forest Service 

National Forest System 8-44 

Program Description

Program Overview 

The Forest Service Law Enforcement and Investigations program provides a safe environment for 

the public and agency employees and protects the nation’s natural resources on approximately 

193 million acres of NFS lands in 44 states. Increasing population growth in the wildland–urban 

interface, increasing popularity of NFS lands for motorized recreational use, and illegal 

occupancy of NFS lands is causing significant impacts to NFS lands and resources. These trends 

increase risks to public and employee health and safety. The program continually works with 

agency leadership to better integrate law enforcement and national resource management. 

This program performs the following two activities: 

 

Enforce Laws & Regulations – includes 

uniformed patrol presence and response to 

public and employee safety incidents and 

violations of law and regulations. Common 

incidents on National Forests include theft, 

assault, alcohol and drug use, unauthorized 

motor vehicle use, illegal occupancy, 

trespassing, and resource protection patrols. 

Investigate Crime – covers criminal and civil 

investigations of both internal and external 

cases such as felony arson, drug possession, 

smuggling and manufacturing, thefts, and 

assaults. 

Allocation and Integration 

Funding allocations support core operations and address priority needs, based on competitive 

regional criteria including number of visitors and acreage on National Forest System Lands. In 

addition to public safety, priority is placed on responding to activity by drug trafficking 

organizations. 

Partnerships 

LEI staff cooperate with Federal, State, and local law enforcement agencies and other Forest 

Service programs in support of this mission by building strong relationships with sheriff’s offices, 

State police agencies, and Federal agencies such as the Drug Enforcement Agency; Federal 

Bureau of Investigation; Bureau of Alcohol, Tobacco, and Firearms; the Office of the United 

States Attorney, the Federal Court System; and other Federal land management agencies. 

Drug Eradication on the 

Sequoia NF 

The Sequoia National Forest successfully 

eradicated 263,118 pounds of marijuana 

and made 22 associated arrests during FY 

2007. The Forest Service Law 

Enforcement organization successfully 

partnered with Kern and Tulare counties 

and other Federal law enforcement 

agencies to combat drug cartel activities on 

the Forest. 
FY 2009 Budget Justification USDA Forest Service

National Forest System 8-45 

Revised February 25, 2008 

Budget Line Item Valles Caldera National Preserve 

Valles Caldera Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $3,500 $3,691 $0 $0 -$3,691 $0 -100% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $3,500 $3,691 $0 $0 -$3,691 $0 -100% 

Full Time Equivalents (FTEs) 0 0 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget does not include funds for the Valles Caldera National Preserve 

(the Preserve) in this budget line item. This is a decrease of $3,691,000 from FY 2008. Receipts 

deposited in the Valles Caldera Trust fund will allow the Preserve to continue a consistent level 

of management to protect ecosystem health as the Preserve moves toward complete selfsufficiency, as envisioned in the authorization. (See Permanent Appropriation - Valles Caldera 

Fund.) The Preserve will be able to compete for funds within the National Forest System 

appropriation based on their projected program of work. 

Program Description

Program Overview 

The Valles Caldera Preservation Act of July 25, 2000 (Public Law 106-248) provided for the 

acquisition of the Baca Ranch, located in the Jemez Mountains of New Mexico. The Act 

designated the Baca Ranch as the Valles Caldera National Preserve and provides for the 

management of the 88,900-acre tract as a unit of the National Forest System. The Preserve was 

established to protect various natural resources within its boundaries, and for providing multipleuse and sustained-yield of renewable resources. In addition, the Act requires the tract to continue 

to be managed as an operating ranch. 

 

The Act requires management of the Preserve by The 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. 

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 supports recreation 

opportunities such as hiking and hunting by permit, as well as protecting and interpreting cultural 

and historic resources. 
(This page inserted to format for duplex printing) 
9 

Wildland Fire Management 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-1

Appropriation Wildland Fire Management 

Wildland Fire Management Increase or Decrease Program 

 Appropriation FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $1,823,603 $1,943,477 $33,918 -$14,469 $13,666 $1,976,592 1% 

Emergency & Supplemental Appropriations * $370,000 $537,000 $0 

Total Enacted Budget Authority $2,193,603 $2,480,477 $33,918 -$14,469 $13,666 $1,976,592 1% 

Full Time Equivalents (FTEs) 11,421 11,504 -618 10,886 -5% 

Enacted Budget Authority by EBLI 

Preparedness $665,382 $665,819 $15,929 -$5,352 -$88,021 $588,375 -13% 

Fire Operations - Suppression $741,477 $845,620 $10,832 $0 $137,495 $993,947 16% 

Hazardous Fuels $301,258 $310,086 $6,279 -$8,392 -$10,973 $297,000 -4% 

Fire Rehabilitation $6,189 $10,828 $0 $0 -$10,828 $0 -100% 

Fire Research & Development $22,789 $23,519 $398 -$233 -$1,684 $22,000 -7% 

Joint Fire Sciences $7,882 $7,875 $0 $0 $125 $8,000 2% 

Forest Health Management - Federal Lands $14,779 $14,030 $410 -$423 $236 $14,252 2% 

Forest Health Management - Coop Lands $9,853 $9,858 $70 -$58 $144 $10,014 1% 

State Fire Assistance $46,221 $47,967 $0 -$11 -$12,952 $35,004 -27% 

Volunteer Fire Assistance $7,773 $7,875 $0 $0 $125 $8,000 2% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment 

Compensation payments, and Departmental Working Capital Fund charges. 

* Emergency & Supplemental funding in FY 2007 from P.L.110-28 provided $370 million for fire suppression. In FY 2008, funding came from P.L. 

110-161, which provided $222 million for fire suppression, as well as P.L. 110-116. The latter provided $329 million, including $110 million for fire 

suppression, $80 million for hazardous fuels reduction (including $30 million for State fire assistance grants), $25 million for rehabilitation and 

restoration, and $100 million for repayment of funds transferred from other accounts, and $14 million transferred to Capital Improvement & 

Maintenance and reflected in that account.. 

The FY 2009 President’s Budget proposes $1,976,592,000 for the Wildland Fire Management program, 

an increase in budget authority of $33,115 from FY 2008. This appropriation funds programs necessary to 

protect life, property, and natural resources on 193 million acres of National Forest System land and an 

additional 20 million acres of adjacent State and private lands protected through fee or reciprocal 

protection agreements. The Wildland Fire Management program is designed to recognize the importance 

of integrating fire as a critical natural process in land and resource management plans and activities, 

managing wildfire across landownership boundaries, and applying the best available science. Programs 

are managed under the: 

• President’s Healthy Forests Initiative 

• Federal Wildland Fire Management Policy adopted by the Secretaries of the Interior and 

Agriculture in January 2001, and the June 2003 Implementation Strategy 

• 10-Year Comprehensive Strategy: A Collaborative Approach for Reducing Wildland Fire Risks to 

Communities and the Environment, and the December 2006 Implementation Plan

• National Fire Plan 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-2

Budget Line Item Preparedness 

Preparedness Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $665,382 $665,819 $15,929 -$5,352 -$88,021 $588,375 -13% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $665,382 $665,819 $15,929 -$5,352 -$88,021 $588,375 -13% 

Full Time Equivalents (FTEs) 5,532 5,578 -446 10,480 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $588,375,000 for the Preparedness program, a decrease in 

budget authority of $77,444,000 from FY 2008. The request will fund readiness resources, as displayed 

below, to efficiently respond to unplanned wildland fires. The program’s objective is to protect life, 

property, and natural resources in an efficient, cost-effective manner on 193 million acres of National 

Forest System land and 20 million acres of adjacent State and private lands protected through fee or 

reciprocal protection agreements. Firefighter and public safety are the primary considerations for all 

operations. 

Resource Summary, FY 2007 – FY 2009

Resource 

FY07 

Projected 

FY 07 

Actual 

FY08 

Planned 

FY09 

Estimated 

Firefighters (FFTR) – Total is inclusive of categories 

below ** 10,010 10,650 10,480 10,480 

 Type I Interagency Hot Shot Crews (twenty person) 

67Crews 

1,340 

FFTR 

67Crews 

1,340 

FFTR 

67Crews 

1,340 

FFTR 

67Crews 

1,340 

FFTR 

 Other Firefighters 7,990 8,560 8,420 8,420 

 Smoke Jumpers 280 320 320 320 

 Prevention Technicians 400 430 400 400 

Engines 950 980 950 950 

Heavy Equipment – Dozers, Tractor Plow Units, Tenders 220 220 210 210 

Helicopters 

 Type 1 35 19 & [10] 18 & [ 17] [Up to 35] 

 Type 2 34 42 34 [ 34 ] 

 Type 3 57 53 53 [ 53 ] 

Airtankers 

 Large Airtankers 

[Up to 

20] [ 19] [ Up to 

20] 

[ Up to 

20] 

 Single Engine Airtanker 2 2 2 [ 2 ] 

** Difference in projected & actual due to updated accounting & the active fire season 

[ ] Indicates contract costs funded by the Suppression Appropriation 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-3

The requested decrease in funds reflects reduced costs due to efficiency efforts that the agency has been 

implementing including: use of Predictive Services to analyze fire season potential to strategically deploy 

firefighting resources; use of risk-informed, performance-based fire suppression strategies; development 

and deployment of web based decision support tools at the incident and landscape scale (e.g., Wildland 

Fire Decision Support System (WFDSS) prototyped in FY 

2007 and Fire Program Analysis (FPA) scheduled for release 

in FY 2008); development and integration of information 

technology applications (Resource Order and Status System 

(ROSS), I-SUITE, etc.); centralization of aviation assets; use 

of exclusive-use aviation contracts; and realignment of 

leadership and support positions where appropriate through 

the agency’s Transformation process. 

In FY 2009, the Forest Service will enhance efficiency by 

continuing implementation of the Fire Program Analysis system. The system will provide interagency 

investment analysis of initial response and prevention organizations, hazardous fuels treatments, and large 

fire suppression. The system will display trade-offs between program components relative to 

performance metrics and be utilized in fire planning, budget formulation and execution. In FY 2009, the 

Forest Service will provide $1,450,000 for operation and maintenance of the system that is to be deployed 

in late FY 2008. The full cost of system development and operation and maintenance through FY 2010 is 

projected at $43,880,000 and equally shared with the Department of Interior. Updates and additional 

information are available at: http://www.fpa.nifc.gov/

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Percent change from the 10-year 

average for the number of wildfires 

controlled during initial attack* N/A -0.4% +/-0.5% -1% +/-0.5% +/-0.5% 0%

Percent change from the 10-year 

average for the number of humancaused wildfires* N/A 4.5% -2.0% -0.9% -2.0% -1.0% 1%

* New activity beginning in FY 2007. 

Through the Wildland Fire Management PART assessment the agency identified key program outcome 

and efficiency measures that focus on reducing fire risk. These measures track the agency’s success in 

reducing the number of human caused wildfires and maintaining its ability to effectively control wildfires. 

In FY 2007, the agency reduced the number of human caused wildfires by 0.9 percent from the 10-year 

average and maintained an initial attack success rate within 1 percent of the 10-year average. 

Additionally, in FY 2008 the agency’s Wildland Fire Management PART Improvement Plan includes the 

development of a national strategy that defines program components relative to incentives, accountability 

and cost containment on the basis of risk. The strategy will be implemented in FY 2009. 

Successful Pre-Attack Planning 

The pre-positioning of interagency 

resources in southern California on 

November 18, 2007 led to more than 60 

initial attack successes. Seventeen fire 

starts on National Forest System lands 

burned only three acres.
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-4

Improving Effectiveness Through 

 Decision Support Tools 

Development of analytic support tools will improve 

incident and programmatic decision-making:

• Wildland Fire Decision Support System –

components currently include: 

o FSPro – Models fire behavior 

o RAVAR – Models values at risk 

• Fire Program Analysis – Will analyze investment 

alternatives and performance trade-offs

Program Description

Program Overview 

This program protects NFS lands from damage by wildfires commensurate with threats to life, values at 

risk, and land management objectives. It provides the basic fire organization capability to prevent forest 

fires and ensure prompt and effective initial response operations to wildfires and wildland fire use events. 

Key components of mission delivery are readiness capability (expressed via resources and Fire Fighter 

Production Capability) and program leadership necessary to ensure safe and effective operations. Mission 

delivery also includes planning, prevention, detection, information and education, training, equipment, 

advancement of technology, program analysis and reviews, and other preparedness activities. 

Allocation and Integration 

The program allocates funds to Regions based 

on predictable fire activity and anticipated 

workloads. The placement, and associated 

funding allocations, of specific resources 

considers logistical and mobilization 

efficiencies. The agency’s overall readiness 

capability and resource geographical placements 

have been established through various fire 

planning and budgeting analyses. However, as 

the fire season develops and ongoing risk is 

assessed, resources are repositioned to ensure 

timely and effective responses. 

Predictive services and other resources are used to analyze potential seasonal fire activity to guide 

strategic placement of resources. The Forest Service, in collaboration with the Department of the 

Interior, is updating the fire planning and budget analysis process through the Fire Program Analysis 

system, delivery date for the system is June, 2008. The system will provide interagency investment 

analysis for program components and display trade-offs relative to performance metrics; it will be utilized 

in fire planning and budget formulation and execution. 

Partnerships 

The program has numerous partnerships with other Federal agencies and States which include protection 

agreements, collaborative research efforts, and development of an interagency fire planning and 

budgeting analysis system (Fire Program Analysis). The agency also collaborates with cooperators in 

training, planning, equipment use contracts, and interagency fire coordination centers. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-5

Budget Line Item Suppression 

Fire Operations - Suppression Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $741,477 $845,620 $10,832 $0 $137,495 $993,947 16% 

Emergency & Supplemental Appropriations * $370,000 $432,000 $0 

Total Enacted Budget Authority $1,111,477 $1,277,620 $10,832 $0 $137,495 $993,947 11% 

Full Time Equivalents (FTEs) 3,489 3,509 -19 3,490 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Emergency & Supplemental funding in FY 2007 comes from P.L. 110-28; in FY 2008, funding comes from P.L. 110-116 and P.L. 110-161 and 

includes funds for repayment of $100 million to accounts that transferred funds for fire suppression. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $993,947,000 for the Suppression program, an increase in 

budget authority of $148,327,000 from FY 2008. The request represents the most recent 10-year average 

suppression cost adjusted for inflation and includes indirect costs as required by Congress. Funds will 

provide resources to suppress wildland fires on or threatening National Forest System lands and other 

Federal and non-Federal lands under fire protection agreements. The funding for the Wildland Fire 

Suppression program will enable the agency to respond to unplanned wildland fire incidents which 

threaten lives, property, and resources on more than 210 million acres of agency protected lands. 

The Budget includes fully funding for the 10-

year average annual suppression cost, adjusted 

for inflation. Fires in recent years have become 

larger and more difficult to control due to a 

variety of factors, including climate change, 

persistent drought and hazardous fuels 

conditions, and the increased magnitude and 

complexity of the Wildland Urban Interface 

(WUI). As application of Federal firefighting 

resources on both Federal and non-Federal land 

to address these fires has grown, these costs 

escalate, and so to does the 10 year average of 

annual fire suppression expenditures. 

In 2009, the agency will clearly define how 

managers should maintain safety and balance 

agency goals regarding cost containment, 

natural resource protection, and private property 

protection. To enhance accountability, the 

agency will to set objectives to evaluate whether 

progress toward those goals is being achieved in 

an effective and efficient manner. The agency 

Management Controls and Strategies 

In response to escalating fire suppression costs, the 

Forest Service implemented management controls and 

operational strategies to increase program efficiency. 

• Inter-Deputy Group – Provides national level 

executive guidance and oversight 

• Chief’s Principle Representative – Provides on-site 

executive support and ensures alignment with 

guidance 

• Line Officer Qualifications – Ensures decision 

makers have adequate qualifications, skills and 

abilities 

• Performance – Uses Stratified Cost Index to 

analyze cost relative to similar incidents 

• Contracting – Reduces aviation costs through 

“Exclusive Use” contracts 

• Appropriate Management Response – Emphasizes 

risk informed incident management

• Severity Limitations – Regional limitations are 

established for expenditures based on fire season 

projections
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-6

also recognizes the significance of WUI on suppression costs and will aggressively pursue continuation of 

cost mitigation measures including: focusing hazardous fuel treatments in the WUI; utilization of riskinformed performance based suppression strategies; clarifying roles and responsibilities in the WUI; 

utilization of appropriate cost share agreements; and developing incident decision support tools (e.g. 

Wildland Fire Decision Support System -WFDSS). 

In FY 2009, the Forest Service will deploy the full WFDSS web-based system. This system will assist 

managers in making decisions regarding strategies and tactics on wildland fires and communicating the 

rationale behind those decisions. In FY 2007, the agency prototyped fire behavior (FSPro), values-at-risk 

(RAVAR), and stratified cost index (SCI) components of WFDSS to provide real-time decision support to 

managers. Use of these tools contributed to significantly lower than anticipated suppression expenditures 

in FY 2007, based on historical management and spending patterns. FSPro, a spatial model that 

calculates and maps the probability of fire spread in the absence of suppression, assists managers in 

prioritizing and matching appropriate strategies, tactics and firefighting resources based on probabilities 

of fire spread. RAVAR, a model that spatially displays the primary resource values to be protected. 

RAVAR, when integrated with FSPro assists managers in the prioritization of firefighting resources based 

on values to be protected by risk categories. 

In FY 2009, the Forest Service will implement a science based strategy to include non-catastrophic acres 

burned in wildfire incidents as acres treated based on a scientific analysis of projected benefits of acres 

burned trending toward desired conditions. In FY 2009, the agency will also establish an integrated 

system to procure and allocate firefighting assets that improves systems for determining the appropriate 

type and quantity of firefighting assets needed for the fire season or for effectively and efficiently 

procuring them. 

Further, the Forest Service will develop a coordinated system for line officers to request and release assets 

during an incident based on the need, cost and use of firefighting assets. The agency will examine options 

for Regional allocations or spending limitations for initial response operations as a means to require cost 

accountability. These initiatives, combined with the continued implementation of cost control measures 

initiated in 2007, are focused on leadership, operations, aviation and general management practices and 

will provide: 

 Clear, concise understanding of Appropriate Management Response (AMR) or choosing the best 

suppression strategy for the resources and values at risk (Policy Transition to Risk-Informed 

Management). 

 Expanded knowledge, skills and abilities for Agency Administrators responsible for managing 

large or nationally significant fires (Line Officer Certification). 

 Increased oversight from the Regional and Washington offices on incidents of national 

significance (Chief Principle Representative). 

 Increased support for the agency administrator in the development and implementation of 

decisions (Fire Suppression Decision Support). 

 Severity funds are used within limits (Severity Authorization Limitations). 

 Establishment of a definite budget for each incident. 

 Critical, high demand resources such as Type 1 firefighting crews, helicopters and heavy air 

tankers are managed in a more centralized fashion to achieve more flexibility (National Shared 

Resources). 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-7

 Revision of the current aviation strategy ensuring the safe, financially prudent use of firefighting 

aircraft (Aviation Resource Cost Management). 

 Clarified roles in the Wildland Urban Interface (WUI) and accurate apportionment of suppression 

costs between Federal, State, and local entities. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Percent of fires not contained in initial 

attack that exceed a Stratified Cost 

Index (SCI) N/A 26.5% 21% 22% 20% 20% 0%

Three-year percent of fires not 

contained in initial attack that exceed a 

Stratified Cost Index (SCI)* N/A N/A 25.3% 23.9% 23.1% 21.3% -1.8%

**New activity beginning in FY 2007. 

Through the Wildland Fire Management PART assessment the agency identified key program outcome 

and efficiency measures that focus on reducing fire risk. To help analyze suppression costs the agency 

began using an efficiency measure that compares actual to expected suppression costs via a stratified cost 

index (SCI). SCI is developed geographically based on the preceding 10 years’ large fire data, including 

cost, and indicates fires with actual costs more than one standard deviation higher or lower than expected 

costs. In real time, the SCI provides a comparison of a fire’s expenditures to incidents with similar 

characteristics, increasing cost awareness and potentially influencing expenditures. By analyzing fires 

identified by the SCI, the agency identifies management approaches which may enhance efficiency 

without compromising safety. SCI will also be used to monitor long term suppression expenditure trends. 

The number of incidents exceeding the SCI declined from 26.5 percent in FY 2006 to 22 percent in FY 

2007. 

In early FY 2008, the agency developed an outline of a Fire and Aviation Management Strategic Plan to 

define program components relative to incentives, accountability, and cost containment on the basis of 

risk for the PART Improvement Plan; in May 2008, the agency will complete a draft of the strategy. 

When final and implemented in FY 2009, the Strategic Plan will address how the agency will maintain 

safety while balancing goals of cost containment, natural resource protection, and private property 

protection. The strategy will also establish objectives to evaluate if these goals are being achieved in an 

effective and efficient manner. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-8

Program Description

This program provides resources to efficiently suppress wildland fires on or threatening National Forest 

System (NFS) lands and other Federal and non-Federal lands under fire protection agreements. The 

program funds firefighter salaries, equipment operation, aviation assets, incident support costs, 

administrative costs, and other costs associated with fire suppression. The agency provides suppression 

resources to the Department of the Interior on a reciprocal non-reimbursement basis. In addition, the 

Suppression Program funds the following activities: 

Wildland Fire Use - Management of unplanned wildland fires on NFS lands to accomplish 

resource management goals. 

Burned Area Emergency Response – Post-fire actions on NFS lands to prevent or minimize 

unacceptable erosion and loss of soil productivity, deterioration of water quality and downstream 

damage, changes to ecosystem function, establishment of non-native invasive species, and 

degradation of cultural and natural resources. 

Severity – Increases readiness and response capability when predicted or actual burning 

conditions exceed those planned and when ignitions are deemed imminent; also used for early or 

extended fire seasons. 

Non-fire Emergency Management - Supports the Department of Homeland Security, Federal 

Emergency Management Agency through Forest Service participation in the National Response 

Plan and other activities authorized by the Stafford Act 42 U.S.C. 5121, as amended. 

The program funds agency firefighter salaries, equipment operation, and other wildland firefighting 

resources during suppression activities and periods of severe fire danger. 

Management controls have been implemented to ensure that Line Officers meet specific criteria for 

incidents based on anticipated suppression cost of the incident. In FY 2009 the agency will examine 

options for Regional allocations or spending limitations for initial response operations. Regional 

limitations are established for Severity based on seasonal predictions. 

The agency maintains strong partnerships with other Federal agencies, States, local government entities, 

and contractors are essential to ensure protection of life, property, and resources through cost effective 

and efficient operations. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-9

Budget Line Item Fire Operations - Other 

Fire Operations - Other Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $416,744 $432,038 $7,157 -$9,117 -$35,808 $394,270 -8% 

Emergency & Supplemental Appropriations * $0 $80,000 $0 

Total Enacted Budget Authority $416,744 $512,038 $7,157 -$9,117 -$35,808 $394,270 -7% 

Full Time Equivalents (FTEs) 2,400 2,417 2,264 

Enacted Budget Authority by EBLI 

Hazardous Fuels $301,258 $310,086 $6,279 -$8,392 -$10,973 $297,000 -4% 

Fire Rehabilitation $6,189 $10,828 $0 $0 -$10,828 $0 -100% 

Fire Research & Development $22,789 $23,519 $398 -$233 -$1,684 $22,000 -7% 

Joint Fire Sciences $7,882 $7,875 $0 $0 $125 $8,000 2% 

Forest Health Management - Federal Lands $14,779 $14,030 $410 -$423 $236 $14,252 2% 

Forest Health Management - Coop Lands $9,853 $9,858 $70 -$58 $144 $10,014 1% 

State Fire Assistance $46,221 $47,967 $0 -$11 -$12,952 $35,004 -27% 

Volunteer Fire Assistance $7,773 $7,875 $0 $0 $125 $8,000 2% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Emergency & Supplemental funding in FY 2008 comes from P.L. 110-116, including $30 million designated for work on State and private lands 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-10

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Hazardous Fuels 

Hazardous Fuels Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $301,258 $310,086 $6,279 -$8,392 -$10,973 $297,000 -4% 

Emergency & Supplemental Appropriations $0 $80,000 $0 

Total Enacted Budget Authority $301,258 $390,086 $6,279 -$8,392 -$10,973 $297,000 -3% 

Full Time Equivalents (FTEs) 2,125 2,149 -126 2,023 

Enacted Funding by Activity 

Non Wildland-Urban Hazardous Fuel Projects $74,816 $77,573 $1,351 -$2,722 -$12,301 $63,901 -16% 

Wildland-Urban Hazardous Fuels Projects $226,442 $232,513 $4,928 -$5,670 $1,328 $233,099 1% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Emergency & Supplemental funding in FY 2008 comes from P.L. 110-116, including $30 million designated for work on State and private lands 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $297,000,000 for the Hazardous Fuels program, a decrease in 

budget authority of $13,086,000 from FY 2008. The Forest Service will reduce fuels on approximately 

2,442,500 acres of national forest and adjacent lands, focusing on treating acres in the wildland-urban 

interface (WUI) and meeting the goals of the Healthy Forest Restoration Act and Healthy Forests 

Initiative. 

The strategy of focusing on the WUI will help deter large, destructive, and costly wildfires, thereby 

protecting both communities and natural resources, reducing safety risks to firefighters and the public, 

and reducing wildfire suppression costs. In FY 2009, all Hazardous Fuels funds will be allocated using 

the Ecosystem Management Decision Support Model 

which ranks and prioritizes allocations based on factors 

such as fire risk, efficiency of treatments and effectiveness 

of treatments. Moreover, at least 40 percent of hazardous 

fuels funds allocated to regions will be used to improve 

the condition class on at least 250,000 acres by the end of 

FY 2009. The request includes funding for a pilot project 

with partners in the Southwest Ecological Restoration 

Institutes to develop and test prioritizing restoration-based 

fuel reduction treatments that use the best available 

science and a collaborative process. (P.L. 108-317) 

Since 2005, the Hazardous Fuels program has provided funding for a successful biomass grants program 

administered by the Technology Marketing Unit at the Forest Products Lab. Grants are targeted toward 

small businesses to help build capacity for biomass utilization in support of fuel reduction and restoration. 

To date the agency has awarded a total of $14.7 million dollars to 64 grant recipients in 19 states. In FY 

2009, the grant program will be funded at $5,000,000. 

Fuels Treatment Success in Montana 

The Bitterroot National Forest treated 214 

acres and State Fire Assistance grants 

assisted 5 landowners in treating 102 acres 

The treatments were significant in containing 

the Tin Cup fire and saving 100 homes 

outside Darby, Montana. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-11

Program Performance

Program performance is measured by the percentage of total National Forest System land base for which 

fire risk is reduced through movement to a better condition class, an ecological status measure for fireprone ecosystems. Changes in stand density and forest fuels lead to changes in condition class. New 

measures identified through the Program Assessment Rating Tool (PART) will track condition class 

improvement and thereby enhance estimates of wildfire risk reduction. In FY 2008, the Forest Service 

and the Department of the Interior will develop a science-based methodology to evaluate wildfire acres 

burned with desired outcomes as treated acres. 

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Total acres treated in 

Wildland Urban Interface 

(WUI) and non-WUI and 

also acres treated for other 

vegetation management 

activities that achieved fire 

objectives as a secondary 

benefit. 2,721,872 2,547,586 2,900,000 3,026,707 2,950,000 2,442,500 -507,500

Percentage of total National 

Forest System land base for 

which fire risk is reduced 

though movement to a 

better condition class. N/A 1.1% 2.0% 1.9% 3.0% 4.0% 1%

Acres moved to a better 

condition class per million 

dollars gross investment. N/A 1,934 2,550 1,809 2,700 2,835 135

Number of acres treated to 

restore fire-adapted 

ecosystems which are 

moved toward desired 

conditions N/A 991,075 1,160,000 1,350,169 1,180,000 1,200,000 20,000

Percent of acres treated to 

restore fire-adapted 

ecosystems which are 

moved toward desired 

conditions N/A 39% 40% 72% 40% 40% 0%

Number of acres treated to 

restore fire-adapted 

ecosystems which are 

maintained in desired 

conditions. N/A 830,081 1,015,000 378,710 1,121,000 1,200,000 79,000

Percent of acres treated to 

restore fire-adapted 

ecosystems which are 

maintained in desired 

conditions. N/A 33% 35% 13% 38% 40% 2%

Percent of treated acres 

identified in Community 

Wildfire Protection Plans or 

equivalent plans. N/A 17.0% 22.5% 24.7% 28.0% 33.5% 5.5%
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-12

Program Description

Program Overview 

The Hazardous Fuels reduction program, as called for in the President’s Healthy Forests Initiative (HFI), 

focuses on restoring fire-adapted ecosystems and reducing undesired effects of large, destructive wildfires 

by reducing the volume of hazardous fuels on forests, woodlands, shrublands, and grasslands. The fuels 

treatment program focuses on reducing the risk of wildland fire and long-term damage to resources and 

property. The program priorities are in wildland-urban interface areas and in fire-adapted ecosystems that 

present the greatest opportunity for restoration and protection. Hazardous fuels reduction treatments have 

dramatically altered problem fire behavior and enabled wildland firefighters to more safely and costeffectively suppress wildfires. Much of the success of wildland firefighting operations can often be 

attributed to an active hazardous fuels reduction program. 

The LANDFIRE system continues to be a priority project for the Hazardous Fuels program. This fiveyear, multi-partner project is producing the only consistent and comprehensive national vegetation and 

fuel maps covering all ownerships in the United States. It is in its fourth year of development and 

continues to make good progress with anticipated completion of the continental US in FY 2008. A 

contract will be awarded to continue the development process for Alaska and Hawaii. LANDFIRE 

products help land managers prioritize areas for hazardous fuel reduction and ecological restoration, and 

are routinely used to support wildland fire suppression decisions. Specifically, they support the 

Hazardous Fuels Prioritization Allocation System, Fire Program Analysis, Wildland Fire Decision 

Support System, and the State and Private Forestry Redesign analysis tool. It will also feed directly into 

the Southern States Wildfire Risk Assessment. The project has an approved Operations and Maintenance 

Plan, and is on time and on budget. 

Allocation and Integration 

Hazardous Fuels allocation uses the Ecosystem Management Decision Support (EMDS) model. This 

model allows national, regional, and forest level managers to geospatially map fire potential, risk 

assessment, and other priorities. National priorities include reducing wildfire risk in areas of high 

potential for wildland fire events in designated wildland-urban interface or Fire Regime Condition Class 2 

and 3 locales, opportunities to address other forest restoration needs, and cost-effective uses of funds. 

Program managers work extensively with other vegetative treatment programs (forest products, wildlife, 

and vegetation and watershed management) to integrate work to most efficiently and effectively meet 

agency goals. Integration with these programs results in significant benefits in both the reduction of 

hazardous fuels and restoration of fire-adapted ecosystems. 

Partnerships 

In addition to the integrated efforts within the Forest Service, the hazardous fuels reduction program 

works with outside partners to address the wildland fire threats on other Federal, State, and private lands. 

The agency makes efficient use of available authorities to conduct fuel treatments on adjacent non-federal 

lands, partner with local communities in the development of Community Wildfire Protection Plans, 

coordinate fuel treatment programs with Department of the Interior bureaus, and conduct treatments on 

National Forest System lands with non-governmental organizations. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-13

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Rehabilitation and Restoration 

Fire Rehabilitation Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $6,189 $10,828 $0 $0 -$10,828 $0 -100% 

Emergency & Supplemental Appropriations $0 $25,000 $0 

Total Enacted Budget Authority $6,189 $35,828 $0 $0 -$10,828 $0 -30% 

Full Time Equivalents (FTEs) 27 23 -23 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Emergency & Supplemental funding in FY 2008 comes from P.L. 110-116 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes no funding for the Fire Rehabilitation program under the 

National Fire Plan, a decrease in budget authority of $10,828,000 from FY 2008. In FY 2009, 

rehabilitation work resulting from wildfires will be funded through other programs and will be prioritized 

along with other programs and restoration needs. 

Program Performance

 Change 

 

FY 

2005 

FY 

2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Rehabilitation projects completed 137 N/A 20 986 200 0 -200

In FY 2007, the Forest Service completed 986 post fire rehabilitation projects. This includes 

accomplishment of approximately 1,300 acres of reforestation, 1,700 acres of invasive species control, 

over 7,000 acres of hazardous fuel reduction, and numerous improvement and restoration projects. 

 

Program Description

The Rehabilitation program restores NFS forest and rangelands impacted by wildfire, addressing postemergency rehabilitation needs on lands unlikely to recover naturally from wildland fire damage. 

Projects focus on restoring watershed function, including protection of soil, water resources, biological 

communities, prevention of invasive species, and building capacity to have native plant materials 

available for fire rehabilitation in the future. Rehabilitation projects consist of planning, implementing, 

and monitoring for up to three years, and include activities such as reforestation; watershed restoration; 

treatment of invasive species; terrestrial and aquatic habitat restoration; stabilization of roads, drainage 

systems, and trails; and rehabilitation of heritage resource sites, developed recreation facilities, range 

improvements and other impacted facilities. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-14

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Fire Research and Development 

Fire Research & Development Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $22,789 $23,519 $398 -$233 -$1,684 $22,000 -7% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $22,789 $23,519 $398 -$233 -$1,684 $22,000 -7% 

Full Time Equivalents (FTEs) 132 132 0 132 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $22,000,000 for the Fire Research and Development program 

under the National Fire Plan, a decrease in budget authority of $1,519,000 from FY 2008. Funds will 

advance the development of new knowledge and products in support of the National Fire Plan. 

Investments in FY 2009 will enhance and expand information for managers as they manage large fire 

incidents, plan and carry out activities to mitigate fire threats, enhance ecosystems, and work with 

communities. Researchers will evaluate the performance of the Fire Spread Probability system (FSPro) 

and the impacts of the various components of the Wildland Fire Decision Support System on decisionmaking and on the cost-effectiveness of fire management. On-going, broadly based collaboration with 

scientists from other Federal agencies and universities is a key factor in successful delivery of this 

program. 

In FY 2009, FS R&D will implement or test several new 

products for improved prediction of plume rise and smoke 

dispersion and for quantifying fire emissions. The R&D 

Fire program began work in FY 2007 to make new 

interactive tools for real-time fire-weather and smoke 

transport predictions available for the north central and 

northeastern U.S. States. These tools are available through 

the Eastern Area Modeling Center (EAMC) and the 

Interagency Eastern Area Coordination Center web site. 

Users can access 24-48 hour predictions of fire weather, fire 

behavior, and smoke transport throughout the Midwest and 

Northeast. 

Past Performance

FY 2007 funds also furthered development of the Wildland Fire Decision Support System. Use of this 

system was required, starting in 2007, on Forest Service fires exceeding projected costs of $10 million 

and suggested for those expected to exceed $5 million. This system applies fire spread technology to 

social, economic, and ecological values and assets at risk. System products include maps and tables that 

illustrate and quantify probabilities associated with fire spread and natural and cultural resources likely to 

Weather, Fire, and Smoke 

Fire weather and smoke modeling centers 

created internet-based tools for real-time 

fire-weather and smoke transport 

predictions in FY 2007. Fire and air 

quality managers use these tools to 

anticipate effects of atmospheric 

conditions on fire behavior and impacts of 

smoke from prescribed and wildland fires 

on air quality. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-15

be impacted by a fire. This information was used by decision makers to develop or adjust strategies for 

managing complex wildland fires. 

Program Description

Program Overview 

The Wildland Fire Research and Development (Fire R&D) program conducts research to support 

management of fire-affected ecosystems, to sustain forest health, and to reduce the risk of catastrophic 

wildland fire in the context of changing social and physical environments. Fire R&D knowledge and 

products support the four key areas of the National Fire Plan (NFP) and the goals of the Healthy Forest 

Initiative (HFI) and Healthy Forests Restoration Act (HFRA). The Fire R&D program is managed under 

a strategic plan that outlines five portfolio areas: core fire science, ecological and environmental fire 

science, social fire science, integrated fire and fuels management research, and science application. These 

portfolios are designed to focus activities on supporting the most important fire management needs over 

the next 10 years. 

New knowledge and technology improve on-the-ground 

operations by: 1) providing better risk assessments to support 

fire season planning and appropriate management response; 2) 

evaluating effects of fuel treatments restoration activities, and 

post fire emergency treatments; 3) making up-to-date research 

information more readily accessible to planners and policy 

makers; and 4) providing new information and tools integrating 

social and economic considerations into fire and fuel 

management planning. NFP R&D is leveraged with other 

research funding and the Joint Fire Science Program to provide 

efficient and effective R&D to address current and future needs. 

Allocation and Partnerships 

A Wildland Fire Strategic Program Area (SPA) team and Portfolio teams evaluate and recommend 

allocations of National Fire Plan R&D funds annually. In FY 2009, allocations will adhere to 

recommendations from a Wildland Fire R&D external peer review completed in FY 2007. 

Partnerships with users and other research organizations are a fundamental component of FS Fire 

research. These include other Federal agencies, such as the Department of the Interior, and the National 

Air and Space Administration, national forests; colleges and universities, non-governmental 

organizations, State and local governments, industry partners, and international organizations. 

Decision-making Tools 

The Fire Spread Probability (FSPro) 

and Rapid Assessment of Values at 

Risk (RAVAR) tools are key 

components of the Wildland Fire 

Decision Support System, piloted in 

FY 2007. FSPro is used on all major 

fire events to assess potential patterns 

of fire spread relative to values at risk 

and support decision-making. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-16

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Joint Fire Science Program 

Joint Fire Sciences Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $7,882 $7,875 $0 $0 $125 $8,000 2% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $7,882 $7,875 $0 $0 $125 $8,000 2% 

Full Time Equivalents (FTEs) 0 0 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $8,000,000 for the Joint Fire Sciences Program under the 

National Fire Plan, an increase in budget authority of $125,000 from FY 2008. The increase will enable 

the program to fund an additional priority project through the competitive process. FY 2009 priorities 

will be determined by the Governing Board in FY 2008, in response to priorities identified by Congress, 

users, and the research community. Areas under consideration include recommendations from user 

roundtables on smoke and air quality and on risks associated with wildland fire. 

Program Performance

FY 2007 funds supported research addressing six 

areas ranging from fire in the wildland-urban 

interface to post-fire re-vegetation of arid lands and 

the social, economic and aesthetic tradeoffs as 

communities consider the risks and benefits of fire. 

Results from these and other projects were 

synthesized for managers in four new periodic 

publications: Fire Science Digest summarizes the 

state of knowledge on current issues such as fireclimate interactions; Fire Science Brief summarizes 

completed research projects; Manager's Viewpoint is written by managers for managers on completed 

JFSP research projects; and First Look is designed to increase awareness of new research as well as 

announce new research findings. 

In FY 2007, the Program also began work on focused lines of research such as biomass associated with 

fuels hazard reduction, smoke and air quality, and fire risk characterization. These topics were selected 

based on broad input from fire experts including senior fire program managers, and will be the basis for 

new projects funded in FY 2008. Continued investments will support these focused lines of research and 

facilitate inquiries into new areas identified by the fire management community. 

Working with Users to Define Priorities 

JFSP identified research priorities through a 

series of roundtables on biomass removal, smoke 

management, and air quality. Recommendations 

from nearly 80 natural resource practitioners and 

researchers ultimately led to funding four 

biomass removal proposals in 2007; smoke and 

air quality proposals will be solicited in 2008. 
FY 2009 Budget Justification USDA Forest Service

Wildland Fire Management 9-17 

Program Overview 

The Joint Fire Science Program (JFSP) is an interagency research and development partnership between 

the Departments of the Interior and Agriculture. JFSP contributes to sound decision-making and project 

implementation through credible research tailored to the needs of fire and fuel managers. Research 

projects complement and build on other Federal research programs, such as those carried out by the 

Forest Service Research Stations and the U.S. Geological Survey, and under the National Fire Plan. 

Synthesis of research findings and targeted delivery to managers are essential components of the 

Program. Land managers regularly use results from JFSP projects to plan and implement fuels 

treatments, support fire management decisions, restore lands affected by fire, and meet regulatory 

requirements. More information can be found at http://www.firescience.gov/.

JFSP develops science-based knowledge and tools to support Federal, tribal, State, and local agencies and 

their partners in the following areas: 

• Fuel inventory and mapping 

• Fuel treatment planning, scheduling, and risk 

assessment 

• Fire effects and fire behavior 

• Monitoring and evaluation 

• Restoration of fire-adapted ecosystems 

• Post-fire stabilization and rehabilitation 

• Remote sensing 

Allocation and Partnerships 

This program supports research and development that can be accomplished in relatively short-term (< 3 

years) efforts, in response to manager needs. The program operates by awarding funds to scientists 

employed by Federal, university and private organizations using competitive solicitations, based on 

priorities determined by an interagency governing board of researchers and fire and land managers from 

the Department of the Interior and Forest Service. 

JFSP collaborates with other governmental and non-governmental entities, as well more than 90 colleges 

and universities. In all, JFSP has engaged nearly 200 organizations in its research. 

Fuels Treatment for Ponderosa Pine 

The JFSP developed a comprehensive guide on 

fuels treatment practices for ponderosa pine in the 

Black Hills, Colorado Front Range, and 

Southwest. The guide describes treatments, the 

circumstances under which they can be applied, 

their effects, and how treatments can be used to

achieve desired resource objectives. 
FY 2009 Budget Justification USDA Forest Service

Wildland Fire Management 9-18 

Revised February 25, 2008 

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Forest Health Management – Federal Lands 

Forest Health Management Increase or Decrease Program 

 Federal Lands FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $14,779 $14,030 $410 -$423 $236 $14,252 2% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $14,779 $14,030 $410 -$423 $236 $14,252 2% 

Full Time Equivalents (FTEs) 98 94 -1 93 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $14,252,000 for the Forest Health Management – Federal 

Lands program under the National Fire Plan, an increase in budget authority of $222,000 from FY 2008. 

Funds will be used to conduct forest insect and disease surveys, provide technical assistance; and to 

conduct forest insect and disease prevention, suppression, and restoration projects on Federal lands 

specifically those at risk to wildland fire or those recently burned. Funding is provided to highest priority 

activities that can demonstrate performance in a transparent manner. 

The request includes funding to focus treatments primarily to prevent and suppress bark beetles in priority 

fire-prone areas on National Forest System lands, other Federal lands, and tribal lands in western and 

southern States. The program will continue to protect critical forest ecosystems from invasive species 

such as the white pine blister rust, sudden oak death, and Port-Orford cedar root disease. The request 

includes funding to provide survey and technical assistance, which will provide information to Federal 

land managers on where pests are currently expected to cause damage and potential mitigation actions. 

The request continues funding for the Western Threat Assessment Center to provide information on how 

multiple threats interact with pests, especially the effects of climate change. (Funding to continue similar 

activities at the Eastern Threat Assessment Center is included in the request for the Forest Health 

Management-Federal Lands program within the State and Private Forestry appropriation.) 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Federal acres treated under NFPInvasive species N/A 1,588 0 1,602 0 9,792 9,792

Federal acres treated under NFP-Native 

pests N/A 39,668 20,455 21,146 19,259 23,806 4,547

In FY 2007, the Forest Service treated native species on 21,146 acres and invasive species on 1,602 acres. 

Priority treatments for native species focused on western bark beetles in highest priority large-scale 

watersheds. Although treatments were not planned for invasive species, some funding was allocated to
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-19

treat 1,600 acres for white pine blister rust on Federal lands to protect investments in genetically rust 

resistant white pine plantations. 

Program Description

Program Overview 

The Forest Health Management (FHM) Federal Lands program, funded through the Wildland Fire 

Management appropriation, is specifically for implementation of the National Fire Plan. The program 

monitors, assesses, and mitigates forest health conditions on National Forest System (NFS) lands at high 

risk to wildland fires, including communities in the wildland-urban interface, and in previously burned 

areas. Funds are allocated to field units to conduct pest surveys; provide technical assistance; and to 

conduct prevention, suppression, and restoration projects. These investments provide for detection, 

evaluation, prevention, and suppression of forest insects and diseases on forest and rangelands. 

Identifying priority treatment acres reduces the potential for new outbreaks. Treatments protect priority 

acres from damaging insects and disease, reduce the risks of mortality and from wildland fire, protect 

highly valued sites, and prevent future outbreaks by increasing the resilience of treated areas. 

Allocation and Integration 

Allocations are based upon level of risk (as defined in 

the National Invasive Disease Risk Map (NIDRM)), 

the goals of the Healthy Forest Initiative and Healthy 

Forests Restoration Act, the probability of successful 

treatment, and capability to conduct necessary 

environmental compliance. Risk from mortality (at 

least 25 percent mortality in the next 15 years) is 

highest for mountain pine beetle, red oak decline, and 

southern pine beetle. Prevention and suppression 

programs for major pests such as the western bark 

beetle are directly related to the significance of these pests, areas at risk, and the availability of costeffective treatment technologies. The agency is working to more closely align identified risk with 

allocation. 

The spatial placement and sequencing of treatments on NFS lands are planned and coordinated with other 

Forest Service vegetation management program areas, such as hazardous fuels reduction and forest 

management, to optimize on-the-ground accomplishments to improve overall health of forest lands across 

the landscape. 

Partnerships 

This program funds the detection, evaluation and suppression of forest insect and disease pests on NFS 

lands. Where proposed treatment locations are adjacent to non-Federal lands or lands managed by the 

Department of Interior and Department of Defense, treatment scheduling is coordinated to optimize 

improvements to forest health across landownership boundaries. 

Bark Beetle Prevention & Suppression 

In 2007, bark beetle prevention and suppression 

treatments were implemented on nearly 17,000 

acres of National Forest System and other 

Federal lands across the West to help prevent 

future infestations, improve forest heath, and 

reduce the threat of wildland fires, primarily in 

the wildland-urban interface. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-20

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Forest Health Management – Cooperative Lands 

Forest Health Management Increase or Decrease Program 

 Cooperative Lands FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $9,853 $9,858 $70 -$58 $144 $10,014 1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $9,853 $9,858 $70 -$58 $144 $10,014 1% 

Full Time Equivalents (FTEs) 15 16 16 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $10,014,000 for the Forest Health Management – Cooperative 

Lands program under the National Fire Plan, an increase in budget authority of $156,000 from FY 2008. 

Funds are used to conduct forest insect and disease surveys, to provide technical assistance; and to 

conduct forest insect and disease prevention, suppression, and restoration projects on Federal lands 

specifically those at risk to wildland fire or those recently burned. Funding is provided to highest priority 

activities that can demonstrate performance in a transparent manner. 

The request includes funding to prevent and suppress bark beetles in priority fire-prone areas on National 

Forest System lands, other Federal lands, and tribal lands in western and southern States. The program 

will continue to protect critical forest ecosystems from invasive species such as the white pine blister rust, 

sudden oak death, and Port-Orford cedar root disease. The request also includes funding to provide 

survey and technical assistance, which will provide information to Federal land managers on where pests 

are currently expected to cause damage and potential mitigation actions. Funds also support the Western 

Threat Assessment Center providing information on how multiple threats interact with pests, especially 

the effects of climate change. (Funding to continue similar activities at the Eastern Threat Assessment 

Center is included in the request for the Federal Lands Forest Health Management program within the 

State and Private Forestry appropriation.) 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Acres treated on cooperative lands 

under NFP-Invasives N/A 192,850 150,174 158,234 130,953 96,147 -34,806

Acres treated on cooperative lands 

under NFP-Native pests N/A 8,441 6,745 12,456 11,798 33,893 22,095

In FY 2007, the Forest Service treated native species on 12,456 acres and invasive species on 158,243 

acres. Priority treatments for native species focused on western bark beetles in highest priority large-scale 

watersheds. Priority treatments for invasive species focused on invasive plants.
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-21

Program Description

Program Overview 

The Forest Health Management – Cooperative 

Lands program, funded through the Wildland Fire 

Management appropriation, is specifically for 

implementation of the National Fire Plan. The 

program provides technical and financial assistance 

to States and territories to monitor, assess, and 

mitigate forest health conditions on non-Federal 

lands at high risk to wildland fires, including 

communities in the wildland-urban interface, and in 

previously burned areas. Funds are allocated to field 

units to conduct pest surveys; provide technical 

assistance; and to conduct prevention, suppression, and restoration projects. These investments provide 

for detection, evaluation, prevention, and suppression of forest insects, diseases, and invasive plants on 

forest and rangelands. 

Identifying and treating priority acres protects from damaging insects and disease; reduces the risks of 

mortality and wildland fire; protects highly valued sites; and prevents future outbreaks by increasing the 

resilience of treated areas and leading to healthy forests across the landscape. 

Allocation and Integration 

Allocations are based upon level of risk (as defined in the National Invasive Disease Risk Map 

(NIDRM)), the goals of the Healthy Forest Initiative and Healthy Forests Restoration Act, the probability 

of successful treatment, and capability to conduct necessary environmental compliance. Risk from 

mortality (at least 25 percent mortality in the next 15 years) is highest for mountain pine beetle, red oak 

decline, and southern pine beetle. Prevention and suppression programs for major pests such as the 

western bark beetle are directly related to the significance of these pests, areas at risk, and the availability 

of cost-effective treatment technologies. The agency is working to more closely align identified risk with 

allocation. Invasive Plants are not part of NIDRM by definition, but from other sources there is a large 

risk of invasive plants and the funding is commensurate with the risk. 

The Forest Service is also working with several States to develop risk maps suitable for forest health 

specialists and resource managers to use as a landowner education tool and for assistance in selection of 

insect and disease project locations. The actual placement for treatments are decided based upon local 

level priorities including high-value stands, wildland-urban interface areas, municipal water supply areas, 

recreational sites, and administrative sites, and are coordinated with other Forest Service treatments. 

Partnerships 

When proposed treatment locations are adjacent to national forest system lands or other Federal lands, 

treatment scheduling is coordinated to optimize improvements to forest health across landownership 

boundaries. The cost of suppression and prevention projects is shared with States and other non-Federal 

partners on a 1:1 basis. 

Integrated Forest Health Near San Bernardino 

National Forest 

The Forest Service is conducting western pine 

beetle prevention efforts in partnership with the 

San Bernardino National Forest Association and 

the California Department of Forestry and Fire 

Protection, helping small property owners thin 

trees and create healthier, beetle and fire-safe 

forest landscapes around homes in the San 

Bernardino County mountains.
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-22

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item State Fire Assistance 

State Fire Assistance Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $46,221 $47,967 $0 -$11 -$12,952 $35,004 -27% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $46,221 $47,967 $0 -$11 -$12,952 $35,004 -27% 

Full Time Equivalents (FTEs) 3 3 -3 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $35,004,000 for the State Fire Assistance program under the 

National Fire Plan, a decrease in budget authority of $12,963,000 from FY 2008. Funding will provide 

matching financial assistance to approximately 5,575 communities, compared to approximately 6,765 

communities to be assisted in FY 2008. State Fire Assistance funds are used by the States to meet State 

and local government wildfire responsibilities and to support fire fighting capacity within each State, 

through a variety of programs. Robust initial attack capability is vital to addressing the risks and 

environmental impacts of unwanted wildfires. Funding is provided to highest priority activities that can 

demonstrate performance in a transparent manner. The agency will focus FY 2009 funds on areas 

covered by Community Wildfire Protection Plans or other equivalent collaboratively developed hazard 

mitigation plans, in order to focus on highest priorities. 

Program Performance 

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Communities at risk from wildfire 

assisted-NFP 11,413 7,150 6,765 29,064 6,765 5,575 -1,190

State Fire Assistance funds supported a wide variety of projects such as hazardous fuels reduction, 

capacity building, and fire prevention activities. Projects are planned, completed, and entered into the 

data base by the States and are therefore not under the direct control of the Forest Service. Based on 

shifting priorities and fluctuations in fire danger, these numbers may vary significantly from year to year. 

Actual accomplishment figures will vary greatly from year to year depending on the types of projects 

States choose to implement in a given year. For example, if a large number of States fund high cost 

hazardous fuels reduction projects in targeted communities, the total number of communities assisted will 

be relatively low. On the other hand, if a majority of states spread funds across a large number of 

communities for fire prevention activities, as occurred in 2007, the total number of communities assisted 

increases significantly. The Forest Service estimates projected accomplishments; therefore, FY 2007 

accomplishments are not an indicator of long-term sustainable capacity. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-23

In FY 2007, State Fire Assistance funds from both the S&PF and WFM appropriations were used to 

complete approximately 215,000 acres of hazardous fuel reduction and mitigation projects. Each year, 

these funds are allocated through a competitive grant process which seeks to place funding in areas of 

highest risk and greatest need in order to meet national priorities, reduce suppression costs, and reduce 

environmental impacts. 

Program Description

Program Overview 

The State Fire Assistance program provides matching financial assistance through partnership agreements 

to State Foresters for all fire management activities including training, planning, hazardous fuel 

treatments, purchase, and maintenance of equipment. This National Fire Plan program emphasizes fire 

planning and hazardous fuel mitigation near communities at risk of catastrophic wildfire. Funding helps 

Federal, State, and local agencies deliver a uniform and coordinated suppression response to wildfire. 

Support enables State and local fire protection organizations to be effective first responders during initial 

attack on wildland fires, significantly decreasing overall suppression costs. 

Consultation and negotiation with the State foresters achieved agreement about the use of “Communities 

Assisted” as the best measure for State Fire Assistance, given the variety of programs needs and uses. 

The Forest Service is now also tracking the number of Communities At Risk identified by the State 

Foresters as being at “reduced risk.“ 

Allocations and Partnerships 

Funding is distributed to the State Foresters to address critical preparedness needs and hazard mitigation 

in the wildland urban interface near communities at risk. A percentage of funds are distributed to the 

States consistent with the State and Private Forestry State Fire Assistance program. Remaining funds are 

allocated on a competitive basis to States for planning and implementation of hazard mitigation projects. 

Funds are allocated based on the vegetative condition 

class and communities at risk within three geographic 

regions of the country so that the western states receive 60 

percent of total funds, the southern states receive 25 

percent, and the northeastern states receive 15 percent. 

Additional requirements apply within these regional 

allocations: 35 percent of the funds received by western 

states are for preparedness and 65 percent for hazard 

mitigation, while not less than 50 percent of funds 

received by the southern and northeastern states are used for preparedness. Funds are distributed in the 

form of grants to the States, and are allocated by the States to best address their needs, within funding 

guidelines. 

 

This program complements the State Fire Assistance program funded through the State and Private 

Forestry appropriation, significantly expanding benefits to the State Foresters. These funds directly 

support implementation of the National Fire Plan. 

Reducing Fire Risk in Communities 

In 2007, a total of 4,762 communities had 

approved Community Wildfire Protection 

Plans. Additionally, 3,814 Communities at 

Risk reported a risk reduction in 2007. The 

agency supported treating 215,000 acres of 

hazardous fuels. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-24

Budget Line Item Fire Operations – Other 

Expanded Budget Line Item Volunteer Fire Assistance 

Volunteer Fire Assistance Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $7,773 $7,875 $0 $0 $125 $8,000 2% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $7,773 $7,875 $0 $0 $125 $8,000 2% 

Full Time Equivalents (FTEs) 0 0 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $8,000,000 for the Volunteer Fire Assistance program under 

the National Fire Plan, an increase in budget authority of $125,000 from FY 2008. This amount will 

provide matching financial assistance to about 5,600 communities. These funds are used to build and 

maintain fire suppression capacity in rural communities of less than 10,000 people. This program is 

managed by States through a competitive grant process which seeks to place funding in areas of highest 

risk and greatest need. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Volunteer fire departments assistedNFP 5,377 4,058 5,650 5,789 5,600 5,600 0

In FY 2007, Volunteer Fire Assistance funds from both the S&PF and WFM appropriations Forest 

assisted nearly 5,800 communities served by rural fire departments, many of which are located near NFS 

lands within the wildland-urban interface. 

Program Description

Program Overview 

This program is delivered by the State Foresters and supports local fire suppression efforts by providing 

grants for equipment, training programs, and technical assistance in organizing fire departments. The 

program targets volunteer fire departments that protect communities of less than 10,000 inhabitants from 

wildland fire. Volunteer fire departments protect an estimated 43 percent of the population in the United 

States. These fire departments provide initial attack on many rural wildland fires throughout the Nation. 
FY 2009 Budget Justification USDA Forest Service 

Wildland Fire Management 9-25

Grants are matched dollar-for-dollar by the recipients to 

leverage the value of Federal investment. Program funding 

helps Federal, State, and local agencies deliver a uniform 

and coordinated suppression response to wildfire by 

training, equipping, and organizing volunteer fire 

departments. 

Allocation and Partnerships 

Funds are allocated on the basis of risk from catastrophic 

fires to communities in the wildland urban interface, the 

number of acres to be protected, and the number of volunteer fire departments serving qualifying 

communities. Each Forest Service Region, the Northeastern Area, and the International Institute of 

Tropical Forestry receive a fixed percent which it allocates to States and Territories. 

The program supports implementation of the National Fire Plan and complements the Volunteer Fire 

Assistance program funded through the State and Private Forestry appropriation, further supporting and 

the fire suppression needs of small communities. 

Support of CALFIRE 

The Forest Service delivered over 

$97,000 in grant funds to CALFIRE, to

provide equipment and training for the 

rural/volunteer fire departments in the 

southern California counties of San 

Bernardino, San Diego, and Riverside.
(This page inserted to format for duplex printing) 
10 

Capital Improvement 

& Maintenance 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 10-1

Appropriation Capital Improvement and Maintenance 

Capital Improvement & Maintenance Increase or Decrease Program 

 Appropriation FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $436,400 $474,768 $6,114 -$9,601 -$65,493 $405,788 -14% 

Emergency & Supplemental Appropriations * $0 $14,000 $0 

Total Enacted Budget Authority $436,400 $488,768 $6,114 -$9,601 -$65,493 $405,788 

Full Time Equivalents (FTEs) 2,504 2,386 -282 2,104 

Enacted Budget Authority by BLI 

Facilities $130,140 $121,755 $1,369 -$2,312 -$1,164 $119,647 -1% 

Roads $223,798 $227,924 $3,664 -$5,062 $473 $227,000 0% 

Trails $73,362 $76,365 $1,023 -$2,227 -$25,120 $50,041 -33% 

Deferred Maintenance $9,100 $8,958 $58 $0 $84 $9,100 1% 

Legacy Roads & Trails $0 $39,766 $0 $0 -$39,766 $0 -100% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Emergency & Supplemental funding from P.L. 110-116 

The Budget includes funding for the Forest Service’s Capital Improvement and Maintenance program to 

provide infrastructure that supports public, administrative, and recreation uses with minimal impact to 

ecosystem stability and conditions. The Budget includes incentives to optimize utilization and reduce 

costs, sets priorities for addressing deferred maintenance, and reflects the Forest Service’s continued use 

of authorities that permit the agency to apply proceeds from the sale of excess facilities to the replacement 

or rehabilitation of existing facilities. 

A Program Assessment Rating Tool (PART) assessment recommended that the Forest Service develop 

long-term, outcome-based performance measures for roads, facilities, and trails. The performance 

measures developed as a result of the assessment have improved planning and assessment of the agency’s 

infrastructure, resulting in better priority setting criteria and project selection. Better planning and 

assessment supports the agency’s effort to determine an optimal infrastructure level, keeping only what is 

necessary to implement the agency’s mission and meet public. To further inform infrastructure 

maintenance, the agency has adopted the industry standards for the Facility Condition Index. The Index is 

a general metric that tracks national trends in the condition of the agency’s portfolio with respect to the 

deferred maintenance backlog. 

The Forest Service has completed a trend analysis in response to Audit report No. 08601-02-HY, 

“Follow-up on Recommendations made on the Maintenance of Forest Service’s Infrastructure” (June 14, 

2006). The agency has also developed a format and report for the agency’s corporate data warehouse to 

track trends in deferred maintenance in accordance with the agency’s Asset Management Plan. The Forest 

Service is developing long-term outcome-based performance measures that fully cover the program, 

including safety, condition sustainability and environmental suitability, utilization, and mission 

dependency. It will also develop and implement a strategy to prioritize road, facility, and trail 

improvements that reflect investment strategies as common criteria for reducing the deferred maintenance 

backlog. Finally, the agency has utilized disposal authorities to convey excess or unneeded properties 

through the Facilities Realignment and Enhancement Act 
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

Revised February 25, 2008 

10-2

Budget Line Item Facilities 

Facilities Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $130,140 $121,755 $1,369 -$2,312 -$1,164 $119,647 -1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $130,140 $121,755 $1,369 -$2,312 -$1,164 $119,647 

Full Time Equivalents (FTEs) 509 475 -4 471 

Enacted Funding by Activity 

Maintain Facilities $60,725 $64,193 $810 -$1,554 $7,402 $70,851 12% 

Improve Facilities $69,415 $57,562 $558 -$758 -$8,566 $48,796 -15% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s budget proposes $119,647,000 for Facilities, a decrease in budget authority of 

$2,108,000 from FY 2008. This request will fund 471 FTEs; a decrease of 4 from the FY 2008 enacted 

level. The program priority is to eliminate health and safety risks at agency owned buildings and 

recreation sites and reduce critical deferred maintenance on aging infrastructure, thereby improving the 

agency’s ability to successfully perform its mission. Priority will be on repairing and improving those 

facilities, including buildings, water and wastewater systems, dams, and recreation sites that receive 

public use and are critical to supporting agency operations. Specific priorities within each activity 

include: 

Maintain Facilities (+$6,658,000) – This request provides $70,851,000 for facility maintenance, an 

increase in budget authority of $6,658,000 from FY 2008. Funds will provide for maintenance of 

9,175 recreation facilities and 13,323 fire, administrative and other (FA&O) facilities, or 

approximately 60 percent of the recreation facilities and 70 percent of the FA&O facilities managed 

by the agency. Priorities include conducting maintenance necessary to provide safe and healthful 

environments in which to work and play. 

Improve Facilities (-$8,766,000) – This request provides $48,796,000 to improve facilities, 

$8,766,000 below FY 2008. Funds will be used to improve 10 recreation facilities and 24 FA&O 

facilities in FY 2009. Priorities include replacing obsolete facilities that are critical to the agency 

mission, receive the highest use by the public and agency personnel, and are in the worst physical 

condition. New and replacement facilities are required to meet Silver LEED specifications ensuring 

facilities are constructed to be energy efficient and optimize the use of renewable resources. 
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

 

10-3

 Change 

 

FY 

2005 

FY 

2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Facilities condition index * 88% 89% 87% 89% 88% 87% -1%

Percent of facilities with “Good” or 

“Fair” condition rating** N/A 64% 67% 66% 66% 66% 0%

Number of outdoor recreation 

facilities maintained to standard N/A 9,770 9,837 10,231 9,175 9,175 0

FAO facilities maintained to standard N/A N/A 12,228 11,881 13,141 13,323 182

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

firms to monitor condition of facilities. 

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

completed condition survey (92% completed) and does not represent anticipated improvements to overall facility condition. 

Past Performance 

In FY 2007, the Forest Service maintained to standard 10,231 recreation facilities and 11,881 FA&O 

facilities. Repairs to correct health and safety deficiencies are critical for all facilities and recreation 

sites. Facilities that house employees for long periods of time, store mission-critical equipment, and 

provide unique recreation experiences will continue to be prioritized for maintenance. 

Program Description

Program Overview 

The Facilities program supports agency mission activities by administering facilities and sites used for 

recreation, research, and FA&O purposes. This 

includes carrying out maintenance, capital 

improvement, and management on over 17,100 

recreation sites and approximately 19,000 FA&O 

facilities. These facilities have a current replacement 

value of nearly $7 billion. 

The Facilities program consists of two activities. 

The definition of each activity is consistent with the 

Financial Accounting Standards Advisory Board 

(FASAB). 

Maintain Facilities – Maintenance is defined as 

the act of keeping fixed assets in acceptable condition. It includes repairs, preventive maintenance, 

replacement of parts and structural components. Maintenance projects for recreation developed sites, 

such as campgrounds and day-use sites, and FA&O facilities projects greater than $250,000 are 

funded within this activity. Maintenance excludes operation costs. 

Improve Facilities – Capital improvement projects for FA&O and recreation sites are included in this 

activity. Capital improvements include construction of new facilities, alteration of existing facilities 

to change function, and expansion of facilities to change capacity to meet needs that are different 

from the original intent. Improvements are often required to expand public service capability or 

recreational opportunities. In many cases, capital improvements eliminate deferred maintenance. 

Recreation Facility Savings 

Over 80 National Forests have completed

Recreation Facility Analysis. The value resulting 

from these analyses is demonstrated as follows: 

 ($ in millions)

Reduced Deferred Maintenance $51.6 

O&M Cost Savings $15.5 

Increase Revenue $ 7.6 

Total Benefits: $74.7 
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

 

10-4

Allocation and Integration 

Allocations to the field are based upon the agency’s FA&O and Recreation Facility Analysis (RFA) 

master plans and address the Agency’s long-term strategic asset management objectives. These 

objectives include reducing long-term operation and maintenance costs, reducing deferred maintenance, 

disposing of unnecessary assets, and identifying and mitigating significant potential threats to employee 

and public safety. 

Partnerships 

The agency accomplishes valuable facility work by leveraging funds for completing these activities 

through partnerships. Volunteers, concessionaires, and other partners are engaged to enhance recreation 

experiences and help maintain nearly 70 percent of agency owned recreation sites. The agency also colocates with other Federal and non-governmental agencies to share facilities and thereby lower operation 

costs.
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

Revised February 25, 2008 

 

10-5

FY 2009 FACILITIES PROGRAM

($ in thousands)

Region 1

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 30 200 30 200 230 1,200 250

Regionwide Minor Improvement Projects ** 1,528 1,528 1,528 519 783

R101 MT 1 Gallatin Cooke City Guard Station/Office/Residence N 700 700 700 50

R102 ID 1 Idaho Panhandle Sandpoint Ranger Station Office N 355 355 355 

R103 MT 1 Beaverhead-Deerlodge Office Energy Reduction N 260 260 260 3

R104 ID 1 Idaho Panhandle Avery Office Renovation N 370 370 370 

R105 ID 1 Clearwater Kelly Work Center Water System N 355 355 355 250

R106 MT 1 Flathead Doris Creek Complex--Hungry Horse 

(Phase 1)

N 265 265 265 275 20

 TOTAL $ 30 $ 1,793 $ 985 $ 1,255 $ 1,015 $ 3,048 $ 4,063 $ 794 $ 1,105 $ 1,200 $ 250

Region 2

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 75 100 30 30 105 130 235 100 4,728 1,076

R201 CO 2 White River Crooked Creek Reservoir Outlet N 195 128 195 128 323 205 

R202 WY 1 Bighorn Dead Swede Campground/Picnic Site 

Rehabilitation

 N 380 247 380 247 627 283 380 5 2

R203 CO 3 Grand Mesa, 

Uncompagre, Gunnison

Lost Lake Campground Rehabilitation N 186 108 186 108 294 192 153 21

R204 CO 3 Grand Mesa, 

Uncompagre, Gunnison

Grand Mesa Visitors Center Rehabilitation N 516 356 516 356 872 516

R205 WY 1 Shoshone Island Lake Campground Rehabilitation N 503 503 0 503 150 217 46

R206 CO 3 Rio Grande Big Meadows Campground Rehabilitation N 267 203 267 203 470 200 198 

R207 SD 1 Black Hills Hell Canyon District Office Addition N 125 1,443 125 1,443 1,568 91

 TOTAL $ 2,122 $ 1,142 $ 155 $ 1,473 $ 2,277 $ 2,615 $ 4,892 $ 925 $ 1,760 $ 4,800 $ 1,078

Region 3

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 87 52 403 87 455 542 3,040 1,504

R301 AZ 1 Prescott Verde Valley Administrative Site N 1,654 1,654 1,654 1,302 

R302 NM 1 Cibola Capulin Snow Play N 278 265 278 265 543 218 84

R303 AZ 1 Coconino Oak Creek Complex N 777 777 777 253 728

 TOTAL $ 1,142 $ 317 $ 2,057 $ 1,142 $ 2,374 $ 3,516 $ 471 $ 2,114 $ 3,040 $ 1,504

OUTYEAR FUNDING

Construction costs beyond

FY 2009

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities FundingFY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

Construction costs beyond

FY 2009
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

Revised February 25, 2008 

 

10-6

FY 2009 FACILITIES PROGRAM

($ in thousands)

Region 4

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 45 100 145 145 45 2,490

R401 CA 3 Humbolt-Toiyabe Markleeville-Turtlerock Fire Station Relocation 

(Phase 3)

Y 230 230 230 230 460 246

R402 UT 2 Dixie Pine Valley Recreation Area Reconstruction 

(Phase 2)

N 1,200 1,200 1,200 1,645 216 460 930

R403 NV 2 Humbolt-Toiyabe Cason District Barracks Y 35 1,850 35 1,850 1,885 300

 TOTAL $ 1,245 $ 265 $ 2,180 $ 265 $ 3,425 $ 3,690 $ 1,690 $ 762 $ 2,950 $ 930

Region 5

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 13 13 30 103 43 116 158 5,534 1,639

Regionwide Minor Improvement Projects ** 189 223 412 412 211

R501 CA 21 Sierra Falls Beach Rehabilitation N 368 368 368 270 296 R502 CA 4 Lassen Almanor Group Campground N 1,100 1,100 1,100 668 113

R503 CA 25 Inyo Rock Creek Barracks Y 687 687 687 74 390 45 5

R504 CA 4 LakeTahoe Basin 

Management Unit

Fallen Leaf Water System N 964 964 964 500 

R505 CA 2 Shasta-Trinity McCloud District Office N 945 945 945 11 525

R506 CA 21 Sequoia Princess Campground N 451 451 451 759 247

 TOTAL $ 2,528 $ 570 $ 975 $ 1,013 $ 3,503 $ 1,583 $ 5,085 $ 1,782 $ 2,282 $ 5,579 $ 1,644

Region 6

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 110 325 435 435 1,350

Regionwide Minor Improvement Projects ** 509 860 1,369 1,369 1,195

R601 OR 5 Mount Hood Timberline Lodge Chimneys N 728 728 728 633 

R602 OR 2 Mount Hood Cloud Cap Inn East Wing (Phase 2) N 100 100 100 316

R603 OR 2 Mount Hood Barlow Ranger Station Office Addition N 1,000 1,000 1,000 150

R604 WA 3 Mount Baker - 

Snoqualmie

Snoqualmie Ranger Station Sewer System N 500 500 500 500

R605 WA 5 Colville Growden Dam Removal N 350 350 350 735 R606 WA 4 Okanogan and 

Wenatchee 

25 Mile Creek Dock & Boathouse N 1,260 1,260 1,260 90

 TOTAL $ 828 $ 619 $ 4,295 $ 828 $ 4,914 $ 5,742 $ 3,619 $ 1,350 $ 0

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

Revised February 25, 2008 

 

10-7

FY 2009 FACILITIES PROGRAM

($ in thousands)

Region 8

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 85 205 85 205 290 1,900

R801 TX 1 NFs in Texas Texas Supervisors Office - Phase 2 N 1,450 1,450 1,450 

R802 FL 8 NFs in Florida River Forest Group Area Rehabilitation N 410 410 410 507

R803 SC 6 Francis Marion and 

Sumter 

Francis Marion Ranger District Office 

(Phase 1)

N 1,050 1,050 1,050 712 1,080

R804 AR 4 Ouachita Albert Pike Campground Rehabilitation N 265 265 265 100 161 

R805 MS 1 NFs in Mississippi Choctaw Lake Recreation Area Electrical 

Rehabilitation

 N 275 275 275 50 168 

 TOTAL $ 1,035 $ 2,705 $ 1,035 $ 2,705 $ 3,740 $ 150 $ 1,548 $ 2,980 $ 0

Region 9

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 435 435 435 50 5,215 750

Regionwide Minor Improvement Projects ** 141 141 141 

R901 NH 2 White Mountain White Mountain Administrative Site 

(Phase 3)

N 1,303 1,303 1,303 

R902 MI 1 Ottawa Watersmeet Administrative Site (Phase 2) N 2,716 2,716 2,716 750 2,172 2,172 100

R903 MI 1 Hiawatha Whitefish Bay National Scenic Byway Sites 

Rehab

N 494 96 494 96 590 440 275

 TOTAL $ 494 $ 237 $ 4,454 $ 494 $ 4,691 $ 5,185 $ 1,240 $ 2,447 $ 7,387 $ 850

Region 10

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Forest Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

AK At large Regionwide Planning & Design * 84 94 126 266 210 360 570 1,979 300

AK At large Regionwide Minor Improvement Projects ** 732 732 732 383

R1001 AK At large Tongass Ketchikan Misty Ranger District Admin Site 

Renovation

N 875 2,203 875 2,203 3,078 875

 TOTAL $ 84 $ 826 $ 1,001 $ 2,469 $ 1,085 $ 3,295 $ 4,380 $ 0 $ 1,258 $ 1,979 $ 300

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

Revised February 25, 2008 

 

10-8

FY 2009 FACILITIES PROGRAM

($ in thousands)

Research Stations

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Station/Lab Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Research Wide Planning & Design * 234 234 234 234 468 8,663

Research Wide Minor Improvement Projects ** 362 362 362 362 724 400

0

S001 WI 2 Forest Products Lab, 

Madison

Forest Products Lab Modernization (Phase 3) N 5,564 9,944 5,564 9,944 15,508 5,564

S002 CO 2 Rocky Mountain Station, 

Fraser

Fraser Experimental Forest Headquarters Complex Upgrades

N 376 421 376 421 797 376

S003 CA 2 Pacific Southwest Station, 

California

Meadow Valley Barracks Construction N 765 765 765

S004 NC 11 Southern Station, Bent Cr Bent Creek Conference Center N 514 590 514 590 1,104 514 S005 MN 4 Northern Station, St Paul Building Envelope Renovation N 1,450 378 1,450 378 1,828 1,450S006 PR N/A International Institute of 

Tropical Forestry, Sabana

Sabana Deferred Maintenance & Capital Improvement

N 160 121 160 121 281 160

 TOTAL $ 8,660 $ 12,815 $ 8,660 $ 12,815 $ 21,475 $ 8,464 $ 8,663 $ 0

Area

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Area Unit Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regionwide Planning & Design * 170 170 170 1,415

NA01 PA 10 Grey Towers Water Distribution System Rehabilitation N 450 450 450 450

NA02 WV 3 Wood Education and 

Resource Center

Maintenance and Storage Building Construction

N 240 240 240 

 TOTAL $ 620 $ 240 $ 620 $ 240 $ 860 $ 450 $ 1,415 $ 0

Technology Development Centers

Fire RECREATION RECREATION FA&O FA&O TOTAL TOTAL

Cong Fac? FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

ID State District Tech Center Project Name (Y/N) MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

TD01 CA 26 San Dimas Tech 

Development Center

HVAC Replacement N 500 500 500 400

TD02 CA 26 San Dimas Tech 

Development Center

Pavement Maintenance N 776 776 776 500

TD03 MT 1 Missoula Tech 

Development Center

Solar Roof Photo Voltaic N 350 0 350 350

 TOTAL $ 1,276 $ 350 $ 1,276 $ 350 $ 1,626 $ 900 $ 0 $ 0

OUTYEAR FUNDING

Construction costs beyond

FY 2009

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009

Construction costs beyond

FY 2009

OUTYEAR FUNDING
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

Revised February 25, 2008 

 

10-9

FY 2009 FACILITIES PROGRAM

($ in thousands)

TOTALS FOR REGIONS, STATIONS, AREA, and TECH CENTERS

RECREATION RECREATION FA&O FA&O TOTAL TOTAL

FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES FACILITIES ROADS

MTCE. IMPRVMT. MTCE IMPRVMT. MTCE IMPRVMT. FUNDS FUNDS FACILITIES ROADS

Regions Subtotal $ 8,263 $ 6,749 $ 3,381 $ 21,901 $ 11,644 $ 28,650 $ 40,294 $ 7,052 $ 16,895 $ 31,265 $ 6,556

 Stations Subtotal $ 0 $ 0 $ 8,660 $ 12,815 $ 8,660 $ 12,815 $ 21,475 $ 0 $ 8,464 $ 8,663 $ 0 Area and Tech Centers Subtotal $ 0 $ 0 $ 1,896 $ 590 $ 1,896 $ 590 $ 2,486 $ 0 $ 1,350 $ 1,415 $ 0

TOTAL, MAJOR PROJECT LIST $ 8,263 $ 6,749 $ 13,937 $ 35,306 $ 22,200 $ 42,055 $ 64,255 $ 7,052 $ 26,709 $ 41,343 $ 6,556Recreation Maintenance Under $250,000 $ 41,209 $ 0 $ 0 $ 0 $ 41,209 $ 0 $ 41,209 $ 0 $ 0 $ 0 $ 0

 Washington Office $ 1,803 $ 618 $ 1,051 $ 3,030 $ 2,854 $ 3,648 $ 6,502 $ 0 $ 0 $ 0

 Albuquerque Service Center Business 

Management

 $ 3,690 $ 503 $ 898 $ 2,590 $ 4,588 $ 3,093 $ 7,681 $ 0 $ 0 $ 0 $ 0

TOTAL, OTHER PROGRAM SUPPORT $ 46,702 $ 1,121 $ 1,949 $ 5,620 $ 48,651 $ 6,741 $ 55,392 $ 0 $ 0 $ 0 $ 0

TOTAL FACILITIES $ 54,965 $ 7,870 $ 15,886 $ 40,926 $ 70,851 $ 48,796 $ 119,647 $ 7,052 $ 26,709 $ 41,343 $ 6,556

Notes:

* Planning and Design (P&D) for capital investment projects costing more than $250,000. Project names are provided in the associated fact sheet. 

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

FY 2009 Facilities Funding

Amt. of Facilities 

Deferred 

Maintenance 

Eliminated by FY 

2009 Investment

OUTYEAR FUNDING

Construction costs beyond

FY 2009
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

 

10-10

Budget Line Item Roads 

Roads Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $223,798 $227,924 $3,664 -$5,062 $473 $227,000 0% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $223,798 $227,924 $3,664 -$5,062 $473 $227,000 

Full Time Equivalents (FTEs) 1,363 1,289 -28 1,261 

Enacted Funding by Activity 

Maintain Passenger Car Roads $94,994 $95,398 $1,405 -$1,714 -$8,078 $87,011 -8% 

Maintain High Clearance & Closed Roads $14,370 $16,153 $431 -$648 $10,735 $26,671 66% 

Decommission Roads $3,610 $4,778 $59 -$105 -$1,069 $3,663 -22% 

Improve Roads $110,824 $111,595 $1,770 -$2,595 -$1,115 $109,655 -1% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s budget proposes $227,000,000 for Roads, a decrease in budget authority of 

$924,000 from FY 2008. The requested funds will help the agency reduce critical deferred maintenance 

and provide the necessary engineering support for the Forest Products program and the Northwest Forest 

Plan. Funding will primarily address public safety needs, resource protection, and access to the most 

important National Forest System (NFS) sites and features. Priorities will be to reduce the number of 

open roads, and to maintain these to meet safety and environmental standards. Roads will be closed or 

decommissioned when necessary to minimize maintenance costs and protect forest resources. The agency 

will also continue to place priority on implementing the travel management rule to address unmanaged 

recreation and provide a sustainable system of roads designated for motor vehicle use. Specific priorities 

within each activity include: 

Maintain Passenger Car Roads (-$8,387,000) – The request includes $87,011,000 for the 

maintenance and operation of an estimated 38,000 miles of passenger car roads. There are over 

67,000 miles of passenger car roads. Priority projects include the maintenance necessary to meet 

Highway Safety Act requirements, emergency access for first responders, and escape routes identified 

for recreationists and local residents in the event of wildland fire or other emergency situations. 

Maintain High Clearance and Closed Roads (+$10,518,000) – The request includes $26,671,000 for 

the maintenance and operation of high clearance and closed roads. The funding will provide 

maintenance for approximately 35,000 miles of road. Currently there are over 183,000 miles of high 

clearance roads and 93,000 miles of closed roads within the National Forest System. The original 

road system was designed for log trucks, but is being used more and more by people recreating on the 

National Forest System. Priority will be placed on maintaining roads to minimize or correct the 

environmental effects to resources, such as sediment loads in streams and lakes, and barriers to fish 

passage. 
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

Revised February 25, 2008 

10-11

Decommission Roads (-$1,115,000) – The request includes $3,663,000 for decommissioning 

approximately 600 road miles. Priority will be placed on eliminating unneeded roads or portions of 

the existing transportation system that duplicate access and/or create extensive environmental 

degradation. . 

Improve Roads (-$1,940,000) – The request includes $109,655,000 to improve approximately 2,000 

road miles. To ensure safety, priority projects will include replacement of deficient bridges and 

stream crossings, and engineering support for road improvement needed for vehicle and equipment 

access for timber sale and land stewardship contracts. 

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Miles of high clearance and closed 

roads receiving maintenance* 25,094 28,598 24,252 20,725 27,000 30,000 3,000

Miles of passenger car roads 

receiving maintenance 42,896 43,073 44,280 39,453 42,000 38,000 -4,000

Miles of roads decommissioned 938 682 692 402 600 600 0

Miles of road reconstruction and 

capital improvement 333 179 315 617 2,300 2,000 -300

Percent of road and trail rights-ofway acquired that provide public 

access through easement 

acquisitions or land adjustments** N/A 94% 90% 90% 90% 90% 0%

* Activity includes closed roads up to and including FY 2006, but not in later years. 

**Activity is accomplished with multiple funds (CIM roads, CIM Deferred Maintenance, Roads& Trails 

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

Past Performance

Maintain High Clearance and Closed Roads –In FY 2007, the agency maintained 20,725 road miles 

of road with Roads program funds, plus an additional 6,648 miles using integrated program or 

partnership funds, for a total of 27,373 miles of high clearance road maintenance. Effective high 

clearance and closed road maintenance ensures that roads experiencing increases in recreational 

traffic comply with environmental laws. 

Maintain Passenger Car Roads– In FY 2007, the agency maintained 39,453 road miles with Roads 

program funds, plus an additional 7,398 miles with integrated program work and partnership 

contributions, for a total of 46,851 miles of passenger car road maintenance. Effective passenger car 

road maintenance ensures that roads open for public and administrative travel comply with safety 

requirements and environmental protection laws, and are available for critical access needs. 

 

Decommission Roads – In FY 2007, the agency decommissioned 402 road miles with Roads program 

funds, plus an additional 393 miles using integrated and partnership funding, for a total of 794 miles 

of roads decommissioned. Decommissioning unneeded roads eliminates the environmental effects of 

unneeded roads and is essential to operating a transportation system that is sustainable in a safe and 

environmentally acceptable manner with available funding. 

Improve Roads –In FY 2007, the agency improved 617 road miles using core program funds, plus an 

additional 2,230 miles completed with integrated and partnership funds, for a total of 2,847 miles. In 

addition, the Forest Service repaired or replaced 53 deficient or obsolete bridges and major culverts
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

Revised February 25, 2008 

10-12

 and constructed 31 new bridges. Road improvement ensures a transportation system that meets 

applicable safety and environmental standards, as well as essential public and resource management 

needs. 

Program Description

Program Overview 

The National Forest Road System (NFRS) provides motor vehicle access for management, protection, and 

public use and enjoyment of NFS lands. Virtually all activities on NFS lands require travel over the 

system, which consists of 6,500 bridges and 375,000 miles of roads. Over 90 percent of travelers are 

recreationists. The agency records more than 192 million visits to NFS lands annually. 

The use of the terms “Construction” and 

“Improvement” are synonymous in this 

description. The authorization of the 

appropriation in 23 USC 205 is for 

“construction” as defined in 23 USC 101. 

“Improvement” is used in Federal Accounting 

Standards Advisory Board accounting and is the 

term in the “Capital Improvements and 

Maintenance” appropriations main heading. 

“Construction or Capital Improvements” includes 

both construction of new roads and 

reconstruction of existing roads. Maintenance 

can include reconstruction of existing roads and 

annual maintenance. The program is delivered 

through the following activities: 

Maintain Passenger Car Roads and Maintain High Clearance and Closed Roads – These activities 

include the maintenance of roads, bridges, and other vehicle access areas such as parking lots. 

Maintenance of roads open for travel by passenger cars and other State highway legal vehicles are 

subject to the requirements of the Highway Safety Act. 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. Maintenance for high clearance and closed roads includes 

both roads that are open to high clearance vehicle traffic and roads that are closed but available for 

future administrative use. 

Improve Roads - These activities provide for capital improvements of NFS roads, including structures 

and other vehicle access areas such as parking lots. Capital improvements include adding new miles 

to the transportation system through new construction, reclassifying unauthorized roads, and rightsof-way acquisition; changing the function of existing roads to accommodate different user types, such 

as changing 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. Actual construction of roads is 

typically done by contractors. 

Decommission Roads – Road decommissioning activities eliminate unneeded and unauthorized roads 

and restore land occupied by roads to a more natural state. Decommissioning of roads is not an 

allowable use of appropriations under the authorizing statute. However, since FY 1991, language in 

National Forest System Roads Access

Seasonal / 

Restricted, 

22%

Passenger 

Car, 20%

Highclearance 

vehicle, 

58%
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

 

10-13

annual appropriations bills has authorized use of a portion of Roads funds for decommissioning (up to 

$15,000,000 in FY 2007). 

Allocation and Integration 

For several years, Congress has provided annual advice on the proportionate amounts of the Roads 

appropriation to be spent for construction and maintenance. Funding is allocated to the field by a formula 

that considers land area, visitor use, timber volume offered on timber sale and stewardship contracts, and 

acres treated for hazardous fuels. 

Partnerships 

Section 4 of the National Forest Roads and Trails Act of 1964 (P.L. 88-657, 16 USC 535) authorizes 

cooperative construction and maintenance of road systems. Under this authority, the Forest Service 

enters into Cost Share Agreements with the owners of large tracts of lands intermingled with NFS lands. 

The Forest Service also enters into Forest Road Agreements with public road authorities, such as States 

and counties, where access needs coincide for national forests, local residents, and local commerce. 
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 

Revised February 25, 2008 

 

10-14

Budget Line Item Trails 

Trails Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $73,362 $76,365 $1,023 -$2,227 -$25,120 $50,041 -33% 

Emergency & Supplemental Appropriations $0 $0 $0 $0 $0 

Total Enacted Budget Authority $73,362 $76,365 $1,023 -$2,227 -$25,120 $50,041 

Full Time Equivalents (FTEs) 610 601 -249 352 

Enacted Funding by Activity 

Maintain Trails $49,980 $50,271 $698 -$1,482 -$15,331 $34,156 -30% 

Improve Trails $23,382 $26,094 $325 -$745 -$9,788 $15,885 -38% 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $50,041,000 for Trails, a decrease in budget authority of 

$26,324,000 below FY 2008. The request will fund 352 FTEs; a decrease of 249 FTEs from the FY 2008 

enacted level. Priority will be placed on actions related to public health and safety, unmanaged offhighway vehicle (OHV) use, and the backlog of deferred maintenance including accessibility 

concerns. The program will continue to focus on management and protection of the national scenic and 

historic trails. The agency will establish and strengthen partnerships in trail stewardship, particularly 

those that provide for the delivery of youth programs. Specific priorities within each activity include: 

Maintain Trails (-$16,115,000) – This request includes $34,156,000 to maintain trails. Funding will 

be used to maintain approximately 11,650 trail miles, of which approximately 14 percent will be 

accomplished through the use of volunteers. The agency will address approximately 20 percent of the 

total trail system miles in need of maintenance to standard through a unified program of work, 

compared to 30 percent in FY 2007. The agency will address approximately 10 percent of the 

combined preventative maintenance and identified trail deferred maintenance. Validation and 

improvement of basic trails inventory, and collection of trail assessment and condition survey data 

will also continue to ensure that the agency has sound, accurate information on National Forest 

System (NFS) trails. In FY 2007, the agency maintained 25,696 trail miles. Trail maintenance 

reduces resource damage and improves safety conditions to provide a safe and a quality experience 

for trail users. 

Improve Trails (-$10,209,000) – This request includes $15,885,000 to improve trails, $10,209,000 

below FY 2008 budget authority level. Funding will be used to relocate or construct approximately 

500 miles of trails, a decrease of about 500 miles relative to FY 2007. The agency will conduct new 

construction on several National Scenic and Historic Trails, including the Florida National Scenic 

Trail, Continental Divide National Scenic Trail, and the Pacific Crest National Scenic Trail (see the 

Special Exhibit, National Scenic and Historic Trails, for a more complete discussion of 

accomplishments and plans.) In FY 2007, the agency improved 1,594 trail miles. Trail improvement 

helps ensure a safe and quality experience for trail users and protects watersheds. 
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 10-15

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Miles of trail maintained to 

standard 25,208 24,860 22,470 25,696 20,790 11,650 -9,140

Miles of system trail improved to 

standard 1,378 1,410 1,130 1,594 956 500 -456

Past Performance

Maintain Trails – In FY 2007, the agency maintained 25,696 trail miles. Trail maintenance reduces 

resource damage and improves safety conditions to provide a safe and a quality experience for trail 

users. 

Improve Trails –In FY 2007, the agency improved 1,594 trail miles. Trail improvement helps ensure 

a safe and quality experience for trail users and protects watersheds. 

Program Description

Program Overview 

The Trails program ensures public safety and backcountry access through the operation, maintenance, 

rehabilitation, and improvement of the National Forest System trails systems. NFS lands contain over 

140,000 miles of trails, of which 53,000 miles are currently maintained to standard. Approximately 

33,000 miles of trails are inside wilderness areas. The NFS trails system accommodates over 50 million 

visitor days of cross-country skiing, hiking, horseback riding, mountain biking, and off-highway vehicle 

use each year. The Trails program serves a wide constituency at a relatively low cost through 

administration and management of the following activities: 

Maintain Trails (both annual and deferred) – Provides trail accessibility and promotes ecosystem 

health by protecting soil, vegetation and water quality. Work includes clearing encroaching 

vegetation and fallen trees and repairing or improving trail signs, treadways, water drainage, and 

bridges. 

Improve Trails – Provides for planning, new construction, alteration and expansion of trails, trail 

bridges, and trail appurtenances such as barriers, culverts, fencing, viewing and platforms. Work 

ensures trail systems are accessible, adequately designed, safe, and environmentally responsible. 

Allocation and Integration 

Funding is allocated based on the existing infrastructure of NFS trail miles, based on support for general 

trail operations and National Scenic and Historic Trails operations. 

Partnerships 

The trails program leverages thousands of hours of trail work from volunteers and youth organizations to 

operate, maintain and construct hundreds of miles of trail each year. Trail crews are one of the primary 

means for the Forest Service to employ young adults and partner with local communities and interest 

groups. In FY 2007, the agency completed 80 challenge cost-chare projects, with partners contributing 

approximately $3.8 million in funding for trail operations. 
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 10-16

Budget Line Item Deferred Maintenance and Infrastructure Improvement 

Deferred Maintenance Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $9,100 $8,958 $58 $0 $84 $9,100 1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $9,100 $8,958 $58 $0 $84 $9,100 

Full Time Equivalents (FTEs) 22 21 -1 20 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes 

The FY 2009 President’s budget proposes $9,100,000 for Deferred Maintenance and Infrastructure 

Improvement, an increase in budget authority of $142,000 from FY 2008. The request will fund 20 FTEs 

in FY 2009, a decrease of 1 FTE from the FY2008 Enacted. 

The requested funds will help the agency reduce the deferred maintenance backlog for facilities, roads, 

and trails. Priority projects will address the most critical health and safety infrastructure needs 

particularly in areas that are heavily used by the public and agency employees, such as, replacement of 

deficient bridges and stream crossings; correcting health and safety deficiencies in buildings, 

campgrounds, and water and wastewater systems; and reconstruction and rehabilitation of trails and trail 

structures. In FY 2007, the agency improved 153 road miles, improving health and safety conditions for 

the public and employees. This funding request will reduce deferred maintenance by approximately 

$4,500,000. Any related facilities work will help move the facility condition index (FCI) toward a more 

acceptable condition level of 0.9 or higher. 

Program Description

Program Overview 

The Deferred Maintenance and Infrastructure Improvement program provides the maintenance, repair, 

and improvement of the agency’s infrastructure. This portfolio includes more than 42,000 buildings, 

5,000 water systems, 5,000 wastewater systems, 17,100 recreation sites, 140,000 miles of trails, 6,500 

bridges and nearly 375,000 miles of roads, and additional infrastructure features. This portfolio of assets 

currently has a backlog of $5.3 billion in maintenance needs. 

Infrastructure Improvement includes the construction of new infrastructure, alteration of existing 

infrastructure to change its function, and the expansion of existing infrastructure to increase capacity. 

Improvements are often required to maintain public service capability or recreational opportunities. 

Capital improvement projects eliminate deferred maintenance and provide mission-critical infrastructure. 

Maintenance that is not performed as needed or scheduled is referred to as deferred maintenance. 

Deferred maintenance leads to deterioration of performance, increased costs to repair, and a decrease in 

the value of the infrastructure. Deferred maintenance complements the Facilities, Roads, and Trails 
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 10-17

programs and directs funds specifically toward reducing the backlog of deferred maintenance to ensure 

the safety of the recreating public, agency employees, volunteers, and contractors. 

Allocation and Integration 

Funding is allocated specifically to reduce critical deferred maintenance. Improvements in condition 

assessment surveys drive management decisions and national allocations regarding construction, use, 

maintenance or decommissioning, and disposal of assets. 

Partnerships 

The agency leverages funds through partnerships with non-profit organizations and volunteers. 

Additional leveraging is accomplished through concessionaire programs, user maintenance fees, and other 

partner based work. 

Def. Mtce 

& Infra. 

Improv. Roads

5 R507 CA 52 Cleveland

Burnt Rancheria 

Campground N 688 176 628

9 R905 WI 7

ChequamegonNicoletMondeaux Dam 

Rehabilitation N 350 300

$1,038 $176 $928 $0 $0

FY 2009 Deferred Maintenance and Infrastructure Improvement

Major Project List (greater than $250,000)

Outyear Funding 

Construction 

costs beyond

FY 2009

Roads

Amount of 

Def. Mtce. 

Eliminated 

by FY 2009 

Investment

Total 

Def. 

Mtce & 

Infra. 

REGION ID State Improv.

Cong 

District Forest Project name

Fire 

Fac? 

(Y/N)

TOTAL
FY 2009 Budget Justification USDA Forest Service 

Capital Improvement and Maintenance 10-18

Budget Line Item Legacy Roads and Trails 

Legacy Roads & Trails Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $0 $39,766 $0 $0 -$39,766 $0 -100% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $0 $39,766 $0 $0 -$39,766 $0 

Full Time Equivalents (FTEs) 0 0 0 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes no funding for Legacy Roads and Trails, a decrease in budget 

authority of $39,000,000 from FY 2008. Priority road and trail work, such as repairing roads and trails 

damaged by recent storms, road decommissioning, and removing fish passage barriers accomplished 

under Legacy Roads and Trails will continue to be funded under the Roads and Trails budget line items. 

Program Description 

Program Overview 

The Legacy Roads and Trails program, established by Congress in FY 2008, provides for a strategic effort 

to fix roads and trails in environmentally sensitive areas, roads and trails damaged by recent storms, and 

roads which could harm community water systems. The use of these funds is directed for urgently needed 

road decommissioning, road and trail repair and maintenance and associated activities. The funds are also 

directed towards the removal of fish passage barriers, especially in areas where Forest Service roads could 

be contributing to water quality problems in streams and water bodies which support threatened, 

endangered or sensitive species or community water sources. 
11 

Land Acquisition 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service 

Land Acquisition 11-1

Appropriation Land Acquisition 

Land Acquisition Increase or Decrease Program 

 FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $41,936 $41,827 $240 -$33 -$37,034 $5,000 -89% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $41,936 $41,827 $240 -$33 -$37,034 $5,000 

Full Time Equivalents (FTEs) 76 61 -24 37 

Enacted Funding By Activity 

Land Acquisition Management $12,000 $9,844 $240 -$33 -$5,051 $5,000 $0 

Purchase Land* $29,936 $31,983 $0 $0 -$31,983 $0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

* Purchase Land includes critical inholdings, including wilderness protection and land equalization cash payments. 

Appropriation Acquisition of Lands for National Forest Special Acts 

Acquisition of Lands For National Forests Increase or Decrease Program 

 Special Acts FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $1,053 $1,037 $0 $0 $13 $1,050 1% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $1,053 $1,037 $0 $0 $13 $1,050 

Full Time Equivalents (FTEs) 0 0 0 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

Appropriation Acquisition of Lands to Complete Land Exchanges

Acquisition of Lands to Complete Land Increase or Decrease Program 

 Exchanges FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $3,678 $227 $0 $0 $23 $250 10% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $3,678 $227 $0 $0 $23 $250 10% 

Full Time Equivalents (FTEs) 0 0 0 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 
FY 2009 Budget Justification USDA Forest Service 

Land Acquisition 11-2

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $5,000,000 for Land Acquisition, a decrease in budget 

authority of $36,827,000 from FY 2008. The Budget focuses on taking proper care of the currentlyowned National Forests System (NFS) lands rather than new acquisitions. By focusing on NFS lands 

already owned, the FY 2009 Budget enables the Department of Agriculture to conduct priority land 

exchanges that protect critical forest resources and reduces future management, maintenance, and 

protection costs. 

The request will fund 37 FTEs, a decrease of 24 from the FY 2008 Enacted level. Funds will cover the 

acquisition management costs needed to acquire approximately 9,100 acres within existing land 

acquisition projects from previously appropriated funding. Lands acquired using cash equalization 

payments will be funded from programs under the National Forest System account (i.e., lands acquired 

for wildlife purposes will be paid for by the Wildlife and Fisheries Habitat Management program). The 

agency will make every effort to configure exactly equal land exchanges, although this is not always 

possible. 

This request also includes $1,050,000 for the Acquisition of Lands for Special Acts and $250,000 for 

Acquisition of Lands to Complete Land Exchanges. These programs are funded essentially at the same 

level as FY 2008. Funds will be used to acquire lands that protect critical watersheds, address flood 

damage areas, and protect forested lands and resources. 

 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Number of acres acquired or 

donated* 48,216 49,363 25,160 125,742 25,260 9,075 -16,185

Priority acres acquired or donated 

that reduce the conversion of 

forests, grasslands, and aquatic and 

riparian ecosystems to incompatible 

uses in order to improve and 

maintain ecological conditions for 

federally listed and candidate 

species, species of concern, and 

species of interest 29,553 31,460 17,700 20,377 12,700 6,350 -6,350

*Activity "National Forest System acres acquired" redefined in FY 2007 

In FY 2007, the agency acquired a total of 125,742 acres through this program. 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. 

The Forest Service has used the PART process to improve land validation, ensuring that land purchases 

and donations meet the agency's Strategic Plan Goals and Objectives. The agency has adopted two new 

measures for land acquisition into the Performance and Accountability System and the Workplan 

systems. The Forest Service has also recently updated the Agency Land Purchase Digest system to 

include case specific information for these performance measures, as well as three new efficiency 
FY 2009 Budget Justification USDA Forest Service 

Land Acquisition 11-3

measures. With these improvements, the agency will be able to more accurately assess program 

effectiveness. 

Program Description

Program Overview 

Land Acquisition – This program provides for the acquisition of lands, waters, and related interests 

within the National Forest System (NFS) for outdoor recreation, conservation of wildlife and threatened 

and endangered species habitat, watershed protection, resource management, healthy forests and 

grasslands, and public access. Lands acquired through the Land and Water Conservation Fund (L&WCF) 

help reduce future management costs, respond to urban and community needs, and conserve the integrity 

of undeveloped lands by preventing their conversion to incompatible uses. Acquisition of in-holdings can 

substantially reduce boundary management costs and reduce impacts associated with conversion of the 

use of adjacent lands, such as trespass and resource degradation or fragmentation. Program delivery is 

provided through the following activities: 

Land Acquisition Management - Covers expenses to complete land acquisitions and donations, 

including costs associated with title search, appraisals, land acquisition surveys, legal document 

preparation, and personnel costs associated with those employees who perform these tasks. 

Acquisition management funds also cover administrative costs associated with exchanges and 

donations when the land acquired through these methods are within an approved project area. 

 

Purchase Land - Funds pay for the cost of purchased lands including critical inholdings for 

wilderness protection, and land equalization cash payments for those exchanges that would otherwise 

qualify for purchase. 

Acquisition of Lands for National Forests, Special Acts – This program provides for the acquisition of 

lands to protect watersheds, minimize soil erosion, and rehabilitate specified national forests in Nevada, 

Utah, and California. 

Acquisition of Lands to Complete Land Exchanges – This program provides for the use of funds 

collected from the exchange or sale of NFS lands with State, county, or municipal governments, public 

school authorities, or non-Federal parties, when in the public interest to do so. 

Allocation and Integration 

Projects under the Land Acquisition program are 

selected using the agency’s Land Acquisition 

Prioritization System (LAPS). Criteria tie the selection 

process to the Land and Water Conservation Fund Act 

and the agency’s strategic plan goals and objectives, 

identifying and prioritizing acquisitions to maximize 

the greatest public benefit. Congressionally approved 

project funds are allocated directly to the benefiting 

regions as soon as they are made available. 

Acquisition management funding is allocated to the 

regions using criteria based on workload and 

performance, including prior year accomplishments, previously unexpended appropriations, and new 

current fiscal year appropriations for projects. 

Elkhorn (Eberts) Ranch 

Dakota Prairie Grasslands 

Theodore Roosevelt operated a cattle ranch in the 

1880s, now known as the Elkhorn Ranchlands.

This area is considered by some to be the “Cradle 

of Conservation.” In April 2007, the Forest 

Service, on behalf of the United States and 

partnering with the Rocky Mountain Elk 

Foundation, completed the acquisition of the 

ranch, consisting of 5,201 acres, for $4.8 million. 
FY 2009 Budget Justification USDA Forest Service 

Land Acquisition 11-4

Partnerships 

The agency cooperates with other Federal agencies such as the Bureau of Land Management, the National 

Park Service, the Department of Defense, and the U.S. Geological Survey; State, local, and tribal 

governments; conservation organizations, non-Federal exchange parties and facilitators; and private 

landowners. The program identifies and secures cost-share and partnership opportunities for eliminating 

or reducing redundant efforts. This includes developing and implementing consistent land stewardship 

strategies of mutual interest with other Federal land management agencies and leveraging funds to secure 

high priority resource lands.
12 

Other Appropriations 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service 

Other Appropriations 12-1

Appropriation Range Betterment Fund 

Range Betterment Fund Increase or Decrease Program 

 Appropriations FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $2,876 $3,750 $31 $0 -$181 $3,600 -5% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $2,876 $3,750 $31 $0 -$181 $3,600 

Full Time Equivalents (FTEs) 12 15 -1 14 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

The FY 2009 President’s Budget proposes $3,600,000 for Range Betterment, a decrease in budget 

authority of $150,000. This program will fund 14 FTEs, with emphasis on essential structural and nonstructural improvements prescribed in grazing allotment NEPA decision documents. Treatment of 

invasive plant species related to permitted livestock use will continue to be a priority for the nonstructural rangeland improvement work. 

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Structures Improved* 422 44 500 270 500 500 0

* FY 2006 accomplishment data underreported in the database of record. Reporting instructions clarified for FY 2007 forward. 

Authorities

Federal Land Policy and Management Act of 1976; (43 U.S.C. 1751) P.L. 94-579, as amended by, Public 

Rangelands Improvement Act of 1978 (43 U.S.C. 1751(b)(1) P.L. 95-514. 

Program Overview

The Range Betterment program uses one-half of grazing receipts from national forests in the 16 Western 

States for range rehabilitation, protection, and improvements on the national forests from which the 

receipts were collected. Activities are preformed to improve forage conditions; construct water 

developments to aid in livestock distribution, build fences to protect sensitive resources; and make other 

improvements to the land. Funds may also be used to treat noxious weeds that are present as a result of 

permitted livestock grazing. Six percent or less of the funding is used for administrative expenses. Funds 

are allocated to the region where they are collected. 

Grazing permittees are a significant partner in the implementation of rangeland betterment projects. 

Program funds are leveraged with permittee investments to enhance livestock management, enhance or 

stabilize vegetative conditions, improve water quality, maintain riparian areas and stream banks, and 

conserve threatened and endangered plant and animal species. This partnership also provides a foundation 

for involving a variety of special interest organizations such as Trout Unlimited or State Cattlemen’s 

Associations, further enhancing opportunities for rangeland betterment. 
FY 2009 Budget Justification USDA Forest Service 

Other Appropriations 12-2

Appropriation Gifts, Donations, and Bequests for Forest and Rangeland 

Research 

Gifts, Donations, and Bequests for Forest Increase or Decrease Program 

 and Rangeland Research FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $63 $55 $0 $0 -$5 $50 -9% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $63 $55 $0 $0 -$5 $50 

Full Time Equivalents (FTEs) 0 0 0 0 

FY 2009 Program Changes

The Forest Service accepts gifts, donations, and bequests for deposit into a special account to be used to 

establish or operate any forest and rangeland research facility. In FY 2009, $50,000 will be spent from 

the fund, a decrease of $5,000 from FY 2008. In FY 2007, donations were received from individuals as 

well as businesses for use by research work units and other organizational sub-units to further their 

research and development programs. Funds are used to purchase supplies and equipment and to offset 

travel to training and seminars. 
FY 2009 Budget Justification USDA Forest Service 

Other Appropriations 12-3

Appropriation Management of National Forest Lands for Subsistence Uses 

Management of National Forest Lands for Increase or Decrease Program 

Subsistence Uses FY 2007 FY 2008 Pay & Other Cost Program FY 2009 Change 

(Dollars in Thousands) Final Enacted Cost Changes Reductions Changes Pres Budget Percent 

Enacted Budget Authority 

Annual Appropriations $5,009 $4,974 $0 $0 -$4,974 $0 -100% 

Emergency & Supplemental Appropriations $0 $0 $0 

Total Enacted Budget Authority $5,009 $4,974 $0 $0 -$4,974 $0 -100% 

Full Time Equivalents (FTEs) 25 24 -24 0 

-- Cost Reductions result from Forest Service transformation efforts 

-- Pay & Other Cost Changes are calculated increases in personnel compensation and benefits, rents and utilities, Unemployment Compensation 

payments, and Departmental Working Capital Fund charges. 

FY 2009 Program Changes

No funding is proposed for this program in FY 2009. Responsibilities under the Alaska National Interest 

Lands Conservation Act (ANILCA) will continue at a similar level of management through use of other 

National Forest System funds. 

Authorities

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 Federallyreserved navigable waters in Alaska in 1999. 

Program Performance

In FY 2007, the agency completed management analyses for 35 proposed changes to Federal regulations 

statewide on the Tongass and Chugach National Forests in a manner mandated by the ANILCA. A 10-

year re-determination of communities eligible for subsistence priority was also completed. Wildlife and 

fisheries resource assessments and monitoring projects scheduled were completed. Agency personnel 

worked with local communities and organizations to mitigate potential and actual law enforcement 

conflicts between subsistence users and others. 

Program Overview

Enforcement of Federal subsistence hunting and fishing regulations requires protecting the subsistence 

priority and conserving healthy fish and wildlife populations. Federal subsistence hunting and fishing 

regulations must be reviewed annually to ensure a sustained supply of wild food resources. Federal 

subsistence hunting and fishing regulations must be reviewed annually to ensure a sustained supply of 

wild food resources. The Forest Service must collect and analyze data for up to 120 proposed changes 

annually. The Alaska Region enforces the regulations on 22.6 million acres of NFS lands, approximately 

75 waterways, navigable lakes, and areas of the Prince William Sound. 
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13 

Permanent Appropriations 
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FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-1

Permanent Appropriations 

 

 (dollars in thousands) 

 FY 2009 

 FY 2007 

FY 

2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Brush Disposal 

 New Budget Authority $10,514 $10,000 $10,000 $0

 Program Level $14,845 $17,000 $17,900 $900

Full Time Equivalents (FTEs) 116 110 105 -5

Licensee Program 

 New Budget Authority $74 $65 $65 $0

 Program Level $18 $25 $65 $40

Full Time Equivalents (FTEs) 0 0 0 0

Restoration of Forestlands and Improvements 

 New Budget Authority $21,289 $1,600 $2,500 $900

 Program Level $3,864 $7,800 $2,500 -$5,300

Full Time Equivalents (FTEs) 13 4 3 -1

Federal Lands Recreation Enhancement Fund 

 New Budget Authority $61,042 $62,000 $65,000 $3,000

 Program Level $60,392 $91,900 $125,000 $33,100

Full Time Equivalents (FTEs) 582 574 579 5

Federal Land and Facilities Enhancement Fund 

 New Budget Authority $22,792 $46,000 $50,000 $4,000

 Program Level $12,555 $58,000 $50,000 -$8,000

Full Time Equivalents (FTEs) 19 20 20 0

Timber Roads--Purchaser Election Program 

 New Budget Authority $6,800 $4,000 $4,000 $0

 Program Level $2,354 $17,000 $2,000 -$15,000

Full Time Equivalents (FTEs) 3 10 3 -7

Timber Salvage Sales 

 New Budget Authority $49,996 $45,000 $45,000 $0

 Program Level $67,770 $61,300 $52,000 -$9,300

Full Time Equivalents (FTEs) 547 380 365 -15

Stewardship Contracting 

 New Budget Authority $1,261 $4,300 $4,500 $200

 Program Level $1,398 $5,200 $6,000 $800

Full Time Equivalents (FTEs) 0 0 0 0

Timber Pipeline Restoration Fund 

 New Budget Authority $4,191 $5,400 $5,500 $100

 Program Level $4,191 $8,000 $5,200 -$2,800

Full Time Equivalents (FTEs) 34 46 45 -1

Forest Botanical Products 

 New Budget Authority $1,646 $1,700 $1,870 $170

 Program Level $1,008 $1,400 $2,500 $1,100

Full Time Equivalents (FTEs) 15 15 21 6
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-2

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Roads and Trails (10 Percent Fund) 

 New Budget Authority $16,440 * $12,000 $13,100 $1,100

 Program Level $16,837 $0 $13,000 $13,000

Full Time Equivalents (FTEs) 58 0 35 35

Midewin Tallgrass Prairie--Rental Fees 

 New Budget Authority $790 $910 $910 $0

 Program Level $411 $550 $550 $0

Full Time Equivalents (FTEs) 0 0 1 1

Midewin Tallgrass Prairie--Restoration Fund 

 New Budget Authority $0 $0 $0 $0

 Program Level $0 $0 $0 $0

Full Time Equivalents (FTEs) 0 0 0 0

Operations and Maintenance of Quarters 

 New Budget Authority $7,746 $6,700 $6,700 $0

 Program Level $9,532 $8,200 $8,000 -$200

Full Time Equivalents (FTEs) 30 27 27 0

Land Between the Lakes Management Fund 

 New Budget Authority $3,838 $4,100 $4,250 $150

 Program Level $3,789 $3,700 $4,200 $500

Full Time Equivalents (FTEs) 16 16 18 2

Valles Caldera Fund 

 New Budget Authority $2,485 $750 $1,000 $250

 Program Level $0 $1,000 $1,000 $0

Full Time Equivalents (FTEs) 0 0 0 0

Administration of Rights-of-Way and Other Land Uses 

 New Budget Authority $2,224 $3,500 $4,600 $1,100

 Program Level $2,081 $2,100 $4,600 $2,500

Full Time Equivalents (FTEs) 13 13 20 7

PERMANENT APPROPRIATIONS 

 New Budget Authority $213,128 $208,025 $218,995 $10,970

 Program Level $201,045 $283,175 $294,515 $11,340

 Full Time Equivalents (FTEs) 1,446 1,215 1,242 27

New Budget Authority: Amounts equal actual and estimated receipts for the fiscal year. 

Program Level: Actual obligations in FY 2007; planned obligations for FY 2008 and FY 2009. 

* These funds will be transferred to the Department of Treasury as instructed in the Consolidated 

Appropriations Act, 2008 (P.L. 110-161) 
FY 2009 Budget Justification USDA Forest Service

Permanent Appropriations 

Revised February 25, 2008 

13-3

Budget Line Item Brush Disposal 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Brush Disposal 

 New Budget Authority ($000) $10,514 $10,000 $10,000 $0 

 Program Level ($000) $14,845 $17,000 $17,900 $900 

Full Time Equivalents (FTEs) 116 110 105 -5 

FY 2009 Program Changes

The FY 2009 budget proposes $17,900,000 to analyze and treat woody debris resulting from timber 

harvesting on the National Forests. Program FTEs are 105, a decrease of 5 FTEs from the FY 2008 level. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Acres of harvest related woody fuels 

treated 32,047 29,130 32,000 70,940 38,000 40,000 2,000

The program will provide for 40,000 acres of brush and logging debris disposal following timber harvest 

activities. If left untreated, logging slash would increase the fire hazard, impair reforestation, contribute 

to the buildup of insect populations, damage stream channels, look unsightly, and limit recreational uses. 

In FY 2007, 70,940 acres were treated. The disposal of brush and logging debris is necessary to protect 

and maintain national forest resources. 

Authorities

The Brush Disposal Act of August 11, 1916, as amended (16 U.S.C. 490) This Act authorizes the 

Secretary of Agriculture to require purchasers of national forest timber to deposit the estimated cost to 

dispose of brush and other debris resulting from their cutting operations. 

Program Overview 

Brush disposal funding comes from deposits required of timber purchasers. This program provides for 

the disposal of brush and other debris resulting from timber harvest operations to protect and maintain 

national forest resources. Timber harvest activities can increase fire hazard by creating logging slash. 

Slash can also impair reforestation, contribute to the buildup of insect populations, or damage stream 

channels if left untreated. Timber sale operators can perform the work or request the Forest Service 

complete this work by depositing funds to cover these costs. 

The allocation of brush disposal funds responds to each region’s assessment of authority required to 

accomplish necessary treatments. 
FY 2009 Budget Justification USDA Forest Service

Permanent Appropriations 13-4

Budget Line Item Licensee Programs (Smokey Bear and Woodsy Owl) 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Licensee Program 

 New Budget Authority ($000) $74 $65 $65 $0 

 Program Level ($000) $18 $25 $65 $40 

Full Time Equivalents (FTEs) 0 0 0 0 

FY 2009 Program Changes

The budget includes $65,000 for the licensee programs which is equal to the FY 2008 level. This 

program supports national initiatives, local programs, and products that help increase public awareness 

with regard to wildfire prevention (Smoky Bear) and maintenance of environmental quality (Woodsy 

Owl). There are no FTEs funded by this program. 

Authorities

The Smokey Bear Act (16 U.S.C. 580p-2) This Act authorizes the Secretary of Agriculture to deposit all 

fees collected under regulations promulgated by the Secretary relating to “Smokey Bear”, into a special 

Treasury account to be available to further the nationwide wildfire prevention campaign. Most fees 

deposited under this Act are royalty fees from Smokey Bear character-licensing collection agreements 

with merchandisers. 

The Woodsy Owl Act (16 U.S.C. 580p-3) This Act authorizes the Secretary of Agriculture to deposit all 

use or royalty fees collected for the manufacture, reproduction, or use of the name or character “Woodsy 

Owl” and the associated slogan, “Give a Hoot, Don’t Pollute”. The Secretary shall deposit all fees 

revenue into a special Treasury account, to be available for obligation and expenditure for the purpose of 

furthering the “Woodsy Owl” campaign promoting the wise use of the environment, and programs which 

foster maintenance and improvement of environmental quality. 

Program Overview

This Smokey Bear program supports national initiatives, programs, and products that help increase public 

awareness in regard to wildfire prevention. The licensing program receives approximately $100,000 

yearly from royalties, of which 35 percent are paid to the licensee contractor for its services. An agency 

fire prevention specialist manages the licensing contract. Smokey Bear royalties also support the 

National Smokey Bear Award program and the national fire prevention public service campaign. The 

Chief of the Forest Service has discretionary authority to use money from royalties for special projects 

that support the Smokey Bear fire prevention message. 

This Woodsy Owl program supports national initiatives, programs and products that help increase public 

awareness of activities and issues related to the improvement and maintenance of environmental quality. 

This licensing program manager identifies funding for the Woodsy Owl conservation program initiative 

to develop products, to manage the licensing program, and to enhance partnerships. The licensing 

contractor receives 35 percent of the royalties reported. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-5

Budget Line Item Restoration of National Forest Lands and Improvements 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Restoration of Forestlands and Improvements 

 New Budget Authority ($000) $21,289 $1,600 $2,500 $900 

 Program Level ($000) $3,864 $7,800 $2,500 -$5,300 

Full Time Equivalents (FTEs) 13 4 3 -1 

FY 2009 Program Changes

The budget includes $2,500,000 for the restoration of national forest lands and improvements. This 

program provides for the rehabilitation of forest resources or infrastructure that has been damaged due to 

negligence or contract non-performance of other parties. Restoration of national forest lands and 

improvements provides a funding mechanism to quickly bill, collect, and obligate funds necessary to 

restore damages to critical ecosystems and facilities so that repairs are not deferred or foregone. There 

are 3 FTEs with the program, a decrease of 1 FTE from the FY 2008 level. 

Authorities

Restoration of National Forest Lands and Improvements Act (16 U.S.C. 579c) and P.L. 85-464, Sec. 7, 

June 20, 1958, 72 Stat. 217. Any moneys received by the United States with respect to lands under the 

administration of the Forest Service (a) 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 (b) as a result of a judgment, compromise, or 

settlement of any claim, involving present or potential damage to lands or improvements, shall be 

deposited into the Treasury and are hereby appropriated and made available until expended to cover the 

cost to the United States of any improvement, protection, or rehabilitation work on lands under the 

administration of the Forest Service rendered necessary by the action which led to the forfeiture, 

judgment, compromise, or settlement: Provided, That any portion of the moneys so received in excess of 

the amount expended in performing the work necessitated by the action which led to their receipt shall be 

transferred to miscellaneous receipts. 

Program Overview

This authority protects the interests of the Forest Service when work under a permit or timber sale 

contract is not completed by a permittee or timber purchaser. In cases of non-performance, the permittee 

or contractor forfeits their bond or deposit. These funds transfer to the Restoration of Improvements fund, 

and later the Forest Service performs the work itself. 

This authority also protects the interests of the Forest Service from present or potential damage to lands or 

improvements due to the actions of another party. The authority provides the Forest Service with the 

ability to use funds from a judgment, compromise, or claim settlement. 

Restoration of Improvements funds are available until expended. Any monies received in excess of the 

amount expended in performing the appropriate work is transferred to miscellaneous receipts. Based on a 

Comptroller General's Decision (67 Comp. Gen. 276), collections may be used to cover the restoration 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-6

costs paid from Forest Service appropriations if Forest Service appropriations were used to complete the 

required work before the collections were received. The proposed program funding level is based on field 

projections of anticipated work. 
FY 2009 Budget Justification USDA Forest Service

Permanent Appropriations 

Revised February 25, 2008 

13-7

Budget Line Item Federal Lands Recreation Enhancement Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Federal Lands Recreation Enhancement Fund 

 New Budget Authority ($000) $61,042 $62,000 $65,000 $3,000 

 Program Level ($000) $60,392 $91,900 $125,000 $33,100 

Full Time Equivalents (FTEs) 582 574 579 5 

FY 2009 Program Changes

The budget includes $125,000,000 for the Recreation Enhancement Fund, an increase of $33,100,000 

above FY 2008. This budget will fund 579 FTEs, an increase of 5 from the FY 2008. A large amount of 

work in this program is executed through contracts. Funds will be used to provide annual maintenance 

and repairs to recreation facilities, enhance visitor services such as interpretation and education, and 

provide for the presence of law enforcement and other uniformed employees in recreation areas. Through 

the use of these funds the Forest Service is able to operate and maintain many of its recreation facilities 

that might otherwise have been closed due to increasing costs. 

Program Level increases in both FY 2008 and FY 2009 represent expenditures of additional revenues that 

were transferred from the Land and Water Conservation Fund as authorized by Congress under the 

Federal Lands Recreation Enhancement Act and total $93 million. Of the amount transferred, $24.6 

million is anticipated to be expended in FY 2008 on 146 projects and reduce deferred maintenance by 

approximately $19 million. The remaining balance of $68.4 million is planned to be expended in FY 

2009. These funds will be used to reduce deferred maintenance at high priority fee sites identified in 

Recreation Facility Analysis (RFA) master plans and to improve the condition of the facilities used by the 

recreating public. 

Past Performance

In FY 2007 the agency completed the development of five Recreation Resource Advisory Committees in 

response to requirements for public involvement. Recreation fees supplement appropriations and are used 

to match volunteer hours, grants, and other challenge cost share dollars to provide for the safe and healthy 

opportunity for visitors to National Forest recreation areas and to restore ecosystem damage caused by 

recreation use. Outputs associated with this program are combined and reported under individual 

resource programs throughout the Forest Service appropriated accounts. 

Authorities

Federal Lands Recreation Enhancement Act (16 U.S.C. 6801 note, 118 Stat. 3377-3393).

Program Overview 

The Federal Lands Recreation Enhancement Act (REA) provides authority through December 2014 to 

implement a fee program that demonstrates the feasibility of user-generated cost recovery for the 

operation and maintenance of recreation areas or sites on Federal lands. The Act directs the creation of 

Recreation Resource Advisory Committees (RACs) to allow for public involvement and comment on
FY 2009 Budget Justification USDA Forest Service

Permanent Appropriations 13-8

recreation fee programs. Fees collected from users of recreation facilities are used to pay for on-theground operation, maintenance, and improvements of recreation sites and services to maintain and 

enhance recreation opportunities, visitor experiences, and related habitat. 

Approximately $50 million is collected annually and used to maintain and improve facilities for which the 

fees are collected. These revenues are an integral part of sustaining the agency’s recreation program. 

The Forest Service chartered three Recreation RACs in FY 2006 for the Southern and Eastern Regions 

and the Pacific Northwest, and two in FY 2007 for California and Colorado. In cooperation with the 

Bureau of Land Management (BLM), the agency participates in twelve additional RACs. These 

committees meet several times a year to review proposed new fee areas. They demonstrate the agency’s 

continued commitment to improving its effectiveness and efficiency through increased public 

involvement and cooperation. 

The Forest Service is the contracting agency for the National Recreation Reservation Service (NRRS), 

part of Recreation One-Stop, an e-government initiative. The Forest Service has entered into a ten year 

contract valued at $100 million to provide reservations for all reservable recreation facilities on public 

lands. 
FY 2009 Budget Justification USDA Forest Service

Permanent Appropriations 

Revised February 25, 2008 

13-9

Budget Line Item Land and Facility Enhancement Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Federal Land and Facilities Enhancement Fund 

 New Budget Authority ($000) $22,792 $46,000 $50,000 $4,000 

 Program Level ($000) $12,555 $58,000 $50,000 -$8,000 

Full Time Equivalents (FTEs) 19 20 20 0 

FY 2009 Program Changes

The budget includes $50,000,000 for the Federal Land and Facility Enhancement Fund, a reduction of 

$8,000,000 from FY 2008. The budget will fund 20 FTEs, the same as the FY 2008 level. Funds will be 

used to initiate the conveyance of an estimated $39,000,000 in land and excess administrative facilities as 

displayed in Table B. Disposal of these assets are needed to accurately adjust the agency’s portfolio. 

Past Performance

In FY 2007 the agency disposed of $27,552,186 in assets at a cost of $12,600,000 as displayed in Table 

A. Only $22,792,000 was deposited in the fund because of the delay in the deposit of receipts for projects 

sold at the end of the fiscal year. Improving asset management allows the agency to fully utilize mission 

critical and mission dependent assets and manage those assets in the right condition and at the right cost. 

Outputs associated with this program are combined and reported under individual resource programs in 

the National Forest System, Land Acquisition, and Capital Improvement and Maintenance accounts. 

Authorities

Numerous Federal statutes authorize the Secretary of Agriculture to retain proceeds from the conveyance 

of land and excess structures, and expend the revenues to acquire or develop land and improvements for 

administrative purposes. 

Interior and Related Agencies Appropriations Act P.L. 107-63, Section 329 , as amended by P.L. 108-7, 

P.L. 108-108, and P.L. 108-447. 

Forest Service Facility Realignment and Enhancement Act (FSFREA) P.L. 109-54, Title V of the 

Department of the Interior, Environment, and Related Agencies Appropriations Act, 2006. This authority 

will expire September 30, 2008 
FY 2009 Budget Justification USDA Forest Service

Permanent Appropriations 13-10

Program Overview 

Land and Facility Conveyances Under Special Legislation 

This program enables specific national forests to convey land or facilities and use the proceeds to acquire, 

construct, or improve land and facilities within the same national forest or State. Revenues received from 

the sale of land or structures are deposited into the Sisk Act Fund and are available without further 

appropriation. 

Administrative Site Conveyances Program 

This program authorizes the Forest Service to convey unneeded administrative sites and retain the 

proceeds for building maintenance, rehabilitation, and construction provided certain criteria contained in 

Title V are met. The Forest Service currently owns approximately 19,000 administrative and research 

buildings. A large number of these facilities do not meet the agency’s needs. More than 60 percent of 

Forest Service facilities are more than 30 years old and more than half have exceeded their design life. 

Without major and often costly renovations, these structures frequently fail to meet administrative needs 

due to inadequate space; improper location; high maintenance costs; and failure to meet current health, 

safety, and accessibility codes. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-11 TABLE A FY 2007 Land and Facility Conveyance Accomplishments Region Project Name State Forest

Congressional

District Authority

Acres 

Conveyed

Procee

ds 

Collected 1/ 

1 Eureka Residence No. 1058 MT Kootenai 1 RF 0.15 146,500 $ 

Sandpoint Administrative Site ID Panhandle 1 S1 3.23 2,900,000 $ 

2 Crawford Work Center NE Nebraska 3 RF 3.16 65,000 $ 

Hill City Office SD Black Hills 1 RF,S2 10.21 360,000 $ 

Newcastle Dwelling WY Black Hills 1 RF 0.55 102,000 $ Spearfish Dwelling SD Black Hills 1 RF,S2 0.24 154,250 $ 

Lovell House WY Bighorn 1 RF 0.48 86,750 $ 

Mystic Ranger District Office SD Black Hills 1 RF,S2 8.25 1,200,000 $ 

3 Camp Verde Parcel D AZ Coconino 1 S3 1.56 155,000 $ 

Linda Vista AZ Coconino 1 S4 0.24 2,500 $ Blue School AZ Apache-Sitgreaves 1 S5 8.7 88 $ 

Blue Ridge School AZ Apache-Sitgreaves 1 S5 42.16 422 $ 

Santa Clara NM Gila S6 91.302 383,500 $ 

Santo Domingo NM Santa Fe 3 S7 7332.16 3,700,000 $ 

4 Loa Administrative Site UT Fishlake 2 PE/RF 1.55 135,260 $ 

Fillmore Administrative Site UT Fishlake 3 PE/RF 0.47 70,000 $ 

Pineview Recreation Residence Sites UT Wasatch-Cache 1 S8 84.06 1,700,000 $ 

Council Housing (School Administrative Site) ID Payette 1 RF 0.08 46,000 $ 

Council Housing (Whiteley Site) ID Payette 1 RF 0.21 117,000 $ 

New Meadows Housing (Cunningham Site) ID Payette 1 RF 0.24 88,000 $ 

New Meadows Housing (316 1/2 Heigho Site) ID Payette 1 RF 0.19 168,000 $ 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-12 TABLE A FY 2007 Land and Facility Conveyance Accomplishments Region Project Name State Forest

Congressional 

District Authority

Acres 

Conveyed

 Proceeds 

Collected 1/ 

5 Mill Creek 

C

A San Bernadino PE 24.86 502,000 $ 

Town of Truckee

C

A Tahoe 2 PE 19.46 3,930,000 $ 

6 Gold Beach House OR

Siskiyou - Rouge 

River 4 RF 0.15 215,000 $ 

Jeffrey Richardson (425 Pine St) OR Siskiyou 4 RF 0.28 195,000 $ 

Randy Yow, (431 Pine St,) OR Siskiyou 4 RF 0.43 260,000 $ 

Randy Yow, (Myrtle St.) OR Siskiyou 4 RF 0.29 265,000 $ 

SW Oregon Community College OR Siskiyou 4 RF 0.3 140,000 $ 

Cle Elum Ranger Station Houses

W

A Wenatchee 4 PE/RF 4.72 585,000 $ 

Malheur Residences (309 NW 5th St) OR Malheur 2 PE/RF 0.19 90,000 $ 

Malheur Residences (117 Lamford ST) OR Malheur 2 PE/RF 0.58 84,000 $ 

Malheur Residences (337 East E) OR Malheur 2 PE/RF 0.28 51,000 $ 

Malheur Residences (249 S Diamond) OR Malheur 2 PE/RF 0.16 61,000 $ 

Malheur Residences (104 N Saginaw) OR Malheur 2 PE/RF 0.36 90,000 $ 

Malheur Rsidences (224 S. Alvord) OR Malheur 2 PE/RF 0.16 69,000 $ 

Prairie City (935 Overholt) OR Malheur 3 RF 0.34 82,000 $ 

Prairie City (945 Overholt) OR Malheur 3 RF 0.26 75,000 $ 

Prairie City (118 12th) OR Malheur 3 RF 0.23 96,000 $ 

Pine Forest Development LLC (Tract C, Parcel A) OR Deschutes 2 S9 617.27 7,250,000 $ 

8

Wambaw Ranger District (Old Tyger Work Center) SC Francis Marion 1 RF 2.06 28,000 $ 

Etowah Office (Hiwassee Station) TN Cherokee 2 PE 0.28 72,000 $ 

Delta Station MS Mississippi 2 S10 0.30 35,000 $ 

Raleigh Dwelling #1 MS Mississippi 3 RF/S10 0.46 37,000 $ 

Raleigh Dwelling #2 MS Mississippi 3 RF/S10 0.46 37,000 $ 

Holly Springs Dwelling MS Mississippi 1 RF/S10 0.32 48,000 $ 

Burnsville Residence NC North Carolina 11 PE/RF 0.50 128,000 $ 

Hot Springs Residence NC North Carolina 11 PE/RF 1.40 143,000 $ 

Allen's Gap Residence NC North Carolina 11 PE/RF 1.74 60,000 $ 

Heavener Residence OK Ouachita 2 PE/RF 9.89 125,000 $ Jasper Residence AR Ozark-St Francis 3 RF/S11 0.51 90,000 $ 

Dreka Administrative Site TX Texas 2 PE 6.38 177,600 $ 

Apple Springs Workcenter TX Texas 2 PE 10.23 156,157 $ 

Old Yellowpine Workcenter TX Texas S12 1.75 20,100 $ 

Coldsprings Workcenter TX Texas 2 PE 6.43 90,000 $ 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-13 TABLE A FY 2007 Land and Facility Conveyance Accomplishments Region Project Name State Forest

Congressional

District Authority

Acres 

Conveyed

Procee

ds 

Collected 1/ 

9 Tract #1177 (Marlinton Lots) WV Monongahela 3 RB 0.52 22,000 $ 

Wright House VT Green Mountain 1 PE 5.20 339,000 $ 

Isabella Lot #7 MN Superior 8 PE/RF 1.24 56,010 $ 

Isabella Lot #1 MN Superior 8 PE/RF 1.86 105,050 $ 

Gorham Office NH White Mountain 2 PE/RF 1.84 163,000 $ 

Total 8,312.89 $27,552,186

1/ Total proceeds collected does not agree with actual collections deposited in FY 2007. This is due to delays in actual receipt of revenues collected for

 projects sold at the end of the fiscal year. Actual collections deposited in FY 2007 totaled $22.8 million.

State Specific AuthoritiesS1 - Federal Building, Sandpoint Idaho (Consolidated Appropriations Act, 2005, Title III, General Provisions, Sec. 346, P.L. 108-447)S2 - Black Hills and Rocky Mountain Research Station Improvement Act (South Dakota) (P.L. 106-329)S3 - Arizona National Forest Improvement Act of 2000 (P.L. 106-458)S4 - Northern Arizona Land Exchange and Verde River Basin Partnership Act of 2005 (P.L. 109-110)S5 - Education Land Grant Act, Title II (P.L. 106-577)S6 - Fort Bayard Military Reservation, New Mexico Land Conveyance Act (P.L. 90-625)S7 - Santo Domingo Pueblo Claims Settlement Act of 2000 (P.L. 106-425)S8 - Wasatch-Cache National Forest (Consolidated Appropriations Act, 2005, Title II, P.L. 108-447)S9 - Bend Pine Nursery Land Conveyance Act (Oregon) (P.L. 106-526)S10 - Mississippi National Forest Improvement Act of 1999 (Consolidated Appropriations Act, 2000, Appendix C, Title IV, Sec. 401-403, P.L.106-113)

S11 - Ozark-St. Francis and Ouchita National Forests (P.L. 108-350)S12 - Texas National Forests Improvement Act of 2000 (P.L. 106-330)FY 2002 Interior and Related Agencies Appropriations Act, P.L.107-63, Section 329, as amended by P.L. 108-7, P.L. 108-108, and P.L. 108-447 

PE - Existing PilotForest Service Facility Realignment and Enhancement Act of 2005 (FY 2006 Interior, Environment and Related Agencies Appropriations Act, Title V, P.L. 109-54)

RF - Facility Conveyance ProjectRB - Bare Land Conveyance Project
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-14 Table B FY 2009 Land and Facilit

y Planned Conve

yance Projects

Deferred 

Acres of Maintenance Estimated 

Congressional Authority Land with Reduction Sale Proceeds

Region Project Name State Forest District Used* Conveyance (thousands) (thousands)

2 Rapid City Administrative Site SD Black Hills 1 RB 12 N/

A

Spearfish Administrative Site SD Black Hills 1 RB 11 N/AWalden Residence #2 CO Medicine Bow-Routt 3 RF 0 $33La Jara Ranger Dwelling CO Rio Grande 3 RF 5 $21Alamosa Administrative Site Utility Bldg CO Rio Grande 3 RF 1 $34

Saguache Bunkhouse CO Rio Grande 3 RF <1 $12Saguache Ranger Dwelling CO Rio Grande 3 RF <1 $12Creede Dwelling CO Rio Grande 3 RF 0 $29

Miner Street Residence CO Arapaho-Roosevelt 2 RF 0 $35

St. Vrain Cabin CO Arapaho-Roosevelt 2 RF 24 $48

Ptarmigan Administrative Site Lodge CO Arapaho-Roosevelt 2 RF 10 $80

Briggsdale Administrative Site Dwelling CO Arapaho-Roosevelt 2 RF 2 $29

Bailey Work Center CO PSICC 5 RB 1 $7Pagosa Dwelling #1 CO San Juan 3 RF 0 $93Pagosa Dwelling #2 CO San Juan 3 RF 0 $847th Ave. Dwelling CO San Juan 3 RF 0 $60Trimble Work Center - Parcel 1 CO San Juan 3 RB 15 N/ATrimble Work Center - Parcel 2 CO San Juan 3 RB 5 $113Crandall Ranger Station Tree Cooler WY Shoshone At Large RF n/a $1Wapiti Ranger District Warehouse WY Shoshone At Large RF 0 $36Crandall Tack Shed WY Shoshone At Large RF n/a $7El Jebel Administrative Site CO White River 2 RF 29 $37

Region 2 Total 117 $771 $25,759

3 Lakeside Ranger Station Relocation Project AZ Apache-Sitgreaves 1 RF 40 $151

Region 3 Total 40 $151 $4,000

4 Island Park Ranger Station ID Caribou-Targhee 2 RF 40 $161

Panguitch Ranger Administrative Site UT Dixie 2 RF 2 $8

Cedar City Work Center Administrative Site UT Dixie 2 RF 5 $1,056

Kamas Ranger District Dwellings UT Wasatch-Cache 1 RF 1 $15

Region 4 Total 48 $1,240 $2,738
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-15 Table B FY 2009 Land and Facilit

y Planned Conve

yance Projects

Deferred 

Acres of Maintenance Estimated 

Congressional Authority Land with Reduction Sale Proceeds

Region Project Name State Forest District Used* Conveyance (thousands) (thousands)

6 Hood Canal Residential Site WA Olympic 6 RF 2 $4

Enterprise Compound OR Wallowa-Whitman 2 RF 2 $65Raddue Guard Station OR Malheur 2 RF 10 $47Communications Shop OR Malheur 2 RF 0 $52Scott St Compound OR Deschutes 2 RF 6 $104

Region 6 Total 20 $272 $2,245

8 Clinch Assistant Ranger Residence VA

George WashingtonJefferson 9 RF 0 $18

Region 3 Total 0 $18 $80

9 Rolla Administrative Site MO Mark Twain 8 S1 9 N/A

Sault Ste. Marie MI Hiawatha 1 RF 0 $123

Region 9 Total 9 $123 $1,261

10 Tongass Project 1 AK Tongass 1 RF 1 $233

Tongass Project 2 AK Tongass 1 RF 1 $25Chgach Project 3 AK Chugach 1 RF 1 $737

Region 10 Total 2 $995 $1,473

NRS Hamden CT N/A 3 RF 10 $138

Ansonia CT N/A 3 RF 17 $30

NRS Total 27 $168 $1,450

Total 265 $3,738 $39,006

State Specific AuthoritiesS1 - Land Conveyance, Rolla Ranger District Administrative Site, Rolla, Missouri (P.L. 104-165)Forest Service Facility Realignment and Enhancement Act of 20RF - Facility Conveyance ProjectRB - Bare Land Conveyance Project

05 (FY 2006 Interior, Environment and Related Agencies Appropriations Act, Title V, P.L. 109-54)
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-16

Table C 

Change in Land and Facility Planned Conveyance Projects

The following project scopes have been updated from the Land and Facility Conveyance listings in FY 

2008: 

Fiscal 

Year Region State Project Name Forest/Station 

Cong. 

District Acres 

2008 4 WY Bridger-Teton SO * Bridger-Teton 1 16 

*This project has increased in scope. The prior listing did not include this acreage amount. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-17

Budget Line Item Timber Purchaser Election Road Construction 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Timber Roads--Purchaser Election Program 

 New Budget Authority ($000) $6,800 $4,000 $4,000 $0 

 Program Level ($000) $2,354 $17,000 $2,000 -$15,000 

Full Time Equivalents (FTEs) 3 10 3 -7 

FY 2009 Program Changes

The FY 2009 budget includes $2,000,000 and 3 FTEs, which is the typical program level for this fund. 

Program accomplishments in FY 2009 are dependent upon the number of qualifying small businesses 

purchasing timber sales, and the number of those that do not have the capability to perform the required 

road work. The program constructs or improves specified roads and bridges in order to support timber 

harvest operations of small business operators. 

In FY 2008, Section 423 of P.L. 110-161, Consolidated Appropriations Act, 2008, Congress directed the 

Forest Service to allocate to Regions $15,000,000 from the current Timber Purchaser Election Road 

Construction balance, for work such as vegetative treatments, road work in support of vegetative 

treatments, and maintaining infrastructure for the processing of wood fiber. The additional allocation for 

FY 2008, displayed above, is not typical for the program and is not included in the FY 2009 Budget. 

In FY 2008, P.L. 110-161, Consolidated Appropriations Act, 2008, Congress also directed the Forest 

Service to transfer $25,000,000 from this fund and merge it with the Capital Improvement and 

Maintenance account. This too is not included in the FY 2009 Budget. 

Past Performance

In FY 2007, 22 miles of road were improved under Purchaser Election in support of the Forest Products 

program. This program benefits both small timber contractors who might otherwise be unable to bid on 

Forest Service timber sales, as well as providing for appropriate road improvements preventing soil 

degradation, stream sedimentation, or other damages resulting from poor road construction and 

maintenance. 

Authorities

The National Forest Management Act of 1976 (16 U.S.C. 472a (i)

Program Overview 

The Purchaser Election program supports construction and reconstruction of any permanent road or 

bridge required under the terms and conditions of timber sale contracts. When a small business timber 

purchaser is awarded a contract, the purchaser may elect to pay the Forest Service to construct or 

reconstruct “specified roads” in the timber sale contract to a standard necessary to harvest and remove the 

timber and other products covered by the particular sales. The agency contracts for the construction and 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-18

administers the contract. To qualify for this program the estimated cost of road construction and/or 

reconstruction must exceed $50,000. An estimated 10 to 100 miles of road is constructed or reconstructed 

through the Purchaser Election program annually. 

 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-19

Budget Line Item Timber Salvage Sales 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Timber Salvage Sales 

 New Budget Authority ($000) $49,996 $45,000 $45,000 $0 

 Program Level ($000) $67,770 $61,300 $52,000 -$9,300 

Full Time Equivalents (FTEs) 547 380 365 -15 

FY 2009 Program Changes 

The FY 2009 budget includes $52,000,000 for the Timber Salvage Sales Fund, a decrease of $9,300,000 

from the FY 2008 level. The budget will fund 365 FTEs, a decrease of 15 FTEs from the FY 2008 level. 

Planned program level expenditures reflect prior year collections which are projected to decrease from FY 

2007 levels. This reduces the effective program level. 

The agency has additional capability to produce timber volume in FY 2009 as displayed on the Timber 

Program Components tables on p. 8-26. Some to all of this volume could be sold if an improvement in 

the housing market and lumber prices resulted in higher collections of revenues for the Salvage Sale Fund 

than are currently anticipated. 

Plan and Prepare Salvage Timber Sales (- $9,800,000) 

The budget includes $36,000,000 for this activity, a decrease of $9,800,000 from the FY 2008 level. This 

funding would be used to analyze, prepare, and offer salvage timber sales that would be sold in future 

years. These salvage timber sales are needed to accomplish land and resource management objectives on 

the National Forests, such as reducing the potential for catastrophic wildland fires and other hazards 

associated with dead or dying timber. It is expected that 750,000 CCF (about 375 MMBF) of timber 

volume would be sold in FY 2009, an increase of 90,000 CCF (about 45 MMBF) over the FY 2008 level. 

Timely salvage helps recover timber product value from dead and dying timber. 

Administer Salvage Timber Sales (+$500,000) 

The budget includes $16,000,000 for this activity, an increase of $500,000 from the FY 2008 level. This 

funding would be used to administer timber sales. Timber sale administration is required to ensure that 

all appropriate contractual provisions and environmental protection standards are met during timber 

harvesting. 

Program Performance

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Salvage timber volume sold 

(hundred cubic feet (CCF))* N/A 974 650 517 460 375 -85

Salvage timber volume sold 

(million board feet (MMBF))* N/A 1,862,175 1,300,000 978,050 920,000 750,000 -170,000

* New output measure starting in 

FY 2006 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-20

Annual Strategic Measures – Explanations and Action Plans

Green tons from small diameter and low value trees removed from National Forest System lands and 

made available for bio-energy production: Target 2,100,000 green tons, accomplished 2,767,897 green 

tons (132 percent). This is a relatively new measure, and as such the agency has not developed a data 

history for establishment of target levels. The agency is taking action to increase interest from industry in 

biomass for energy production, and continues to identify new opportunities to make this resource 

available in anticipation of expanding demand. The agency will utilize ongoing program reviews to 

improve accuracy in reporting of biomass that is made available for energy production through our 

existing Timber Information Manager (TIM) database. This refinement will lead to establishment of 

target levels based on realistic demand and capability levels. 

Authorities

The National Forest Management Act of 1976 (16 U.S.C. 472a (h) Purchasers of salvage timber harvests 

shall deposit the timber sale price in a designated Treasury fund from which money is available for 

obligation until expended. 

Program Overview 

 

The Salvage Sale program collects revenues from the sale of timber from dead and dying trees to prepare 

and administer future salvage timber sales, including engineering support. These revenues are deposited 

into the Salvage Sale Fund and are available to immediately respond to timber salvage opportunities. The 

removal of fire-damaged, diseased and insect-infested timber through timber sale contracts is a tool to 

reduce the potential for catastrophic wildland fires and other hazards associated with dead or dying 

timber. Timely salvage sales also help maximize the recovery of potentially lost timber product value; 

and through the collection of Knutson-Vandenberg Act funds, can provide for restoration of the affected 

area. 

In addition to the Salvage Sales Fund, timber sales are funded through regular appropriations and other 

special authorities, including the Timber Sale Pipeline Restoration Fund, the Knutson – Vandenberg (KV) Fund, and the Stewardship Contracting Fund. All of these special funds receive a portion of the 

revenues received from timber sales. Timber Salvage Sales funds are allocated based upon regional cash 

available and the relative need for treatment each fiscal year. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-21

Budget Line Item Stewardship Contracting 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Stewardship Contracting 

 New Budget Authority ($000) $1,261 $4,300 $4,500 $200 

 Program Level ($000) $1,398 $5,200 $6,000 $800 

Full Time Equivalents (FTEs) 0 0 0 0 

FY 2009 Program Changes

In addition to Stewardship Contracting, timber sales are funded through regular appropriations and other 

special authorities, including the Timber Sale Pipeline Restoration Fund, the Knutson - Vandenberg (KV) Fund, and the Salvage Sale Fund. All of these special funds receive a portion of the revenues received 

from timber sales. 

Stewardship Contracting 

The budget proposed for this permanent fund is $6,000,000 an increase of $800,000 over the FY 2008 

level. This money becomes available when the funds from the sale of forest products exceeds the cost of 

the service work obtained under an integrated resource contract. This funding will be used to improve, 

maintain, and/or restore forest and rangeland health; restore and maintain water quality; improve fish and 

wildlife habitat; reestablish native plant species and increase their resilience to insects, disease, and other 

natural disturbances; and reduce hazardous fuels that pose risks to communities and ecosystem values. 

A cornerstone of the President’s Healthy Forests Initiative, stewardship contracting enables the Forest 

Service to accomplish land and resource management objectives, such as improvement of forest health, 

restoration of wildlife habitat, and providing forest products to meet local and national needs. The table 

below shows the multiple accomplishments under stewardship contracting. The accomplishments 

resulting from stewardship contracting continue to increase, as indicated by the growing number of acres 

brought under contracts or agreements, the acres of forest vegetation improved, and the green tons of 

biomass made available for energy production. 

Program Performance

The table on the following page displays information related to program performance. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-22

 

FY 2005 FY 2006 FY 2007 FY 2008 F

Annual Output Measure Actual Actual Plan Actual Plan Acres of forest vegetation established 1,264 47 na 111 50 Acres of forestland vegetation improved 6,108 13,008 na 14,275 13,000 Acres of noxious weeds/ invasive plant treatments 2,769 30 na 193 50 Acres of wildlife habitat restored or improved 4,988 4,022 na 12,196 8,000 Miles of stream habitat restored or enhanced 42 1.5 na 87 80 Miles of road decommissioning 90 68 na 29 26 Miles of high clearance system roads improved N.A. 1 N.A. 1 na 129 116 Miles of passenger car system roads improved N.A. 1 N.A. 1 na 35 32 Hundred cubic feet of timber volume sold 196,079 471,996 N/A 655,072 400,000 Million board feet of timber volume sold N/A 241 N/A 331 200 Hundred cubic feet of timber volume sold 196,079 471,996 na 655,072 400,000 Green tons of biomass made available for energy production 37,464 70,147 na 383,767 273,000 Acres of stewardship contracts / agreements awarded 34,491 60,344 na 77,676 91,000 Acres of hazardous fuels treated to reduce the risk of catastrophic fires 2 52,944 59,152 na 49,938 50,000 Acres of WUI treatments 3 29,324 35,727 na 34,285 34,000 Number of stewardship contracts / agreements contributing to watersheds in fully functioning condition (number) 5 4 7 na 4 7 

1 Road improvements not broken out by road type in FY 2005-2006. Total road improvements were 18 and 533, respectively. 2 For FY 2005 - includes hazardous fuels in Condition Class 2 or 3 in fire regimes 1, 2, or 3 treated outside the Wildland Urban Interface  as well as hazardous fuels in fire regimes 1, 2, or 3 moved to a better condition class. 2 For FY 2006 - includes hazardous fuels in Condition Class 2 or 3 that result in a desired change in Condition Class (WUI and non-WU as well as non-WUI hazardous fuels treated. 2 For FY 2007 - includes non-WUI hazardous fuels treated under stewardship contracting, as well as non-WUI hazardous fuels treated. 3 For FY 2005-2006 - includes WUI high priority fuels treated; for FY 2007 includes WUI treatments to reduce the risk of catastrophic w4 For FY 2005 only - reported as the number of watershed where conditions improved due to stewardship contracting. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-23

Program Overview 

Stewardship contracting facilitates the accomplishment of various resource management objectives 

through the use of innovative new authorities, including applying receipts from timber sales towards 

resource work and using best value contracting, contracts that extend to ten years, and “bundled” 

contracts. Collaboration with local and rural communities is an integral part of each stewardship contract 

or agreement. 

An analysis on the results of a prototype efficiency measure for stewardship contracting is currently being 

conducted. The analysis compares stewardship contract price savings to the full contract price had the 

savings not occurred. At this early stage of the analysis, preliminary data indicate higher efficiency of 

stewardship contract prices for hazardous fuels treatments and timber stand improvement. Additional 

data collection, methodology refinement, and further analysis are necessary to validate the preliminary 

indications of higher efficiency. 

Funds generated through the sale of forest products that exceed the value of stewardship services 

provided are available for prescribed purposes. The national allocation of these funds is used to achieve 

land management goals that benefit local and rural community needs and meet one of the seven goals 

contained in the law, as follows: 

• Road and trail maintenance or obliteration to restore or maintain water quality; 

• Soil productivity, habitat for wildlife and fisheries, or other resource values; 

• Setting of prescribed fires to improve the composition, structure, condition and health of stands or 

improve wildlife habitat; 

• Removing vegetation or other activities to promote healthy forests, reduce fire hazards, or 

achieve other land management objectives; 

• Watershed restoration and maintenance; 

• Restoration and maintenance of wildlife and fisheries habitat; and 

• Control of noxious and invasive weeds, and re-establishment of native plant species. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-24

Timber Sale Pipeline Restoration Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Timber Pipeline Restoration Fund 

 New Budget Authority ($000) $4,191 $5,400 $5,500 $100 

 Program Level ($000) $4,191 $8,000 $5,200 -$2,800 

Full Time Equivalents (FTEs) 34 46 45 -1 

FY 2009 Program Changes

The budget includes $5,200,000 for the Timber Sale Pipeline Restoration Fund, a decrease of $2,800,000 

from FY 2008. The budget would fund 45 FTEs, a decrease of 1 from the FY 2008 level. 

Timber Sale Pipeline Restoration 

The budget includes $3,900,000 to analyze and prepare non-salvage timber sale volume for sale in the 

future. This is a reduction from FY 2008, but is in line with available collections. The pipeline restoration 

program will accomplish a multitude of land and resource management objectives, such as improving 

forest health, restoring wildlife habitat, and providing forest products to meet local and national needs. 

About 100,000 CCF (50 MMBF) will be added to the pipeline of timber sales prepared for offer as a 

result of this funding. The Pipeline Restoration fund provides an opportunity to provide economically 

viable timber sales. Timber sales are used as a cost effective means of achieving resource objectives such 

as wildlife habitat improvement, and hazardous fuels treatments. The Pipeline fund supports the forest 

products program towards those benefits. 

Recreation Backlog 

The budget includes $1,300,000 to fund backlog recreation maintenance projects; a reduction from the FY 

2008 estimate consistent with available collections. These funds assist the agency in reducing deferred 

maintenance on recreation facilities and trails. The emphasis of the program is to address health and 

safety deficiencies at priority recreation locations. The program benefits the recreating public by 

addressing maintenance issues that may cause harm or otherwise detract from the outdoor experience. 

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Timber Pipeline Volume 

(MMBF) 248 448 N.A. 264 300 350 50

Timber Pipeline Volume (CCF) 495,649 895,639 N.A. 528,827 600,000 700,000 100,000

Authorities

Omnibus Consolidated Rescissions and Appropriations Act of 1996, Section 327(110 Stat. 1321 206-207) 

P.L. 104-134 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-25

Program Overview 

The Secretary of Agriculture is authorized to collect revenues from a specific set of timber sales to be 

deposited into this Fund. Revenues from the sale of timber prepared using these funds are also deposited 

into this Fund for the same timber sale preparation and recreation backlog development purposes as 

follows: 

Timber Sale Pipeline 

Seventy five percent of these funds are used for preparation of future non-salvage timber sales to restore 

the timber sale pipeline. Emphasis is placed on preparing additional timber sales for contract preparation 

and offer in future years. 

Recreation Backlog 

Twenty five percent of these funds are expended on the backlog of recreation projects. Emphasis is 

placed on repairs to correct health and safety deficiencies and reducing the backlog of deferred 

maintenance at priority recreation sites as identified on the forests Recreation Facility Analysis (RFA). 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-26

Forest Botanical Products 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Forest Botanical Products 

 New Budget Authority ($000) $1,646 $1,700 $1,870 $170 

 Program Level ($000) $1,008 $1,400 $2,500 $1,100 

Full Time Equivalents (FTEs) 15 15 21 6 

 Change 

 FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Sold value of forest botanical 

products $1,418,860 $2,244,191 NA $2,503,442 $2,800,000 $3,100,000 $300,000

FY 2009 Program Changes

In FY 2009, the program will utilize $2,500,000 to fund environmental analysis and monitoring, 

inventory, determination of harvest level sustainability, and permit issuance and administration to 

facilitate the sale of forest botanical products that meet local and national needs. This program funds 21 

FTEs, an increase of 6 FTEs from the FY 2008 level. This program assures that botanicals are removed 

in a sustainable, and environmentally benign manner, while responding to the need for culturally 

important, medicinal, and the wide variety of other botanical products. 

Authorities

Omnibus Consolidated Appropriations Act of 2000 (P.L. 106-133)sec. 339, as amended by The Interior 

and Related Agencies Appropriations Act of 2004, (P.L. 108-108) sec. 335. This authority is provided 

through Sept. 30, 2010. 

Program Overview 

This pilot 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 sale and harvest of forest botanical products through FY 2010. The 

objectives of this pilot program are to maintain, enhance, or restore forest ecosystems to desired 

conditions, and to provide for the sale and harvest of forest botanical products in a manner that 

contributes to meeting the nation’s demand for these goods and services. 

The Forest Service collects a portion of the fair market value of harvested forest botanical products, as 

well as, a portion of the costs associated with granting, modifying, or monitoring the authorization for 

harvest. Funds collected under this authority through FY 2009 will be expended on units of the National 

Forest System in proportion to the charges and fees collected at each unit. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-27

Roads and Trails (10 percent) Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Roads and Trails (10 Percent Fund) 

 New Budget Authority ($000) $16,440 $12,000 $13,100 $1,100 

 Program Level ($000) $16,837 $0 $13,000 $13,000 

Full Time Equivalents (FTEs) 58 0 35 35 

FY 2009 Program Changes

The FY 2009 program is $13,000,000 and will fund 35 FTEs, which is the typical program funding level. 

Funding in FY 2009 will be used to improve forest roads, maintain trails, and mitigate stream crossings. 

Funds are returned to the region where they are collected, and planned accomplishments for FY 2009 will 

respond to local health and safety issues and the needs for emergency repairs. 

In FY 2008, P.L. 110-161, Consolidated Appropriations Act, 2008, Congress directed the Forest Service 

to transfer to the General Fund of the Treasury any Roads and Trails funds that become available in FY 

2008. Therefore, there is no program level for FY 2008. 

Past Performance

In FY 2007, 98 miles of road and 5 miles of trail were improved, 43 miles of trail were maintained, and 

improvements in aquatic passage were made at 62 stream crossings. This program reduces erosion and 

sedimentation in order to improve water quality and watershed health. Improvements of the traveled way 

provides for increased public health and safety, improved access for emergency vehicles and egress in 

emergency situations, such as wildfire or natural disasters. Improvements to road/trail-stream crossings 

improves species viability by providing for the restoration of aquatic organism passage. 

Authorities

The Act of March 4, 1913, as amended (16 U.S.C. 501) and Fiscal Year 1999 Appropriations Act (112 

Stat. 297-298 Section 343) P.L. 105-277 

Program Overview 

A total of 10 percent of all national forest receipts are used by the Forest Service, without regard to the 

State in which the amounts were derived, to repair or reconstruct roads, bridges, and trails on National 

Forest System (NFS) lands. In FY 1999, the authority was expanded to allow the use of funds for the 

purpose of improving forest health conditions, including repair or reconstruction of roads and bridges on 

NFS lands in the wildland-urban interface. The program reduces risk to human safety and public health 

and property and enhances ecological functions, long-term forest productivity, and biological integrity. 

Funds are directed towards correcting road and trail deficiencies that adversely affect ecosystems. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-28

Midewin National Tallgrass Prairie Rental Fee Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Midewin Tallgrass Prairie--Rental Fees 

 New Budget Authority ($000) $790 $910 $910 $0 

 Program Level ($000) $411 $550 $550 $0 

Full Time Equivalents (FTEs) 0 0 1 1 

FY 2009 Program Changes

The FY 2009 President’s Budget includes $550,000 and 1 FTE to restore and manage prairie and wetland 

habitat on the Midewin National Tallgrass Prairie (MNTP). The funds provide for maintaining native 

plant communities and grassland bird habitat at the prairie. The ability to collect funds from grazing and 

agricultural uses provides a needed resource to the Prairie managers to continue to: restore ecosystems 

and habitats in order to enhance biodiversity; to promote scientific, environmental, and educational 

research; to develop best practices for land management; and to provide a variety of recreation 

opportunities which would otherwise be foregone. 

Authorities

The Illinois Land Conservation Act of 1995 (16 U.S.C. 1609) 

Program Overview 

The Illinois Land Conservation Act of 1995 established the Midewin National Tallgrass Prairie (MNTP), 

to be managed as part of the National Forest System. After appropriate payments to the State of Illinois 

and Will County, receipts from rental fees for use of MNTP land for agricultural purposes can be used to 

cover the cost of restoration, prairie improvement, and administrative activities. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-29

Midewin National Tallgrass Prairie Restoration Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Midewin Tallgrass Prairie--Restoration Fund 

 New Budget Authority ($000) $0 $0 $0 $0 

 Program Level ($000) $0 $0 $0 $0 

Full Time Equivalents (FTEs) 0 0 0 0 

FY 2009 Program Changes

No funds are proposed in the budget for this program in the FY 2009 President’s Budget. 

Authorities

The Illinois Land Conservation Act of 1995 (16 U.S.C. 1609) 

Program Overview 

Receipts from user fees, sales of surplus equipment, and the salvage value proceeds from the sale of any 

facilities and improvements can be used to cover the cost of restoration; construction of a visitor center, 

recreational facilities, and administrative office; prairie improvement; and operation and maintenance 

activities. 

Salvage opportunities anticipated by the legislation have not materialized; less than $4,000 has been 

generated over the past 10 years. No expenditures have been made from this account since its creation. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-30

Operation and Maintenance of Quarters 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Operations and Maintenance of Quarters 

 New Budget Authority ($000) $7,746 $6,700 $6,700 $0 

 Program Level ($000) $9,532 $8,200 $8,000 -$200 

Full Time Equivalents (FTEs) 30 27 27 0 

FY 2009 Program Changes

The FY 2009 proposal includes $8,000,000 or a decrease of $200,000 from FY 2008. The program 

funds 27 FTEs as well. These funds maintain employee occupied living quarters in safe and healthy 

conditions. The program will emphasize improvements to water systems and health and safety issues. In 

addition to maintaining safe and pleasant housing, work in this fund contributes to the reduction of the 

agency’s deferred maintenance backlog. 

Authorities

Forest Service Quarters Operations and Maintenance (5 U.S.C. 5911, Other Provisions). This Act 

authorizes the collection of rental income from employees living in government residences. Such rents 

and charges shall be deposited in a special Treasury fund, to remain available for obligation until 

expended, for maintenance and operation of quarters. 

Program Overview 

This program provides for maintenance, operation, and management of employee housing facilities, 

including associated utility systems. Funds may also be used to pay the rental costs for leased quarters, 

including utilities. 

Maintenance is defined as all types of maintenance to a structure or building including any governmentowned property and appliances integral to the facility. The fund does not cover betterments, additions, 

replacement construction, or new construction. Funds collected are used, in addition to the facilities 

multi-program assessment, to operate and maintain employee housing, and are focused first on health and 

safety issues. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-31

Land Between the Lakes Management Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Land Between the Lakes Management Fund 

 New Budget Authority ($000) $3,838 $4,100 $4,250 $150 

 Program Level ($000) $3,789 $3,700 $4,200 $500 

Full Time Equivalents (FTEs) 16 16 18 2 

FY 2009 Program Changes

The proposed budget level is $4,200,000 for the Land Between the Lakes (LBL) Management Fund, an 

increase of $500,000 million above FY 2008. The program funds 18 FTEs, which is an increase of 2 over 

the FY 2008 level. Funds will be used to directly support operational costs for customer-focused 

recreation and environmental education programs as well as capital improvements at the facilities where 

collected. Treatment of the short leaf pine ecosystem in Tennessee and development of the 

Environmental Management System (EMS) will continue. The Crooked Creek Environmental Analysis 

will be completed and implementation will begin in FY 2009. Additional revenues will be generated with 

the implementation of a new fee structure that passes increasing contract, fuel, and other inflationary costs 

along to customers who directly benefit, primarily in LBL’s campgrounds and day use facilities. 

During FY 2007 LBL maintained an average of about 30 percent cost recovery. Using the Management 

Fund to cover routine operations costs for the facilities that generate revenue reduces the need for 

appropriated funds. The Management Fund helped complete the transition of Turkey Bay off-highway 

vehicle area to a designated trail system through restoration projects and signing. 

Plans for FY 2008 include implementation of a new refuge management plan and forest management 

treatments for the Long Creek portion of the Northern Oak Grassland Area. LBL will also begin analysis 

and treatment of a short leaf pine ecosystem area in the Tennessee portion of the National Recreation 

Area (NRA). For the first time, a portion of collected fees will be spent at that same location to offset 

deferred maintenance backlogs. 

Authorities

Land Between the Lakes Protection Act of 1998 (16 U.S.C. 460lll). This Act authorizes the Forest 

Service to retain certain recreation revenue receipts from the Land Between the Lakes National 

Recreation Area, to be deposited into a special Treasury fund to be available for obligation until 

expended. 

Program Overview 

The Land Between the Lakes (LBL) National Recreation Area provides public recreational opportunities; 

conserves fish and wildlife and their habitat; provides for diversity of plants and animals; and offers 

opportunities for hunting, fishing, and environmental education. LBL hosts an average of 2 million visits 

annually from people who come from all over the Nation and more than 30 foreign countries. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-32

Section 524 of the authorizing Act established a special fund known as the “Land Between the Lakes 

Management Fund.” All amounts received from charges, use fees, and natural resource use, including 

timber and agricultural receipts, are deposited into the management fund. Funds are used to manage the 

LBL, including payment of salaries and expenses. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-33

Valles Caldera Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Valles Caldera Fund 

 New Budget Authority ($000) $2,485 $750 $1,000 $250 

 Program Level ($000) $0 $1,000 $1,000 $0 

Full Time Equivalents (FTEs) 0 0 0 0 

FY 2009 Program Changes

The budget includes $1,000,000 for the management and administration of the Valles Caldera National 

Preserve by the Valles Caldera Trust, a government corporation. The ability to charge and retain receipts 

for recreational and other uses provides the mechanism for the Preserve to improve access, enhance 

recreational opportunities, upgrade infrastructure, and purchase branded products for resale. The benefit 

of this program is to facilitate the management of the Preserve, and to further the statutory obligation of 

the Valles Caldera Trust to become financially self-sufficient. 

Authorities

The Valles Caldera Preservation Act of 2000 (16 U.S.C. 698v). This Act authorizes establishment of the 

Valles Caldera Fund. 

Program Overview 

The Act provided for the acquisition of the Baca Ranch located in the Jemez Mountains of New Mexico, 

designated the acquired lands as the Valles Caldera National Preserve (the “Preserve”) and created the 

Valles Caldera Trust (the “Trust”) to manage the 88,900-acre tract. The Preserve protects and preserves 

the scientific, scenic, geologic, watershed, wildlife, historic, heritage, and recreational values, and 

provides for multiple use and the sustained yield of renewable resources. 

The Preserve is managed by the Valles Caldera Trust, a government corporation, that prepares annual 

budgets with the goal of achieving a financially self-sustaining operation by 2015. The Valles Caldera 

Fund (the “Fund”), an interest-bearing account to hold and manage Preserve receipts, will be available 

without further appropriation for the administration, preservation, restoration, operation, and maintenance 

of the Preserve. 

The Act allows for a variety of approaches to generate revenue for the Fund in support of the management 

of the Preserve and to carry out the duties of the Trust. Various funding mechanisms exist from private, 

public and non-profit organizations. Options include; accepting donations from foundations or the private 

sectors through charitable giving, or charging fees for use (grazing, forest products, filming, etc), and/or 

admission fees and use fees. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-34

Administration of Rights-of-Way and Other Land Uses 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Administration of Rights-of-Way and Other Land Uses 

 New Budget Authority ($000) $2,224 $3,500 $4,600 $1,100 

 Program Level ($000) $2,081 $2,100 $4,600 $2,500 

Full Time Equivalents (FTEs) 13 13 20 7 

FY 2009 Program Changes

The budget includes $4,600,000 for the Administration of Rights-of-Way and Other Land Uses, an 

increase of $2,500,000 above the FY 2008 level. The budget will fund 20 FTEs, an increase of 7 above 

FY 2008. Funds will continue implementation of the Recovery of Cost pilot program and provide for the 

processing and monitoring of commercial filming and organizational camp fee uses. Progress will be 

reviewed to insure consistent and cost effective management occurs while improving customer service 

and reducing the backlog of permit applications. During FY 2007, the first year of operations, the agency 

recovered approximately $1.5 million in costs involving 1,500 uses. The backlog of authorizations also 

fell from 11,000 to 7,750 reflecting improvements in program administration. Processing and authorizing 

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. 

Authorities

Numerous Federal statutes authorize the Secretary of Agriculture to assess and collect fees from 

applicants for, and holders of, special use authorizations. These fees pay for the agency’s administrative 

costs to process applications for, and monitor, such authorizations. These authorities include the 

Independent Offices Appropriations Act of 1952 (P.L. 82-137), Mineral Leasing Act of 1920, as amended 

(P.L. 66-146); and the Federal Land Policy and Management Act of 1976 (P.L. 94-579). In addition, 

specific legislation authorizing the implementation of each program within this account is as follows: 

Special Use Application and Permit Monitoring Fees. P.L. 106-113, Interior and Related Agencies 

Appropriations Act, 2000, Section 331 (113 Stat. 1501A-196 - 197), as amended by P.L. 108-447, 

Consolidated Appropriations Act, 2005, Division E, Section 345 (118 Stat. 3105), P.L. 109-54, Interior, 

Environment and Related Agencies Appropriations Act, 2006, Section 425 (119 Stat. 555) and P.L. 110-

161 Consolidated Appropriations Act, 2008. 

Commercial Filming (16 U.S.C. 460l-6d). The Act of May 26, 2000 (Pub. L. 106-206) authorizes 

retention of fees collected for commercial filming and photography land use authorizations and the 

obligation of the monies for the maintenance of the filming site. 

Organizational Camp Fees P.L. 108-7, Consolidated Appropriations Resolution, 2003, Title V National 

Forest Organizational Camp Fee Improvement Act of 2003 (117 Stat. 294-297) 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-35

Program Overview 

Special Use Application Processing and Permit Monitoring Fees 

This pilot program, recently extended through September 30, 2012, is designed to improve customer 

service to applicants and holders of special land use authorizations and reduce the agency’s backlog of 

expired authorizations. Special use authorizations provide the authority for use of Federal lands for a 

wide variety of purposes including rights–of–way for roads, pipelines, communication sites, and electric 

transmission and distribution facilities. Fees collected are based on the agency’s actual cost to process 

special use applications and monitor compliance. All cost recovery fees collected are spent at the 

administrative unit(s) where the processing and/or monitoring work is being conducted. Interagency 

consistency is also established 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 

This program allows the Forest Service to collect land use fees based on an appraised fee schedule to 

process applications and monitor still photography and commercial filming under special use 

authorizations in accordance with the Recreation Fee Demonstration Pilot Program authorized under P.L. 

104-134. All land use fees collected and costs recovered remain at the site where collected and are 

available until expended. 

Eighty percent of land use fees from still photography and commercial filming activities are 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 are used to cover the unit’s 

cost of collecting still photography and commercial filming land use fees. Ten percent of land use fees 

from still photography and commercial filming authorizations will be used in developing policies and 

procedures for the management of these activities. Half of these fees (5 percent) will be available to the 

regional forester and the other half (5 percent) to the Washington Office. 

Organizational Camp Fees 

This program allows the Forest Service to establish a land use fee system for the occupancy and use of 

National Forest System lands by organizational camps that serve young people or individuals with a 

disability. Fees are established as authorized by the Organizational Camp Fee Act and based on a 

percentage of the agricultural land value, adjusted for services to at-risk youth. Fees collected are 

available until expended for program administration, monitoring special use authorizations, interpretive 

programs, environmental analysis and restoration activities, and similar purposes. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-36

 

Payment Funds 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Payments and Transfers from National Forest Fund 

 Payment to Minnesota $2,101 $2,100 $2,100 $0 

 Payments to States, Act of 1908 $6,385 $6,000 $74,000 $68,000 

 

 Payments to States, Title I and III $70,684 $67,000 $0 -$67,000 

 Transfers to Forest Service, Title II $24,042 $27,000 $0 -$27,000 

Full Time Equivalents (FTEs) 162 160 0 -160 

 

Payments from Treasury 

 SRS Act of 2000* 

 Payments to States Titles I & III $261,983 $315,000 $0 -$315,000 

Payments from National Grasslands and Land 

 Utilization Projects 

 Payments to Counties $12,234 $11,000 $12,000 $1,000 

Payments and Transfers $377,429 $428,100 $88,100 -$340,000 

Full Time Equivalents (FTEs) 162 160 0 -160 

* Secure Rural Schools and Community Self-Determination Act of 2000, as amended. 

FY 2009 Program Changes

The FY 2009 budget contains the mandatory Payment to Minnesota of $2,100,000 as required by the 

authorizing legislation. 

The budget contains $74,000,000 for Payments to States under the Act of 1908 (25 percent fund). 

Payments under the 25 percent fund are made a year in arrears based on receipts and credits specified in 

the authorizing legislation. This is an increase of $68,000,000 from the FY 2008 level, due to the 

expiration of the Secure Rural Schools and Community Self-Determination Act of 2000 and its extension 

under P.L. 110-28. 

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393) provided 

temporary payments to counties impacted by the reduction of shared receipts associated with lower levels 

of timber harvesting on Federal lands. The Act expired in 2006, but Congress provided for an additional 

year of payments under Public Law 110-28. The Budget includes a legislative proposal that provides 

$200,000,000 above the current baseline for a four-year extension of USDA and Department of the 

Interior forest county safety net payments, which will be targeted to the most affected areas, capped, 

adjusted downward each year, and phased out. For administrative convenience, USDA will make the 

payments on behalf of both agencies. Offsets for the Administration's proposal are provided within the 

topline of the President's Budget throughout the Department of Agriculture and elsewhere. For the 2008 

payment (to be made in 2009), the Administration continues to be prepared to work with Congress to 

identify mutually agreeable offsets.

The budget contains $12,000,000 in payments based on receipts from activities on the national grasslands 

and land utilization projects which are paid as required by the authorizing legislation. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-37

Authorities

Payment to Minnesota 

The Thye-Blatnick Act of June 22, 1948, as amended (16 U.S.C. 577g), Payment for Additional Lands 

Acquired in Northern Minnesota 

Payments to Counties—National Grasslands Fund 

Title III of the Bankhead-Jones Farm Tenant Act of July 22, 1937, as amended 

(7 U.S.C. 1012). This Act authorizes annual payments on a calendar year basis to counties, equal to 25 

percent of net revenues received during the year (excluding receipts from the sale of land). Counties shall 

use these payments for schools and/or roads. This Act pertains primarily to national grasslands and land 

utilization projects. 

Payments to States 

Secure Rural Schools and Community Self-Determination Act of 2000 (16 U.S.C. 500). This Act is 

related to the Act of May 23, 1908, and its Payments to States from the 25 Percent Fund. This Act 

provides choices to counties that include a guaranteed level of annual payments and funding for specific 

projects. It expired on September 30, 2006 and was extended 1 year. 

The Act of May 23, 1908, as amended (16 U.S.C. 500), Payment for Receipts for Schools and Roads. 

This Act, commonly known as “Payments to States”, authorizes annual payments on a fiscal year basis to 

States equal to 25 percent of revenues from the sale of goods and services by the national forests. States 

shall use these payments for schools and roads. 

Program Overview 

Payment to Minnesota 

The Secretary of Agriculture was directed to acquire resorts, cabins, and private lands within the 

Boundary Waters Canoe Area Wilderness and permanent residents were prohibited after 1974. 

Additionally, in-lieu-of-tax payments were authorized to Cook, Lake, and St. Louis Counties for Federal 

wilderness land from any national forest receipts not otherwise appropriated. At the close of each fiscal 

year, the State of Minnesota is paid three-fourths of one percent of the appraised value of certain Superior 

National Forest lands in the counties of St. Louis, Cook, and Lake for distribution to those counties. The 

land value is reappraised every 10 years. The last appraisal reports were prepared with a date of value of 

May 14, 1998 for 808,874 acres. New appraisals will be required in 2008. 
FY 2009 Budget Justification USDA Forest Service 

Permanent Appropriations 13-38

Payments to Counties—National Grasslands Fund 

Annual payments are authorized to counties which contain Forest Service lands that were acquired under 

the Bankhead-Jones Act. Twenty-five percent of the revenues received during the year (excluding 

receipts from the sale of land) from each national grassland or land utilization project are paid to the 

counties in which such lands are located. The funds are restricted to uses that benefit public schools and 

roads. 

Payments to States 

With few exceptions, 25 percent of all moneys received from the national forests during the fiscal year are 

paid to States in which the forests are located. These payments benefit public schools and roads in the 

county or counties within the national forests. (16 U.S.C. 500). 

Counties electing to receive their share of a State’s “full payment amount” under the Secure Rural 

Schools and Community Self-Determination Act of 2000 (P.L. 106-393) were provided transitional 

assistance instead of the 25 percent payment. With the expiration of P.L. 106-393, payments will be 

made under receipt-sharing provisions associated with the 25 Percent Fund. 
14 

Trust Funds 
(This page inserted to format for duplex printing) 
FY 2009 Budget Justification USDA Forest Service 

Trust Funds 14-1 

Appropriation – Trust Funds 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Cooperative Work: Knutson-Vandenberg (KV) 

 New Budget Authority $56,761 $55,000 $55,000 $0 

 Program Level $77,161 $82,000 $81,000 -$1,000 

 Full Time Equivalents (FTEs) 594 626 600 -26 

Cooperative Work: KV Regional Work 

 New Budget Authority $0 $0 $0 

 Program Level $58,309 $16,000 $0 -$16,000 

 Full Time Equivalents (FTEs) 448 120 0 -120 

Cooperative Work: Other * 

 New Budget Authority $43,672 $45,800 $50,000 $4,200 

 Program Level $40,434 $56,000 $50,000 -$6,000 

 Full Time Equivalents (FTEs) 243 240 220 -20 

Subtotal: Cooperative Work 

 New Budget Authority $100,433 $100,800 $105,000 $4,200 

 Program Level $175,904 $154,000 $131,000 -$23,000 

 Full Time Equivalents (FTEs) 1,285 986 820 -166 

Land Between the Lakes 

 New Budget Authority $78 $290 $250 -$40 

 Program Level $45 $25 $25 $0 

 Full Time Equivalents (FTEs) 0 0 0 0 

Reforestation Trust Fund 

 New Budget Authority $30,000 $30,000 $30,000 $0 

 Program Level $44,354 $30,000 $30,000 $0 

 Full Time Equivalents (FTEs) 192 180 170 -10 

TRUST FUNDS APPROPRIATIONS 

 New Budget Authority $130,511 $131,090 $135,250 $4,160 

 Program Level $220,303 $184,025 $161,025 -$23,000 

 Full Time Equivalents (FTEs) 1,477 1,166 990 -176 

New Budget Authority: Amounts equal actual and Enacted receipts for the fiscal year. 

Program Level: Actual balance of obligations in FY 2007 and planned obligations for FY 2008 and 

FY 2009. 

* Cooperative Work - Other includes both receipts and reimbursable collections. 
FY 2009 Budget Justification USDA Forest Service 

Trust Funds 14-2 

Budget Line Item Cooperative Work Trust Fund — 

Knutson-Vandenberg (K-V) Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Cooperative Work: Knutson-Vandenberg (KV) 

 New Budget Authority ($000) $56,761 $55,000 $55,000 $0 

 Program Level ($000) $77,161 $82,000 $81,000 -$1,000 

 Full Time Equivalents (FTEs) 594 626 600 -26 

Cooperative Work: KV Regional Work (12X8028) 

 New Budget Authority ($000) $0 $0 $0 

 Program Level ($000) $58,309 $16,000 $0 -$16,000 

 Full Time Equivalents (FTEs) 448 120 0 -120 

New Budget Authority: Amounts equal actual and Enacted receipts for the fiscal year. Total Budget Authority is higher due to unobligated 

prior-year receipts. 

Program Level: Actual balance of obligations, including the use of previously unobligated balances, in FY 2007 and planned obligations for FY 

2008 and FY 2009. 

FY 2009 Program Changes

The budget includes $81,000,000 to conduct sale area improvement work on timber sale areas on the 

national forests. There will be no funding available in FY 2009 to conduct K-V regional projects. This 

funding will be used within timber sale areas to implement the reforestation and other sale area 

improvements approved in the related environmental analyses. The funding level is the proportion of the 

total required sale area improvement work that needs to be accomplished in FY 2009. Sale area 

improvements enable the Forest Service to provide for essential reforestation following timber harvest as 

well as other resource improvements. 

Authorities

Knutson-Vandenberg Act of June 9, 1930, as amended (16 U.S.C. 576-576b). 
FY 2009 Budget Justification USDA Forest Service 

Trust Funds 14-3 

Program Performance

 Change 

 FY 2005 

FY 

2006 FY 2007 FY 2008 FY 2009 

FY 2009 

vs FY 

2008 

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Acres of forest vegetation established 67,430 63,112 N/A 62,195 117,846 103,850 -13,996

Acres of forestland vegetation improved 66,190 59,426 N/A 61,381 63,330 57,596 -5,734

Highest priority acres treated annually for 

noxious weeds & invasive plants on NFS 

lands 21,500 14,119 N/A 19,977 28,353 26,921 -1,432

Acres of lake habitat restored or enhanced 

with non-Wildlife funds N/A 11 N/A 1,118 1,218 1,390 172

Miles of stream habitat restored or enhanced N/A 19 N/A 2 21 97 76

Acres of wildlife habitat (terrestrial) (TES 

and Non-TES) restored or improved with 

non-Wildlife dollars 100,000 N/A N/A 99,663 232,246 210,720 -21,526

Miles of road decommissioning N/A 18 N/A 61 N/A N/A N/A

Miles of high clearance system roads 

improved N/A N/A N/A 33 N/A N/A N/A

Miles of passenger car system roads 

improved N/A N/A N/A 13 N/A N/A N/A

Acres of hazardous fuels treated to reduce 

risk of catastrophic fire 137,000 N/A N/A 129,864 0 15,574 15,574

Acres of rangeland vegetation improved N/A 1,178 N/A 168 2,875 2,361 -514

Acres of water or soil resources protected, 

maintained or improved to achieve desired 

watershed conditions N/A N/A N/A 4,670 6,642 10,234 3,592

Program Overview

 

Funds derived from timber sale revenues are used in this program for sale area improvement work as 

determined in the project environmental analysis. The first priority for K-V funds is reforestation of 

harvested areas. Within timber sale areas, K-V funds can also be used to perform timber stand 

improvement and protection, and projects for the improvement of other resource values, including 

wildlife, soil, watershed, range, and recreation. 

The FY 2006 Appropriations Act amended this authority to allow for the expenditure of unused funds, not 

needed to accomplish work on the sale area, on an another area “within the Forest Service region in which 

the timber sale occurred.” Unused collections are generated when actual costs are less than planned costs. 

This new authority is used to accomplish watershed restoration; wildlife habitat improvement; control of 

insect, disease, and noxious weeds; community protection activities; and the maintenance of forest roads. 

In some cases, K-V funds may be utilized for timber sale planning, preparation, administration, 

engineering support and/or land line location. 
FY 2009 Budget Justification 

Trust Funds 14-

4

KV Regional Work

 

FY 2005 FY 2006 FY 2007 FY 2008 

Annual Output Measure Actual Actual Plan Actual Plan Acres of forest vegetation established N/A 39,641 3,675 6,134 3,200 Acres of forestland vegetation improved N/A N/A N/A 4,570 0 Forestlands treated to achieve healthier conditions N/A N/A 38,852 57,756 17,000 Hundred Cubic Feet (CCF) of timber volume sold N/A 621,919 746,000 716,408 280,000 Million Board Feet (MMBF) of timber volume sold N/A 329 373 372 140 Miles of property line maintained to standard N/A N/A N/A 14 0 Miles of property line marked/maintained to standard N/A N/A N/A 36 0 Miles of property line marked to standard N/A N/A N/A 22 0 Miles of high clearance system roads receiving maintenance N/A 692 N/A 1,811 0 Miles of road maintenance N/A 1,908 1,240 3,609 0 Miles of passenger car system roads receiving maintenance N/A 1,216 1,240 1,799 0 Acres of hazardous fuels treated to reduce risk of catastrophic fire N/A N/A 87,252 45,951 0 Acres of hazardous fuels treated to reduce risk of catastrophic fire N/A N/A N/A 10,363 0 Acres of wildland-urban interface (WUI) high-priority hazardous fuels treated N/A 110,893 48,400 35,588 0 Highest priority acres treated annually for noxious weeds & invasive plants on NFS lands N/A 40,798 5,365 6,993 0 Acres of rangeland vegetation improved N/A 860 N/A 0 0 Acres of water or soil resources protected, maintained or improved to achieve desired watershed conditions N/A 773 400 242 0 Acres of lake habitat restored or enhanced with nonWildlife funds N/A 12 N/A 345 0 Miles of stream habitat restored or enhanced N/A N/A 100 2 0 Acres of wildlife habitat (terrestrial) (TES and NonTES) restored or improved with non- Wildlife dollars N/A N/A 20,000 9,769 0 
FY 2009 Budget Justification 

Trust Funds 14-4a 

Inserted February 25, 2008

Fiscal Year 2008 K-V Planned Program of Work 

Timber Sale Area Projects 

National Summary 

Activity Type Acres 

Cost 

($) 

Unit 

Cost 

($) Miles 

Cost 

($) 

Unit 

Cost 

($) 

Structures Cost ($) 

Unit 

Cost 

($) 

Establish Vegetation – Essential Reforestation * 117,846 $18,974,629 $161 Establish Vegetation – Other Essential Reforestation ** 111,809 $7,438,539 $67 6 $28,181 $4,697 Establish Vegetation - Other Activities *** 30,181 $2,028,011 $67 Improve Forest Vegetation - TSI 63,330 $18,127,898 $286 Improve Forest Vegetation - All Other 20,218 $3,294,890 $163 Improve Rangeland Vegetation 2,875 $585,156 $204 16 $140,091 $8,756 12 $36,431 $3,036 Eliminate Noxious Weeds 28,353 $3,004,931 $106 4 $6,596 $1,649 Manage Stream Habitat 4 $2,631 $658 21 $114,672 $5,461 526 $409,374 $778 Manage Lake Habitat 1,218 $403,031 $331 11 $35,690 $3,245 Manage Terrestrial Habitat 232,246 $15,954,167 $69 12 $89,150 $7,429 22,029 $2,072,667 $94 Maintain & Improve Watershed Conditions 6,642 $2,640,506 $398 102 $318,553 $3,741 130 $117,368 $903 Hazardous Fuels Reduction 5 $108,910 $21,782 Other 11,313 $1,749,604 $155 316 $296,819 $939 12 $43,399 $3,617 Totals 629,567 $74,642,342 482 $1,165,972 22,720 $2,714,929 

 FY 2008 Program Total $81,864,489

* Establish Vegetation – Essential Reforestation - includes planting, seeding, site preparation for natural regeneration, and certification of natural regener

** Establish Vegetation - Other Essential Reforestation - includes all other reforestation activities needed to assure reforestation of harvested areas not in

– Essential Reforestation. Included are such activities as site preparation for seeding and planting, survival and stocking surveys, and animal damage co

*** Establish Vegetation - Other Activities - includes all other activities needed to establish vegetation not included in Establish Vegetation – Essentia

Vegetation – Other Essential Reforestation. 

**** Other Unspecified Units of Measure - includes activities with units of measure such as project, each, plan, number of trees, and landing, al
FY 2009 Budget Justification 

Trust Funds 14-4b 

Inserted February 25, 2008

Fiscal Year 2009 K-V Planned Program of Work 

Timber Sale Area Projects 

National Summary 

Activity Type Acres 

Cost 

($) 

Unit 

Cost 

($) Miles 

Cost 

($) 

Unit 

Cost 

($) 

Structures Cost ($) 

Unit 

Cost 

($) 

Establish Vegetation – Essential Reforestation * 103,850 $19,853,192 $191 Establish Vegetation – Other Essential Reforestation ** 109,853 $7,005,319 $64 Establish Vegetation - Other Activities *** 34,404 $2,314,517 $67 Improve Forest Vegetation - TSI 57,596 $13,624,199 $237 Improve Forest Vegetation - All Other 9,172 $1,711,326 $187 Improve Rangeland Vegetation 2,361 $550,800 $233 2 $6,466 $3,233 20 $186,185 $9,30Eliminate Noxious Weeds 26,921 $3,373,878 $125 Manage Stream Habitat 97 $315,736 $3,255 351 $403,923 $1,15Manage Lake Habitat 1,390 $360,852 $260 Manage Terrestrial Habitat 210,720 $18,822,977 $89 23 $25,231 $1,097 22,436 $3,381,351 $15Maintain & Improve Watershed Conditions 10,234 $1,714,828 $168 70 $191,723 $2,739 184 $279,782 $1,52Hazardous Fuels Reduction 15,574 $2,367,369 $152 3 $2,400 $800 Other 21,349 $1,907,757 $89 257 $535,505 $2,084 275 $126,654 $46Totals 603,424 $73,607,014 452 $1,077,061 23,266 $4,377,895 

 FY 2008 Program Total $80,878,109

* Establish Vegetation – Essential Reforestation - includes planting, seeding, site preparation for natural regeneration, and certification of natural regenera

** Establish Vegetation - Other Essential Reforestation - includes all other reforestation activities needed to assure reforestation of harvested areas not in

– Essential Reforestation. Included are such activities as site preparation for seeding and planting, survival and stocking surveys, and animal damage 

*** Establish Vegetation - Other Activities - includes all other activities needed to establish vegetation not included in Establish Vegetation – Essentia

Vegetation – Other Essential Reforestation. **** Other Unspecified Units of Measure - includes activities with units of measure such as project, each, plan, number of trees, and landing, all without a 
FY 2009 Budget Justification USDA Forest Service

Trust Funds 14-5

Budget Line Item Cooperative Work Trust Fund — Other 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Cooperative Work: Other 

 New Budget Authority ($000) $43,672 $45,800 $50,000 $4,200 

 Program Level ($000) $40,434 $56,000 $50,000 -$6,000 

 Full Time Equivalents (FTEs) 243 240 220 -20 

New Budget Authority: Amounts equal actual and Enacted receipts for the fiscal year. Total Budget Authority is higher due to unobligated 

prior-year receipts. 

Program Level: Actual balance of obligations, including the use of previously unobligated balances, in FY 2007 and planned obligations for FY 

2008 and FY 2009. 

FY 2009 Program Changes

The budget includes $50,000,000 for the Cooperative Work Trust Fund, a decrease of $6,000,000 below 

FY 2008. The Cooperative Work program allows the agency to leverage appropriated funds in order to 

deliver a variety of treatments and services which benefit Forest Service lands and other resource 

programs. In FY 2007, the Forest Service efficiently used funds invested in cooperative agreements, 

leveraging each dollar invested with and additional $0.77 from partner contributions. 

Cooperative projects vary in size and scope each year depending on partner interest, objectives, and 

financial resources, and meet both agency and partner needs. Each agreement specifies type of work to 

be done as well as the funds being donated. The program of work varies each year. 

Authorities

The Act of June 30, 1914 (16 U.S.C. 498). This Act authorizes the acceptance of contributions for 

cooperative work in forest investigations, protection, management, and improvement of the National 

Forest System. 

The Granger-Thye Act of April 24, 1950 (16 U.S.C. 572). This Act authorizes cooperation with other 

parties to perform work for permittees, agencies, organizations, and persons for the kinds of work that the 

Forest Service is authorized to do on lands of the United States. 

The Roads and Trails Act of October 13, 1964 (16 U.S.C. 532-537). This Act authorizes the construction 

of roads using cooperative financing from other agencies. 

The Act of June 30, 1978 (16 U.S.C. 1643). This Act authorizes the acceptance and use of donated funds 

for research activities. 

The Act of October 10, 1978 (7 U.S.C. 2269). This Act authorizes agencies within the U.S. Department 

of Agriculture to accept donations for non-research activities. 

The Act of June 6, 1968 (16 U.S.C. 693d). This Act authorizes cooperation in the operation of the Robert 

S. Kerr Memorial Arboretum and Nature Center. 
FY 2009 Budget Justification USDA Forest Service

Trust Funds 14-6

The Act of July 4, 1968 (16 U.S.C. 471h). This Act authorizes cooperation in the operation of the Cradle 

of Forestry. 

Title 31, United States Code, section 1321 (31 U.S.C. 1321). Section 1321 of Title 31 of the United 

States Code authorizes Trust Funds. 

Program Overview

The Cooperative Work Trust Fund - Other is used to collect deposits received from partners and 

cooperators for protecting and improving resources of the National Forest System as authorized by 

cooperative agreements. The deposits are for a wide variety of activities that benefit and support 

programs in Forest and Rangeland Research, on National Forest System lands, and for other agency 

activities. 

 

The variety of activities performed using funds include wildlife habitat enhancement; recreation program 

activities; research; fire prevention and education; construction, reconstruction, and maintenance of roads, 

trails, and other improvements; scaling services; fire protection; and other resource purposes as authorized 

by law. 

Cooperative deposits are received from a vast assortment of local, regional, and national organizations 

and individuals; State and other public agencies; industrial associations; and other private sources. The 

deposits are made under a variety of cooperative instruments that specify the mutual benefits of the work. 

Cooperative deposits leverage appropriated funds to increase effectiveness and complement the objectives 

of Forest Service appropriated resource management programs and cooperative research projects. These 

programs and projects may involve any aspect of forestry and vary widely in scope and duration. Refer to 

the Special Exhibit on Forest Service Partnerships for a more complete listing of cooperative activities. 

 

Cooperative road maintenance deposits can be made by commercial users of the National Forest Road 

System in lieu of actually performing their commensurate share of road maintenance. These deposits are 

used in conjunction with the other road maintenance appropriations to provide maintenance of system 

roads by the Forest Service. 

Deposits for administering and protecting non-Federal land within or near the national forests can be 

made by owners of non-Federal lands that are intermingled with, or adjacent to, National Forest System 

lands. These deposits help landowners manage their lands in accordance with good forest management 

practices and provide for wildfire protection on State and private lands intermingled with Federal 

ownership. 
FY 2009 Budget Justification USDA Forest Service

Trust Funds 14-7

Budget Line Item Land Between the Lakes Trust Fund 

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Land Between the Lakes 

 New Budget Authority ($000) $78 $290 $250 -$40 

 Program Level ($000) $45 $25 $25 $0 

 Full Time Equivalents (FTEs) 0 0 0 0 

New Budget Authority: Amounts equal actual and Enacted receipts for the fiscal year. Total Budget Authority is higher due to unobligated 

prior-year receipts. 

Program Level: Actual balance of obligations, including the use of previously unobligated balances, in FY 2007 and planned obligations for FY 

2008 and FY 2009. 

FY 2009 Program Changes

The request includes $25,000 for public education and regional promotion in cooperation with 

development districts, chambers of commerce, and State and local governments, the same level as FY 

2008. The Forest Service will work with regional partners to promote recreational tourism to increase the 

area’s economy through promotional efforts that position the lakes region to be competitive in the tourism 

market. At this time no initiatives have been identified; however, a significant project may be considered 

in relation to the Land Between the Lakes (LBL) Nature Watch Demonstration Area, depending on the 

results of the public involvement processes to be conducted in FY 2008. 

In FY 2007, the Trust Fund continued its support of a successful school grant program for environmental 

education, serving more than 3,500 students. The Fund also helped launch a recycling campaign, tied to 

LBL’s “Respect the Resource” program and utilizing displays and interpretive signage to educate LBL 

staff and visitors to facilities. 

During FY 2008, the agency will work collaboratively with regional partners in the Kentucky/Tennessee 

lakes area to increase the area’s tourism economy. The LBL Trust will also implement promotional 

techniques combining environmental education messages with tourism efforts, primarily in the oakgrassland and nature watch demonstration areas, and LBL will expand the use of the Respect the 

Resource program to new areas. 

Authority

The Land Between the Lakes Protection Act of 1998 (16 U.S.C. 460111). This Act establishes the Land 

Between the Lakes Trust Fund. In accordance with the Land Between the Lakes (LBL) Protection Act of 

2000, responsibility for the LBL National Recreation Area transferred from the Tennessee Valley 

Authority (TVA) to the Secretary of Agriculture. 

Program Overview

The Protection Act called for LBL to be managed as a unit of the National Forest System (NFS). Section 

531 of the Act established a special interest-bearing fund known as the “Land Between the Lakes Trust 

Fund” to be available for: 1) public education, grants, and internships related to recreation, conservation, 
FY 2009 Budget Justification USDA Forest Service

Trust Funds 14-8

and multiple-use land management, and 2) regional promotion in cooperation with development districts, 

chambers of commerce, and State and local governments. 

Beginning September 30, 2000, TVA began depositing annually into the fund, for a total of $6 million. 

The Forest Service has begun to use the interest earned on the fund for the purposes intended by 

Congress. 
FY 2009 Budget Justification USDA Forest Service

Trust Funds 14-9

Budget Line Item Reforestation Trust Fund

 (dollars in thousands) 

 FY 2009 

 FY 2007 FY 2008 FY 2009 vs 

 Enacted Enacted Pres Budget FY 2008 

Reforestation Trust Fund 

 New Budget Authority ($000) $30,000 $30,000 $30,000 $0 

 Program Level ($000) $44,354 $30,000 $30,000 $0 

 Full Time Equivalents (FTEs) 192 180 170 -10 

New Budget Authority: Amounts equal actual and Enacted receipts for the fiscal year. Total Budget Authority is higher due to unobligated 

prior-year receipts. 

Program Level: Actual balance of obligations, including the use of previously unobligated balances, in FY 2007 and planned obligations for FY 

2008 and FY 2009. 

FY 2009 Program Changes

The FY 2009 budget includes $30,000,000 to analyze, prepare, and implement reforestation and timber 

stand improvement projects outside timber sale areas on National Forest System lands, the same level as 

in FY 2008. The FY 2009 program will prioritize reforestation over timber stand improvement. 

The funding will provide for approximately 55,000 acres of reforestation and 14,000 acres timber stand 

improvement. Each year thousands of acres of forest cover are lost due to wildfires and other natural 

events. Reforestation trust funds are used to address these reforestation needs. In FY 2007, the program 

accomplished 70,290 acres of reforestation and 22,782 acres of timber stand improvement. Actual 

accomplishments can vary significantly, depending on the type of treatment necessary to meet restoration 

objectives and the cost for that treatment. For example, unit costs for seeding are significantly lower than 

growing and planting seedlings. The benefits of reforestation include soil stabilization and restoration of 

appropriate forest cover on National Forest System lands. These actions result in controlling the timing 

and flow of water run-off events. Benefits of timber stand improvement include management of stand 

density, composition and structure to meet habitat needs; reduce hazardous fuels; and improve future 

product quality. Timber stand improvement also generates biomass which is available for bio-energy 

production. The Reforestation Trust Fund program supports integrated and coordinated work with several 

of the agency’s vegetation management programs; such as, Forest Products, Vegetation and Watershed 

Management, Hazardous Fuels, and Wildlife and Fisheries Habitat Management in order to increase the 

benefits to the land and forest users. 

Program Performance

 Change 

 

FY 

2005 

FY 

2006 FY 2007 FY 2008 FY 2009 FY 2009 vs

Annual Output Measure Actual Actual Plan Actual Plan Plan FY 2008 

Acres of forest vegetation 

established na na 55,000 70,290 57,500 55,000 -2,500

Acres of forestland vegetation 

improved na na 2,600 22,782 13,300 14,000 700
FY 2009 Budget Justification USDA Forest Service

Trust Funds 14-10

Program Description

Program Overview 

A maximum of $30,000,000 is transferred to the Reforestation Trust Fund (RTF) by the U.S. Treasury 

each fiscal year to reduce the backlog in reforestation and timber stand improvement work. These funds 

are used in conjunction with other vegetation management funds to provide an integrated, effective means 

of accomplishing forest health restoration, maintenance, or improvement under a variety of ecological and 

biological conditions. Timber stand improvement activities include release treatments through removal of 

competing vegetation; precommercial thinning to regulate stand density, composition and structure; 

pruning treatments that reduce ladder fuels and improve future product quality; and fertilization 

treatments to maintain and improve soil quality. Reforestation activities include site preparation and 

planting of tree seedlings plus various treatments to improve initial seedling survival rates. 

Allocation and Integration 

Funds are allocated based on acres of reforestation or timber stand improvement need, acres of 

reforestation need created by wildfires and other natural events during the previous three years, and prior 

year accomplishments. Allocation decisions also consider the combined Vegetation and Watershed 

Management and RTF-funded forest vegetation programs. 
15 Special Exhibits 

 

 
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FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-i 

Special Exhibits

 1 Allocations by Regions, Stations, and Area, FY 2007-2009 ....................................... 15-1 

 2 Business Operations Transformation Assessment..................................................... 15-12 

3 Challenge Cost Share and Partnerships ..................................................................... 15-14 

4 Conservation Education............................................................................................. 15-16 

 5 Deferred Maintenance................................................................................................ 15-18 

 6 Expiring Authorities................................................................................................... 15-22

 7 Facilities Maintenance Assessment ........................................................................... 15-24 

 8 Forest Products Laboratory Modernization ............................................................... 15-26 

 9 Indirect Costs.............................. ................... .......................................15-28 

 10 National Scenic and Historic Trails ........................................................................... 15-35 

 11 Northwest Forest Plan................................................................................................ 15-39 

 12 Office of General Counsel Reimbursement............................................................... 15-41 

 13 Office of Tribal Relations .......................................................................................... 15-42 

 14 Organizational Efficiency – WO/RO/Northeastern Area Transformation ................ 15-43 

 15 President’s Management Agenda .............................................................................. 15-44 

 16 Proposed Legislation.................................................................................................. 15-51

 Ecosystem Services Pilot Projects ....................................................................... 15-51 

 Secure Rural Schools Act Extension ................................................................... 15-51 

 17 Reforestation.............................................................................................................. 15-53 

 18 Research and Development Threat Assessment Centers........................................... 15-55 

 19 Service First .............................................................................................................. 15-57 

 20 Sustainable Operations............................................................................................... 15-59 

 21 Unobligated Balances ................................................................................................ 15-61 

 22 Wood Education and Resource Center ...................................................................... 15-63 

 23 Working Capital Fund - Forest Service ..................................................................... 15-65 

 24 Working Capital Fund and Greenbook Charges – USDA (To be provided)............. 15-66 

 25 Working Capital Fund – Forest Service Fleet Management...................................... 15-67 

 
 

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FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-1 

Allocations by Region, Station, and Area, FY 2007 and Estimated for FY 2008-2009 

 REGION 01 REGION 02

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research 0 2 2 44 39 35

State & Private Forestry

Forest Health Management - Federal Lands 2,529 2,072 1,563 2,575 2,317 1,776

State Fire Assistance 1,660 1,394 1,037 2,624 2,119 1,584

Forest Health Management - Cooperative Lands 557 407 83 820 583 110

Volunteer Fire Assistance 376 376 318 656 655 555

Forest Stewardship 924 659 62 1,489 1,171 109

Forest Legacy Program 6,007 3,673 36 185 102 36

Urban and Community Forestry 708 501 68 1,741 1,339 181

Economic Action Program 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 12,761 9,081 3,167 10,089 8,286 4,351

National Forest System *

Land Management Planning 4,412 3,771 4,227 3,629 3,351 3,765

Inventory and Monitoring 9,762 10,369 8,429 9,843 9,740 8,005

Recreation, Heritage, and Wilderness 15,523 15,825 13,764 22,094 23,149 20,143

Wildlife and Fisheries Habitat Management 9,393 9,820 8,466 8,055 8,461 7,298

Grazing Management 5,496 5,100 4,947 6,386 6,823 6,616

Forest Products 28,123 26,964 27,054 21,860 22,599 22,675

Vegetation and Watershed Management 15,558 18,294 16,559 14,715 13,640 12,441

Minerals and Geology Management 10,835 8,987 7,267 9,855 8,876 7,177

Landownership Management 6,221 6,350 4,856 7,546 7,340 5,611

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Total, National Forest System * 105,324 105,480 95,570 103,982 103,980 93,733

Wildland Fire Management

Fire Preparedness 53,718 53,344 46,391 27,729 27,507 23,916

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 18,088 17,540 16,667 29,685 27,524 26,152

Rehabilitation and Restoration 446 704 0 378 685 0

Fire Research and Development 2 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 1,966 997 1,012 2,197 1,099 1,114

Forest Health Management -- Cooperative Lands (NFP) 1,618 445 452 1,418 443 450

State Fire Assistance (NFP) 851 511 372 1,662 1,025 749

Volunteer Fire Assistance (NFP) 611 619 629 726 735 747

Total, Wildland Fire Management 77,300 74,160 65,522 63,794 59,018 53,129

Capital Improvement & Maintenance

Facilities 5,753 5,211 5,111 11,741 10,619 10,412

Roads 17,685 17,518 17,438 18,946 19,842 19,747

Trails 9,810 11,215 6,432 7,096 7,211 4,119

Infrastructure Improvement 614 713 763 775 850 930

Legacy Roads and Trails 0 0

Total, Capital Improvement & Maintenance 33,861 34,657 29,744 38,557 38,521 35,209

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 1,522 1,547 205 636 258 32

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

Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 1,522 1,547 205 636 258 32

Range Betterment Fund 311 0 0 564 0 0

Gifts, Donations, and Bequests for Research 0 00 0 00

Management of NF Lands for Subsistence Uses 0 00 0 00

Permanent Working Funds

Brush Disposal 3,589 2,986 3,171 879 653 692

Timber Salvage Sales 10,445 12,540 10,162 2,249 1,428 1,149

Other 5,999 3,997 5,461 6,714 41 243

Total, Permanent Working Funds 20,033 19,522 18,794 9,843 2,123 2,084

Trust Funds Subtotal 15,847 16,468 14,257 19,269 12,443 10,900

TOTAL, ALL FUNDS 266,959 260,916 227,260 246,778 224,668 199,472

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-2 

Allocation by Region, Station, and Area, FY 2007 and Estimated for FY 2008-2009 

 REGION 03 REGION 04

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research 0 0 00 0 0

State & Private Forestry

Forest Health Management - Federal Lands 1,666 1,418 1,087 2,654 1,739 1,335

State Fire Assistance 767 637 476 783 646 481

Forest Health Management - Cooperative Lands 1,057 255 45 410 253 46

Volunteer Fire Assistance 157 157 133 122 122 103

Forest Stewardship 578 646 60 423 337 31

Forest Legacy Program 959 1,930 33 3,442 2,191 57

Urban and Community Forestry 646 486 65 525 370 49

Economic Action Program 0 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 5,830 5,529 1,899 8,358 5,658 2,102

National Forest System *

Land Management Planning 4,213 4,295 4,848 4,259 3,686 4,136

Inventory and Monitoring 9,608 10,131 8,369 12,334 12,209 10,021

Recreation, Heritage, and Wilderness 19,355 19,837 17,351 25,712 25,464 22,190

Wildlife and Fisheries Habitat Management 8,208 8,698 7,500 9,865 10,670 9,208

Grazing Management 9,053 9,213 8,952 8,647 9,451 9,170

Forest Products 14,102 11,594 11,633 16,542 16,177 16,231

Vegetation and Watershed Management 15,188 11,195 10,241 16,899 16,530 15,077

Minerals and Geology Management 7,508 7,727 6,200 13,485 10,925 8,815

Landownership Management 5,137 5,156 3,966 7,772 8,012 6,167

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Total, National Forest System * 92,373 87,847 79,061 115,514 113,123 101,015

Wildland Fire Management

Fire Preparedness 57,267 56,992 49,605 55,843 55,491 48,246

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 42,248 40,500 38,435 18,389 19,028 18,074

Rehabilitation and Restoration 1,042 1,218 0 528 683 0

Fire Research and Development 1 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 576 137 137 1,224 797 810

Forest Health Management -- Cooperative Lands (NFP) 403 239 243 1,212 271 276

State Fire Assistance (NFP) 405 243 178 419 251 183

Volunteer Fire Assistance (NFP) 497 503 511 267 271 275

Total, Wildland Fire Management 102,440 99,833 89,109 77,881 76,791 67,864

Capital Improvement & Maintenance

Facilities 8,972 8,128 7,977 8,168 7,423 7,286

Roads 18,007 18,745 18,655 19,366 20,064 19,967

Trails 3,673 3,756 2,288 5,925 6,253 3,709

Infrastructure Improvement 723 698 749 681 758 828

Legacy Roads and Trails 0 0

Total, Capital Improvement & Maintenance 31,374 31,327 29,669 34,140 34,498 31,790

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 484 506 70 597 284 37

Acquisition of Lands for National Forests, Special Acts 0 0 0 64 63 0

Complete Land Exchanges 3,700 0 0 0 0 0

Total, Land Acquisition 4,184 506 70 661 347 37

Range Betterment Fund 664 0 0 894 0 0

Gifts, Donations, and Bequests for Research 0 0 00 0 0

Management of NF Lands for Subsistence Uses 0 0 00 0 0

Permanent Working Funds

Brush Disposal 170 79 84 415 166 175

Timber Salvage Sales 319 928 746 2,610 1,573 1,293

Other 11,003 11,415 15,600 8,594 28 104

Total, Permanent Working Funds 11,491 12,422 16,430 11,619 1,767 1,572

Trust Funds Subtotal 4,439 2,441 2,210 7,247 4,528 4,091

TOTAL, ALL FUNDS 252,795 239,904 218,448 256,315 236,711 208,471

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-3 

Allocations by Region, Station, and Area, FY 2007 and Estimated for FY 2008-2009 

 REGION 05 REGION 06

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research 0 0 0 8 153 152

State & Private Forestry

Forest Health Management - Federal Lands 2,375 2,377 1,806 3,866 3,371 2,655

State Fire Assistance 5,104 1,565 1,165 2,118 1,805 1,343

Forest Health Management - Cooperative Lands 749 480 85 1,427 685 170

Volunteer Fire Assistance 316 316 267 194 194 164

Forest Stewardship 1,060 642 61 1,337 906 88

Forest Legacy Program 4,376 4,793 3,117 2,023 1,707 42

Urban and Community Forestry 2,582 2,043 276 818 640 89

Economic Action Program 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 16,561 12,216 6,777 11,784 9,307 4,550

National Forest System *

Land Management Planning 3,750 3,323 3,758 5,232 5,065 5,677

Inventory and Monitoring 13,120 12,480 10,098 14,762 13,835 11,447

Recreation, Heritage, and Wilderness 29,963 30,030 25,989 20,719 21,588 18,982

Wildlife and Fisheries Habitat Management 12,702 13,139 11,140 18,305 16,085 13,951

Grazing Management 2,980 2,874 2,781 3,257 3,616 3,512

Forest Products 38,439 33,426 33,537 53,079 53,453 53,631

Vegetation and Watershed Management 18,817 16,707 15,207 22,133 22,725 20,796

Minerals and Geology Management 6,883 7,849 6,215 5,827 5,461 4,434

Landownership Management 10,531 10,255 7,706 8,885 8,831 6,810

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Total, National Forest System * 137,184 130,082 116,432 152,200 150,660 139,242

Wildland Fire Management

Fire Preparedness 195,579 194,256 168,833 74,786 74,005 64,439

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 51,202 52,448 49,792 31,006 33,530 31,914

Rehabilitation and Restoration 482 972 0 672 1,414 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) 2,364 1,183 1,208 2,171 1,916 1,950

Forest Health Management -- Cooperative Lands (NFP) 2,057 1,141 1,159 1,647 891 904

State Fire Assistance (NFP) 1,037 4,782 3,485 2,448 2,387 1,740

Volunteer Fire Assistance (NFP) 841 852 865 611 619 629

Total, Wildland Fire Management 253,563 255,634 225,342 113,342 114,762 101,576

Capital Improvement & Maintenance

Facilities 11,039 10,017 9,820 9,064 8,267 8,132

Roads 24,337 25,215 25,078 32,437 33,506 33,351

Trails 7,245 7,623 4,265 7,227 7,450 4,443

Infrastructure Improvement 735 896 970 1,593 1,123 1,192

Legacy Roads and Trails 0 0

Total, Capital Improvement & Maintenance 43,357 43,750 40,133 50,321 50,347 47,118

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 1,011 751 107 1,130 667 88

Acquisition of Lands for National Forests, Special Acts 989 974 0 0 0 0

Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 2,000 1,724 107 1,130 667 88

Range Betterment Fund 193 0 0 250 0 0

Gifts, Donations, and Bequests for Research 1 0 0 000

Management of NF Lands for Subsistence Uses 0 0 0 000

Permanent Working Funds

Brush Disposal 1,520 2,064 2,191 5,592 8,679 9,215

Timber Salvage Sales 8,254 8,236 6,657 15,043 10,928 9,243

Other 16,408 35,244 48,084 15,883 13,131 18,006

Total, Permanent Working Funds 26,183 45,544 56,932 36,518 32,738 36,464

Trust Funds Subtotal 31,312 17,585 15,478 51,219 55,088 47,298

TOTAL, ALL FUNDS 510,355 506,536 461,200 416,772 413,722 376,489

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-4 

Allocations by Region, Station, and Area, FY 2007 and Estimated for FY 2008-2009 

 REGION 08 REGION 09

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research 102 121 111 0 0 0

State & Private Forestry

Forest Health Management - Federal Lands 12,491 10,486 8,130 2 13 13

State Fire Assistance 8,320 6,658 4,968 78 74 55

Forest Health Management - Cooperative Lands 14,796 8,260 1,570 0 0 0

Volunteer Fire Assistance 1,628 1,626 1,377 0 0 0

Forest Stewardship 11,118 6,460 604 0 0 0

Forest Legacy Program 15,579 16,556 332 0 0 0

Urban and Community Forestry 8,269 5,741 780 0 0 0

Economic Action Program 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 72,201 55,787 17,761 80 87 68

National Forest System *

Land Management Planning 3,944 3,484 3,936 3,827 2,007 2,250

Inventory and Monitoring 9,620 10,663 8,793 11,155 11,718 9,643

Recreation, Heritage, and Wilderness 25,113 26,314 22,818 23,375 22,318 19,571

Wildlife and Fisheries Habitat Management 15,195 16,277 14,029 12,722 13,715 11,853

Grazing Management 586 567 551 437 438 425

Forest Products 26,350 29,843 29,943 26,273 28,434 28,529

Vegetation and Watershed Management 12,409 14,293 13,057 12,626 13,601 12,445

Minerals and Geology Management 4,904 4,301 3,487 5,895 5,470 4,464

Landownership Management 7,713 9,096 6,902 7,636 8,263 6,340

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Total, National Forest System * 105,834 114,839 103,516 103,946 105,965 95,521

Wildland Fire Management

Fire Preparedness 32,629 32,827 28,530 21,086 20,744 18,045

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 33,777 37,296 35,403 11,518 11,210 10,710

Rehabilitation and Restoration 249 8 0 283 8 0

Fire Research and Development 0 0 0 0 0 0

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 200 59 59 0 0 0

Forest Health Management -- Cooperative Lands (NFP) 619 0 0 0 0 0

State Fire Assistance (NFP) 12,619 7,625 5,557 0 0 0

Volunteer Fire Assistance (NFP) 1,943 1,969 2,000 0 0 0

Total, Wildland Fire Management 82,036 79,784 71,548 32,887 31,962 28,755

Capital Improvement & Maintenance

Facilities 15,840 14,346 14,073 10,190 9,252 9,066

Roads 23,738 24,979 24,856 17,194 18,242 18,160

Trails 7,924 8,505 4,929 5,831 6,373 3,852

Infrastructure Improvement 929 1,070 1,196 805 860 944

Legacy Roads and Trails 0 0

Total, Capital Improvement & Maintenance 48,430 48,900 45,055 34,020 34,726 32,022

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 1,793 842 107 2,408 1,230 159

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

Complete Land Exchanges 43 0 0 0 0 0

Total, Land Acquisition 1,836 842 107 2,408 1,230 159

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 25 0 0

Timber Salvage Sales 2,691 4,157 3,440 11,422 10,997 9,037

Other 17,256 16,519 22,610 10,425 10,819 15,063

Total, Permanent Working Funds 19,946 20,676 26,050 21,872 21,816 24,100

Trust Funds Subtotal 44,411 33,127 28,446 21,405 25,896 21,989

TOTAL, ALL FUNDS 374,796 354,076 292,594 216,618 221,683 202,614

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-5 

Allocations by Region, Station, and Area, FY 2007 and Estimated for FY 2008-2009

 REGION 10 FOREST PRODUCTS LAB 11

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research 17 20 20 18,051 17,310 15,580

State & Private Forestry

Forest Health Management - Federal Lands 1,396 1,400 1,080 0 0 0

State Fire Assistance 844 684 507 0 0 0

Forest Health Management - Cooperative Lands 608 262 47 0 0 0

Volunteer Fire Assistance 130 130 110 0 0 0

Forest Stewardship 721 551 52 0 0 0

Forest Legacy Program 63 1,174 21 0 0 0

Urban and Community Forestry 260 201 28 0 0 0

Economic Action Program 0 0

Forest Resources Information and Analysis 0 0 0 0 0 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 4,022 4,402 1,844 0 0 0

National Forest System *

Land Management Planning 1,525 1,004 1,128 0 0 0

Inventory and Monitoring 6,695 6,867 5,643 0 0 0

Recreation, Heritage, and Wilderness 10,291 9,631 8,476 0 0 0

Wildlife and Fisheries Habitat Management 8,405 8,613 7,475 0 0 0

Grazing Management -1 0 0 0 0 0

Forest Products 20,335 15,918 15,971 0 0 0

Vegetation and Watershed Management 4,118 3,361 3,057 0 0 0

Minerals and Geology Management 3,562 3,266 2,624 0 0 0

Landownership Management 4,412 4,402 3,395 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 0 0 0 0 0 0

Total, National Forest System * 59,342 53,063 47,770 0 0 0

Wildland Fire Management

Fire Preparedness 2,810 2,789 2,423 0 0 0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 943 1,036 981 673 4,835 4,551

Rehabilitation and Restoration 27 0 0 0 0 0

Fire Research and Development 0 0 0 903 303 282

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 582 543 553 0 0 0

Forest Health Management -- Cooperative Lands (NFP) 440 198 201 0 0 0

State Fire Assistance (NFP) 480 5,501 4,012 0 0 0

Volunteer Fire Assistance (NFP) 267 271 275 0 0 0

Total, Wildland Fire Management 5,549 10,338 8,446 1,576 5,139 4,833

Capital Improvement & Maintenance

Facilities 8,782 8,044 7,895 0 14,338 14,011

Roads 12,708 11,050 10,998 0 0 0

Trails 4,265 4,310 2,544 0 0 0

Infrastructure Improvement 759 699 670 0 131 148

Legacy Roads and Trails 0 0

Total, Capital Improvement & Maintenance 26,515 24,104 22,107 0 14,469 14,159

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 86 42 5 0 0 0

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

Complete Land Exchanges 0 0 0 0 0 0

Total, Land Acquisition 86 42 5 0 0 0

Range Betterment Fund 000000

Gifts, Donations, and Bequests for Research 0 0 0 10 0 0

Management of NF Lands for Subsistence Uses 4,431 3,977 0 0 0 0

Permanent Working Funds

Brush Disposal 0 0 0 0 0 0

Timber Salvage Sales 542 1,142 933 0 0 0

Other 3,907 30 36 0 0 0

Total, Permanent Working Funds 4,448 1,173 969 0 0 0

Trust Funds Subtotal 2,681 1,601 1,602 426 0 0

TOTAL, ALL FUNDS 107,091 98,719 82,762 20,063 36,917 34,572

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-6 

Allocations by Regions, Stations, and Area, FY 2007 and Estimated for FY 2008-2009

ROCKY MTN RESEARCH 

STATION 22

NORTHERN RESEARCH 

STATION 24

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research 38,186 38,061 34,258 53,325 51,386 46,252

State & Private Forestry

Forest Health Management - Federal Lands 1,446 140 102 422 562 560

State Fire Assistance 0 0 0 148 224 223

Forest Health Management - Cooperative Lands 140 0 0 200 207 90

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 0 0 0 292 301 51

Forest Legacy Program 0 0 0 56 51 6

Urban and Community Forestry 10 0 0 369 383 75

Economic Action Program 0 0

Forest Resources Information and Analysis 0 0 0 9 12 0

International Forestry 0 0 0 0 0 0

Total, State & Private Forestry 1,596 140 102 1,495 1,740 1,006

National Forest System *

Land Management Planning 0 0 0 0 0 0

Inventory and Monitoring 0 0 0 0 0 0

Recreation, Heritage, and Wilderness 0 30 25 226 26 21

Wildlife and Fisheries Habitat Management 0 0 0 64 0 0

Grazing Management 0 0 0 3 0 0

Forest Products 0 0 0 138 0 0

Vegetation and Watershed Management 0 0 0 143 0 0

Minerals and Geology Management 000000

Landownership Management 0 0 0 0 0 0

Law Enforcement Operations 0 0 0 0 0 0

Valles Caldera National Preserve 000000

Total, National Forest System * 0 30 25 574 26 21

Wildland Fire Management

Fire Preparedness 1,280 1,138 983 0 0 0

Fire Operations -- Suppression 000000

Hazardous Fuels 962 1,430 1,346 388 308 290

Rehabilitation and Restoration 000000

Fire Research and Development 7,842 6,256 5,811 2,997 2,830 2,629

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 0 0 0 15 1 1

Forest Health Management -- Cooperative Lands (NFP) 0 0 0 0 4 4

State Fire Assistance (NFP) 000100

Volunteer Fire Assistance (NFP) 000000

Total, Wildland Fire Management 10,083 8,824 8,141 3,401 3,141 2,922

Capital Improvement & Maintenance

Facilities 0 1,047 1,023 46 1,900 1,856

Roads 0 0 0 0 117 118

Trails 0 0 0 2 8 8

Infrastructure Improvement 0 135 153 0 140 158

Legacy Roads and Trails 0 0

Total, Capital Improvement & Maintenance 0 1,182 1,176 48 2,164 2,141

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 0 0 0 0 0 0

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

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 26 0 0 6 0 0

Total, Permanent Working Funds 2600600

Trust Funds Subtotal 372 0 0 1,799 0 0

TOTAL, ALL FUNDS 50,263 48,236 43,701 60,648 58,458 52,342

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-7 

Allocations by Regions, Stations, and Area, FY 2007 and Estimated for FY 2008-2009

PACIFIC NORTHWEST 

RESEARCH STATION 26

PACIFIC SOUTHWEST 

RESEARCH STATION 27

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research 39,882 39,074 35,170 18,702 18,088 16,281

State & Private Forestry

Forest Health Management - Federal Lands 0 0 0 0 0 0

State Fire Assistance 0 0 0 0 0 0

Forest Health Management - Cooperative Lands 400 375 66 167 131 23

Volunteer Fire Assistance 0 0 0 0 0 0

Forest Stewardship 85 0 0 54 45 4

Forest Legacy Program 0 75 0 0 0 0

Urban and Community Forestry 0 0 0 54 49 7

Economic Action Program 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 485 450 66 275 225 34

National Forest System *

Land Management Planning 0 0 0 0 0 0

Inventory and Monitoring 600 0 0 0 0 0

Recreation, Heritage, and Wilderness 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management 0 0 0 0 0 0

Grazing Management 0 0 0 0 0 0

Forest Products 0 0 0 0 0 0

Vegetation and Watershed Management 200 198 176 410 405 360

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

Total, National Forest System * 800 198 176 410 405 360

Wildland Fire Management

Fire Preparedness 35 0 0 0 0 0

Fire Operations -- Suppression 0 0 0 0 0 0

Hazardous Fuels 170 70 66 70 70 66

Rehabilitation and Restoration 0 0 0 0 0 0

Fire Research and Development 3,184 2,979 2,767 2,569 2,398 2,228

Joint Fire Sciences 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) 400 391 400 0 0 0

Forest Health Management -- Cooperative Lands (NFP) 0 0 0 0 0 0

State Fire Assistance (NFP) 0 0 0 0 0 0

Volunteer Fire Assistance (NFP) 0 0 0 0 0 0

Total, Wildland Fire Management 3,789 3,440 3,233 2,639 2,468 2,294

Capital Improvement & Maintenance

Facilities 0 667 652 0 81 79

Roads 0 0 0 0 0 0

Trails 0 0 0 0 0 0

Infrastructure Improvement 0 91 104 0 62 70

Legacy Roads and Trails 0 0

Total, Capital Improvement & Maintenance 0 759 756 0 143 150

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund 0 0 0 0 0 0

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

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 19 0 0 139 0 0

Total, Permanent Working Funds 19 0 0 139 0 0

Trust Funds Subtotal 193 0 0 679 0 0

TOTAL, ALL FUNDS 45,167 43,920 39,401 22,844 21,330 19,118

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-8 

Allocations by Regions, Stations, and Area, FY 2007 and Estimated for FY 2008-2009 

SOUTHERN RESEARCH 

STATION 33

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research FRRE 48,553 47,778 43,005 3,676 3,387 3,147

State & Private Forestry

Forest Health Management - Federal Lands SPFH 50 0 0 5 20 15

State Fire Assistance SPCF 0 0 0 367 301 229

Forest Health Management - Cooperative Lands SPCH 681 515 91 176 157 50

Volunteer Fire Assistance SPVF 0 0 0 51 51 43

Forest Stewardship SPST 795 393 36 333 349 37

Forest Legacy Program LGCY 0 10 0 105 610 40

Urban and Community Forestry SPUF 65 59 8 467 351 49

Economic Action Program SPEA 0 0

Forest Resources Information and Analysis SPIA 4,225 0 0 0 0 0

International Forestry SPIF 0 0 0 0 0 0

Total, State & Private Forestry 5,816 978 135 1,503 1,840 461

National Forest System *

Land Management Planning NFPN 0 0 0 16 15 16

Inventory and Monitoring NFIM 600 0 0 0 0 0

Recreation, Heritage, and Wilderness NFRW 0 0 0 0 0 0

Wildlife and Fisheries Habitat Management NFWF 0 0 0 0 0 0

Grazing Management NFRG 0 0 0 0 0 0

Forest Products NFTM 0 0 0 0 0 0

Vegetation and Watershed Management NFVW 242 239 213 47 61 61

Minerals and Geology Management NFMG 0 0 0 0 0 0

Landownership Management NFLM 0 0 0 0 0 0

Law Enforcement Operations NFLE 0 0 0 0 0 0

Valles Caldera National Preserve VCVC 0 0 0 0 0 0

Total, National Forest System * 842 239 213 61 76 77

Wildland Fire Management

Fire Preparedness WFPR 0 -21 -18 -1 0 0

Fire Operations -- Suppression WFSU 0 0 0 0 0 0

Hazardous Fuels WFHF 70 70 66 0 0 0

Rehabilitation and Restoration NFN3 0 0 0 0 0 0

Fire Research and Development FRF2 2,286 2,144 1,992 0 0 0

Joint Fire Sciences JFSP 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) SPS4 400 391 400 0 0 0

Forest Health Management -- Cooperative Lands (NFP) SPS5 40 0 0 0 0 0

State Fire Assistance (NFP) SPS2 0 0 0 185 109 89

Volunteer Fire Assistance (NFP) SPS3 0 0 0 67 68 69

Total, Wildland Fire Management 2,796 2,585 2,440 251 177 158

Capital Improvement & Maintenance

Facilities CMFC 0 421 411 68 855 836

Roads CMRD 0 0 0 0 0 0

Trails CMTL 0 0 0 0 0 0

Infrastructure Improvement CMII 0 155 176 1 12 10

Legacy Roads and Trails CMLG 0 0

Total, Capital Improvement & Maintenance 0 576 587 69 867 846

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund LALW 0 0 0 0 0 0

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

Complete Land Exchanges EXEX 0 0 0 0 0 0

Total, Land Acquisition 0 0 0 0 0 0

Range Betterment Fund RBRB 0 0 0 0 0 0

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

Management of NF Lands for Subsistence Uses SMSM 0 0 0 0 0 0

Permanent Working Funds

Brush Disposal BDBD 0 0 0 0 0 0

Timber Salvage Sales SSSS 0 0 0 0 0 0

Other OTHER 2 0 0 0 0 0

Total, Permanent Working Funds 2 0 0 0 0 0

Trust Funds Subtotal TRST 1,113 0 0 56 0 0

TOTAL, ALL FUNDS 59,122 52,156 46,380 5,615 6,347 4,689

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States

INTERNATIONAL INSTITUTE 

OF TROPICAL FORESTRY 12
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-9 

Allocations by Region, Station, and Area, FY 2007 and Estimated for FY 2008-2009 

NE AREA STATE & PRIVATE 

FOREST ASC

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research FRRE 0 0 0 28,082 25,662 25,582

State & Private Forestry

Forest Health Management - Federal Lands SPFH 9,406 7,311 5,332 5,441 4,156 4,143

State Fire Assistance SPCF 7,081 6,613 4,898 732 747 739

Forest Health Management - Cooperative Lands SPCH 18,085 9,878 1,752 946 659 656

Volunteer Fire Assistance SPVF 2,282 2,280 1,930 0 0 0

Forest Stewardship SPST 14,385 8,442 774 1,021 1,042 176

Forest Legacy Program LGCY 21,361 17,302 7,047 390 320 36

Urban and Community Forestry SPUF 8,940 7,240 962 882 690 167

Economic Action Program SPEA 0 0 0

Forest Resources Information and Analysis SPIA 0 0 0 252 199 0

International Forestry SPIF 0 0 0 396 355 354

Total, State & Private Forestry 81,540 59,065 22,694 10,060 8,169 6,272

National Forest System *

Land Management Planning NFPN 0 0 0 6,689 4,569 4,578

Inventory and Monitoring NFIM 0 0 0 17,604 13,737 13,754

Recreation, Heritage, and Wilderness NFRW 248 244 204 36,335 34,836 34,893

Wildlife and Fisheries Habitat Management NFWF 0 0 0 15,464 13,099 13,141

Grazing Management NFRG 0 0 0 6,550 5,624 5,639

Forest Products NFTM 0 0 0 39,997 40,890 40,974

Vegetation and Watershed Management NFVW 0 0 0 20,992 21,093 21,156

Minerals and Geology Management NFMG 0 0 0 7,813 8,129 8,158

Landownership Management NFLM 0 0 0 11,481 9,615 9,635

Law Enforcement Operations NFLE 0 0 0 10,891 9,768 9,782

Valles Caldera National Preserve VCVC 0 0 0 0 0 0

Total, National Forest System * 248 244 204 173,816 161,362 161,709

Wildland Fire Management

Fire Preparedness WFPR 10 35 30 25,025 22,644 22,400

Fire Operations -- Suppression WFSU 0 0 0 87,239 84,062 83,778

Hazardous Fuels WFHF 5 5 5 30,004 29,180 29,219

Rehabilitation and Restoration NFN3 0 0 0 772 218 0

Fire Research and Development FRF2 0 0 0 1,918 1,490 1,485

Joint Fire Sciences JFSP 0 0 0 0 0 0

Forest Health Management -- Federal Lands (NFP) SPS4 4 4 4 1,771 1,473 1,468

Forest Health Management -- Cooperative Lands (NFP) SPS5 129 3 3 186 194 194

State Fire Assistance (NFP) SPS2 8,532 5,320 3,877 41 30 30

Volunteer Fire Assistance (NFP) SPS3 1,943 1,969 2,000 0 0 0

Total, Wildland Fire Management 10,623 7,335 5,919 146,957 139,292 138,574

Capital Improvement & Maintenance

Facilities CMFC 0 0 0 11,356 7,806 7,880

Roads CMRD 0 0 0 20,816 17,146 17,304

Trails CMTL 0 0 0 8,640 7,419 7,339

Infrastructure Improvement CMII 0 0 0 462 300 0

Legacy Roads and Trails CMLG 0 0

Total, Capital Improvement & Maintenance 0 0 0 41,274 32,671 32,523

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund LALW 0 0 0 1,517 1,308 118

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

Complete Land Exchanges EXEX 0 0 0 0 0 0

Total, Land Acquisition 0 0 0 1,517 1,308 118

Range Betterment Fund RBRB 0 0 0 0 0 0

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

Management of NF Lands for Subsistence Uses SMSM 0 0 0 393 312 0

Permanent Working Funds

Brush Disposal BDBD 0 0 0 1,694 1,264 1,260

Timber Salvage Sales SSSS 0 0 0 9,314 5,229 5,213

Other OTHER 8 0 0 949 304 870

Total, Permanent Working Funds 8 0 0 11,957 6,796 7,342

Trust Funds Subtotal TRST 0 302 251 9,943 8,734 8,707

TOTAL, ALL FUNDS 92,419 66,947 29,067 424,000 384,306 380,826

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-10 

Allocations by Region, Station, and Area, FY 2007 and Estimated for FY 2008-2009 

 WO National / Unallocated

($ in Thousands) FY07 FY08 FY09 FY07 FY08 FY09

Forest and Rangeland Research FRRE 18,987 19,434 21,673 12,874 25,412 21,733

State & Private Forestry

Forest Health Management - Federal Lands SPFH 4,150 4,878 6,672 3,490 11,850 8,731

State Fire Assistance SPCF 1,732 2,193 2,289 537 6,945 5,008

Forest Health Management - Cooperative Lands SPCH 4,442 3,216 1,654 1,444 18,220 3,461

Volunteer Fire Assistance SPVF 0 0 0 0 0 0

Forest Stewardship SPST 2,564 2,202 2,284 4,769 5,385 571

Forest Legacy Program LGCY 1,534 1,689 1,677 456 135 21

Urban and Community Forestry SPUF 1,442 1,429 1,292 2,351 6,168 904

Economic Action Program SPEA 0 0 0 4,206

Forest Resources Information and Analysis SPIA 44 50 0 59 4,255 0

International Forestry SPIF 4,984 5,009 4,763 1,506 2,019 -3,117

Total, State & Private Forestry 20,891 20,667 20,630 14,613 59,181 15,580

National Forest System *

Land Management Planning NFPN 12,050 9,838 9,616 4,131 4,424 4,672

Inventory and Monitoring NFIM 45,306 24,355 43,069 5,628 30,476 9,190

Recreation, Heritage, and Wilderness NFRW 16,131 17,641 17,262 13,712 15,702 15,310

Wildlife and Fisheries Habitat Management NFWF 7,825 8,211 8,473 5,532 5,595 5,099

Grazing Management NFRG 2,195 2,196 2,159 2,235 2,261 2,273

Forest Products NFTM 21,196 17,956 25,238 13,180 25,247 17,249

Vegetation and Watershed Management NFVW 13,133 13,693 14,563 9,221 11,405 9,901

Minerals and Geology Management NFMG 4,364 5,228 5,072 3,232 7,922 6,920

Landownership Management NFLM 9,624 9,747 9,878 3,975 4,231 3,733

Law Enforcement Operations NFLE 8,360 8,658 8,340 95,749 113,484 96,878

Valles Caldera National Preserve VCVC 0 0 0 3,500 3,692 0

Total, National Forest System * 140,185 117,522 143,671 160,095 224,439 171,224

Wildland Fire Management

Fire Preparedness WFPR 55,852 34,706 58,909 61,733 89,360 55,642

Fire Operations -- Suppression WFSU 18,317 22,964 23,203 635,920 738,594 886,967

Hazardous Fuels WFHF 15,325 11,425 17,795 16,736 22,581 15,469

Rehabilitation and Restoration NFN3 182 91 0 1,128 4,828 0

Fire Research and Development FRF2 263 326 325 825 4,794 4,481

Joint Fire Sciences JFSP 0 0 0 7,882 7,875 8,000

Forest Health Management -- Federal Lands (NFP) SPS4 394 407 405 514 4,632 4,730

Forest Health Management -- Cooperative Lands (NFP) SPS5 37 53 53 48 5,976 6,076

State Fire Assistance (NFP) SPS2 38 177 168 17,503 20,006 14,563

Volunteer Fire Assistance (NFP) SPS3 0 0 0 0 0 0

Total, Wildland Fire Management 90,407 70,150 100,859 742,289 898,646 995,928

Capital Improvement & Maintenance

Facilities CMFC 4,229 4,174 4,085 24,892 9,160 9,040

Roads CMRD 8,271 7,470 8,614 10,294 14,029 12,716

Trails CMTL 3,392 2,906 3,457 2,334 3,336 2,656

Infrastructure Improvement CMII 149 143 0 874 122 39

Legacy Roads and Trails CMLG 0 39,766

Total, Capital Improvement & Maintenance 16,041 14,693 16,156 38,393 66,414 24,451

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund LALW 242 312 28 30,509 34,080 4,043

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

Complete Land Exchanges EXEX 0 0 0 1 3,629 280

Total, Land Acquisition 242 312 28 30,510 37,709 4,323

Range Betterment Fund RBRB 0 0 0 0 3,692 3,600

Gifts, Donations, and Bequests for Research GDGD 0 0 0 52 55 50

Management of NF Lands for Subsistence Uses SMSM 63 75 0 121 610 0

Permanent Working Funds

Brush Disposal BDBD 423 568 571 539 543 541

Timber Salvage Sales SSSS 1,652 1,363 1,354 3,230 2,778 2,774

Other OTHER 420 301 430 20,670 113,046 98,107

Total, Permanent Working Funds 2,495 2,231 2,355 24,439 116,367 101,422

Trust Funds Subtotal TRST 1,751 2,168 2,159 6,141 3,646 3,638

TOTAL, ALL FUNDS 291,063 247,253 307,531 1,029,528 1,436,170 1,341,949

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-11 

Allocations by Region, Station, and Area, FY 2007 and Estimated for FY 2008-2009

 Forest Service Total

($ in Thousands) FY07 FY08 FY09

Forest and Rangeland Research FRRE 280,488 285,926 263,000

State & Private Forestry

Forest Health Management - Federal Lands SPFH 53,963 54,110 45,000

State Fire Assistance SPCF 32,895 32,605 25,000

Forest Health Management - Cooperative Lands SPCH 47,104 44,542 10,000

Volunteer Fire Assistance SPVF 5,912 5,906 5,000

Forest Stewardship SPST 41,947 29,532 5,000

Forest Legacy Program LGCY 56,536 52,317 12,500

Urban and Community Forestry SPUF 30,130 27,691 5,000

Economic Action Program SPEA 0 4,206

Forest Resources Information and Analysis SPIA 4,588 4,516 0

International Forestry SPIF 6,886 7,383 2,000

Total, State & Private Forestry 279,961 262,809 109,500

National Forest System *

Land Management Planning NFPN 57,675 48,833 52,607

Inventory and Monitoring NFIM 166,638 166,580 146,462

Recreation, Heritage, and Wilderness NFRW 258,797 262,635 237,000

Wildlife and Fisheries Habitat Management NFWF 131,734 132,385 117,633

Grazing Management NFRG 47,826 48,163 47,025

Forest Products NFTM 319,614 322,503 322,666

Vegetation and Watershed Management NFVW 176,849 177,437 165,309

Minerals and Geology Management NFMG 84,164 84,143 70,835

Landownership Management NFLM 90,932 91,299 75,000

Law Enforcement Operations NFLE 115,000 131,910 115,000

Valles Caldera National Preserve VCVC 3,500 3,692 0

Total, National Forest System * 1,452,730 1,469,579 1,349,537

Wildland Fire Management

Fire Preparedness WFPR 665,382 665,819 588,375

Fire Operations -- Suppression WFSU 741,477 845,620 993,947

Hazardous Fuels WFHF 301,258 310,086 297,000

Rehabilitation and Restoration NFN3 6,189 10,828 0

Fire Research and Development FRF2 22,789 23,519 22,000

Joint Fire Sciences JFSP 7,882 7,875 8,000

Forest Health Management -- Federal Lands (NFP) SPS4 14,779 14,030 14,252

Forest Health Management -- Cooperative Lands (NFP) SPS5 9,853 9,858 10,014

State Fire Assistance (NFP) SPS2 46,221 47,967 35,004

Volunteer Fire Assistance (NFP) SPS3 7,773 7,875 8,000

Total, Wildland Fire Management 1,823,603 1,943,477 1,976,592

Capital Improvement & Maintenance

Facilities CMFC 130,140 121,755 119,647

Roads CMRD 223,798 227,924 227,000

Trails CMTL 73,362 76,365 50,041

Infrastructure Improvement CMII 9,100 8,958 9,100

Legacy Roads and Trails CMLG 39,766

Total, Capital Improvement & Maintenance 436,401 474,767 405,788

Land Acquisition

Land Acquisition -- Land and Water Conservation Fund LALW 41,936 41,827 5,000

Acquisition of Lands for National Forests, Special Acts ACAC 1,053 1,037 0

Complete Land Exchanges EXEX 3,744 3,629 280

Total, Land Acquisition 46,733 46,493 5,280

Range Betterment Fund RBRB 2,876 3,692 3,600

Gifts, Donations, and Bequests for Research GDGD 63 55 50

Management of NF Lands for Subsistence Uses SMSM 5,009 4,974 0

Permanent Working Funds

Brush Disposal BDBD 14,845 17,000 17,900

Timber Salvage Sales SSSS 67,770 61,300 52,000

Other OTHER 118,430 204,875 224,615

Total, Permanent Working Funds 201,044 283,175 294,515

Trust Funds Subtotal TRST 220,303 184,026 161,025

TOTAL, ALL FUNDS 4,749,210 4,958,974 4,568,887

* NFS amount does not include $5,000,000 rescission of unobligated carryover funds

Total does not include Payments to States
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-12 

Business Operations Transformation Assessment 

Program Description 

The Forest Service’s (FS) Business Operations Transformation Program is one of the largest 

organizational changes in the agency’s 100-year history. The agency has successfully streamlined and 

centralized operations in budget and finance (B&F). The agency continues to make improvements in 

centralizing human capital management (HCM) and information technology through the chief 

information office (CIO). The goals of these efforts are to reduce redundancies and indirect costs, while 

strengthening performance accountability. 

These changes have profound impacts on all employees and in every office of the Forest Service. To 

continually improve efficiencies, effectiveness, and customer satisfaction, the agency is committed to 

conducting regular assessments and addressing areas in need of correction. Such actions include a third 

Business Operations Transformation Assessment (BOTA), follow-up on recommendations from three 

internal strike teams, and a continuous improvement process in concert with the agency’s Operations 

Customer Service Board. 

Business Operations Transformation Assessments 

Various assessments have been made since the Forest Service began centralizing business services in 

2005. BOTAs were conducted in the fall of 2005 and spring of 2006 to determine how transformations in 

B&F, HCM, and CIO impacted field operations. Recommendations from the two phases of the BOTA 

continue to be implemented, as explained below. A third phase of BOTA has been delayed until FY 

2009, when transformation should be complete for HCM and CIO. 

Strike Teams

Based on BOTA phase 2 findings, Forest Service leadership chartered three strike teams in 2006 to 

address overarching challenges in field roles and responsibilities, communications to the field, and field 

training. The implementation of the strike team recommendations was begun in FY 2007 and will 

continue in FY 2008. 

Roles and Responsibilities 

The roles and responsibilities team assessed and clarified the intended responsibilities of field employees 

related to centralized business operations at various user levels. The outcome from this strike team is an 

electronic tool called My Administrative Process (MAP). It provides managers, specialists, and new 

employees with information on their individual responsibilities within CIO, HCM, and B&F. The B&F 

tool has been operational since July 2007. The tools for HCM and CIO are scheduled for operation early 

in early 2008. 

Field Training 

Field training is critical to employees’ understanding of their roles in the new business environment. The 

Forest Service will continue to identify and deliver pertinent training to employees in FY 2009. Top 

priority training courses have been made available to employees. This includes training on the 

EmpowHR Human Capital Management System, along with train-the-trainer sessions at all regions and 

stations and a suite of “IT/Computer 101” courses that are easily accessed through the CIO website. 

Emphasis has also been placed on new employees’ training needs. A new employee website with 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-13 

modules on how employees and supervisors will operate in the new business operations environment will 

be available in FY 2009, as will a course for supervisors and managers to reflect recent changes to HCM. 

A Learning Council has been established to set strategic direction and accountability to work with the 

corporate training office and establish an overall program of work.

Communications 

The BOTA reports and external studies found that communications within the Forest Service regarding 

business operations transformation were often not reaching their intended audience therefore hampering 

acceptance of critical changes. The agency has put added emphasis on internal communication to help 

improve employees’ use and understanding of new systems and processes and to increase leadership’s 

involvement and accountability. Accomplishments in FY 2007 included: 

o Implementing a comprehensive and coordinated communication strategy among CIO, HCM, and 

B&F. 

o Introducing a cadre of internal change consultants for all regions, stations, area to assist their unit 

leaders in identifying and implementing strategies for employees to better adapt and thrive in the 

centralized business environment. 

o Identifying and using new technologies and methods for getting crucial information to and 

feedback from employees to help ensure acceptance and understanding of critical changes. 

Operations Customer Service Board and Service Level Agreements

The Operations Customer Service Board (OCSB) was chartered by agency leadership in January 2006 to 

ensure the alignment of organizational goals, customer needs, service level agreements, and funding 

levels for centralized business services. The Board has oversight over operations of the CIO, HCM, and 

B&F to reflect customers’ needs and the affordable needs of the agency. The OCSB is made up of line 

officers, a union representative, and subject matter experts. They provide advice and recommendations to 

the Chief for continual improvement of these services. 

In FY 2007, the OCSB established a budget review team and service level agreement team to give added 

attention to review of program budgets and the relationship between funding and the quality of service 

provided to customers. The Board brought to the attention of the Chief of the Forest Service a number of 

issues, including training recommendations, support to fires and other incidents, and pay and other issues 

concerning agency partners. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-14 

Challenge Cost Share and Partnerships 

Challenge Cost Share Agreements

For over a century, the Forest Service (FS) has maintained a commitment to working with a variety of 

organizations and interests in its obligation for “caring for the land and serving people.” As the 

complexity, constraints, and opportunities surrounding the management of public lands increase, 

partnerships are an essential mechanism toward achieving social, economic, and ecological goals 

associated with these lands. Through these working relationships, the Forest Service and its partners: 

• Build stronger communities and healthier ecosystems – sharing resources and expertise to 

achieve sustainable solutions to current and future resource challenges. 

• Empower employees and partners – improving the art of associating with others by capitalizing 

and sharing information and skills and fostering continued learning and deeper connections 

between people and the land. 

• Create a more effective and efficient organization – expanding achievements through working 

together and securing or leveraging new and existing sources of support. 

Through collaboration and partnership, we readily achieve mutual resource goals that may well be beyond 

the reach of an individuals or a single organization. 

Challenge Cost Share Agreements are one formal mechanism through which the agency can illustrates the 

power behind shared energies and contribution invested in the public’s interest. Please see the table on 

the following page. 
FY 2009 Budget Justification 

Special Exhibits 15-15 

Value of Challenge Cost Share Agreements FY 2006-FY 2007 

 ** Includes Other Appropriations, Permanent Appropriations, and Trust Funds. 

Forest Service 

Contribution

Partner 

Contribution Total Value Forest Service Contribution Partner Contribution 

Forest and Rangeland Research $406 $218 $624 $1,748 $462 State and Private Forestry $779 $436 $1,216 $2,584 $1,641 Land Management Planning $303 $26 $329 $450 $4 Inventory and Monitoring $2,058 $1,091 $3,150 $1,552 $459 Recreation, Wilderness, Heritage Mgt $1,425 $2,538 $3,963 $3,091 $5,101 Wildlife and Fish Habitat Mgt $2,280 $2,748 $5,029 $2,763 $5,427 Grazing Management $185 $356 $541 $178 $914 Forest Products $218 $118 $336 $282 $15 Vegetation & Watershed Mgt $1,544 $1,564 $3,107 $3,454 $3,717 Minerals and Geology Mgt $1,184 $117 $1,300 $262 $109 Landownership Management $161 $82 $243 $75 $9 Job Corps $401 $0 Centennial of Service Challenge $523 $622 $1,146 $0 $0 Wildland Fire Management $2,427 $2,031 $4,458 $1,081 $556 Facilities $121 $249 $370 $488 $188 Roads $536 $901 $1,437 $1,496 $1,633 Trail $2,838 $4,755 $7,593 $3,214 $4,969 Other ** $809 $551 $1,361 $670 $0 GRAND TOTAL $17,797 $18,403 $36,203 $23,388 $25,204 

FY 2006 FY 2007

Budget Line Item
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-16

Conservation Education 

Program Overview

The Forest Service (FS) connects more than 4 million people each year with nature and public lands 

through its conservation education (CE) program. This program teaches people about natural resource 

management and gives them tools to make informed decisions and take action to sustain natural and 

cultural resources. CE programs help people better understand their connection to the land, and are 

delivered by a network of land managers, scientists, educators, and interpreters representing all branches 

of the agency. Learning experiences include outdoor recreational and interpretive activities, formal 

structured school-based programs that support local standards of learning, and stewardship projects 

focused on invasive species control, fire and hazardous fuel treatment and open space preservation. The 

program focuses specific educational efforts on children (pre-k through 12th grade) and their educators in 

classroom and informal settings. 

FY 2009 Program of Work 

In FY 2009, CE will continue to evaluate their programs 

and materials using national Guidelines for Excellence. 

Technology will be used to enhance program delivery for 

distance learning and web-based education tools. CEs 

internet presence will be strengthen with improved 

information technology that will enhance 

communication, networking and accomplishment 

reporting. These tools, along with environmental 

stewardship activities will strengthen the environmental 

awareness and knowledge. Partnerships will be 

leveraged to provide educational expertise, teacher 

training, supplemental curriculum materials and 

connections to our customers, and to effectively engage 

urban and underserved communities. 

Allocation and Integration 

The CE program in the Washington Office supports the field in the 

implementation of national priorities. At the field and regional 

levels, the program is funded through recreation, heritage, and 

wilderness; wildlife and fish habitat management; and forest and 

rangeland research in addition to nearly a dozen other agency 

programs. It is one the most broadly integrated programs in the 

agency. 

Training Teachers 

The Forest for Every Classroom 

provides teachers with resources 

and skills to infuse conservation 

education into curricula across all 

disciplines. Well-trained teachers in 

environmental education greatly 

amplify our ability to connect 

students with nature. 

Connecting Kids to Nature 

In 2006, “More Kids in the Woods” enhanced 

learning experiences for more than 20,000 

children. The Forest Service connected with 

children in Hispanic and underserved 

communities through the Latino Legacy project 

in Texas. With the Girl Scouts, the program has 

engaged more than 7,000 girls from rural and 

urban underserved communities in leadership 

projects, stream bank restoration, and outdoor 

skill development. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-17

Partnerships 

Partnerships with more than 1,000 individual 

organizations at the national and local levels, more 

than double the agency’s investment in CE activities 

and insure they meet local community needs. The 

Washington Office maintains national level 

partnerships that help provide technical assistance to 

our vast network of providers across the country and 

improve our reach to diverse, underserved and urban 

populations. 

Partner Contributions Leverage 

2006 FS Investments

FS In-Kind, 

$1.09 MM

Other FS 

Funds, 

$3.66 MM

FS-CE 

Funds, 

$1.03 MM

Non-FS 

Contrib.s, 

$12.4 MM
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-18

 Deferred Maintenance and Asset Management 

Over the past decade, the Forest Service implemented a national effort to collect detailed data on 

infrastructure condition and maintenance and improvement needs. This effort was initially in 

response to both financial reporting requirements and direction from Congress, but has shown 

significant value in support of additional agency priorities. Repairs, rehabilitation to restore 

functionality, replacement, and decommissioning are actions that are taken to reduce or eliminate 

deferred maintenance. 

To date, the surveys of essentially all administrative buildings, dams, bridges, roads open to 

passenger cars, and recreation sites have been accomplished. Deferred maintenance estimates 

for most assets are based on condition surveys performed on a 5-year maximum revolving 

schedule, with the exception of the Bridges Asset Class which is on a 2-year maximum revolving 

schedule. The protocol used for estimating the deferred maintenance for the Roads Asset Class 

includes surveying all passenger car roads (Maintenance Levels 3 – 5) on a 5-year maximum 

revolving schedule and only 2 percent of the closed and high clearance vehicle roads 

(Maintenance Levels 1 – 2) based on a random sampling program. The agency is developing a 

new, statistically valid, survey methodology for calculating deferred maintenance for roads; 

however, key elements of the model have raised serious questions. Until these questions can be 

answered and verified, the agency will continue to use the existing methodology. 

The table below displays deferred maintenance by asset class for the agency as reflected in the 

agency’s financial statement. A significant change occurred in the reported deferred 

maintenance for Roads from FY 2006 to FY 2007. Auditors have accepted the estimate as being 

from a sufficient number of roads to achieve 95 percent accuracy and 95 percent confidence. 

The increase in the Roads estimate is attributable to the new surveying sampling protocol, as 

well as the surveys that were conducted at a higher standard on a significantly reduced the 

number of roads, and increased costs due to rises in fuel prices and other associated construction 

costs. To address this significant increase, the agency is currently evaluating the road 

management objective levels for each road through the Road Analysis Process. The goal is to 

operate and maintain a road system that is financially sustainable and consistent with forest land 

management plan objectives, and to align funds to address the critical deferred maintenance. 

The agency is committed to sustaining a viable level of infrastructure, disinvesting in 

infrastructure that can no longer be managed to appropriate standards, rightsizing the portfolio, 

and eliminating the substantial backlog of deferred maintenance. Specific programmatic tools in 

support of asset management include: 

Asset Management Planning - The President’s Management Agenda and Executive Order 

13327, Federal Real Property Asset Management established the framework for improved 

use and management of real property owned, leased, or managed by the Federal Government. 

The agency recognizes the importance of real property resources through increased 

management attention, the establishment of clear goals and objectives, policies, and levels of 

accountability. The agency expects to implement active management of its infrastructure 

portfolio based upon asset management principles established by the Office of Management 

and Budget (OMB). 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-19

USDA’s Asset Management Initiatives 3-year timeline document (derived from the Asset 

Management Plan approved by OMB) calls for the creation of an intra-Department working 

group, consisting of all the land holding agencies, to identify an overall deferred maintenance 

reduction target for the Department for each of the next 3 fiscal years. Individual deferred 

maintenance reduction targets for each landholding agency will be developed through this 

group. 

Facility Master Planning - Forest Service field units will be completing or updating facility 

master plans which identify fire, administrative, research, visitor centers, and recreation 

facilities for decommissioning, retention, alternate use, or acquisition. These plans will be 

used to actively manage the facility inventory, reduce deferred maintenance backlog, and 

decommission unneeded facilities. 

For recreation sites, such as campgrounds, the agency is implementing both the Recreation 

Facility Analysis (RFA) and Recreation Site Improvement (RSI) processes as a means to 

reposition the recreation site program to better meet current and future needs of recreation 

visitors. One of the primary goals is to reduce recreation sites deferred maintenance by 20 

percent on each national forest over the 5 years that RFA program of work covers. 

Decommissioning of non-priority recreation sites is one method national forests may use to 

reduce deferred maintenance. 

Forest Service Facility Realignment and Enhancement Act - In FY 2006, the Forest Service 

Facility Realignment and Enhancement Act (Title V, Appropriations Act, P.L. 109-54) was 

enacted. This legislation authorizes the sale of unneeded administrative sites and the use of 

receipts for acquisition, maintenance, reconstruction 

and construction of administrative infrastructure, 

creating incentives to dispose of these facilities. To 

date, activities under this authority, including pilot 

projects authorized under P.L. 107-63, Section 329 as 

amended, generated approximately $28.2 million in 

revenues and reduced facilities deferred maintenance 

by $4.1 million. 

Facilities Maintenance Assessment – Beginning in FY 

2006, the Department of the Interior, Environment, 

and Related Agencies Appropriations Act of 2006 authorized the agency to assess all funds 

available to the agency for the purpose of performing facilities maintenance on fire, 

administrative, and other (FA&O) and major visitor center facilities (Title III, Administrative 

Provisions, P.L. 109-54). 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. 

Fiscal Year

Receipts

$ thous.

Deferred

Maintenance

Reduced

$ thous.

2004 $1,347 $146 

2005 $1,927 $599 

2006 $13,593 $2,465 

2007 $11,348 $876 

Cumulative

Total $28,215 $4,086 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-20

Deferred Maintenance1

 Totals by Asset Class 

As of September 30, 2007 

($ thousands) 

Asset Class 

Overall 

condition Critical2 Non critical3 Total

 

Bridges Varies 28,523 94,099 $122,622 

Buildings Varies 113,994 429,076 $543,070 

Dams Varies 6,692 14,425 $21,117 

Fences Varies 323,894 355 $324,249 

Handling Facilities Varies 23,336 23 $23,359 

Heritage Varies 5,473 12,194 $17,667 

Minor Constructed Features Varies 90,428 $90,428 

Roads Varies 767,147 3,389,381 $4,156,528 

Trails Varies 1,767 222,398 $224,165 

Trail Bridges Varies 3,208 6,393 $9,601 

Wastewater Systems Varies 17,108 14,641 $31,749 

Water Systems Varies 53,560 34,898 $88,458 

Wildlife, Fish, and TES Varies 4,452 1,949 $6,401 

Grand Total $1,349,154 $4,310,260 $5,659,414 

1

Deferred Maintenance: Deferred maintenance 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. 

2

Critical Deferred Maintenance: Deferred maintenance that results in a serious threat to public health or safety, a 

natural resource, or the ability to carry out the mission of the organization. 

3

Non-critical Deferred Maintenance: Deferred maintenance that results in a potential risk to public or employee 

safety or health, compliance with codes, standards, regulations, and so forth; or needs that address potential adverse 

consequences to natural resources or mission accomplishment. 

FY 2009 Plan 

• Work to reduce the number of under-performing assets listed on the Performance 

Assessment Tool. 

• Improve quality of Federal Real Property Profile (FRPP) as required by EO 13327 and 

the USDA Asset Management Plan.

• Expedite the elimination of unneeded assets using applicable authorities. 

• Using the Road Analysis Process, decommission additional roads and allow many less 

utilized roads to revert to a lower standard.

• Work to reduce the number of assets listed on the Performance Assessment Tool that list 

by unit all under-performing assets.

• Complete an OMB Exhibit 300 Business Case Analysis for all capital investment projects 

greater than $10 million.

• Implementation of the FY 2009 Major Project List will eliminate an estimated $29.5 

million of deferred maintenance. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-21

FY 2008 Program 

• Work to reduce the number of under-performing assets listed on the Performance 

Assessment Tool. 

• Complete an OMB Exhibit 300 Business Case Analysis for all capital investment projects 

greater than $10 million. 

• Continue reduction of unneeded or underutilized buildings taking maximum advantage of 

the existing Conveyance authority.

• Continue decommissioning excess road and facility infrastructure.

• Identify projects planned for disposal on the Three Year Rolling Timeline. Also include 

new leases over $100,000 and Capital Investment Projects over GSA Prospectus level 

($2.59 million). 

• As required by the OMB scorecard, ensure that no data gaps exist on the FRPP year end 

report.

• Implementation of the FY 2008 Major Project List will eliminate an estimated $18.4 

million of deferred maintenance.

• Approximately $23.1 million of recreation fees is anticipated to be expended on 146 

projects and reduce deferred maintenance by approximately $19 million.

 

FY 2007 Accomplishments 

• Completed population of FRPP data, including an additional 24th element for 

approximately 55,000 assets per OMB and USDA direction. 

• Generated over $27.5 million in revenues through conveyance and real property sale 

authorities at a total cost of $1,370,000. 

• Eliminated $3,840,000 deferred maintenance backlog by disposing of 342 properties 

encompassing a plant replacement value of $73,500,000. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-22

EXPIRING AUTHORITIES 

The following authorities will expire in either FY 2008 or FY 2009. 

P.L. 109-54, Forest Service Facility Realignment and Enhancement Act of 2005, Title V, 

Section 503 (16 U.S.C. 580d note). Authorizes the Secretary to convey administrative sites on 

National Forest System lands and retain receipts for acquisition, construction, maintenance, and 

renovation of facilities for administrative purposes. FY 2008.

P.L. 95-313, Cooperative Forestry Assistance Act of 1978, Section 6(g) (16 U.S.C. 2103b(g)). 

Authorizes appropriations for the Secretary of Agriculture to carry out the Watershed Forestry 

Assistance Program. FY 2008.

PL 101-624, Global Climate Change Prevention Act of 1990 (7 U.S.C 6704(d), as amended). 

Establishes the Office of International Forestry. (Pub. L. 101-624, title XXIV, Sec. 2405, Nov. 

28, 1990, 104 Stat. 4060; Pub. L. 104-127, title III, Sec. 371, Apr. 4, 1996, 110 Stat. 1015; Pub. 

L. 107-171, title VIII, Sec. 8102, May 13, 2002, 116 Stat. 475.) March 15, 2008 (pending 

reauthorization through the 2008 Farm Bill). 

P.L. 101-624, Food, Agriculture, Conservation, and Trade Act of 1990, Section 2371(d). (7 

U.S.C. 6601(d)). Authorizes appropriations for the Secretary of Agriculture, acting through the 

Chief of the Forest Service, to carry out a program to accelerate adoption of technologies using 

biomass and small-diameter materials, create community-based enterprises through marketing 

activities and demonstration projects, and establish small-scale business enterprises to make use 

of biomass and small-diameter materials. March 15, 2008 (pending reauthorization through 

the 2008 Farm Bill). 

P.L. 108-148, Healthy Forests Restoration Act of 2003. FY 2008.

Section 203(b) (16 U.S.C. 6531(b)): Authorizes appropriations for the Secretary of Agriculture 

to carry out the Biomass Commercial Utilization Grant Program to make grants to persons who 

owns or operates facilities that uses biomass for wood-based products or other commercial 

purposes to offset costs of biomass purchase. 

Section 303(e) (16 U.S.C. 6542(e): Authorizes appropriations for the Secretary of Agriculture, 

acting through the Chief of the Forest Service, to provide technical, financial, and related 

assistance to Indian tribes for the purpose of expanding tribal stewardship capacities and 

activities through tribal forestry best-management practices and other means to address 

watershed issues on administered by Indian tribes. 

Section 406 (16 U.S.C. 6556): Authorizes appropriations for the Secretaries of Agriculture and 

the Interior to establish a program of accelerated information gathering regarding forestdamaging insects and to apply silvicultural assessments on Federal lands that are at risk of 

infestation. 

Section 601(d) (16 U.S.C. 6591(d)): Authorizes appropriations for the Secretary of Agriculture 

to carry out a comprehensive program to inventory, monitor, characterize, assess, and identify 

forest stands and potential forest stands on certain National Forest System and private lands. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-23

P.L. 109-54, Interior-Environment Appropriations Act, 2006, Section 428 (43 U.S.C. 1701 

note). Authorizes joint pilot program with the other Federal land management agencies to 

promote customer service and efficiency in management of public lands and national forests 

(Service First). FY 2008. 

P.L. 110-161, Section 421. Authorizes the Secretary of Agriculture to use categorical 

exclusions for certain grazing activities, but excludes use of this authority in federally designated 

wilderness areas. FY 2008 

P.L. 110-161, Section 426. Authorizes the Secretary of Agriculture, via cooperative agreement 

or contract, may permit the State Forester of the State of Utah to perform forest, rangeland, and 

watershed restoration services on NFS lands in the State of Utah (Utah Good Neighbor). FY 

2008. 

P. L. 108-447, Consolidated Appropriations Act, 2005, Section 336, Authorizes the Secretary 

of Agriculture, via cooperative agreement or contract, to permit the Colorado State Forest 

Service to perform watershed restoration and protection services on NFS 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 (Colorado Good 

Neighbor). FY 2009.

P.L. 109-54, Interior-Environment Appropriations Act, 2006, Title III, FS Administrative 

Provisions. Authorizes that funds may be used for the purpose of expenses associated with 

primary and secondary schooling for dependents of agency personnel stationed in Puerto Rico.

FY 2009. 

P. L. 109-54, Interior-Environment Appropriations Act, 2006, Title III, FS Administrative 

Provisions. 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. FY 2009. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-24

Facilities Maintenance Assessment 

The Forest Service currently maintains approximately 24 million square feet in an inventory of 

approximately 20,000 fire, administrative, and other (FA&O) buildings. The agency also maintains an 

inventory of over 19,000 dams and numerous other facilities such as water and wastewater systems and 

communication facilities. The current inventory is larger than needed and many facilities are in disrepair 

as evidenced by a large deferred maintenance backlog. It has been difficult to properly maintain facilities 

with available resources. Prior to new authorities authorized in FY 2006, the agency lacked direct 

incentives to reduce inventory and resultant maintenance needs. 

For FY 2009, the facilities assessment level proposed is a maximum of $45 million as in FY 2008. 

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. For maintenance less than $250,000 for these facilities will use funds 

collected by this assessment. Maintenance for FA&O and recreation visitor centers greater than $250,000 

is funded through the Capital Improvement and Maintenance Facilities budget line item and is shown on 

the Major Facility Project List. 

Beginning in FY 2006, Congress authorized a multi-program assessment for maintenance of FA&O 

facilities, including recreation visitor centers (Title III, Administrative Provisions, P.L. 109-54). 

Appropriated funds from Forest and Rangeland Research, State and Private Forestry, National Forest 

System, Wildland Fire Management, Capital Improvement and Maintenance, Land Acquisition, Other 

Appropriations, and eligible Permanent and Trust Fund accounts were assessed up to $35 million. 

Using a program assessment to fund facility maintenance provides an incentive to dispose of unneeded 

buildings and provide a restraint on new construction, because the cost of facilities maintenance is borne 

by an assessment of program funds. This provides financial accountability for the cost of doing business. 

Anticipated Future Years 

Assessment- In FY 2009, the Forest Service proposes a program up to $45 million. Consistent with FY 

2008, the assessed amount will be limited to 4 percent of the facility replacement value and not to exceed 

$7 per square foot. 

Allocation- Currently, the Forest Service proposes to allocate $35 million based on assessed square 

footage. The proposed additional assessment of up to $10 million will be allocated based on priority 

needs of Regions/Research/Areas (RSAs) utilizing a square footage assessment. 

FY 2008 

Assessment and Allocation - As directed by Congress, the FY 2008 assessment will be based on 

approximately 24 million existing square feet. Units requested additional assessments of $8.6 million 

above the $35 million base, to meet priority needs of their respective unit for a total square footage 

assessment of $43.6 million. The base assessment equates to approximately $1.48/sq. ft, and the 

additional assessment varies up to $3.00/sq. ft., which falls within the limits of 4 percent of the facility 

replacement value and $7 per square foot. Assessments are then distributed across the budget line items 

based on each program’s prior year direct labor hour charges. The funds will be allocated in a need based 

system, based on total gross square feet. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-25

The following tables display the assessments and allocations by unit. 

FY 2008 Facilities Maintenance Assessment and Allocation by Unit 

Unit Name 

Total Gross 

Square Feet 

(GSF) 

Dollars ($) 

per 

GSF 

Total 

Assessment 

Total 

Allocation 

Northern Region 2,593,214 1.93 $4,998,000 $4,998,000

Rocky Mountain Region 1,467,337 1.91 $2,800,000 $2,800,000

Southwestern Region 1,564,710 3.00 $4,694,000 $4,694,000

Intermountain Region 2,101,326 1.48 $3,119,000 $3,119,000

Pacific Southwest Region 4,010,156 1.48 $5,952,000 $5,952,000

Pacific Northwest Region 4,140,936 1.91 $7,901,000 $7,901,000

Southern Region 2,036,528 1.91 $3,883,000 $3883,000

Eastern Region 2,917,715 1.91 $5,569,000 $5,569,000

Alaska Region 530,571 1.91 $1,012,000 $1,012,000

Regions Subtotal 21,362,493 1.87 $39,928,000 $39,928,000

Forest Products Lab 402,850 1.48 $596,000 $596,000

Rocky Mountain Station 414,247 1.48 $613,000 $613,000

Northern Station 492,193 1.48 $728,000 $728,000

Pacific Northwest Station 280,326 1.48 $415,000 $415,000

Pacific Southwest Station 190,404 1.48 $282,000 $282,000

Southern Research Station 477,818 1.48 $707,000 $707,000

Stations Subtotal 2,257,838 1.48 $3,341,000 $3,341,000

Int. Inst. Of Tropical Forestry 27,045 1.48 $40,000 $40,000

San Dimas Tech. Dev. Center 32,495 1.48 $48,000 $48,000

Missoula Tech. Dev. Center 71,715 1.48 $106,000 $106,000

Grey Towers 55,980 1.48 $83,000 $83,000

Wood Education Center 65,191 1.48 $97,000 $97,000

Other Units Subtotal 252,426 1.48 $374,000 $374,000

TOTAL 23,872,757 1.83 43,643,000 $43,643,000 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-26

Forest Products Laboratory Modernization 

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. 

In order to provide excellent and reliable wood utilization research to the Nation, the Forest Products 

Laboratory (FPL) has identified significant needs to modernize the laboratory and maintain the 

functionality of this leading institution. 

Funding History

FY 2005 FY 2006 FY 2007 FY 2008 FY 2009 

$986,000 $1,990,000 $15,144,000 $15,000,000 $15,508,000 

The project includes a single, multi-use research laboratory (MUL) 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 (HVAC) at the 

main building. Details on these facilities are as follows: 

Durability Test Facility – Will enhance research related to mold in homes and public buildings as 

well as the effects the elements have on those structures. 

 

Wood Preservation Research Laboratory – Upgrade of the 1930’s era lab will help keep pace 

with modern wood preservation research and provide a healthier, safer workplace for employees. 

Advanced Materials, Composites, and Structures Laboratory – Modernization of these labs to 

improve component and full scale structural testing and development and testing of composite 

materials is essential. 

Advanced Fiber Processing and Paper Products Laboratory – 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 – 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. It will provide the capability to simulate actual fire scenarios, better 

validate computer models, and evaluate protection options or design changes. 

The project schedule is the following: 

• Phase 1: Construct combined MUL core and shell with interior partitions for the Durability 

Research area. Awarded $15,144,000 in FY 2007 and under construction. 

• Phase 2: Continue the MUL by constructing interior partitions and finishes for remaining research 

areas. Awarded $15,000,000 in FY 2008. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-27

• Phase 3: Complete MUL (storage and site work); construct Advanced Fiber Processing and Paper 

Products Laboratory utility upgrades; construct addition to the Fire Research Laboratory; install 

central HVAC in main FPL Building. Scheduled for award in FY 2009 ($15,508,000) and 

completion in the fall of 2010.

Return on Investment 

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 

Importance of Utilization to the Economy – Forest products are of major importance to meeting the needs 

of the American public, the U.S. economy, and the President’s energy policy. The U.S. forest products 

industry is based on our largest renewable resource. It provides indispensable products, contributes over 

$250 billion per year to our Gross Domestic Product (GDP) and employs over 1.5 million citizens. The 

U.S. forest products industry faces intense competition in the global economy because product prices are 

generally set internationally and most domestic products are commodity grades; which translates 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. 

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. 

State of the art facilities and equipment are critical to continuing the research for which the FPL has long 

been recognized. Having such facilities and equipment will significantly help in continuing to attract 

exceptional research scientists. These factors (recognized scientists, and modern facilities and equipment) 

are also critical to continued cooperative research with universities and the public and private sector. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-28

Indirect Costs 

Background

The Forest Service commitment toward long-term indirect cost reductions resulted in the need to establish 

indirect cost caps and overall cost pool ceilings for each Region, Station, and Area through FY 2008. In 

FY 2009, the Forest Service will continue its efforts to ensure that indirect costs remain stable or achieve 

further reductions through organizational restructuring and the refinement of our administrative processes. 

The Forest Service’s continued commitment towards reducing indirect costs is evidenced by the recent 

centralization of the Forest Service administrative functions at the Albuquerque Service Center (ASC). 

To date, the centralization includes the Budget, Finance, Information Solutions (IT) and Continuing 

Government Activity functions. In addition, the Human Capital Management function migration to ASC 

is still on track to be completed in FY 2008. 

This centralization of administrative functions was designed to 1) improve the overall efficiency of the 

Forest Service’s administrative operations, 2) increase the Forest Service’s ability to meet the needs of its 

internal and external customers, and 3) redirect critical funds from indirect or administrative functions 

back to direct and/or mission critical programs. 

These reforms will, in the long term, enhance Forest Service efforts to improve accountability and focus 

on measurable results in the management of the national forests, as well as significantly reduce overhead, 

business management, and other indirect costs to improve efficiency and program delivery. 

General Policy

Appropriate application of cost pools allows the Forest Service to accurately reflect the cost of doing 

business in compliance with the Federal financial reporting standards articulated by the Federal 

Accounting Standards Advisory Board (FASAB). Accurately reflecting the true cost of doing business 

improves the Government's ability to account for public funds; provides information for evaluating 

agency costs, accomplishments, and impacts of accomplishments; and provides a basis to assess agency 

financial systems and controls. 

The Forest Service receives appropriations by program, and does not receive a general administration or 

management appropriation. Cost pools are used for expenses that can not reasonably be charged directly 

to a single program. The cost pools are designed to maintain accurate reporting of the true costs by 

program, by having each program contribute into the cost pools an amount based on its share of indirect, 

support, and common services charges. 

To effectively manage, fund, and account for indirect costs, the Forest Service continues: 

• Using the cost allocation methodology for distributing indirect costs to budget line items; 

• Using cost pools to capture similar costs by category; 

• Annually updating cost allocation directions; 

• Monitoring cost allocation data, cost pool transaction and accounting adjustments, and/or 

program changes to maintain financial integrity; and 

• Conducting cost allocation compliance reviews at region, station, area, and national forest levels. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-29

Indirect Costs Policy Review

The purpose of the cost allocation compliance reviews is to determine the consistency in which the field 

organization and the Washington Office (WO) headquarters implement indirect cost policy and to identify 

areas for improvement. The agency uses the information gathered from the reviews to improve the cost 

allocation process and update cost allocation directions for the following fiscal year. 

Direct, Support, and Indirect Costs

Forest Service definitions of direct and indirect costs are consistent with FASAB Statement #4. The 

agency published the definitions in the FY 2000 Budget Justification. The Department of Agriculture 

Chief Financial Officer and the Office of Management and Budget cleared, and the Government 

Accountability Office, United States Department of Commerce’s Office of Inspector General and Office 

of General Counsel, and the Department of Justice reviewed the definitions prior to publishing. 

Direct Costs - Direct costs are specifically identified with the delivery of a program or a program’s 

accomplishments. Direct costs include expenses associated with employees working directly on the 

production of an output. Program management is an integral cost of the production of an output and 

therefore is included as a direct cost. Direct costs might also include costs not associated with employees 

involved in the production of output(s), such as office and other facility space, computer equipment, and 

utilities, as well as materials, supplies, and equipment. Direct costs are generally charged directly to a 

single primary purpose budget line item. 

Support Costs – Support costs, like indirect costs, are not traceable to any specific budget line item. 

However, they are associated with line management administering the program of work, as well as a 

limited set of nationally designated cross-cutting projects and activities. The cost allocation methodology 

distributes support costs to budget line items. 

Indirect Costs - Indirect costs are costs that are necessary for the operation of the Forest Service as an 

organization but are not traceable to any specific outputs. These include Legislative and Public 

Communication, Ongoing Business Services, and Common Services. 

Cost Pools 

For management and tracking purposes, categories of similar expenses are combined into five cost pools. 

Cost pools 1 and 2 are 100 percent support costs (direct cost pool), cost pools 3 and 4 are 100 percent 

indirect, and cost pool 5 includes both indirect and direct components. Other cost pools (6 and 7) track 

Office of Workers’ Compensation (OWCP) and Unemployment Compensation Insurance (UCI). Cost 

pool 9 collects facilities maintenance assessment funds. There is no cost pool 8. 

Generally, the cost pools serve as an accounting tool, providing the Forest Service with financial data on 

categories of similar expenses. This permits the Forest Service to plan for and manage support, indirect, 

and direct pool costs at different levels in the organization. A description of these pools and their 

associated costs are listed below. 

Cost Pool 1 - General Management: This cost pool includes salaries, associated employee benefits, and 

related costs for general line managers and officers (including secretarial staff) at the WO, 

Regions/Stations/Area (R/S/A), national forest, and ranger district levels. In addition, union officials, 

civil rights positions, and safety officers are included in Cost Pool 1 to show their direct connection and 

link to line management. Related costs include uniforms, travel, transfer of station, vehicles, cell phones, 

laptops, specialized supplies and equipment, and discretionary expenses associated with these positions. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-30

Cost pool 1 is entirely support costs and is based on direct full-time equivalents (FTEs) of total employees 

within the cost pool. 

Cost Pool 2 - Direct Project Approved Activities: This cost pool includes salaries, benefits, and related 

costs for a limited set of nationally designated cross-cutting projects, currently limited to Conservation 

Education, Tribal relations, Freedom of Information Act (FOIA), Resource Advisory Council (RAC) 

administration, and Grey Towers. Cost pool 2 is entirely program support and is based on direct FTEs of 

total employees within the cost pool. 

Cost Pool 3 - Legislative and Public Communications: This cost pool includes salaries, associated 

employee benefits, and related costs for general receptionists, public affairs, and legislative liaisons at the 

WO, R/S/A, national forest, and ranger district levels. Related costs include uniforms, travel, transfer of 

station, vehicles, cell phones, laptops, specialized supplies and equipment, and discretionary expenses 

associated with these positions. Cost pool 3 is entirely indirect costs and is based on direct FTEs of total 

employees within the cost pool. 

Cost Pool 4 - Ongoing Business Services: Cost pool 4 includes salaries, associated employee benefits, 

and related costs for business operations at the WO, R/S/A, national forest, and ranger district levels. 

Business operations include budget, finance, acquisition, human capital management, some grants and 

agreements, and information resource management. Calendar year national burden rate (collected from 

external and cooperative agreements) is credited to cost pool 4 through the FFIS Purchase Cost Allocation 

System (PCAS). Cost pool 4 is entirely indirect costs and is based on direct FTEs of total employees 

within the cost pool. 

Cost Pool 5 - Common Services: This cost pool includes rent, utilities, communications, equipment, 

supplies, radios, phones, and computer related expenses. Cost pool 5 consists of both indirect and direct 

pool costs. The distribution of costs in pool 5 is based on direct FTEs for permanent employees only; the 

division between direct and indirect costs is based on the ratio of direct to indirect employees. For 

example, if the common services for a unit with 100 employees, consisting of 80 direct and 20 indirect, is 

$500,000, then $400,000 of these costs would be direct and $100,000 would be indirect. 

Cost Pool 6 - Office of Worker’s Compensation Program (OWCP): This cost pool includes Office of 

Worker’s Compensation Program costs charged on a case-by-case basis. Therefore, the charges will vary 

in both indirect and direct pool costs. Costs are distributed based on the work being performed at the time 

of the injury. OWCP for indirect employees is an indirect cost and allocated based on direct labor hours. 

Cost Pool 7 - Unemployment Compensation Insurance (UCI): This cost pool includes Unemployment 

Compensation Insurance costs charged on a case-by-case basis. Therefore, the charges will vary in both 

indirect and direct pool costs. Costs are distributed based on the work performed while employed. UCI 

for indirect employees is an indirect cost and allocated based on direct labor hours (DLHs). 

Cost Pool 9 - Facilities Maintenance Assessment Fund: This cost pool contains the Facilities 

Maintenance Assessment Fund. This is a direct cost pool used to allocate facilities maintenance work 

funded by assessing each R/S/A a charge based on gross square foot of facilities. These charges are then 

allocated by BLI using the same basis as cost pool 5 in compliance with the FY 2006 Appropriations Act 

and accompanying conference report language. 

Cost Allocations – General Overview 

The Forest Service allocates support, indirect, and direct pool costs among programs through the cost 

allocation process, which assesses each Forest Service budget line item a certain percentage of total cost 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-31

pool costs. Cost pools are generally allocated using direct labor hours (DLH). DLH are converted to fulltime equivalents (FTEs); 1 FTE = 2,096 DLHs (the DLH number varies depending on the year). For cost 

pools 1-4, DLHs are used for all employees charging to direct costs (all employees includes those holding 

permanent, temporary, intermittent, and other types of positions). This is because these costs generally 

reflect the entire organization. For cost pools 5 and 9, only permanent employee DLHs are used, because 

these costs (rent, communication, utilities, etc.) are driven primarily by the need to support the permanent 

workforce. Planning estimates for cost pool 6 are based on actual past cases for OWCP; and cost pool 7 

is based on actual past cases for UCI. Because of their nature, the FTEs associated with supplemental, 

transfer, and emergency funds are dropped from the cost pools and are not used in calculating indirect 

costs. 

The Forest Service uses cost allocation to charge expenses back to a single budget line item. Cost 

allocation is used for expenses that: 

• Are indirect (e.g., cost pool 4), 

• Simultaneously support multiple programs in a way that can not be efficiently charged directly to a 

budget line item (BLI) (e.g., cost pools 1 and 2), 

• Involve multiple transactions that need to be summarized for payment purposes (e.g., cost pools 6 & 

7), or 

• Are otherwise directed by congressional or administrative action (e.g., cost pool 9). 

Forest Service Indirect Cost Exhibits

As directed by Congress in the FY 1999 Appropriations Act (P.L. 105-277), the Forest Service is 

providing the following indirect cost exhibits on the following pages: 

Exhibit 1 – Comparison of FY 2007 Planned versus Actual Indirect Costs by Budget Line Item 

Exhibit 2 – Estimate of FY 2009 Indirect Costs by Budget Line Item 

Exhibit 3 - Comparison of Indirect Costs by Region of Actual FY 2007 and Estimated Planned 

Costs for FY 2008 to FY 2009 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-32

Exhibit 1. Comparison of FY 2007 Planned versus Actual Indirect Costs by Budget Line Item

(dollars in thousands)

 FY 2007 Actual

 Budget Line Item: Fund/Program 

FY 2007 Enacted 

Budget

FY 2007

Estimated 

Indirect Costs

Indirects as

a Percent of 

BLI

Percent of

Total FS 

Indirect Costs

FY 2007 Actual 

Indirect Costs

Indirects as

a Percent of 

BLI

Percent of

Total FS 

Indirect 

Forest and Rangeland Research $280,488 $19,985 7.1% 3.8% $18,019 6.4% 3.8%

Subtotal, Research $280,488 $19,985 7.1% 3.8% $18,019 6.4% 3.8%

Federal Lands $53,963 $6,943 12.9% 1.3% $6,260 11.6% 1.3%

Cooperative Lands $47,104 $775 1.6% 0.1% $699 1.5% 0.1%

State Fire Assistance $32,895 $817 2.5% 0.2% $736 2.2% 0.2%

Forest Stewardship $41,947 $965 2.3% 0.2% $870 2.1% 0.2%

Forest Legacy $56,536 $338 0.6% 0.1% $304 0.5% 0.1%

Urban and Community Forestry $30,130 $892 3.0% 0.2% $804 2.7% 0.2%

Forest Resources Information and Analysis $4,588 $183 4.0% 0.0% $165 3.6% 0.0%

International Forestry $6,886 $283 4.1% 0.1% $255 3.7% 0.1%

Subtotal, State and Private Forestry $274,049 $11,196 4.1% 2.1% $10,093 3.7% 2.1%

Land Management Planning $57,675 $8,128 14.1% 1.6% $7,328 12.7% 1.6%

Inventory and Monitoring $166,638 $21,411 12.8% 4.1% $19,304 11.6% 4.1%

Recreation, Heritage, and Wilderness $258,797 $47,477 18.3% 9.1% $42,806 16.5% 9.1%

Wildlife and Fisheries Habitat Management $131,734 $20,698 15.7% 4.0% $18,661 14.2% 3.9%

Grazing Management $47,826 $8,740 18.3% 1.7% $7,880 16.5% 1.7%

Forest Products $319,614 $52,244 16.3% 10.0% $47,105 14.7% 10.0%

Vegetation and Watershed Management $176,849 $27,557 15.6% 5.3% $24,845 14.0% 5.3%

Minerals and Geology Management $84,164 $10,255 12.2% 2.0% $9,246 11.0% 2.0%

Landownership Management $90,932 $14,878 16.4% 2.8% $13,414 14.8% 2.8%

Law Enforcement Operations $115,000 $13,167 11.4% 2.5% $11,871 10.3% 2.5%

Subtotal, National Forest System $1,449,229 $224,555 15.5% 42.9% $202,460 14.0% 42.9%

Preparedness $665,382 $25,237 3.8% 4.8% $22,754 3.4% 4.8%

Hazardous Fuels Management $301,258 $39,250 13.0% 7.5% $35,388 11.7% 7.5%

Fire Operations $741,477 $110,631 14.9% 21.1% $99,747 13.5% 21.1%

National Fire Plan - Forest and Rangeland Res. $22,789 $1,321 5.8% 0.3% $1,192 5.2% 0.3%

National Fire Plan - Rehab and Restoration $6,189 $1,075 17.4% 0.2% $969 15.7% 0.2%

National Fire Plan - Forest Health Fed Lands $14,779 $2,368 16.0% 0.5% $2,135 14.4% 0.5%

National Fire Plan - Forest Health Coop Lands $9,853 $249 2.5% 0.0% $225 2.3% 0.0%

National Forest Plan - State Fire Assistance $46,221 $68 0.1% 0.0% $62 0.1% 0.0%

Subtotal, Wildland Fire $1,807,948 $180,199 10.0% 34.4% $162,472 9.0% 34.4%

Facilities $130,140 $15,308 11.8% 2.9% $13,802 10.6% 2.9%

Roads $223,798 $27,740 12.4% 5.3% $25,011 11.2% 5.3%

Trails $73,362 $12,037 16.4% 2.3% $10,853 14.8% 2.3%

Deferred Maintenance $9,100 $629 6.9% 0.1% $567 6.2% 0.1%

Subtotal, Capital Improvement and Maintenance $436,400 $55,714 12.8% 10.6% $50,233 11.5% 10.6%

Land Acquisition $41,936 $2,033 4.8% 0.4% $1,833 4.4% 0.4%

Subtotal, Land Acquisition $41,936 $2,033 4.8% 0.4% $1,833 4.4% 0.4%

Alaska Subsistence $5,009 $488 9.7% 0.1% $440 8.8% 0.1%

Subtotal, Other Appropriations $5,009 $488 9.7% 0.1% $440 8.8% 0.1%

Brush Disposal $14,845 $2,330 15.7% 0.4% $2,101 14.2% 0.4%

Timber Salvage Sales $67,770 $12,611 18.6% 2.4% $11,370 16.8% 2.4%

Roads and Trails $16,837 $919 5.5% 0.2% $829 4.9% 0.2%

Cooperative Work, Knutson-Vandenburg Trust Fund $135,470 $9,963 7.4% 1.9% $8,982 6.6% 1.9%

Reforestration Trust Fund $44,354 $3,596 8.1% 0.7% $3,242 7.3% 0.7%

Federal Lands Recreation Enhancement Fund $60,392 $411 0.7% 0.1% $370 0.6% 0.1%

Subtotal, Permanent and Trust Funds $339,668 $29,830 8.8% 5.7% $26,894 7.9% 5.7%

TOTAL - FOREST SERVICE* $4,634,727 $524,000 11.3% 100.0% $472,444 10.2% 100.0%

*Only includes appropriations that were used in the basis for assessing indirect costs. 

*Does not include Cost Pool 1 - Support Costs or Cost Pool 2 - Direct Project Approved Activities

*Does not include supplemental, emergency, transfer, or payments to states funds which are not assessed indirect costs.

FY 2007 Estimate
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-33

Exhibit 2. Estimate of FY 2009 Indirect Costs by Budget Line Item

Agency Total and Totals by Program

(dollars in thousands)

 Budget Line Item: Fund/Program 

FY 2009

President's 

Budget

TOTAL Estimated 

Indirect Costs

Indirects as

Percent of 

Budget Line Item 

Indirects as 

Percent of Total

Forest and Rangeland Research $263,000 $18,471 7.0% 4.0%

Subtotal, Research $263,000 $18,471 7.0% 4.0%

Federal Lands $45,000 $5,106 11.3% 1.1%

Cooperative Lands $10,000 $615 6.2% 0.1%

State Fire Assistance $25,000 $693 2.8% 0.2%

Volunteer Fire Assistance $5,000 $0 0.0% 0.0%

Forest Stewardship $5,000 $182 3.6% 0.0%

Forest Legacy $12,500 $36 0.3% 0.0%

Urban and Community Forestry $5,000 $182 3.6% 0.0%

International Forestry $2,000 $256 12.8% 0.1%

Subtotal, State and Private Forestry $109,500 $7,070 6.5% 1.5%

Land Management Planning $52,607 $5,451 10.4% 1.2%

Inventory and Monitoring $146,462 $16,085 11.0% 3.5%

Recreation, Heritage, and Wilderness $237,000 $43,744 18.5% 9.5%

Wildlife and Fisheries Habitat Management $117,633 $17,020 14.5% 3.7%

Grazing Management $47,025 $7,269 15.5% 1.6%

Forest Products $322,666 $51,797 16.1% 11.2%

Vegetation and Watershed Management $165,309 $27,084 16.4% 5.9%

Minerals and Geology Management $70,835 $10,428 14.7% 2.3%

Landownership Management $75,000 $12,098 16.1% 2.6%

Law Enforcement $115,000 $11,706 10.2% 2.5%

Subtotal, National Forest System $1,349,537 $202,682 15.0% 44.0%

Preparedness $588,375 $23,825 4.0% 5.2%

Suppression $993,947 $104,208 10.5% 22.6%

Hazardous Fuels Management $297,000 $37,358 12.6% 8.1%

Joint Fire Sciences $8,000 $0 0.0% 0.0%

National Fire Plan (NFP) - Forest and Rangeland Research $22,000 $1,038 4.7% 0.2%

National Fire Plan (NFP) - State Fire Assistance $35,004 $48 0.1% 0.0%

National Fire Plan (NFP) - Forest Health Federal Lands $14,252 $1,885 13.2% 0.4%

National Fire Plan (NFP) - Forest Health Cooperative Lands $10,014 $258 2.6% 0.1%

National Fire Plan (NFP) - Volunteer Fire Assistance $8,000 $0 0.0% 0.0%

Subtotal, Wildland Fire $1,976,592 $168,620 8.5% 36.6%

Facilities $119,647 $10,293 8.6% 2.2%

Roads $227,000 $22,533 9.9% 4.9%

Trails $50,041 $9,912 19.8% 2.2%

Deferred Maintenance/ Infrastructure Improvement $9,100 $0 0.0% 0.0%

Subtotal, Capital Improvement and Maintenance $405,788 $42,738 10.5% 9.3%

Land Acquisition $6,000 $147 2.5% 0.0%

Subtotal, Land Acquisition $6,000 $147 2.5% 0.0%

Management of NF Lands for Subsistence Uses $0 $0 0.0% 0.0%

Subtotal, Other Appropriations $0 $0 0.0% 0.0%

Brush Disposal $17,900 $1,694 9.5% 0.4%

Timber Salvage Sales $52,000 $6,844 13.2% 1.5%

Recreation Fee Enhancement $125,000 $415 0.3% 0.1%

Roads and Trails $13,000 $800 0.0% 0.2%

Cooperative Work, Knutson-Vandenburg Trust Fund $81,000 $8,481 10.5% 1.8%

Reforestration Trust Fund $30,000 $3,038 10.1% 0.7%

Subtotal, Permanent and Trust Funds $318,900 $21,272 6.7% 4.6%

TOTAL* $4,429,317 $461,000 10.4% 100.0%

*Only includes appropriations that were assessed indirect costs. 

*Does not include Cost Pool 1 - Support Costs or Cost Pool 2 - Direct Project Approved Activities

*Does not include supplemental, emergency, transfer, or payments to states funds which are not assessed indirect costs.
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-34

Exhibit 3 - Comparison of Indirect Costs* by Region

 Actual FY 2007 and Estimted FY 2008 and FY 2009

 (dollars in thousands)

Actual Estimated

R/S/A

FY 2007 

Indirect Costs

FY 2008 Indirect 

Planned

% Change 

from Previous 

Year

FY 2009 

Indirect 

Planned

% Change 

from 

Previous 

Year

1 $17,656 $22,415 27.0% $22,415 0.0%

2 $17,906 $18,557 3.6% $18,557 0.0%

3 $19,809 $22,023 11.2% $22,023 0.0%

4 $17,179 $16,929 -1.5% $16,929 0.0%

5 $30,306 $36,222 19.5% $36,222 0.0%

6 $36,650 $40,191 9.7% $40,191 0.0%

8 $19,473 $22,924 17.7% $22,924 0.0%

9 $16,654 $21,373 28.3% $21,373 0.0%

10 $8,334 $10,736 28.8% $10,736 0.0%

12 $827 $760 -8.1% $760 0.0%

13 $38,942 $37,367 -4.0% $37,367 0.0%

15 $9,792 $19,607 100.2% $19,607 0.0%

Stations $0 $0 0.0% $0 0.0%

Other Units $238,916 $191,896 -19.7% $191,896 0.0%

TOTAL $472,444 $461,000 -2.4% $461,000 0.0%

*Does not include supplemental, emergency, transfer, or payments to states

 funds which are not assessed for indirect costs.

*Does not include Cost Pool 1 - Support Costs or Cost Pool 2 - Direct

 Project Approved Activities.

*Research stations have been dropped from cost pools 1-5. Administrative,

 overhead and program support costs for stations will be directly

 charged to the appropriate Research BLI's and tracked separately.
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-35

National Scenic and Historic Trails 

 FY 2007 FY 2008 FY 2009 

 ($ in thousands) 

 Trails Land 

Acq. 

Partner * Total Trails Land

Acq. 

Total Trails Land

Acq. 

Total 

Appalachian 193 0 1,958 2,151 193 3,100 3,293 100 0 100 

Continental Divide 1,500 0 240 1,740 2,000 0 2,000 1,200 0 1,200 

Florida 1,100 0 1,437 2,537 1,500 580 2,080 1,000 0 1,000 

Pacific Crest 1,297 250 1,471 3,018 2,000 1,600 3,600 1,200 0 1,200 

Nez Perce 640 0 205 845 640 0 640 300 0 300 

All-others** 625 0 460 1,085 822 0 822 200 0 200 

 

TOTAL $5,355 $250 $5,771 $11,376 $7,155 $5,280 $12,435 $4,000 $0 $4,000 

* Estimated cash and in-kind contributions. Estimated contributions for FY 2008 and FY 2009 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.

Overview

The FY 2003 House Report 107-564 directed the National Forest System appropriation to include a report 

in the FY 2004 budget justification displaying projects, activities, and programs accomplished along the 

national scenic and historic trails, along with the work proposed to be done and funding needed to support 

work along these trails for 3 subsequent years. FY 2004 House Report 108-330 continued the direction to 

display funding and accomplishments for these trails in all future budget justifications. 

Since enactment of the National Trails System Act in 1968, the Forest Service has designated trail 

coordinators for five National Scenic and Historic Trails (NS&HT): the Appalachian, Continental 

Divide, Florida, Pacific Crest, and Nez Perce (Nee Mee Poo). In addition, the Forest Service manages 

portions of 15 additional NS&HTs on National Forest System (NFS) lands. Funding for administration 

and management of these trails is included within the Capital Improvement and Maintenance - Trails 

budget line item. Acquisition of trail segments is included within the Land Acquisition budget line item. 

FY 2009 Program of Work

For FY 2008 and 2009 priority will be placed on continuing to foster and expand partnerships, 

especially with those that involve volunteers and youth organizations. Maintenance and operation of 

most trails, trailheads, and campgrounds will be accomplished through these efforts. Interpretative and 

educational programs and products will continue to be delivered. 

Specific activities planned in FY 2008 are as follows: 

Appalachian – Partners: Appalachian Trail Conservancy, Appalachian Mountain Club, National Park 

Service, and other Federal, State, and non-governmental organizations 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-36

• Green Mountain: Trail rehabilitation near Griffith Lake, Styles and Peru Peak; finalize Thundering 

Falls relocation, including accessibility component; repair/replace roof at Nauheim and Winturri 

shelters, construct replacement of Lost Pond Shelter; and repair Clarendon Gorge bridge. 

• George Washington/Jefferson: Trail relocations at Lynn Camp; major bridge replacements at Stony 

Creek and Brown Mountain Creek; replace one shelter roof (Davis Path); and design and replace two 

bridges at Feather Camp and Straight Branch. 

• Cherokee: Trail relocations and improvements near Damascus, Unaka Mountain, and Iron Mountain 

Gap. 

• North Carolina: Six separate trail relocations on the Appalachian Ranger District. 

• Chattahoochee: Continued maintenance of 13 trail shelters and moldering privies. 

Continental Divide – Partners: Continental Divide Trail Association, Colorado Trail Foundation, 

National Park Service, and other Federal, State, and non-governmental organizations

• Complete a directive to clarify the nature and purposes of the Continental Divide Trail. 

• Plan for locating 87 miles (scouting and/or NEPA); construct 58 miles, reconstruct 12 miles, and 

build 4 trailheads. 

• Develop rights-of-way strategies in collaboration with the states of Colorado, New Mexico, Idaho, 

Wyoming and Montana. 

Florida – Partners: Florida Trail Association, U.S. Fish and Wildlife Service, and other Federal, State, 

and non-governmental organizations 

• Construct an 80-foot hanging bridge over Econfina Creek. 

• Conduct natural and cultural resource inventories on 320 acres in Bay County, Florida in partnership 

with The Nature Conservancy and others to initiate a restoration strategy to restore longleaf pine to 

the corridor. 

Pacific Crest – Partners: Pacific Crest Trail Association, California Conservation Corps, Northwest 

Youth Corps, Student Conservation Association, Backcountry Horsemen of California, and other Federal 

State, and non-governmental organizations 

• Continue support and expansion of traditional skills training for volunteers and agency staff in 

California, Washington, and Oregon including crosscut saws and horse packing. 

• Maintain 1,200 miles to standard. 

Nez Perce (Nee-Me-Poo) – Partners: Nez Perce Trail Foundation, National Park Service, Backcountry 

Horsemen of America, tribal governments and other Federal, State, and non-governmental organizations 

• Set up new interpretive panel at Dug Bar and rehabilitate kiosk material (Wallowa-Whitman). 

• Continue to improve award-winning website to serve both those who travel the Trail and those who 

cannot physically experience it 

• Revise and finalize the Comprehensive Management Plan to include modern management challenges, 

trail threats, interpretive plans, and partnership strategies and update contact list for media, agencies, 

communities, partners, and others. 

• Develop, print and distribute educational materials specifically for children 

Other – Partners: Numerous foundations, trail associations, tribal governments and other Federal, State, 

and non-governmental organizations.

• Ice Age – Replace or repair 4 boardwalks or puncheons; replace trailblazers where needed. 

• Lewis and Clark – Mark the 10th anniversary of operations at the Interpretive Center with a 

celebration event planned; begin the process for locating a 45-mile trail corridor on the McKenzie 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-37

River Ranger District (Dakota Prairie National Grasslands); and replace bumpers on Weitas Meadows 

boardwalk and reconstruct waterbars (Clearwater). 

• North Country – Rebuild Cole Creek bridge (Huron-Manistee NF); construct new shelter on Cherry 

Run (Allegheny); improve signing on Valley Spur trailhead (Hiawatha NF); post new trail signage at 

the Marietta and Athens Units (Wayne NF); and replace barrier posts at the McCormick Bridge to 

prevent snowmobile access (Ottawa NF).

FY 2007 Program Accomplishments

Volunteers 

Trail Hours 

 In-kind 

Contributions 

($ in thousands) 

Cash 

Contributions 

($ in thousands) 

Miles of 

Trail 

Maintained

Miles of 

Trail 

Improved 

Major 

Structures 

Constructed 1/

Appalachian 86,573 $1,625 $333 1,015 8 17 

Continental 

Divide 

25,600 $481 $180 500 44 3 

Florida 73,903 $1,387 $49 1,165 37 12 

Pacific Crest 78,390 $1,471 $0 1,166 30 36 

Nez Perce 9,483 $178 $27 3,388 0 1 

Other 24,245 $455 $4 556 38 25 

 Total 298,194 $5,597 $593 7,790 157 94 

1/ Major structures include bridges, kiosks, boardwalks, campgrounds, etc. 

Trail Descriptions

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. 

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. 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 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-38

1993 and lies upon publicly owned lands except for approximately 300 miles where it crosses private 

lands (easements have been acquired for the trail tread). Over the past decade the PCT has become a 

favorite of thru-hikers and thru-riders and each year an average of 300 hikers attempt to cover the full 

length of the trail. 

 

Nez Perce National Historic Trail (NPNHT) - In 1986 Congress acknowledged the significance of the 

Nez Perce Conflict of 1877 by establishing the 1,170 mile NPNHT. The route winds through remote, 

rugged, and scenic terrain and, while 865 miles of the trail is an automobile tour route, many miles are 

accessible only by foot with little changed in more than a century. 

Other National Scenic and Historic Trails (NSHT) - There are an additional 15 national scenic and 

historic trails totaling over 6,700 miles that the Forest Service coordinates management with other Federal 

public land agencies. These trails are: California, Camino Real Tejas, Camino Tierra Adentro, De Anza, 

Ice Age, Iditarod, Lewis and Clark, Mormon Pioneer, North Country, Old Spanish, Oregon, 

Overmountain Victory, Pony Express, Santa Fe, and Trail of Tears. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-39

Northwest Forest Plan 

FY 2007 – FY 2009 Funding 

Program 

(dollars in thousands) 

FY 2007 

Enacted 

FY 2008 

Enacted 

FY 2009

Pres. Bud. 

National Forest System 

Wildlife and Fisheries Habitat Management $19,900 $8,400 $12,900 

Forest Products $68,600 $61,500 $77,400 

Vegetation and Watershed Management $17,300 $2,700 $3,200 

Landownership Management $4,400 $3,000 $4,900 

Wildland Fire Management 

Hazardous Fuels $21,800 $7,200 $8,400 

Capital Improvement and Maintenance 

Roads $35,300 $ 12,300 $25,800 

Permanent Appropriation 

Salvage Sale Fund $8,400 $7,300 $7,400 

 Trust Appropriation 

Cooperative Work - Knutson-Vandenberg $6,000 $1,100 $0 

Total $181,700 $103,500 $140,000 

Volume Offered for Sale (MMBF) 488 550 800 

Note: 

FY 2007 - Full funding for the settlement agreement (AFRC v. Clarke). 

FY 2008 - Regional capability funding level. Does not include Albuquerque Service Center costs. 

FY 2009 – Full funding for the settlement agreement. Does not include Albuquerque Service Center costs. 

Project Description

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 (LSRs) is the primary management objective. LSRs protect and enhance conditions favorable to 

late-successional and old-growth related species. Silvicultural treatments include precommercial and 

commercial thinning. Approximately 1.8 million acres of LSRs could benefit from thinning to enhance 

late-successional conditions. 

A settlement agreement, American Forest Resource Council (AFRC), et. al. v. Clarke, entered into 

between AFRC and the Secretary of Agriculture and Secretary of the Interior, requires the agency to 

request funding to meet the obligations expressed in the agreement . 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), with 161 MMBF in Region 5 and 476 MMBF in Region 6. Volume offered from LSRs is 

counted in addition to PSQ. 

Highlights 

The FY 2009 President’s Budget requests $140.0 million to fully fund the obligations expressed in the 

NWFP Settlement Agreement. At this funding level, the program of work will continue to build capacity 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-40

to deliver the timber volume commitment of 800 million board feet (MMBF) while meeting NWFP goals 

and objectives. 

Starting in FY 2008, funding levels represent those activities needed to meet the timber volume offer 

levels identified in the Settlement Agreement, not other activities of the NWFP. The funding levels also 

represent a continuing improvement in determining those activity costs. The FY 2008 funding level 

reflects existing regional capability and helps to build the capacity necessary to deliver 800 MMBF in 

subsequent years. 

Requested funds for Wildlife and Fisheries Habitat Management, Vegetation and Watershed 

Management, and Hazardous Fuels will be used for preparation costs associated with timber sales 

specifically designed to meet these program objectives. For example, fish and wildlife goals are met 

through thinning projects that accelerate the development of old growth characteristics and tree removal 

and increase water in streams to improve red-band cutthroat trout habitat. The agency will continue 

wildlife surveys and protections applied for species requiring pre-project surveys in conformance with the 

2006 District Court ruling (Northwest Ecosystem Alliance v. Mark E. Rey, District Court for the Western 

District of Washington, January 9, 2006). The Forest Service will also continue priority watershed 

restoration in consultation with the U.S. Fish and Wildlife Service - to support recovery of Northern 

Spotted Owl populations - and with the National Marine Fisheries Service, for anadromous fish. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-41

Office of General Counsel Reimbursement 

A Forest Service Administrative Provision in the FY 2007 Appropriations for the Department of Interior, 

Environment, and Related Agencies Appropriations Act (P.L.109-54) and under the current continuing 

resolution provides: 

“Notwithstanding any other provision of law, any appropriations or funds available to the Forest 

Service not to exceed $500,000 may be used to reimburse the Office of the General Counsel 

(OGC), Department of Agriculture, for travel and related expenses incurred as a result of OGC 

assistance or participation requested by the Forest Service at meetings, training sessions, 

management reviews, land purchase negotiations and similar non-litigation related matters. 

Future budget justifications for both the Forest Service and the Department of Agriculture should 

clearly display the sums previously transferred and the requested funding transfers.” 

The USDA Office of General Counsel bills the Forest Service quarterly for non litigation travel 

and related costs. The FY 2007 actual reimbursement was $91,786. The Office of General 

Counsel estimates reimbursements for non-litigation travel and related costs to be $150,000 for 

FY 2008 and $150,000 for FY 2009. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-42

Office of Tribal Relations 

The Office of Tribal Relations (OTR) provides policy, direction, and technical expertise to assist in 

building, maintaining, and enhancing the Forest Service’s (FS) relations with federally recognized Native 

American and Alaska Native Tribes. The OTR supports the mission of all programs and disciplines 

through both general and issue-specific efforts. 

OTR has responsibilities that span all of the deputy areas within the agency. It focuses on partnerships 

and the special trust relationship that the United States has with over 560 federally recognized Indian 

Tribes. OTR works with (FS) units regarding tribal interests on NFS lands and FS interests on tribal 

lands. In some cases, tribal governments retain the rights to what are present-day national forests or 

grasslands from when the tribes relinquished the lands to the United States Government. 

Allocation and Integration 

OTR is funded by a direct cost pool, using all of the funds available to the FS. Specific projects are 

funded by the primary purpose of the projects. 

Partnerships 

OTR works closely and collaboratively to leverage partnerships with internal units, tribal governments, 

intertribal organizations, and other Federal and State agencies. OTR supports and integrates Tribal 

Relations components of policy analysis and development, technical and administrative assistance, 

training, and oversight. The program also advises national and regional FS leadership in matters 

pertaining to interactions with tribes and tribal representatives. OTR helps develop regulations for, and 

track implementation of Tribal Relations components of specific legislation, including the Farm Bill and 

the Tribal Forest Protection Act. The Tribal Relations communication products have been refined, as well 

as the Tribal Relations program training. This has let to expanded involvement with intertribal 

organizations and the implementation of the (now proposed) Sacred Sites policy. OTR will continue to 

participate in Chief’s reviews, conduct program reviews of the regional Tribal Relations programs, and 

participate in national and regional meetings that pertain to tribal relations. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-43

Organizational Efficiency 

WO/RO/Northeastern Area Transformation (Restructuring) 

The Forest Service is in the process of restructuring its organization at the regional office and 

headquarters levels. The Transformation effort will fundamentally change the way integrated leadership, 

direction, and oversight are delivered at the top two levels of the organization. 

Through the Transformation effort, Forest Service Leadership is working to address two major issues: 

1) An outdated management structure not ideally suited to deliver today’s programs and emerging 

issues; and 

2) Rising operating costs and declining buying power. 

The Forest Service envisions the following outcomes: 

1) A transformed agency from one designed for the 1950s to one that can address the global 

environmental concerns of today, and efficiently respond to future issues; 

2) A current and relevant agency that optimizes new technologies and integrated systems, is 

responsive to our citizens, directs a greater portion of our resources to the ground, and meets 

the land management needs of the 21st Century; and 

3) Reduced operating costs of the Washington and Regional Offices and Northeastern Area by 

approximately 25 percent (reduced from the FY 2006 baseline) by the end of FY 2009. 

The Forest Service will measure the effort’s success based on how well the new structure helps direct 

maximum resources toward mission delivery, improves processes to help us better serve our customers 

and partners; integrates the most important current and emerging issues facing the Forest Service; and 

meets customer needs in carrying out our mission. 

In FY 2007, the agency convened a WO/RO/Area Transformation Team with executive oversight from 

Business Operations Deputy Chief Hank Kashdan, National Forest System Deputy Chief Joel Holtrop, 

and Northern Regional Forester Tom Tidwell. The team examined agency historic efforts to learn from 

those efforts, assembled and analyzed workforce information, and established communication networks. 

The team engaged both the agency leadership and the agency workforce in transformation/restructuring 

issues and facilitated leadership decisions on design criteria and measures of success for the 

Transformation effort, and on new roles and responsibilities for the Washington and Regional Office 

levels. 

By early spring 2008, the WO/RO/Area Transformation team will identify potential cost reductions and 

organizational efficiencies at the top two levels of the organization. With this information, the team will 

design and propose a new organization consistent with the design criteria, measures of success, and roles 

and responsibilities established in FY 2007. Once accepted, agency leadership will implement and 

transition to the new organization to accomplish the cost reductions and organizational efficiencies 

identified by the Transformation team. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-44

President’s Management Agenda 

The Forest Service continues to aggressively pursue the objective of the President’s Management Agenda 

(PMA) improving Federal management and performance to deliver results to the American people. The 

following narrative provides an overview of what the agency is doing and plans to do in FY 2009. 

Strategic Management of Human Capital

The Forest Service continues efforts to streamline its organization. Since FY 2000, the agency has 

increased its field organization presence so that currently 98 percent of its permanent workforce works in 

field locations. We have also reduced managerial levels (GS-14 and above) to only 4 percent of its 

permanent workforce. 

Additionally, the Forest Service will continue to develop and implement a Leadership Succession 

Strategy to ensure continuity of leadership for the future. To achieve this goal, the FS will use a 

succession framework consisting of five key leadership tracks, each with distinct competencies, that 

characterize progressive leadership development. These tracks include a national senior leader 

development program, a web-based learning management system, and a Training Center of Excellence 

that will enable the leadership and staff to strategically focus employee development investments. 

The Forest Service has also worked with USDA to establish standing Executive Resources Boards to help 

expedite the SES selection process. Establishing standing Board meetings has eliminated the single 

greatest barrier to meeting the 30 work-day selection requirement. Biweekly reports to Executives 

highlight areas where Executive action is needed to expedite selection or approvals. 

Further, the agency has designed and implemented in FY 2008 a comprehensive performance 

management system that moves the Forest Service from the current pass/fail performance system to a 

five-level evaluation system. 

Human Resources BPR

Human Resources business processing reengineering (BPR) is part of a broader strategy to examine all 

Forest Service business processes to significantly improve efficiency and effectiveness. The Forest 

Service Human Resources BPR has made significant progress towards centralizing and automating HR 

functions via the PeopleSoft based EmpowHR Human Resources Information System (HRIS) managed 

by the National Finance Center (NFC). Savings will result mostly from agency-wide reductions in HR 

staff achieved by automation, improved service to employees, and better management of human capital 

consistent with the PMA. The agency estimates the following costs and savings: 

Current State $86.9 million 

Future State Cost $60.3 million 

Approved Business Case $77.0 million 

On going Annual Cost Reduction $27.8 million 

One Time Investment Cost $60.5 million 

Payback period 4.35 years 

During FY 2007, Human Resources began providing services to customers through a Contact Center. 

The agency completed design and deployment for Stage 2, including deployment of additional EmpowHR 

functionality in the areas of pay and leave, benefits, awards, performance management, human capital 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-45

management, employee relations, and labor-management relations. This centralization was implemented 

with no new automation. Furthermore, in FY 2008, NFC will significantly increase automation by 

employing upgrades to the 9.0 version of EmpowHR. The Forest Service expects that significant 

enhancements may offset some of the design costs incurred in 2007. The Forest Service expects to fully 

deploy the goal HR organization in FY 2008. 

Competitive Sourcing

The FY 2008 Omnibus Appropriations Act prohibited the use of any funds to be spent on Competitive 

Sourcing or related activities. As a result, the Forest Service will not be conducting any competitive 

sourcing or related activities in FY 2008. 

 

Expanding Electronic Government

Government Paperwork Elimination Act (GPEA): In FY 2008, the Forest Service GPEA effort will have 

completed automation of all its public facing forms that do not require electronic signature or the 

collection of personally identifiable information (PII). The effort in FY 2009 now shifts to solving the 

PII, electronic signature, electronic filing, and electronic receipting (for regulatory and financial 

transactions) challenges for these more difficult groups’ publicly facing information collections. The 

Forest Service will also address the electronic signature challenge for agency internal forms that require 

signing and dating to complete their supported business processes. 

Recreation One Stop: In 2005, the FS achieved consensus from the major Federal recreation providers 

including National Park Service, Bureau of Land Management, and the Army Corps of Engineers 

regarding the content and structure of the Recreational Information Data Base (RIDB). RIDB uses web 

services technology to enable the Forest Service to share recreation data with all interested individuals 

and organizations, both public and private. In 2006 and 2007 a standard interface for government 

personnel to enter recreation data into RIDB was developed, tested, and deployed. In 2008 the agency 

will have completed: 

• Redesigning the recreation.gov interface to be more consistent with current federal agency 

standards; and, 

• Developing a data exchange utilities between the RIDB and the reservations database pursuant to 

the newly awarded NRRS (National Recreation Reservations System) contract. 

The agency’s Recreation One Stop efforts will be complete in FY 2009, shifting its efforts to operations 

and maintenance. 

National Environmental Policy Act (eMNEPA): The FS eMNEPA effort continues implementation of its 

line of business modernization plan completed in 2003. Thus far a business solution was completed for 

Planning, Appeals, & Litigation System (PALS) that includes publishing of Schedule of Proposed Action 

reports to the public web. Business solutions work was also begun for Document & Records 

Management (DRM) and Internal Communication Management (ICM). In 2008, a Mailing List 

Management (MLM) pilot is being undertaken and the DRM, and ICM pilots, along with Appeals and 

Litigation functionality of PALS, are being further integrated and migrated to common platform. In FY 

2009, work will begin to integrate the DRM MLM efforts into a broader FS Enterprise Content 

Management (ECM). 

Forest Service Web Information Delivery (WID): In 2007, the Forest Service implemented the Intranet 

component of its Enterprise Portal (E-Portal) and began content migration to the WWW component for 

five national forest sites. The FS E-Portal uses the application hosting services, portal technology, Google 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-46

search technology, and web content management technology adopted as standard e-Gov components for 

USDA. In 2008, the FS is implementing a FS Web Content Authority governance structure to manage 

evolution of the E-Portal information architecture and to provide quality control for the content 

disseminated by the FS via the web. In FY 2009 and for several subsequent years, the FS will migrate its 

legacy web sites to the E-Portal and web-enable its applications to provide information and services 

electronically to employees and citizens. 

e-Research: The FS e-Research effort continues the implementation of its line of business modernization 

plan completed in 2005. Thus far business solutions for Data Storage & Archiving, Combined Delivery 

Channels, Technology Transfer, and Information Traceability & Project Tracking (RITS) have been 

designed and piloted. In 2008, the Forest Service will pursue agency-wide scale up of the pilot 

components, and will continue migration of the research websites to the FS E-Portal. These efforts are 

expected to yield production implementation of the RITS in FY 2009. Of note is that RITS will make 

available - to all of FS R&D, its cooperators, and the general natural resource research community - a 

detailed catalog of the research projects and results being conducted or achieved on the 70 Forest Service 

Experimental Forests. 

Field Data Automation (FDA): The Forest Service FDA effort continues the implementation of its line of 

business modernization plan completed in 2004. Thus far, a standard FS mobile computing architecture 

and mobile solution development process was established and a mobile application, to support natural 

resources and facilities monitoring, developed. Pilots have also been initiated for mobile office, 

Situational Awareness Firefighting Equipment (SAFE), and mobile law enforcement. These solution 

components support an array of field requirements aimed at achieving significant gains in data quality and 

employee safety and productivity. In FY 2008 and 2009, the Forest Service will extend these activities to 

include enterprise requirements for wireless communication and working with Ranger Districts to 

improve IT support across a wide range of field business processes. 

Streamlining Permitting (ePermits): The Forest Service ePermits effort continues the implementation of 

its line of business modernization plan completed in 2003. Small forest products (SFP) permits were 

highest on the list for automating and cover citizen harvest of Christmas trees, fire wood, and mushrooms. 

In FY 2008, the ePermitting effort merges into a broader eCommerce effort. The latter builds on a very 

successful pilot conducted in 2007 to automate the annual 4 Rivers Lottery on the Salmon-Challis 

National Forest (SCNF). That pilot for the first time accepted lottery applications, and credit card 

payment of application fee, online, saving the SCNF approximately 3,400 person hours over the course of 

6 months. In FY 2009 and subsequently, scale up of the ePermitting and eCommerce components tested 

in these pilots will be scoped, designed, and implemented. 

Information Security: During 2006, Information Security developed comprehensive Corrective Action 

Plans (CAPs) and began CAP implementation with scheduled completions in 2007 and 2008. The plans 

address multiple requirements by comprehensively implementing the management internal controls 

required by OMB Circular A-123, FIPS 200, and National Institute of Standards and Technology Special 

Publication 800-53. Successful meeting of these requirements will remove the conditions that have led 

financial auditors to find IT security an FS and USDA IT Material Weakness. In FY 2009, the Forest 

Service will undertake a major effort to streamline the security Certification & Accreditation process for 

agency computer applications. The current process takes a minimum of 6 months and often extends well 

beyond a year. 

Other Modernization Efforts: In 2006, business case information developed in the agency’s BPR Budget 

and Finance (B&F) and Human Resources (HR) areas were migrated into the agency’s Enterprise 

Architecture. In 2008, the agency will begin modernization of the agency’s financial collections 

processes and of its processing of vendor invoices, henceforth to be referred to as eCommerce. In FY 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-47

2008-2009, the Forest Service will complete modernization plans for enterprise content management 

(ECM) and eGrants, leading to the launch of a set of pilots to guide long term scale up of agency ECM 

and eGrants. In FY 2009 and beyond modernization plans for additional business areas will be initiated. 

These modernization plans will be most likely associated with the agency-wide Business Transformation 

effort currently in progress under the leadership of a very senior executive team composed of a Regional 

Forester and two Deputy Chiefs. 

Budget and Performance Integration

The Program Assessment Rating Tool (PART) is a diagnostic tool used by agencies to assess the 

performance of their programs and to drive improvements in program performance. Once completed, 

PART reviews help inform budget decisions and identify actions to improve results. In the previous 5 

years, eight Forest Service program areas have been assessed by the PART process. Detailed results of 

the assessments can be found in the Strategic Plan and Performance Management exhibit of this 

document. As a step in the PART program reviews, quality performance measures have been developed 

to provide indicators for improved program management. These measures are listed in the Performance 

section of this document. 

Real Property

The Forest Service will continue with full implementation of Executive Order 13327 entitled “Federal 

Real Property Asset Management” with the goal of improving management of Federal real property 

assets, aligning asset investment and disposal decisions to the USDA and Forest Service Strategic Plans, 

thereby supporting an appropriate and sustainable real property inventory. The following narrative 

provides an overview of what the agency has accomplished in FY 2007 and what is planned for FY 2008 

into FY 2009. 

During FY 2007, the agency supported/accomplished the following activities in support of the Asset 

Management initiative including: 

Disposal of Real Property 

The Forest Service continued to make significant progress with real property disposal projects under the 

authority of the original pilot program, the various State authorities, and the Forest Service Facility 

Realignment and Enhancement Act of 2005 (P.L. 109-54). In FY 2007, conveyance proceeds provided 

approximately $27.5 million dollars in sale revenue to eliminate critical health and safety issues and to 

right-size the agency’s infrastructure to meet mission needs and organizational goals and objectives. 

Tracking the Disposal of Real Property 

The Forest Service developed a disposition data module to capture required information for the 24th data 

element for disposal. This is per the requirements for reporting disposed assets on the Federal Real 

Property Profile (FRPP). The module was adapted by all USDA agencies. 

Deferred Maintenance Strategy 

The Forest Service began work on a deferred maintenance strategy and assisted USDA with efforts to 

expand Corporate Property Automated Information System (CPAIS) to capture work functions. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-48

Job Corps Property Assets 

The Forest Service, working in conjunction with USDA, the Department of the Interior (DOI), and the 

Department of Labor (DOL), provided OMB with draft language for a revised interagency concerning 

management of Job Corps assets. 

During FY 2008, the agency has or will accomplish the following: 

Job Corps Interagency Agreement 

The Forest Service, working in conjunction with USDA, DOI, and DOL, will finalize an interagency 

agreement. The agreement outlines roles and responsibilities with respect to all property assets being 

utilized by the Job Corps program. 

Deferred Maintenance 

The Forest Service will create an agency-specific deferred maintenance implementation plan. 

Asset Priority Index (API) 

The Forest Service will develop an Asset Priority Index (API) to stratify real property assets within 

Mission Critical, Mission Dependent – Not Critical, and Not Mission Dependent categories. The purpose 

of the API is to generate comparative rankings across all asset types so that informed decisions can be 

made with regard to maintenance funding. 

Disposal of Real Property 

The Forest Service will continue with the disposal projects initiated in FY 2007 under the Forest Service 

Facility Realignment and Enhancement Act of 2005. Necessary is an extension of this authority to 

complete the multitude of pending disposal actions. 

 

In FY 2009, the agency will perform the annual update of the agency’s Building Block Plan and update 

information for capital projects, disposals, and leases on the three-year rolling timeline. Disposal of real 

property assets will continue to be a high priority as the agency continues to right-size their portfolio. 

Improper Payments

The agency is Green for all criteria (and for the full initiative). To sustain our Green status, the agency 

will continue improvements in its internal controls and processes. Specifically we are in the midst of 

developing and implementing a paperless system and processes that will improvement accuracy and 

efficiency thus reducing the risk of making improper payments. Prompt pay interest expense should 

dramatically reduce when this system is implemented in FY 2008 and 2009. 

The Improper Payments Information Act (IPIA) requires each agency to assess all agency programs and 

identify which, if any, program(s) may be subject to high risk with respect to improper payments. 

Agencies are also required to implement any needed corrective measures. For FY 2007 disbursements, 

USDA decided to audit the Wildland Fire Suppression (WFSU) program and all Working Payment and 

Mandatory Payment Funds. WFSU is considered the only high risk program. The Forest Service is in the 

process of testing FY 2007 transactions. It will complete Mandatory Payment and Mandatory Working 

Funds by December 31, 2007 and WFSU by April 30, 2008. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-49

The following summarizes the testing results for FY 2006 disbursements, which were completed by May 

2007: 

Fund Error Rate 

National Forest System 0% 

Capital and Improvement Maintenance 0% 

Wildfire Management Funds 0% 

Wildland Fire Suppression 0.95% 

IPIA requires the Forest Service to recover from vendors those erroneous payments - determined by 

Forest Service improper payment reviews - that exceed the materiality level established by the Forest 

Service. The Forest Service is currently recovering monies made from improper past payments with 

oversight performed by a designated individual Forest Service point of contact. In accordance with the 

recovery contract, the contractor independently provides support services to satisfy the overall operational 

objectives for erroneous payment recovery. 

The primary objective of audit recovery is met through the identification of inadvertent overpayments 

made by the Forest Service to suppliers of services or goods. Related suppliers are then contacted for 

verification of erroneous payments and documentation of erroneous payments is obtained. Billings for 

collection are then sent to the vendors and refund checks are remitted to the Forest Service. Finally, cash 

deposits of all recovered monies are made into appropriate Forest Service budget fund accounts. 

Internal controls are strengthened by providing information related to all recovered monies and the 

underlying transactions to management. Additionally, training that indicates the causes of improper 

payments that were made, is provided to various Forest Service employees. 

Summary information regarding audit recovery of erroneous payments for FYE 2007 is depicted below:

FYE 2007 Recovery Auditing Results for FS($) 

FY 2007 

Actual 

Amount 

Reviewed and 

Reported 

FY 2007 

Amounts 

Identified for 

Recovery 

FY 2007 Amounts 

Recovered 

FY 2006 Amounts 

Recovered 

FY 2005 Amounts 

Recovered 

$276,738 $276,738 $83,183 $311,961 $189,281

The Forest Service also plans on using the process for A-123, Appendix A to test the controls in the 

disbursements process to ensure that these controls are operating effectively and to ensure that payments 

are processed successfully and reduce erroneous payments in the future. 

Research and Development – Investment Criteria

Forest Service Research and Development (FS R&D) is working on multiple fronts to increase 

accountability and integration among its investments. In FY 2008, FS R&D will implement the new R&D 

Strategic Plan (2008-2012). The deputy area will also prepare a pilot Performance Accountability Report 

(PAR) for the R&D deputy area, based on FY 2007 performance data. To continue this effort, in FY 

2009, FS R&D will prepare and publish a subsequent PAR based on FY 2008 performance. The PARs 

will quantify performance, relevance, quality, and efficiency, will provide details on budgets for the 

deputy area, and will identify areas for improvement. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-50

FS R&D will complete a four-year review of the R&D programs in FY 2008, with external peer reviews 

of two more Strategic Program Areas (SPAs). The deputy area will also conduct two more station 

oversight performance reviews, bringing the total number of stations reviewed to four, over 2 years. To 

further budget and performance integration, field units will align work with the priorities established 

during and after the external peer review process. FY 2008 will be a one-year transition period for 

stations to align their work with national priorities and outcomes of peer reviews in developing the 2010 

budget request. Included in this effort, FS R&D will adopt six new performance metrics to improve 

R&D’s ability to measure quality, relevance, performance, and efficiency. 

Past Performance 

During FY 2007, FS R&D focused on improving the quality, relevance, performance, and efficiency of 

research programs. The deputy area finalized a Strategic Plan (FY 2008-2012) and strengthened Strategic 

Program Areas (SPAs) through two external peer reviews, bringing the total number of program reviews 

to six in 3 years. It also developed plans to improve areas of weakness while sustaining high performing 

areas based on the results of the 2006 Customer Satisfaction Survey. Through restructuring efforts, FS 

R&D identified positions for relocation outside the DC metro area. Similarly, among research stations, it 

substantially reduced the number of work units and improved administrative efficiency. At research 

stations, Strategic Programmatic Reviews began to replace Technical Advisory Visits (TAVs). These 

programmatic reviews are more integrated in scope than the TAVs and are responsive to the external peer 

reviews of the SPAs. Headquarters staff and station scientists also collaboratively developed six new 

performance metrics for use in FY 2008. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-51

Proposed Legislation 

Ecosystems Services Demonstration Projects

The FY 2009 Budget includes Ecosystems Services Demonstration Projects that will advance marketbased conservation. The Forest Service will work closely with partners to implement restoration projects 

on national forests. Outcomes from these projects will demonstrate the value of clean water, carbon 

sequestration, and other critical services that forests provide. The measurement and monitoring of 

ecosystem services will play an integral role in project design, to provide an understanding of how 

ecosystem services can be quantified and valued in potential or emerging markets. These projects will 

benefit the Secretary of Agriculture and a partner, defined as either a State, political subdivision of a 

State, Indian tribe, or non-profit organization, and be expanded or accelerated using the funds or services 

provided by a partner. 

The Budget provides the Secretary of Agriculture with the authority to implement up to five 

demonstration projects that restore, enhance, and protect ecosystem functions on National Forest System 

lands, including projects that rehabilitate watersheds damaged by fire or other natural catastrophic events. 

Examples of management activities include improving water quality, restoring long-leaf pine forests, or 

reducing the risk of catastrophic wildfires. Each project will be consistent with applicable land and 

resource management plans and will comply with environmental laws and regulations. Partnering entities 

could carry out the project for the Secretary, provide funds for project implementation up to a total of $10 

million for all projects, or provide a combination of funds and services. 

Sample Project: Fuel reduction treatment 

Ecosystem Services Demonstration Projects will engage partners in forest restoration that restores, 

enhances, and protects multiple ecosystem service benefits. As one example of many potential 

opportunities, restoration through fuel reduction activities will protect watersheds that sustain the region’s 

inhabitants, restore ecological health, and reduce the risk of catastrophic wildfire for nearby communities. 

Key Benefits: 

• Avoided wildfire emissions and suppression costs, and protected social and economic values. 

The size and severity of wildfires on public and private lands has increased substantially over the 

past 10 years. Fuel reduction activities can reduce carbon emissions, suppression costs, and the 

impacts of subsequent wildfires, ultimately protecting lives and property. 

• Watershed protection. Typically, National Forest System lands encompass the upland watersheds 

for river systems. Fuels reduction activities in the uplands are designed to prevent negative 

effects of fire on the watershed, including flooding, increased sediment loading from erosion and 

runoff, and loss of soil carbon. 

• Biomass fuel. Significant amounts of woody biomass fuel may offset fossil fuel emissions and 

provide an economic opportunity for the surrounding communities. 

• Biodiversity enhancements. Restoration projects will improve wildlife habitat and enhance 

forage for wildlife. 

Temporary Extension of Secure Rural Schools Act

The Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393) provided 

temporary payments to counties impacted by the reduction of shared receipts associated with lower levels 

of timber harvesting on Federal lands. The Act expired in 2006, but Congress provided for an additional 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-52

year of payments under Public Law 110-28. The Budget includes a legislative proposal that provides 

$200 million above the current baseline for a 4-year extension of USDA and Department of the Interior 

forest county safety net payments, which will be targeted to the most affected areas, capped, adjusted 

downward each year, and phased out. For administrative convenience, USDA will make the payments on 

behalf of both agencies. Offsets for the Administration's proposal are provided within the topline of the 

President's Budget throughout the Department of Agriculture and elsewhere. For the 2008 payment (to be 

made in 2009), the Administration continues to be prepared to work with Congress to identify mutually 

agreeable offsets.
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-53

Reforestation 

The Forest and Rangeland Renewable Resources Planning Act of 1974 (RPA) (P.L. 93-378), as amended 

by the National Forest Management Act of 1976 (NFMA) Section 3 (d)1, directs that all forested lands in 

the National Forest System (NFS) be maintained in appropriate forest cover with species of trees, degree 

of stocking, rate of growth, and conditions of stand designated to secure the maximum benefits of 

multiple use sustained yield management in accordance to land management plans. It further requires the 

Secretary of Agriculture to identify and report to the Congress, at the time of submission of the 

President’s Budget together with the annual report provided under section 8 (c) of the Act, the amount 

and location by national forest and State and by productivity class where applicable, the need to reforest 

areas that have been cut-over or otherwise denuded or deforested. 

The reforestation program includes artificial regeneration, seeding, and natural regeneration. The forest 

and stand level management objectives may be jeopardized without appropriate reforestation treatments. 

Untreated areas may have elevated risk to losses from future insect or disease epidemics, wildfires, and 

other disturbance events. The reforestation program has four major goals: maintain all NFS forestlands in 

appropriate forest cover; improve the quality and yield of the timber resource; accelerate the attainment of 

desired species composition; and develop and demonstrate successful reforestation methods and 

techniques. 

Reforestation work is time-sensitive and without timely reforestation efforts, undesirable species can 

dominate, making establishment of desired tree species difficult. Once undesirable species become 

established, decades may pass before sufficient numbers of appropriate tree seedlings occupy the site. 

Delays also increase the cost of reforestation work by necessitating expensive site preparation, reduce 

timber yields, and may adversely affect meeting other resource objectives. 

 

Prompt reforestation is desirable to prevent soil erosion and protect water quality in streams and lakes. 

Untimely reforestation adversely affects wildlife and fish species and reduces scenic quality and 

recreational experience. In addition, these areas are less resilient to the effects of fire and make it more 

difficult to protect surrounding communities. 

Program Plans and Accomplishments 

The agency’s reforestation capacity is dependent on several program areas, as well as numerous 

partnerships and cooperative agreements. Reforestation needs generated through timber harvest 

activities are generally met through the Knudson-Vandenberg (K-V) Act funds. However, reforestation 

needs for areas outside timber sale areas is primarily funded by Vegetation and Watershed Management 

and the Reforestation Trust Fund. Corporate partners and civic groups have been key contributors to the 

agency’s capacity for reforestation through matching fund agreements. 

The agency’s combined (or unified) reforestation target for FY 2009 is projected at about 204,000 acres. 

Contributing programs include Vegetation and Watershed Management for 64,000 acres, the 

Reforestation Trust Fund for 55,000 acres, K-V funds for 81,000 acres and partnerships for 4,000 acres. 

This is a decrease from the estimated FY 2008 unified capability of 247,900 acres due in large part to 

reductions in the K-V Act funded reforestation program and an increase in the FY 2008 unified program 

consisting of 30,400 acres funded by the Emergency Supplemental Funding (P.L. 110-116). Other 

contributing programs include Vegetation and Watershed Management for 63,100 acres, the Reforestation 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-54

Trust Fund for 57,500 acres, K-V funds for 91,500, excess K-V (CWK2) for 3,200 acres and partnerships 

for 2,000 acres. 

The agency will attempt to increase partnerships and corporate contributions in FY 2009. This will 

include program direction to use available appropriated and trust funds to expand partnerships with 

corporate and civic groups to supplement capability, with a goal of providing over 8 million seedlings for 

planting on areas impacted by wildfires through partnership agreements. 

 

Figure 1 shows reforestation needs and accomplishments for fiscal years (FY) 1996 through FY 2007. 

From FY 1996 through FY 1999, there was a steady decrease in reforestation needs and 

accomplishments. During this period, reforestation treatments addressed approximately 45 percent of the 

total need. Since FY 2000, reforestation needs have accumulated due in part to large wildfires affecting 

national forests in the West and insect epidemics in the East. From FY 2000 through FY 2007, 

reforestation addressed about 20 percent of the reforestation needs nationally. 

Figure 1 - Trends in Reforestation Needs, Accomplishments and Percentage of Needs 

Treated for Fiscal Years 1996-2007 

804

764

679

630

722

787

838

898 901

1,081 1,066 1,048

161 163 153

153 264 214

363 328 293 269

196 217

0

200

400

600

800

1,000

1,200

1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007

Fiscal Year

Acres (thousands)

0

10

20

30

40

50

60

70

80

90

100

Percent of Needs Treated

Current Reforestation Needs: Reforestation Treatments Percent of Needs Treated
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-55

Research and Development Threat Assessment Centers 

The Eastern Forest and Western Wildland Environmental Threat Assessment Centers (Centers) have 

emerged as national leaders in developing knowledge and tools to address multiple threats affecting the 

Nation’s forests and rangelands. The Centers partners with government agencies, universities, and nongovernmental organizations to leverage resources and improve the collective capacity to predict, detect, 

and assess threats. They emphasize science delivery, and technology development and acquisition. 

Funding History 

($ in thousands – NFS, Research, S&PF funds) 

Fund 

FY07 

Enacted 

FY08 

Enacted 

FY09 

President’s Budget

Research $1,600 $1,600 $1,600 

S&PF $1,600 $1,600 $1,200 

NFS $1,600 $1600 $1,600 

Total $4,800 $4,800 $4,800 

FY 2009 Program Changes

In FY 2009, The Centers plan to continue with technology advancement through a variety of activities. 

The deployment of an early warning system, of remote and site-level data, of ecosystem stress will allow 

for continued research for the detection of pre-visual signs of future threats. A new computing 

environment will be made accessible through the internet and will provide advanced data sharing, 

analysis, and modeling capabilities. Additionally, a wildfire risk analysis and decision support framework 

for vegetation management projects will be developed. This will reduce the existing barriers to 

translating risk into meaningful metrics that can be merged with existing NEPA planning framework. 

The Centers will continue with the delivery of science knowledge. User-friendly tools for comparative 

risk assessments will be distributed. Maps highlighting relative risks to forests and rangelands from 

multiple or exacerbating stresses (fire, disease, pest outbreaks) will continued to be updated and 

distributed. 

In an effort expand the dialogue on climate change and/or invasive species, the Center plans to invite 

internationally recognized experts to workshops and published policy-relevant papers. Climate change 

research will continue to be addressed through the generation and integration of information. This will 

provide predictions, early detection, and quantitative assessment of climate change in the western United 

States. 

Past Performance

In FY 2007 the Centers advanced technologies for planning at the local, national and global scale. A 

database of introduced plants was developed to help predict future ranges of introduced species and 

highlight potential problem species. The FS acquired and began utilizing an early warning threat warning 

system from the NASA Stennis Space Center. The Centers also developed new indicators of landscape 

pattern for large-scale natural resource assessments were developed. The results will provide land 

managers and policy makers with strategic planning tools. Also, work was begun on the development of 

the Forest Incidence Recognition and State Tracking (FIRST) System. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-56

FY 2008 will advance research on a variety of fronts through continued technology development and 

knowledge transfer. A workshop bringing together climate modelers and land managers will explore 

quantitative approaches for vegetation management and planning under a changing climate. The Centers 

and the Southern Group of State Foresters will look at the consequences of urbanization and parcellation 

of southern forests. A Gypsy Moth/climate model in the PNW will be developed to predict the locations 

of Asian Gypsy Moth. 

Program Overview

Eastern Forest Environmental Threat Assessment Center 

The Eastern Forest Environmental Threat Assessment Center (EFETAC) is engaged in multiple projects 

at the forefront of technology development and application in forest threat detection and assessment. 

Research conducted with the National Forest Health Monitoring Research Team is looking beyond simple 

changes at a single location to the pattern of change across broad landscapes. Researchers are using new 

protocols to develop new indicators of landscape change. Results from this research will provide land 

managers and policy makers with new tools for strategic planning. 

Western Wildland Environmental Threat Assessment Center 

The Western Wildland Environmental Threat Assessment Center (WWETAC) has made significant 

progress in its mission to provide early detection and prediction of the potential effects of multiple, 

interacting threats and stresses. It has hosted workshops and conferences to identify and synthesize 

current knowledge regarding threat assessment and improve predictive modeling. WWETAC initiated 

collaborative agreements with universities, government (local and federal) partners, and nongovernmental organizations to advance the application of remote sensing and geospatial technologies, and 

make assessment tools and data more accessible to analysts and managers. 

The Centers will continue to distribute newly developed products to forest managers, policy-makers and 

other user clientele. Advanced marketing and educational technologies will be used to ensure rapid and 

effective delivery to targeted audiences. Data collection, processing, and analysis efforts will continue. 

These include creating and maintaining the infrastructure for high-speed sharing and analysis of massive 

remotely sensed databases, and development of advanced visualization tools.
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-57

Service First 

Service First is a partnership authority for the Forest Service, the Bureau of Land Management (BLM), 

the National Park Service (NPS), and the U.S. Fish and Wildlife Service (FWS). (P.L. 106-291 as 

amended in 109-54, Title IV, Section 428). The administration is requesting an extension of authority 

through 2011. The Forest Service continues to strengthen its partnership with the BLM, NPS, and FWS 

to attain the three Service First goals of improving natural and cultural resource stewardship, providing 

better customer service, and increasing operational efficiency. 

Service First does not have its own budget line item in the Forest Service, but instead is funded from 

several budget line items within the National Forest System appropriation. 

FY 2008 and 2009 Service First Goals 

FY 2009 goals will build on successes in FY 2007 and FY 2008. The Forest Service will continue to 

work toward a seamless technology system by developing joint access to the more complex databases 

including GIS, invasive weeds, and other natural resource data. In addition, the agency will continue to 

explore establishing joint land management targets with the other agencies where appropriate. 

Co-location is a major step toward greater interagency communication and integration of natural resource 

management across the landscape. Agencies will continue to explore and implement co-location 

opportunities where feasible and appropriate. 

For FY 2008, Service First objectives include making significant advances in creating an integrated 

information technology system where employees will be able to access other agencies’ data and systems 

while maintaining appropriate security levels. Access to other agencies’ information will provide more 

seamless customer service and improve operational efficiency for shared employees and co-located 

offices. 

Another goal in FY 2008 is to increase coordination across resource programs such as hazardous fuels 

reduction, minerals and energy policy, visitor services, and recreation management including OHV and 

trail management in support of providing quality natural resource management. 

Finally, the agencies plan to build a strong interagency network with focused tools and regular outreach 

and information exchange such as best practices on Service First opportunities, challenges, and successes. 

The agencies are building an interagency website to foster this interaction and information exchange and 

provide contacts and information in the form of a toolbox for employees’ use. 

FY 2007 Accomplishments

During FY 2007, the Forest Service and the BLM hired a joint, permanent full-time coordinator to 

promote interagency Service First efforts. This position is the first position to focus fully on Service First 

issues. In addition, the four participating agencies have convened a Service First Steering Committee to 

have coordinated representation and discussion of Service First issues across all agencies. 

The Forest Service has used Service First authority to enter into numerous co-locations with participating 

agencies. Co-locations allow agencies to share office costs such as rent/lease, utilities, and general office 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-58

supplies. In addition, co-locating staff fosters greater communication and coordination on land 

management and resource issues. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-59

Sustainable Operations 

The Forest Service is working on reducing the agency’s environmental footprint through sustainable 

operations and has a number of initiatives in place. This work has been heightened by the new 

requirements of the Energy Policy Act of 2005; a series of Executive Orders including EO 13423: 

"Strengthening Federal Environmental, Energy, and Transportation Management"; and several USDA 

directives, including the President’s Memorandum on Energy and Fuel Conservation Actions. 

As good stewards of the national forests and grasslands, Forest Service leadership is committed to 

efficiently using energy and resources in our daily operations. As mentioned above, enthusiasm and 

progress are growing. In FY 2008, the agency will establish governance and facilitate focus, priority, 

quality integration across boundaries, and effective results accomplishment in the areas of energy and 

water conservation; transportation efficiencies; waste management; green purchasing; sustainable 

facilities management; and the implementation of an environmental management system. 

During FY 2008 the Forest Service will: 

Fulfill Executive Orders: 

• Implement a national strategy to achieve goals established by EO 13423, including 

performance metrics for energy and water conservation; fleet management; waste 

management; green purchasing; sustainable facilities management; and environmental impact 

assessment integration. 

Assess and Evaluate Progress: 

• Implement a single automated data collection, reporting, and assessment tool for agency goal 

setting and results evaluation. Integrate this information into the agency’s Performance 

Accountability System, the Program Assessment Rating Tool (PART assessments), etc. 

• Establish a sustainable operations performance metric for all supervisory, managerial, and 

senior executive level positions. 

Facilitate Partnerships: 

• Establish inter-agency partnerships with key Federal organizations, States, and NGOs to 

facilitate accomplishments in energy and water conservation (Department of Energy (DOE), 

Environmental Protection Agency (EPA), National Renewable Energy Lab (NREL), 

Department of the Interior (DOI), State of California, and the National Forest Foundation 

(NFF); as well as to facilitate accomplishments in transportation efficiencies by partnering 

with NREL and General Services Administration (GSA). 

• Establish stronger connections through youth, community and academic partnerships to 

transition our 1-time ventures into the outdoors through current Forest Service supported 

activities like “Kids in the Woods” into a lifetime appreciation of the natural world, 

regardless of chosen lifestyle or occupation. 

Educate Users: 

• Establish a sustainable operations education component for targeted audiences: supervisors and 

managers; contractor officers (CO), CO representatives, and procurement agents; information 

technology; engineering, landscape architects, facility managers, and fleet managers. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-60

Report Accomplishments: 

• Publish an annual environmental footprint report addressing the agency’s vision, goals, 

accomplishments, and lessons learned. 

In FY 2009, the Forest Service will: 

• Continue action items identified in the national sustainable operations strategy and expand 

activities to accelerate the achievement of goals established by EO 13423. 

• Integrate a sustainable operations component in all managerial and leadership development 

courses. 

• Establish a sustainable operations education component for all employees. 

• Establish sustainable operations performance metrics for all positions. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-61

Unobligated Balances 

Overview 

The following table contains the Forest Service unobligated balances from all prior year 

appropriated funds (regular and emergency) carried forward into FY 2008. The table does not 

include the unobligated balances from offsetting collections such as reimbursable or advanced 

collections. The appropriation totals are actuals; however, the program amounts are estimates. 

The final program distribution will be determined after a financial analysis is completed. 

FY 2007 Forest Service - Unobligated Balances 

(Dollars in Thousands) 

Forest Service Appropriation / FY 2007 

Budget Line Item / Extended Budget Line Item Unobligated Balances 

Forest and Rangeland Research 

 Research and Development $9,805 

Total, Forest and Rangeland Research $9,805 

 

State and Private Forestry 

 Forest Health - Federal Lands $4,858 

 Forest Health - Coop Lands $4,025 

 State Fire Assistance $,1052 

Volunteer Fire Assistance $326 

 NFP Forest Health - Federal Lands $2,566 

 NFP Forest Health - Coop Lands $784 

 NFP State Fire Assistance $2,568 

 NFP Volunteer Fire Assistance $1,557 

 Forest Stewardship $2,135 

 Forest Legacy Program (SPLG) $7,562 

 Urban and Community Forestry $1,402 

 Economic Action Programs $2,702 

 Forest Res Info & Analysis $332 

 International Forestry $152 

Total--State and Private Forestry $32,021 

S&P Land and Water Conservation Fund $2,104 

Total—S&P Land and Water Conservation Fund $2,104 

 

National Forest System 

 Land Management Planning $4,410 

 Recreation, Heritage, and Wilderness $526 

 Wildlife and Fisheries Habitat Management $1,066 

 Grazing Management $819 

 Rehabilitation and Restoration $779 

 Forest Products $25,127 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-62

Forest Service Appropriation / FY 2007 

Budget Line Item / Extended Budget Line Item Unobligated Balances 

 Vegetation and Watershed Management $3,482 

 Minerals and Geology Management $1,840 

 Landownership Management $902 

 Law Enforcement Operations $5,803 

 Valles Caldera National Preserve $1,334 

Disaster Fund Supplemental $104 

Total--National Forest System $46,192 

Wildland Fire Management 

 Preparedness $5,000 

 Hazardous Fuels Management $4,104 

 Fire Operations - Suppression $57,637 

 Joint Fire Sciences $9,513 

Total--Wildland Fire Management $76,254 

 

Capital Improvement and Maintenance 

 Construction Disaster Fund Supplemental $1,247 

 Facilities Capital Improvement/Mtnce $44,291 

 Roads Capital Improvement/Mtnce $18,456 

 Trails Capital Improvement/Mtnce $8,206 

 Deferred Maintenance $1,066 

Total--Capital Improvement and Maintenance $73,268 

Land Acquisition--Land and Water Conservation Fund 

 Land Exchange Acquisitions $10,261 

Total--Land Acquisition/L&WCF $10,261 

 

Other Appropriations 

 Range Betterment Fund $878 

 Gifts, Donations, and Bequests for Research $185 

 Subsistence Mgmt (R10) $306 

Total--Other Appropriations $1,369 

 

GRAND TOTAL $251,276 

The total unobligated balance by Treasury Symbol can be found in the SF-133 Report on Budget 

Execution and Budgetary Resources, which are posted on the Office of Management and Budget website 

at http://www.whitehouse.gov/omb/reports/sf133/
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-63

Wood Education and Resource Center 

 FY 2007 FY 2008 FY 2009 

Wood Education and Resource 

Center (WERC) $2,673,000 $2,631,000 $750,000 

FY 2009 Program Changes 

The request includes $750,000 for the Wood Education and Resource Center (WERC), a decrease in 

budget authority of $2,631,000 from FY 2008. Funds will provide priority services and support to the 

eastern forest region, particularly the wood industry. At this level of funding, salaries for support 

activities will be approximately $600,000 leaving $150,000 for operating and other expenses. The 

reduction in funds will result in WERC reducing staff to 

five from six positions. 

In FY 2009, WERC provide workshops and training to 

owners and managers of wood products businesses, and 

technical assistance to the lessee of the WERC rough mill 

and shop in order to maintain a successful business 

operation that more fully utilizes the facilities and enhances 

employment opportunities to local residents. 

The Forest Service will provide technical expertise to 

industry, States, and other partners on wood processing, the 

utilization of damaged timber, and woody biomass, and will continue implementation of a woody 

biomass strategy. 

FY 2007 Accomplishments

In FY 2007, WERC awarded a total of $1.6 million to grant applicants. Through the lease of the 

facilities, WERC generated private-sector wood industry jobs. A Biomass Coordinator was established 

with the responsibility for woody biomass to energy leadership in the S&PF Northeastern Area. Four 

wood industry workshops were held at WERC. These projects have resulted in a more productive, 

sustainable wood products industry in the eastern U.S. 

Program Description

Program Overview 

WERC started 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. Under FS ownership and management, the WERC focuses on primary and secondary wood 

processing, and woody biomass utilization using multidisciplinary approaches in 35 States in the eastern 

hardwood region. WERC’s projects focus on: 

• International and domestic hardwood industry competitiveness issues, 

• WERC income generation, 

• Technology and information transfer, 

Utilization of Emerald Ash Borer (EAB)-

Killed Trees

WERC has developed partnerships with local 

agencies to effectively utilize EAB-killed ash 

trees. By focusing on processing killed trees 

into usable products, partners have decreased 

the cost-burden of tree removals. Current and 

future actions are focused on using some of 

the waste materials for energy production. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-64

• Increasing communication, cooperation, and collaborative problem solving within the forest 

products industry, 

• Woody biomass utilization for energy. 

WERC programs help maintain and improve wood industry productivity and competitiveness in a 

sustainable manner. Viable wood products markets help enable sustainable forest management of on 

private, State, and Federal lands. 

Allocation and Partnerships 

WERC accomplishes its mission through several venues including: an annual competitive grants 

program; workshops and training held at WERC and other remote locations; web-site clearing house for 

information; and regional operations in a cluster model at the Princeton WERC (research, technical 

transfer, and private industry partnerships on-site). Training programs focus on industry competitiveness, 

survivability, and sustainability issues. This focused effort will assist the wood industry in facing today’s 

critical challenges 

The annual grant program uses four criteria: 

supporting economic competitiveness of the 

hardwood industries, delivery of information and 

technology to wood products businesses, advancing 

the development of technology and markets to 

address emergency issues, and increasing the 

sustainable use of woody biomass. 

WERC maintains and fosters partnerships with 

organizations universities, non-profits, and for-profit 

organizations. WERC has invested $5.9 million in 

93 projects in 24 States in the last 3 years, in 

cooperation with the wood or forest industry. 

Wood Products Marketing Guides 

Two partnerships have produced two how-to 

marketing guides for sawmills and related 

businesses, and businesses that manufacture semifinished and finished products from hardwood 

lumber. While the intended audience of the 

guides is entrepreneurs and small businesses in 

the eastern hardwood region, they can aid 

business expansopm into new markets across the 

country.. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-65

 Working Capital Fund – Forest Service 

Program Description

The Working Capital Fund (WCF) provides orderly and efficient supply and equipment service in support 

of Forest Service programs. The Department of Agriculture Organic Act of August 3, 1956, as amended 

by the Act of October 23, 1962 (15 U.S.C. 579b), established the WCF. WCF is a self-sustaining 

revolving fund that provides services to national forests, research stations, other Federal agencies, and, as 

provided by law, to State and private cooperators. 

The WCF requires no cash appropriation. Initially, regular Forest Service appropriations purchased assets 

and donated the assets to WCF. WCF rates are determined so that WCF recovers operating and 

replacement costs. WCF provides the following services: 

• Equipment Leasing Services, which owns and rents vehicles and aircraft; 

• Nursery Service, which consists of tree and grass seeds and other nursery seedlings; 

• Enterprise Services, which are reinvention teams accomplishing projects that improve customer 

service and reduce costs. 

The table below displays the volume of business for major WCF activities: 

Volume of Business for Major WCF Activities 

(Dollars in thousands) 

FY 2007 

Actual 

FY 2008 

Planned 

FY 2009 

Estimated 

Equipment - Fleet $156,358 $145,000 $145,000 

Equipment - Aircraft 9,128 9,000 8,000 

Nursery 9,448 10,000 10,000 

Enterprise Services 31,196 32,000 33,000 

Total $206,130 $196,000 $196,000 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-66

 Working Capital Fund and Greenbook Charges – USDA 

To be provided 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-67

Working Capital Fund – Forest Service Fleet Management 

Program Description

The Forest Service uses the Working Capital Fund (WCF) to procure motor vehicles and other fleet 

equipment in support of Forest Service programs. The WCF does not receive direct appropriations, but 

receives its authority through payment for services from appropriated accounts. Forest Service 

appropriations purchase assets and then donate the assets to WCF. WCF rates are determined so that 

WCF recovers operating and replacement costs. WCF supports Equipment Leasing Services, an entity 

that owns and rents vehicles and other fleet equipment. 

Vehicle Allocation Methodology and Procurement Practices 

As part of the annual vehicle replacement process, the Forest Service units conduct assessments of fleet 

operations that analyze vehicle effectiveness, cost-to-serve, life cycle cost, vehicle pooling, and operating 

costs. The objective when ordering new vehicles is to purchase the most efficient and most cost effective 

vehicle to meet the needs of the Forest Service unit. Alternative fuel vehicles (AFV) are chosen when 

available; often times the limiting factor is the availability of alternative fuel in the geographic area. Ongoing fleet needs are determined by the Forest Service managers based on transportation and equipment 

needs to achieve their goals within the allotted budget. 

Using national guidelines, the regional and station fleet specialists identify vehicles eligible for 

replacement. The final decision to procure a replacement vehicle is made at the regional and station level. 

When a fleet addition or upgrade is required, a formal review and approval procedure is followed and 

documented. 

Program Oversight 

To assure that the fleet program provides safe, efficient, and environmentally sound fleet equipment, and 

to ensure the safe, economical, and legal acquisition, operation, maintenance, and disposal of that 

equipment, the Forest Service uses a combination of the following:

1. Financial Incentives – Forest Service organizations, programs, and projects pay monthly rates on 

all WCF equipment assigned to them. This payment structure encourages dropping non-essential 

vehicles. Dropped vehicles are reassigned to units in need, and receipts go to the WCF account. 

2. Business Practices – Standard business practices require national and regional review. These 

include the physical property inventory, the annual assessments of fleet needs for scheduling 

replacements and holdovers, and the annual review and recalculation of monthly rates. The 

Forest Service recently implemented a formalized review and approval procedure for all fleet 

additions and up-grades. 

3. Monitoring – Typically, a region reviews fleet management activities on two to four national 

forests each year, and the national office reviews one to two regions. 

Management actives regularly adjust the fleet size, mix, and assignment through out the year. This helps 

ensure an optimal fleet and helps to keep the fleet safe, effective, cost efficient, and in line with legal 

requirements. 
FY 2009 Budget Justification USDA Forest Service 

Special Exhibits 15-68

WCF Financial Status (Fire Transfers)

Outstanding unreimbursed fire transfers have resulted in a $66 million shortfall. As a result of this 

shortfall approximately 1,100 vehicles and equipment purchases will be deferred, consisting of 135 fire 

engines, 10 heavy trucks, 25 pieces of heavy equipment, and 930 light vehicles (pickups, SUVs minivans, 

sedans, etc.). This will produce an estimated 10 percent increase in maintenance and repair costs, or 

approximately $2 million in additional cost to programs each year for at least 5 years when the 

replacement cycle is "back on track."