16 U.Sefore 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

In accordance with Federal civil rights law and U.S. Department of Agriculture (USDA) civil rights regulations and policies, the 

USDA, its Agencies, offices, employees, and institutions participating in or administering USDA programs are prohibited from 

discriminating based on race, color, national origin, religion, sex, gender identity (including gender expression), sexual 

orientation, disability, age, marital status, family/parental status, income derived from a public assistance program, political 

beliefs, or reprisal or retaliation for prior civil rights activity, in any program or activity conducted or funded by USDA (not all 

bases apply to all programs). Remedies and complaint deadlines vary by program or incident. 

Persons with disabilities who require alternative means of communication for program information (e.g., Braille, large print, 

audiotape, American Sign Language, etc.) should contact the responsible Agency or USDA’s TARGET Center at (202) 720-2600 

(voice and TTY) or contact USDA through the Federal Relay Service at (800) 877-8339. Additionally, program information may 

be made available in languages other than English. To file a program discrimination complaint, complete the USDA Program 

Discrimination Complaint Form, AD-3027, found online at http://www.ascr.usda.gov/complaint and at any USDA office or write 

a letter addressed to USDA and provide in the letter all of the information requested in the form. 

To request a copy of the complaint form, call (866) 632-9992. Submit your completed form or letter to USDA by: (1) mail: U.S. 

Department of Agriculture, Office- of the Assistant Secretary for Civil Rights, 1400 Independence Avenue, SW, Washington, 

D.C. 20250-9410; (2) fax: (202) 690-7442; or (3) email: program.intake@usda.gov. USDA is an equal opportunity provider, 

employer, and lender. 

COVER PHOTOS 

Employees and volunteers on the Lolo National Forest plant 530,500 seedlings across 2,536 acres. Courtesy photo by Dave 

Gardner Creative/National Forest Foundation. 

USDA Forest Service Region 3, Tribal Relations Manager Yolynda Begay, is responsible for the government (Forest Service) to 

(Pueblo) government relations in the Forest Service Southwest Region. A highlight in the region is the Walatowa Timber 

Industries mill that produces wood pellets, poles for utilities, wood beams and vigas for conventional and traditional home 

building, ties for railroads, posts for fences, milled lumber, mulch, and firewood. Use of the Tribal Forest Protection Act project 

between the Santa Fe National Forest and the Jemez Pueblo helps to reduce the threat of wildland fire through hazardous fuels 

removal, this promotes forest health through reducing insect infestation and disease, and the harvest of small diameter timber will 

support the Tribe’s nearby Walatowa Timber Industries mill. The project would be on land bordering Jemez Pueblo Tribal land.

The Forest Service Southwest Region recognizes the authority as a valuable tool for restoring landscapes and has used it with 

other Tribes. These conversations between the Santa Fe and the Pueblo demonstrate the good collaboration and relationship 

between the Pueblo and the forest. The project supported the district’s Palliza prescribed fire, as well as complementing the

ongoing Southwest Jemez Mountains Collaborative Forest Landscape Restoration Program project awarded in 2010. The 

210,000-acre project comprises the 86,000-acre Valles Caldera Nation-al Preserve, 110,000 acres of the Santa Fe National Forest, 

and 14,000 acres of nearby State, private, and Jemez Pueblo lands. The Tribal Forest Protection Act project is not only an 

opportunity for meaningful collaboration with Jemez Pueblo, but also a benefit to the overall ecosystem of this part of the Jemez 

Mountains. USDA Forest Service photo by Lance Cheung with permission of the Pueblo of Jemez. 

A firefighter on the Big Windy Complex Wildlands Fire, approximately 15 miles west of Interstate-5 and East Northeast of 

Galice, OR, conducts a prescribed burn "burnout" operation to help stop the main fire from spreading toward the roadway. USDA 

Forest Service photo by Lance Cheung. 

A new bridge is installed on Horseshoe Creek at Upper Horseshoe Bridge on the Caribou-Targhee National Forest in Idaho. The 

bridge and trail work were cooperative projects with the Caribou-Targhee National Forest, State of Idaho Parks and recreation, 

Skyliners Motorized club, Montana Conservation Corps, Teton Valley Trails and Pathways, and Mountain Bike the Tetons. 

USDA Forest Service photo by Jay Pence. 
 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

TABLE OF CONTENTS 

AGENCY-WIDE..............................................................................................................................................................

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1 

BUDGET OVERVIEW 1 

PURPOSE STATEMENT 4 

LEAD-OFF TABULAR STATEMENTS 7 

FOUR-YEAR SUMMARY OF APPROPRIATIONS AND FTES 9 

REVENUE, RECEIPTS AND TRANSFERS 13 

ORGANIZATION CHART 14 

AVAILABLE FUNDS AND FTES 15 

PERMANENT POSITIONS BY GRADE AND FULL TIME EQUIVALENTS (FTE’S) 17 

MOTOR VEHICLE FLEET 18 

SHARED FUNDING PROJECTS ...........................................................................................................................

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FOREST SERVICE OPERATIONS 22 

LEAD-OFF TABULAR STATEMENT 22 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 22 

PROJECT STATEMENTS 23 

JUSTIFICATIONS OF INCREASES AND DECREASES 25 

CLASSIFICATION BY OBJECTS 27 

STATUS OF PROGRAMS 29 

FOREST AND RANGELAND RESEARCH 33 

LEAD-OFF TABULAR STATEMENT 33 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) ................................................................

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33 

PROJECT STATEMENTS 35 

JUSTIFICATIONS OF INCREASES AND DECREASES 38 

CLASSIFICATION BY OBJECTS 40 

STATUS OF PROGRAMS 41 

STATE AND PRIVATE FORESTRY 44 

LEAD-OFF TABULAR STATEMENT 44 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 44 

PROJECT STATEMENTS 46 

JUSTIFICATIONS OF INCREASES AND DECREASES 50 

CLASSIFICATION BY OBJECTS .........................................................................................................................

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53 

STATUS OF PROGRAMS 54 

NATIONAL FOREST SYSTEM 65 

LEAD-OFF TABULAR STATEMENT 65 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) ................................................................

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65 

PROJECT STATEMENTS 68 

JUSTIFICATIONS OF INCREASES AND DECREASES 72 

CLASSIFICATION BY OBJECTS 78 

STATUS OF PROGRAMS 79 

CAPITAL IMPROVEMENT AND MAINTENANCE 90 

LEAD-OFF TABULAR STATEMENT 90 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 90 

PROJECT STATEMENTS 92 

CAPITAL IMPROVEMENT AND MAINTENANCE PROJECTS OVER $1 MILLION SELECTED IN FY 2023 95 

CLASSIFICATION BY OBJECTS .........................................................................................................................

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98 

STATUS OF PROGRAMS 99 

LAND ACQUISITION 102 

LEAD-OFF TABULAR STATEMENT 102 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 102 

PROJECT STATEMENTS 103 

CLASSIFICATION BY OBJECTS 106 

STATUS OF PROGRAMS 107 

OTHER APPROPRIATIONS 110 

LEAD-OFF TABULAR STATEMENT 110 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) ..............................................................

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110 

PROJECT STATEMENTS 112 

JUSTIFICATIONS OF INCREASES AND DECREASES 114 

CLASSIFICATION BY OBJECTS 115 

STATUS OF PROGRAMS 116 

WILDLAND FIRE MANAGEMENT 118 

LEAD-OFF TABULAR STATEMENT 118 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 118 

PROJECT STATEMENTS 120 

JUSTIFICATIONS OF INCREASES AND DECREASES 123 

CLASSIFICATION BY OBJECTS........................................................................................................................

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124 

STATUS OF PROGRAMS 125 

WILDFIRE SUPPRESSION OPERATIONS RESERVE FUND 131 

LEAD-OFF TABULAR STATEMENT 131 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 131 

PROJECT STATEMENTS 132 

JUSTIFICATION OF INCREASES AND DECREASES 133 
 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PERMANENT APPROPRIATIONS ................................................................................................................................

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134 

LEAD-OFF TABULAR STATEMENT 134 

PROJECT STATEMENTS 135 

CLASSIFICATION BY OBJECTS 139 

STATUS OF PROGRAMS 140 

PAYMENTS TO STATES 146 

TRUST FUNDS 148 

LEAD-OFF TABULAR STATEMENT 148 

PROJECT STATEMENTS 149 

CLASSIFICATION BY OBJECTS 151 

STATUS OF PROGRAMS ..................................................................................................................................

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152 

LEGISLATIVE PROPOSALS 154 

INTEREST-BEARING ACCOUNT 154 

ADMINISTRATIVE PROVISIONS 155 

GENERAL PROVISIONS 158 

AGENCY-WIDE PERFORMANCE AND EVALUATION 165 

INTRODUCTION 165 

ALIGNMENT TO USDA 2022 – 2026 STRATEGIC PLAN 165 

SUMMARY OF PERFORMANCE 166 

SPECIAL EXHIBITS 170 

BIOMASS AND WOOD INNOVATIONS .............................................................................................................

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170 

CARBON ACCOUNTING 174 

CRITERIA FOR ALLOCATING FUNDING FOR RECREATION ACCESS 177 

ENVIRONMENTAL EDUCATION 179 

EQUAL ACCESS TO JUSTICE ACT 182 

NATIONAL SCENIC AND HISTORIC TRAILS 185 

OFFICE OF GENERAL COUNSEL REIMBURSEMENT 190 

PRESCRIBED FIRE 191 

STEWARDSHIP CONTRACTING 193 

UNLIQUIDATED OBLIGATIONS 195 

USDA WORKING CAPITAL FUND, DEPARTMENTAL SHARED COST PROGRAMS, AND E-GOVERNMENT .......

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198 

APPENDICES 203 

NATIONAL PARKS AND PUBLIC LAND LEGACY RESTORATION FUND 203 

LAND AND WATER CONSERVATION FUND 211 

FY 2023 SPEND PLAN FOR INFRASTRUCTURE INVESTMENT AND JOBS ACT, 2022 – PUBLIC LAW 117- 58 213 

DEPARTMENT OF THE INTERIOR AND DEPARTMENT OF AGRICULTURE FOREST SERVICE WILDLAND FIRE 

WORKFORCE FRAMEWORK, MARCH 2022 223 
2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

AGENCY-WIDE 

BUDGET OVERVIEW 

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

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

Mission 

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

grasslands to meet the needs of present and future generations. 

Budget Overview 

The Fiscal Year (FY) 2023 Forest Service Budget request for discretionary appropriations is $9.0 billion. This is an 

increase of $1.5 billion from an FY 2022 annualized continuing resolution (CR). The FY 2023 Budget request 

includes $2.7 billion for Wildland Fire Management, an increase of $751 million from an FY 2022 annualized CR; 

$2.2 billion for the management of National Forest System lands, an increase of $394 million from an FY 2022 

annualized CR; $140 million for Capital Improvement and Maintenance, equal to an FY 2022 annualized CR; $318 

million for Forest and Rangeland Research, an increase of $59 million from an FY 2022 annualized CR; $307 

million for State and Private Forestry, an increase of $40 million from an FY 2022 annualized CR, and $1.1 billion 

for Forest Service Operations, an increase of $86 million from an FY 2022 annualized CR. The Wildfire 

Suppression Budget Cap Adjustment (“fire funding fix”) is $2.21 billion, an increase of $170 million from an FY 

2022 annualized CR. 

Forest Service Policy Priorities 

The FY 2023 Budget request prioritizes critical investments to address threats from wildfire, tackle climate change, 

protect communities, provide economic relief through job creation, advance racial equity, and further improve our 

work environment. To address these challenges for FY 2023, the Forest Service proposes significant investments for 

wildfire risk management and continuing implementation of the Administration’s climate and innovation agenda. 

Together with the historic investments provided from the Infrastructure Investment and Jobs Act, (P.L. 117-58), the 

Forest Service will increase and build new capacity for working with partners to improve the resilience of 

landscapes and watersheds across boundaries, reduce wildfire risk by treating the right acres at the right scale, 

restore infrastructure, support outdoor recreation, and invest in reforestation of impacted landscapes. 

Wildland Fire Risk Management 

Climate change is increasing the severity and frequency of wildfires. Traditional fire seasons of the past have now 

extended to year-round events, with wildfires occurring outside of historic fire season timeframes in different parts 

of the country. The FY 2021 fire season saw over 7.6 million acres burned in wildland fires, with over 4.1 million of 

those acres occurring on National Forest System lands. The summer of 2021 was one of the worst fire seasons in 

modern times, setting a record of 68 days at Preparedness Level 5, indicating the highest demand for wildland fire 

suppression resources. In 2022, the agency anticipates and is prepared for another significant fire year. 

Wildland fire risk management is a top priority for the Forest Service and aligns with USDA’s Strategic Goal to 

mitigate wildfire risk. The FY 2023 Budget dedicates $321 million toward management for hazardous fuels 

reduction, an increase of $141 million from the FY 2022 annualized CR level. This will allow the agency to mitigate 

wildfire risk on 3.8 million acres in high priority and high-risk areas and builds on the over $300 million in 

hazardous fuels funding the Forest Service will receive through the Infrastructure Investment and Jobs Act in FY 

2023 (includes funding for thinning, prescribed fire, fuelbreaks, and removal of flammable vegetation). This request 

is a significant investment to prioritize and target landscape treatments across multiple jurisdictions and will focus 

resources on high-priority large-scale fuel mitigation, forest resilience projects, and other restoration work in the 

National Forest System. Critically, this investment will help the agency improve the resilience of forest and 

rangeland ecosystems from multiyear drought conditions and protect watersheds, habitat, and communities from the 

negative impacts of uncharacteristically severe wildfire, supporting the objectives of the agency’s 10-year strategy to 

confront the Nation’s wildfire crisis1. 

1 https://www.fs.usda.gov/managing-land/wildfire-crisis 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Compensation for Wildland Firefighters 

Wildland firefighters are essential to our ability to protect communities and vital infrastructure from wildfires. As 

such, it is imperative to have a robust year-round workforce that is available to respond at any time, is supported and 

equitably compensated, has a better work-life balance, and is available to undertake preventive actions like 

hazardous fuels management treatments during periods of low fire activity. The FY 2023 request includes additional 

funding for the Federal wildland fire program to address priorities identified by the Administration regarding 

compensation for wildland firefighters. 

A Wildland Fire Management workforce framework will be deployed starting in FY 2022 in four phases: in phase 

one, a wildland fire workforce assessment will be conducted; in phase two, a workforce analysis will be completed; 

in phase three, recruitment and retention strategies will be identified, and an implementation action plan will be 

developed; and phase four will consist of monitoring, evaluation, and revision of the action plan based on best 

practices identified. The framework is included as an appendix to the Budget on page 223. 

Tackling the Climate Crisis 

The FY 2023 Budget builds on the approach to climate change articulated in the FY 2022 Budget and leverages the 

historic investments enacted in the Infrastructure Investment and Jobs Act to implement the Administration’s

climate agenda and support Executive Order 14008, “Tackling the Climate Crisis at Home and Abroad” and 

Executive Order 13990, “Protecting Public Health and the Environment and Restoring Science to Tackle the 

Climate Crisis.” The Budget includes investments that will allow the Forest Service to continue to build climate 

resilience while laying the foundation for economic growth, creating good paying jobs, and ensuring benefits of 

climate investments accrue to disadvantaged communities. 

Maintaining climate-resilient landscapes is central to Forest Service activities and goals. Working with partners and 

stakeholders, the agency is taking actions to adapt the Nation’s forests and grasslands to a changing climate and 

proactively address challenges, including those stemming from a longer, more severe wildfire season, regional 

drought, invasive species, and significant outbreaks of insects and disease. The Forest Service is using science to 

advance climate-smart land management, restoration, fire management, and science innovation and delivery for the 

benefit of current and future generations. In FY 2023, the agency will expand the scope and scale of research and 

science delivery programs related to reforestation, carbon sequestration, and carbon accounting, all of which are 

essential to informing policy and spending decisions for climate adaptation and mitigation. Additionally, the FY 

2023 Budget includes $6 million to Forest and Rangeland Research to support the USDA Climate Hubs. This 

funding will accelerate science production and technology transfer to aid land management agencies, private 

landowners, and agricultural producers, including foresters, with information on scientifically sound climate 

adaptation practices. 

The FY 2023 Budget request supports increasing capacity for carbon sequestration through reforestation, post-fire 

restoration, mitigating forest pests, and production of sustainable woody biomass for forest products on both public 

and private lands. The Forest Service will focus investments on planting the right species, in the right place, under 

the right conditions to create forests that will remain healthy over time. The agency will also continue to leverage 

partner resources through Shared Stewardship, making integrated decisions on mutually defined projects across all 

land ownerships. 

Improving Infrastructure, Providing Economic Relief, and Supporting Jobs 

The FY 2023 Budget request supports considerable economic activity in national, regional, and local economies 

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

sustainable use of the national forests and grasslands. Significant Forest Service economic activity benefits many 

rural forest and grassland dependent communities. The results of the agency’s recent 2020 economic analysis show 

Forest Service programs and work contributed 371,600 jobs (average annual full-time, part-time, temporary, and 

seasonal) and $35.1 billion in gross domestic product (GDP). Recreational visitor use, hunting and fishing, energy 

and minerals development, forest products, and livestock grazing generated 66 percent of the economic activity. 

Outdoor recreation saw an increase from 150 million visits in 2019 to 168.2 million in 2020. Many Americans 

continue to seek outdoor activities in response to the COVID-19 pandemic, and above-average visitation numbers 

are expected again during 2022. This budget requests a significant additional investment in recreation of $74 million 

above the FY 2022 annualized CR level so the agency and its facilities are prepared to meet public demand. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

The Great American Outdoors Act (GAOA) (P.L. 116-152), enacted in 2020, is allowing the Forest Service to repair 

and upgrade vital infrastructure and facilities in the national forests and grasslands through the National Parks and 

Public Land Legacy Restoration Fund. GAOA also permanently funds the Land and Water Conservation Fund 

(LWCF), investing in conservation and recreation opportunities in public and private lands. Projects funded through 

the Public Lands Restoration Fund and LWCF will enrich the lives of current and future generations by improving 

landscape resiliency and increasing access. According to the agency’s 2020 economic analysis, Forest Service 

projects are projected to support approximately 4,400 jobs and contribute $420 million to the GDP on an average 

annual basis over the 5-year authorization of the National Parks and Public Land Legacy Restoration Fund. In FY 

2021, Congress appropriated $218.1 million to implement a total of 63 Forest Service LWCF projects (Forest 

Legacy and Federal Land Acquisition). Congress also directed $285 million in funding from the National Parks and 

Public Land Legacy Restoration Fund to 556 Forest Service deferred maintenance projects. In FY 2023, the Forest 

Service proposes $94.3 million for Forest Legacy, $123.9 million for Federal Land Acquisition, and $285 million 

for the Public Lands Restoration Fund. These levels are subject to a 5.7 percent sequestration rate. The FY 2023 

LWCF and National Parks and Public Land Legacy Restoration Fund project lists are included in appendices to the 

FY 2023 Budget request. The Forest Service has developed these projects in accordance with GAOA requirements 

and Administration guidance. 

Advancing Racial Equity and Improving the Workplace Environment 

The Forest Service is committed to the values of equity, inclusion, and equal opportunities for its employees and the 

public it serves. The agency continues to proactively undertake actions that provide a safe, resilient, and harassmentfree work culture where employees are treated with respect and dignity. Such an environment is paramount to 

carrying out the agency’s mission and delivering needed services to all the American people. USDA is committed to 

ensuring equity across its agencies, removing barriers to access, and building a workforce more representative of 

America. To that end, the Forest Service strives to maintain a work environment that is equitable, respectful, and 

free of harassment and bullying of any kind. The Forest Service has taken significant steps to improve policies, raise 

accountability, upgrade reporting systems, and conduct training focused on workplace environment to stop 

harassment, bullying, and retaliation. This work is essential and will continue in FY 2023. At the same time, the 

agency is working to recruit, hire and retain a workforce that reflects the diversity in America. 

The Forest Service is also addressing equity by recognizing opportunities within the agency that ensure historically 

underserved groups more fully access and participate in Forest Service programs and services. This includes 

expanding Tribal Self-Governance/Co-Governance/Co-Management with impacted Tribes. In FY 2023, the Forest 

Service will utilize $11 million of base funds from multiple programs to increase equity for Tribes to expand 

utilization of the Tribal Forest Protection Act (TFPA), the TFPA 638 pilot, and other authorities which allow Tribes 

to participate in stewardship contracts and other agreements. These authorities provide opportunity to protect and 

preserve Tribal trust assets on the National Forest System as well as maintain healthy landscapes. 

Forest Service Budget Structure 

FY 2023 is the second year the Forest Service is submitting the Budget request in the new budget structure which 

makes the cost of salaries and other administrative spending more transparent by separating them from program 

delivery into their own designated line items. 

The new structure established a Forest Service Operations account and salary and expense budget line items in the 

following discretionary appropriations accounts: Forest Service Operations, Forest and Rangeland Research, State 

and Private Forestry, National Forest System, and Wildland Fire Management. In combination with the budget line 

items under Forest Service Operations (Facilities Maintenance and Leases, Information Technology and Centralized 

Processing, and Organizational Services), these budget line items eliminate the need for cost pools while 

significantly increasing accountability and operational transparency within the Forest Service budget. 

The FY 2023 Budget proposes the movement of the Hazardous Fuels program from National Forest System to 

Wildland Fire Management. Relocating these program funds back to the Wildland Fire Management account is an 

important change in keeping with the intent of Congressional direction to restructure the agency budget for 

increased transparency, and specifically, to eliminate the request and execution of hazardous fuels program funds 

and related salaries and expenses from two separate budget line items. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PURPOSE STATEMENT 

The Forest Service was established within the Department of Agriculture in 1905, pursuant to the Transfer Act of 

1905 (33 Stat. 628) and the Agricultural Appropriation Act of 1906 (33 Stat.872). The Forest Service is responsible 

for managing public lands in the Nation’s 154 national forests and 20 national grasslands that cover more than 193 

million acres of public land. The agency also oversees 84 experimental forests, ranges, and watersheds, five research 

and development stations, and 24 Job Corps Civilian Conservation Centers that are funded by the Department of 

Labor. Through the State and Private Forestry organization, the Forest Service also reaches across the boundaries of 

national forests to States, Tribes, communities, and non-industrial private landowners. 

The mission of the agency is to sustain the health, diversity, and productivity of the Nation’s forests and grasslands

to meet the needs of present and future generations. The Forest Service is composed of four Deputy Areas: (1) 

National Forest System, (2) Forest and Rangeland Research, (3) State and Private Forestry, and (4) Business 

Operations. 

Statutory Program Authorization: 

The Forest Service Operations program is authorized in part by Public Law 116-94 (16 U.S.C 579e). The program 

includes base salary and expenses for employees in the Chief’s Office, the Work Environment and Performance 

Office, the Business Operations Deputy Area, and the Chief Financial Officer’s Office to carry out administrative 

and general management support functions; for the costs of facility maintenance repairs and leases for buildings and 

sites; for the costs of utility and communications expenses, business services, and information technology, including 

cybersecurity requirements; and for such other administrative support function expenses necessary for the operation 

of the Forest Service. 

The Forest and Rangeland Research program is authorized in part by the Forest and Rangeland Renewable 

Resources Research Act of 1978 (16 U.S.C. 1641 et seq.) and the Forest and Rangeland Renewable Resources 

Planning Act of 1974 (16 U.S.C. 1601 et seq.). The program’s purpose is to develop and deliver know-how and 

innovative technology, to reduce risk while improving the health and use of our Nation’s public and private forests 

and rangelands. The Joint Fire Science Program (JFSP) is funded by the Forest Service and the Department of the 

Interior in partnership to address problems associated with managing wildland fuels, fires, and fire-impacted 

ecosystems. This partnership is authorized by Public Law 105-83 (H.R. Report 105‒163) and provides leadership to

the fire science community by identifying high-priority fire science research needs that will enhance the decisionmaking ability of fire and fuels managers, natural resource managers, and others to meet their management 

objectives. 

The State and Private Forestry program is authorized in part by the Cooperative Forestry Assistance Act of 1978 (16 

U.S.C. 2101 et seq.). The purpose of the program is to help sustain State and private forests while providing support 

to keep working forests intact. Through coordinated efforts in management, protection, conservation education, and 

resource use, the program helps facilitate sound stewardship of lands across all ownerships, on a landscape scale, to 

produce ecological, social, and economic benefits for the American people. 

The National Forest System program is authorized in part by the Organic Administration Act of 1897 (16 U.S.C. 

551), the Forest and Rangeland Renewable Resources Planning Act of 1974 (16 U.S.C. 1601 et seq.), the National 

Forest Management Act of 1976 (16 U.S.C. 472a), and the Multiple-Use Sustained-Yield Act (16 U.S.C. 528-531). 

The program’s purpose is to provide stewardship and management for over 193 million acres of national forests and 

grasslands. The suite of National Forest Service programs supports planning, coordination, implementation, and 

monitoring of activities that provide a wide variety of ecosystem services including water-quality protection, 

recreation opportunities for the public, energy for the Nation, food security, timber and non-timber forest products, 

maintenance of open space, and wildlife habitat and habitat connectivity. 

The Capital Improvement and Maintenance program is authorized in part by the Forest Roads and Trails Act (16 

U.S.C. 532-538), and the 23 U.S.C. 101 et seq. The program’s purpose is to maintain and improve the infrastructure 

for our Nation’s national forests and public lands which enables the agency to meet critical natural resource needs 

while providing safe access to public lands. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

The Land Acquisition program is authorized in part by the Weeks Act (16 U.S.C. 515) and the General Exchange 

Act of 1922 (16 U.S.C. 485, 486). The program’s purpose is to reduce fragmented lands to connect and conserve 

important lands, waters, and access within the National Forest System; to support the creation of resilient 

landscapes; and to sustain ecological and social benefits such as restoration, recreational access, habitat for wildlife, 

and water quality and quantity protection. 

The Wildland Fire Management program is authorized in part by the Organic Administration Act of 1897 (16 U.S.C 

551). The program’s purpose is to protect life, property, and natural resources on the National Forest System and 

adjacent State and private lands. The program ensures timely, appropriate, risk-informed, and effective response 

operations to all wildland fires. 

Other Appropriations: 

• The Range Betterment Fund is authorized by the Federal Land Policy and Management Act of 1976 (43 U.S.C. 

1751). The program’s purpose is to foster healthy, resilient rangeland ecosystems by funding range management 

and vegetation management activities. 

• Gifts, Donations and Bequests for Forest and Rangeland Research is authorized by the Forest and Rangeland 

Renewable Resources Research Act of 1978 (16 U.S.C. 1641 et seq.). This special account is used for the 

acceptance of gifts, donations, and bequests for deposit to establish or operate any forest and rangeland research 

facility. 

• Management of National Forest Lands for Subsistence Use is authorized by the Alaska National Interest Lands 

Conservation Act of 1980 (16 U.S.C. 3111-3126). The purpose of the program is to protect subsistence fishing 

and hunting activities while providing resource management and oversight on national forests in Alaska. 

• Communications Site Administration is authorized by section 8705 of the Agriculture Improvement Act of 

2018. The Forest Service may collect and retain administrative fees assessed for communications site use 

authorizations to cover the costs of administering the Communications Site Program. 

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

associated with strategic planning, budget, human resource management, acquisition management, information 

technology, safety programs, and other critical mission support functions. 

The Forest Service headquarters is located in Washington, DC. As of September 30, 2021, there were 28,424 

permanent full-time employees, including 649 in the headquarters office and 27,775 in regional and field offices. 

Office of Inspector General (OIG) AND GOVERNMENT ACCOUNTABILITY OFFICE (GAO) REPORTS 

Table FS-1. Completed FY 2021 OIG audit publications 

ID Date Title Results 

08601-0011-41 03/25/2021 Forest Service Use of Settlement Funds Forest Service should return $936,579 to 

the appropriate settlement account; 

update current guidance so only approved 

work plans are allotted settlement funds; 

and pursue legal authority to retain 

interest earned on settlement funds. 

08801-0001-24 12/15/2020 Forest Service Grant for Roadless Area 

Management in the State of Alaska 

Forest Service should cease all payments 

related to this grant, and award grants in 

compliance with Federal laws and 

regulations. 

08801-0001-41 10/06/2021 Regional Forester Authorities for Cost 

Share Agreements – Inspection 

Recommend all fire suppression cost share 

agreements include a second-level 

headquarters clearance; establish a formal 

process for reviewing and approving 

regional supplemental guidelines; and 

include these in the Forest Service 

handbook. 

5 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Table FS-2. In-progress OIG reports 

ID Title Results 

08801-0001-22 Forest Service's Response to the Coronavirus Pandemic at Recreation 

Sites – Inspection 

Audit work in progress 

Table FS-3. Completed FY 2021 GAO Reports 

ID Date Title Results 

GAO-21-42 11/24/2020 Disaster Response: Agencies Should Assess 

Contracting Workforce Needs and 

Purchase Card Fraud Risk 

Forest Service should update its purchase 

card fraud risk profile to better align with 

leading practices outlined in the Fraud 

Risk Framework and assess how the risk 

profile may differ for purchase card use in 

support of disaster response. Corrective 

actions are in progress. 

GAO-21-110 03/04/2021 Native American Culture Resources: 

Improved Information Could Enhance 

Agencies’ Efforts to Analyze and Respond 

to Risks of Theft and Damage 

Forest Service should take steps to analyze 

and address risks to Native American 

cultural resources. Corrective actions are 

in progress. 

GAO-21-299 07/26/2021 Federal Land Management: Key Differences 

and Stakeholder Views of the Federal 

Systems Used to Manage Hardrock Mining 

The document included stakeholder views 

for managing hardrock mining on Federal 

lands and identified areas of improvement. 

No GAO recommendations were included. 

GAO-21-518 06/29/2021 Facial Recognition Technology – Federal 

Law Enforcement Agencies Should Better 

Assess Privacy and Other Risks 

Forest Service responded to the baseline 

survey but was omitted from the study. 

GAO-21-592 07/21/2021 Federal Lands and Waters: Information on 

Agency Spending for Outdoor Recreation 

Is Limited 

Forest Service provided spending data used 

to support outdoor recreation. No GAO 

recommendations were included. 

6 
 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

LEAD-OFF TABULAR STATEMENTS 

Table FS-4. Lead-Off Tabular Statement (Discretionary Funding—In Dollars) 

Forest Service Operations 

Annualized CR, 2022............................................................................................................... $1,026,163,000 

Change in Appropriation.......................................................................................................... +86,489,000 

Budget Request, 2023 .............................................................................................................. 1,112,652,000 

Forest and Rangeland Research 

Annualized CR, 2022............................................................................................................... $258,760,000 

Change in Appropriation.......................................................................................................... +59,013,000 

Budget Request, 2023 .............................................................................................................. 317,773,000 

State and Private Forestry 

Annualized CR, 2022............................................................................................................... $267,180,000 

Change in Appropriation.......................................................................................................... +39,783,000 

Budget Request, 2023 .............................................................................................................. 306,963,000 

National Forest System 

Annualized CR, 2022............................................................................................................... $1,786,870,000 

Change in Appropriation.......................................................................................................... +394,045,000 

Budget Request, 2023 .............................................................................................................. 2,180,915,000 

Capital Improvement and Maintenance 

Annualized CR, 2022............................................................................................................... $140,371,000 

Change in Appropriation.......................................................................................................... -

Budget Request, 2023 .............................................................................................................. 140,371,000 

Land Acquisition 

Annualized CR, 2022............................................................................................................... $814,000 

Change in Appropriation.......................................................................................................... -

Budget Request, 2023 .............................................................................................................. 814,000 

Other Appropriations 

Annualized CR, 2022............................................................................................................... $3,863,000 

Change in Appropriation.......................................................................................................... -1,000,000 

Budget Request, 2023 .............................................................................................................. 2,863,000 

Wildland Fire Management 

Annualized CR, 2022............................................................................................................... $1,927,241,000 

Change in Appropriation.......................................................................................................... +751,418,000 

Budget Request, 2023 .............................................................................................................. 2,678,659,000 

7 
 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Wildfire Suppression Operations Reserve Fund 

Annualized CR, 2022............................................................................................................... $2,040,000,000 

Change in Appropriation.......................................................................................................... +170,000,000 

Budget Request, 2023 .............................................................................................................. 2,210,000,000 

Permanent Appropriations 

Estimate, 2022.......................................................................................................................... $506,528,000 

Change in Appropriation.......................................................................................................... -

Budget Estimate, 2023 ............................................................................................................. 506,528,000 

Trust Funds 

Estimate, 2022.......................................................................................................................... $236,466,000 

Change in Appropriation.......................................................................................................... -

Budget Estimate, 2023 ............................................................................................................. 236,466,000 

8 
 

 

 

 

 

 

 

 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

FOUR-YEAR SUMMARY OF APPROPRIATIONS AND FTES 

Table FS-5. Four-Year Summary of Appropriations and Full Time Equivalents (FTEs) (thousands of dollars) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Forest Service Operations: 

Salaries and Expenses .............................. - - $359,577 2,359 $359,577 2,755 $389,406 2,755 

Facilities Maintenance and Leases........... - - 158,900 - 158,900 - 169,900 -

Information Technology and Centralized 

Processing............................................. - - 374,408 - 374,408 - 409,908 -

Organizational Services ........................... - - 133,278 - 133,278 - 143,438 -

Subtotal, Forest Service Operations...... - - 1,026,163 2,359 1,026,163 2,755 1,112,652 2,755 

Forest and Rangeland Research: 

Salaries and Expenses .............................. - - 200,419 1,374 200,419 1,442 215,576 1,442 

Forest and Rangeland Research ............... $228,000 1,010 40,720 47 40,720 - 80,000 -

Forest Inventory and Analysis ................. 77,000 414 17,621 21 17,621 - 22,197 -

Subtotal, Forest and Rangeland 

Research ............................................ 305,000 1,424 258,760 1,442 258,760 1,442 317,773 1,442 

State and Private Forestry: 

Salaries and Expenses .............................. - - 51,308 324 51,308 385 65,091 418 

Landscape Scale Restoration 14,000 1 14,000 - 14,000 - 21,000 -

FHM - Federal Lands............................... 56,000 244 15,485 11 15,485 - 22,485 -

FHM - Cooperative Lands ....................... 44,000 77 30,747 6 30,747 - 36,747 -

Forest Stewardship Program .................... 21,000 50 11,902 2 11,902 - 17,902 -

Forest Legacy Program ............................ 63,990 22 - 5 - - - -

Community Forest and Open Space 

Conservation......................................... 4,000 - 4,000 - 4,000 - 4,000 -

Urban and Community Forestry 32,000 45 31,910 1 31,910 - 31,910 -

International Programs............................. 12,000 17 15,395 1 15,395 - 15,395 -

National Fire Capacity ............................. 82,000 52 73,433 - 73,433 - 73,433 -

Rural Fire Capacity .................................. 18,000 - 19,000 - 19,000 - 19,000 -

Subtotal, State and Private Forestry ...... 346,990 508 267,180 387 267,180 385 306,963 418 

National Forest System: 

Salaries and Expenses .............................. - - 1,409,352 12,697 1,409,352 12,884 1,681,133 14,545 

Integrated Resource Restoration Pilot...... - 1 - - - - - -

Collaborative Forest Landscape 

Restoration............................................ 40,000 194 13,787 8 13,787 - 80,000 -

Land Management Planning, Assessment 

and Monitoring ..................................... 180,000 861 16,544 36 16,544 - 21,544 -

Hazardous Fuels a 445,310 2,254 180,388 95 180,388 - - -

Recreation, Heritage, and Wilderness ...... 262,000 1,632 35,241 62 35,241 - 109,661 -

Wildlife and Fisheries Habitat 

Management ......................................... 138,000 881 20,727 38 20,727 - 29,027 -

Grazing Management............................... 57,000 390 5,410 14 5,410 - 25,547 -

Forest Products ........................................ 373,000 2,800 37,017 112 37,017 - 37,645 -

Vegetation and Watershed Management.. 182,000 1,016 28,683 45 28,683 - 98,470 -

Minerals and Geology Management ........ 74,200 405 13,282 18 13,282 - 44,982 -

Land Use Authorization and Access ........ 75,000 437 6,934 19 6,934 - 28,934 -

9 
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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Law Enforcement Operations .................. 131,000 635 19,505 22 19,505 - 23,972 -

Subtotal, National Forest System.......... 1,957,510 11,506 1,786,870 13,166 1,786,870 12,884 2,180,915 14,545 

Capital Improvement and Maintenance: 

Facilities 154,000 425 54,037 17 54,037 - 54,037 -

Roads ....................................................... 220,000 1,079 68,895 50 68,895 - 68,895 -

Trails........................................................ 81,000 525 17,439 28 17,439 - 17,439 -

Legacy Roads and Trails.......................... - - - - - - - -

Subtotal, Capital Improvement and 

Maintenance ...................................... 455,000 2,029 140,371 95 140,371 - 140,371 -

Land Acquisition: 

Land Acquisition...................................... 78,898 44 - 12 - - - -

Acquisition of Land for National Forest 

Special Acts .......................................... 700 - 664 - 664 - 664 -

Acquisition of Lands to Complete Land 

Exchanges............................................. - - 1,480 - 150 - 150 -

Subtotal, Land Acquisition ................... 79,598 44 2,144 12 814 - 814 -

Other Appropriations: 

Range Betterment Fund ........................... 2,656 5 2,741 3 1,719 3 1,719 3 

Gifts, Donations, and Bequest for Forest 

and Rangeland Research ....................... - - - - 45 - 45 -

Management of National Forest Lands 

for Subsistence Uses ............................. 2,500 12 1,099 1 1,099 1 1,099 1 

Communication Site Administration........ - - - - 1,000 - - -

Subtotal, Other Appropriations............. 5,156 17 3,840 4 3,863 4 2,863 4 

Wildland Fire Management: 

Salaries and Expenses .............................. - - 764,241 8,529 764,241 8,529 1,154,271 11,782 

Preparedness ............................................ 1,339,620 9,244 152,000 596 152,000 - 192,000 -

Suppression.............................................. 1,011,000 972 1,011,000 1,156 1,011,000 1,156 1,011,000 1,156 

Hazardous Fuels a ..................................... - 3 - - - - 321,388 -

Subtotal, Wildland Fire Management ... 2,350,620 10,219 1,927,241 10,281 1,927,241 9,685 2,678,659 12,938 

Wildfire Suppression Operations Reserve Fund: 

Wildfire Suppression Operations Reserve 

Fund...................................................... 1,950,000 - 2,040,000 - 2,040,000 - 2,210,000 -

Subtotal, Wildfire Suppression 

Operations Reserve Fund................... 1,950,000 - 2,040,000 - 2,040,000 - 2,210,000 -

Total, Discretionary Appropriations ....... 7,449,874 25,747 7,452,569 27,746 7,451,262 27,155 8,951,010 32,102 

Mandatory Appropriations: 

Forest Legacy (Great American Outdoors 

Act) ....................................................... - - 94,255 7 94,255 12 94,255 12 

Conveyance of Administrative Sites ........ 4,392 2 1,232 1 1,232 1 1,232 1 

Site-Specific Lands Act ........................... 3,986 - 1,818 - 1,818 - 1,818 -

Land Acquisition (Great American 

Outdoors Act) ....................................... - - 123,885 24 123,885 24 123,885 24 

Total, Mandatory Appropriations ........... 8,378 2 221,190 32 221,190 37 221,190 37 

Supplemental Appropriations: 

10 
 

 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 

Item 2020 2021 Continuing Budget 

Actual FTE Actual FTE Resolution FTE Request FTE 

Disaster Relief Appropriations (P.L. 115-

123) b .................................................... - 17 - 12 - 10 - 4 

Disaster Relief Appropriations (P.L. 116-

20) c - 12 - 9 - 9 - 9 

Coronavirus Relief Appropriations (P.L. 

116-136) d ............................................. 70,800 10 - 65 - - - -

Disaster Relief Appropriations (P.L. 117-

43) e ....................................................... - - - - 1,360,000 52 - 69 

Infrastructure Investment and Jobs Act 

(P.L. 117-58) f ....................................... - - - - 1,666,360 1,983 945,160 4,016 

Total, Supplemental Appropriations ....... 70,800 39 - 86 3,026,360 2,054 945,160 4,098 

Permanent Appropriations: 

National Parks and Public Land Legacy 

Restoration Fund................................... - - - 43 - 43 - 43 

Brush Disposal......................................... 8,104 67 6,928 40 6,928 40 6,928 40 

Hardwood Technology Transfer and 

Applied Research.................................. - - - - - - - -

Timber Salvage Sales............................... 33,728 365 34,746 191 34,746 191 34,746 191 

Timber Sales Pipeline Restoration ........... 2,754 24 4,977 28 4,977 28 4,977 28 

Forest Botanical Products ........................ 558 20 915 13 915 13 915 13 

Stewardship Contracting .......................... 32,336 - 29,276 31 29,276 31 29,276 31 

Recreation Fees, Forest Service ............... 92,765 621 118,253 460 118,253 460 118,253 460 

Timber Purchaser Election Road 

Construction.......................................... 2,000 - 2,000 - 2,000 - 2,000 -

Operation and Maintenance of Forest 

Service Quarters.................................... 9,841 27 10,266 18 10,266 18 10,266 18 

Roads and Trails for States ...................... 15,887 - 13,189 - 16,000 - 16,000 -

Land Between the Lakes Management .... 4,836 10 6,468 12 6,468 12 6,468 12 

Midewin National Tallgrass Prairie 

Rental Fees ........................................... 576 - 669 1 794 1 794 1 

Quinault Special Management Area ........ 1 - - - - - - -

Restoration of Forest Lands and 

Improvements ....................................... 1,103 33 1,307 21 1,308 21 1,308 21 

Commercial Filming & Still Photography 

Land Use Fee Retention........................ 455 3 608 4 608 4 608 4 

Organizational Camps Program ............... 436 5 191 3 191 3 191 3 

Cost Recovery (Land Uses) ..................... 693 6 679 3 679 3 679 3 

Licensee Program Smokey Bear .............. 1,189 - 833 - 833 - 833 -

Licensee Program Woodsy Owl............... 25 - 20 - 20 - 20 -

Forest Service Go Green Program 

(Conservation) ...................................... 72 - 47 - 47 - 47 -

Payments to States Funds......................... 284,288 23 256,023 25 272,219 25 272,219 25 

Subtotal, Permanent Appropriations ..... 491,647 1,204 487,395 893 506,528 893 506,528 893 

Trust Funds: 

Cooperative Work - KnutsonVandenberg........................................... 60,788 368 74,008 269 74,008 270 74,008 270 

Cooperative Work – Other....................... 9,984 66 12,330 43 12,330 43 12,330 43 

11 
 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 

Item 2020 2021 Continuing Budget 

Actual FTE Actual FTE Resolution FTE Request FTE 

Reforestation Trust Fund ......................... 30,000 125 30,000 56 150,000 125 150,000 125 

Land Between the Lakes Trust Fund........ 128 - 128 - 128 - 128 -

Subtotal, Trust Funds............................ 100,900 559 116,466 368 236,466 438 236,466 438 

Total, Permanent Appropriations and 

Trust Funds ............................................ 592,547 1,763 603,861 1,261 742,994 1,331 742,994 1,331 

Total, Appropriations ............................... 8,121,599 27,551 8,277,620 29,125 11,441,806 30,577 10,860,354 37,568 

a The Hazardous Fuels program will be shifted from National Forest System to Wildland Fire Management beginning in fiscal 

year 2023. 

b P.L. 115-123 provided $119,752,000 for necessary expenses related to the consequences of Hurricanes Harvey, Irma, and 

Maria. 

c P.L. 116-20 provided $854,271,000 for necessary expenses related to the consequences of Hurricanes Florence and Michael, 

and the calendar year 2018 wildfires. 

d P.L. 116-136 provided $70,800,000 to prepare, prevent, and respond to coronavirus. Budget authority expired effective October 

1, 2021. 

e P.L. 117-43 provided $1,360,000,000 for necessary expenses related to wildfires, hurricanes, and other natural disasters that 

occurred between calendar years 2019 through 2021. 

f FY 2022 supplemental appropriations include disaster relief (P.L. 117-43) and advance appropriations in the Infrastructure 

Investment and Jobs Act (P.L. 117-58). FY 2023 supplemental appropriations are entirely advance appropriations from the 

Infrastructure Investment and Jobs Act. See also the spend plans for advance appropriations on page 213. 

12 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

REVENUE, RECEIPTS AND TRANSFERS 

Table FS-6. Fiscal Year 2020 - 2023 National Forest Fund (NFF) Receipts Availability (thousands of dollars) 

Receipt Type 2020 

Actual 

2021 

Actual 

2022 

Estimate 

2023 

Estimate 

National Forest Fund Receipts: 

Class 1 – Timber ................................................................... $15,454 $9,422 $12,139 $13,145 

Class 2 - Grazing East............................................................. 117 144 144 145 

Class 3 - Land Use .................................................................. 23,717 25,622 26,120 27,620 

Class 4 - Recreation Special Uses ........................................... 55,289 111,867 114,801 117,051 

Class 5 – Power....................................................................... 10,955 12,735 13,651 16,401 

Class 6 – Minerals................................................................... 641 1,048 1,586 2,061 

Class 8 - Grazing West............................................................ 5,481 4,927 5,241 5,441 

Class 9 – Quartz Crystals ........................................................ 1 1 1 1 

Subtotal, NFF Receipts ....................................................... 111,655 165,766 173,683 181,865 

Additions and Reductions other than Payments to States: 

DOI:ONRR/MMS Minerals Revenue NFF a .......................... 12,884 14,774 14,829 16,162 

Minnesota Boundary Water Canoe Area................................. -6,150 -6,150 -6,150 -6,150 

Timber Roads - Purchaser Election Program ......................... -2,000 -2,000 -2,000 -2,000 

Acquisition of Lands for National Forest Special Acts........... -664 -664 -676 -686 

50% Grazing (Range Betterment Fund).................................. -2,741 -2,474 -2,624 -2,724 

10% Roads & Trails................................................................ -13,189 -18,888 -18,988 -19,138 

Midewin National Tallgrass Prairie Expansion .................... -669 -794 -860 -925 

Other Special Act Payments (Arkansas Quartz and Quinault 

Special Management Area) b ................................................ -4 -2 -4 -5 

Subtotal, Additions and Reductions other than Payments 

to States ............................................................................ -12,533 -16,198 -16,473 -15,466 

Payments to States Reductions: 

PTS - 25% 7-year Rolling Average of Receipts Payment b, c ... -12,450 -13,412 -13,435 -13,794 

SRS - Title II Allocation - SRS2............................................. -22,022 -25,757 -24,769 -25,432 

SRS - Failure to Elect Allocation – SRSA.............................. -180 -206 -208 -210 

SRS - Allocation to Treasury .................................................. -107 -124 -127 -129 

Subtotal, Payments to States Reductions ............................ -34,759 -39,499 -38,539 -39,565 

Total, Receipts Available for SRS - Title I and III................. 64,363 110,069 118,671 126,834 

a Compensation programs related to energy and mineral development on National Forest System lands are administered by the 

Department of the Interior. 

b Revenue-sharing and Secure Rural Schools payments are nonexempt, nondefense mandatory spending; therefore, are subject to 

annual sequestration, if applicable, through FY 2029 (P.L. 112-25). c The reauthorization of the Secure Rural Schools and Community Self- Determination Act of 2000 (Secure Rural Schools Act) 

was included in Section 41202 of the Infrastructure Investment and Jobs Act (Public Law 117-58), which was signed into law on 

November 15, 2021. The reauthorization not only extended payments through fiscal year 2023, but also reset the full funding 

amount used to calculate the Secure Rural Schools Act formula payments to the 2017 level of funding. S.3706 provided for the 

application of certain provisions. 

13 
2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

ORGANIZATION CHART 

14 
 

AVAILABLE FUNDS AND FTES 

Table FS-7. Available Funds and FTEs (thousands of dollars) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Forest Service Operations: 

Discretionary Appropriations - - $1,026,163 2,359 $1,026,163 2,755 $1,112,652 2,755 

Forest and Rangeland Research: 

Discretionary Appropriations $305,000 1,424 258,760 1,442 258,760 1,442 317,773 1,442 

Supplemental Appropriations 3,000 3 - 4 27,000 - 2,000 -

State and Private Forestry: 

Discretionary Appropriations 346,990 508 267,180 387 267,180 385 306,963 418 

Mandatory Appropriations - - 94,255 7 94,255 12 94,255 12 

Supplemental Appropriations - - - - 355,360 53 305,360 161 

National Forest Service: 

Discretionary Appropriations 1,957,510 11,506 1,786,870 13,166 1,786,870 12,884 2,180,915 14,545 

Supplemental Appropriations 34,000 22 - 65 1,444,800 421 529,800 3,476 

Capital Improvement and Maintenance: 

Discretionary Appropriations 455,000 2,029 140,371 95 140,371 - 140,371 -

Supplemental Appropriations 26,800 14 - 15 542,000 8 72,000 2 

Land Acquisition: 

Discretionary Appropriations 79,598 44 2,144 12 814 - 814 -

Mandatory Appropriations 8,378 2 126,935 25 126,935 25 126,935 25 

Other Appropriations: 

Discretionary Appropriations 5,156 17 3,840 4 3,863 4 2,863 4 

Wildland Fire Management: 

Discretionary Appropriations 2,350,620 10,219 1,927,241 10,281 1,927,241 9,685 2,678,659 12,938 

Supplemental Appropriations 7,000 - - 2 552,200 400 36,000 400 

Wildfire Suppression Operations Reserve Fund: 

Discretionary Appropriations 1,950,000 - 2,040,000 - 2,040,000 - 2,210,000 -

Permanent Appropriations: 

Mandatory Appropriations 491,647 1,204 487,395 893 506,528 893 506,528 893 

Offsetting Collections 3,548 31 5,641 23 5,641 23 5,641 23 

Trust Funds: 

Mandatory Appropriations 100,900 559 116,466 368 236,466 438 236,466 438 

Offsetting Collections 25,118 120 24,934 106 24,934 106 24,934 106 

Total, Discretionary Appropriations 7,449,874 25,747 7,452,569 27,746 7,451,262 27,155 8,951,010 32,102 

Total, Mandatory Appropriations 600,925 1,765 825,051 1,293 964,184 1,368 964,184 1,368 

Total, Supplemental Appropriations a. 70,800 39 - 86 3,026,360 924 945,160 4,098 

Total, Offsetting Collections 28,666 151 30,575 129 30,575 129 30,575 129 

Total, Adjusted Appropriations 8,150,265 27,702 8,308,195 29,254 11,472,381 29,576 10,890,929 37,697 

Transfers In 733 - 3,081,868 - 2,389,196 - 2,269,916 -

Transfers Out -50,008 - -2,800,594 - -2,110,453 - -1,989,632 -

Deferral for Roads and Trails for States -15,887 

....................... 

....................... 

....................... 

....................... 

........................... 

....................... 

....................... 

....................... 

....................... 

....................... 

....................... 

........................... 

....................... 

....................... 

....................... 

- -13,189 - -16,000 - - -

Rescission -2,000 - -11,428 - -11,428 - - -

Sequestration -2,155 - -18,176 - -52,200 - -17,214 -

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

....................... 

........................... 

.................................. 

........................... 

.................................. 

........... 

............... 

........ 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 

Item 2020 2021 Continuing Budget 

Actual FTE Actual FTE Resolution FTE Request FTE 

Recoveries, Other............................................ 315,182 - 297,643 - 297,643 - 297,643 -

Balance Available, SOY ................................. 2,253,018 - 3,610,421 - 3,240,755 - 5,048,141 -

Total Available .............................................. 10,649,148 27,702 12,454,740 29,254 15,209,894 29,576 16,499,783 37,697 

Lapsing Balances ............................................ -100 - -652 - - - - -

Balance Available, EOY ................................. -3,610,421 - -3,240,755 - -5,048,141 - -4,988,776 -

Total, Obligations.......................................... 7,038,627 27,702 9,213,333 29,254 10,161,753 29,576 11,511,007 37,697 

a FY 2022 supplemental appropriations include disaster relief (P.L. 117-43) and advance appropriations in the Infrastructure 

Investment and Jobs Act (P.L. 117-58). FY 2023 supplemental appropriations are entirely advance appropriations from the 

Infrastructure Investment and Jobs Act. See also the spend plans for advance appropriations on page 213. 

16 
 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PERMANENT POSITIONS BY GRADE AND FULL TIME EQUIVALENTS (FTE’S) 

Table FS-8. Permanent Positions by Grade and FTE’s 

Item 

D.C. Field 

2020 

Actual 

Total D.C. Field 

2021 

Actual 

Total D.C. Field 

2022 

CR D.C. Field 

2023 

Estimated 

Total 

SES a ................. 33 28 61 27 39 66 27 39 66 27 39 66 

GS-15 ................ 102 342 444 88 337 425 88 337 425 88 337 425 

GS-14 ................ 164 559 723 193 593 786 193 593 786 193 593 786 

GS-13 ................ 166 2,167 2,333 157 2,272 2,429 157 2,272 2,429 157 2,272 2,429 

GS-12 ................ 70 3,170 3,240 69 3,169 3,238 69 3,169 3,238 69 3,169 3,238 

GS-11 ................ 55 4,726 4,781 45 4,763 4,808 45 4,763 4,808 45 4,763 4,808 

GS-10 ................ - 179 179 - 157 157 - 157 157 - 157 157 

GS-9 .................. 42 4,634 4,676 43 4,489 4,532 43 4,489 4,532 43 4,489 4,532 

GS-8 .................. 2 1,503 1,505 4 1,487 1,491 4 1,487 1,491 4 1,487 1,491 

GS-7 .................. 15 4,077 4,092 14 4,104 4,118 14 4,104 4,118 14 4,104 4,118 

GS-6 .................. 5 1,924 1,929 2 1,956 1,958 2 1,956 1,958 2 1,956 1,958 

GS-5 .................. 6 2,840 2,846 5 2,744 2,749 5 2,744 2,749 5 2,744 2,749 

GS-4 .................. - 900 900 - 725 725 - 725 725 - 725 725 

GS-3 .................. - 110 110 - 66 66 - 66 66 - 66 66 

GS-2 .................. 1 6 7 1 6 7 1 6 7 1 6 7 

GS-1 .................. - 2 2 - 3 3 - 3 3 - 3 3 

Other Graded b .. 2 831 833 1 865 866 1 865 866 1 865 866 

Ungraded........... - - - - - - - - - - - -

Total Permanent 663 27,998 28,661 649 27,775 28,424 649 27,775 28,424 649 27,775 28,424 

Unfilled, EOY ... - - - - - - 137 7,174 7,311 137 7,174 7,311 

Total Perm. FT 

EOY ............... 663 27,998 28,661 649 27,775 28,424 786 34,949 35,735 786 34,949 35,735 

FTE ................... 576 29,469 30,045 720 30,819 31,539 753 32,238 32,991 913 39,069 39,982 

a Includes pay plans ES, SL, and ST. 

b Includes pay plans WG, WL, and WS. 

Note: In addition to the numbers above, there are temporary positions as well. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

MOTOR VEHICLE FLEET 

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

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

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

that make up the revolving fund. Funds are used to finance agency fleet operations that include repairs, fuel, 

maintenance, infrastructure support, program management costs, vehicle depreciation, and vehicle replacements. 

The Forest Service vehicle fleet supports approximately 28,000 permanent full-time employees and an additional 

12,000 seasonal employees, the majority of which are hired for fire suppression activities. There are approximately 

15,200 fleet vehicles that support year-round missions. An additional 1,800 vehicles are retained beyond their 

minimum replacement standard to support the seasonal workforce. Although these vehicles receive lower utilization, 

they provide a cost-effective alternative to commercial leases orrental options. At any given time, an additional 200 

to 400 vehicles are in the process of being prepared for disposal2. All vehicles are reported annually through the 

General Services Administration’s (GSA) Federal Automotive Statistical Tool (FAST). 

The Forest Service is structured into regions, forests/grasslands/stations, and districts. Line officers at different 

levels of the organization are responsible for determining the composition and quantity of vehicles required to meet 

their mission goals. Fleet composition is facilitated using a vehicle allocation methodology (VAM) that considers 

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

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

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

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

how to optimize fleet size. 

The Forest Service aims to manage its fleet program in the most cost-effective way possible, including alternativefueled vehicles to fulfill mission goals. The Forest Service also works to meet or exceed the required annual 

utilization rate benchmarks for vehicles, which can be challenging given the seasonality of agency work and limited 

access to remote sites or work areas within National Forest System lands. The Forest Service continues to share 

vehicles and explore other opportunities to increase utilization rates. Finally, as oversight of fleet programs 

increases, the agency is aligning and automating data to better respond to oversight and audit requirements in an 

efficient and cost-effective manner. 

Replacement Criteria 

Minimum vehicle replacement standards are three years or 60,000 miles. The Forest Service will retain 

Government-owned motor vehicles that exceed minimum vehicle replacement standards if the motor vehicle can be 

operated safely without excessive maintenance costs or substantial reduction in resale value. 

Fleet Size 

At the end of FY 2021, the agency’s motor vehicle fleet totaled 18,121, 17,338 of which were in active inventory 

and 783 in the process of being sold. The on-hand fleet inventory was higher than anticipated at the end of the fiscal 

year due to a variety of delays in disposing of vehicles. Specifically, global supply chain shortages have shifted new 

vehicle deliveries from spring to summer, resulting in the usual annual peak in fleet inventory coinciding with the 

inventory snapshot taken at the end of FY 2021. The agency anticipates an offsetting increase in vehicle disposals 

during the first half of FY 2022 to compensate for this apparent increase in inventory. Disposal efforts (which 

require staff to be on site) were also limited due to mandatory telework. The Forest Service is evaluating its fleet 

reduction targets with respect to mission requirements and will begin implementing fleet telematics in FY 2022 to 

monitor and manage fleet utilization more effectively. This initiative will also provide the types of fleet operational data 

needed to accelerate the transition towards hybrid, plug-in hybrid, and electric battery vehicles in support of governmentwide fleet decarbonization objectives. The Forest Service will continue to prioritize resources in support of the 

2 “Disposal” is defined in the FAST reporting system as removal from the agency fleet. 

18 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Administration’s goal to transition the Federal motor vehicle fleet to clean and zero emission vehicles (ZEVs). 

While this budget does not request increased funding specifically for ZEVs, base funding in the fleet program 

supports USDA’s efforts to bring ZEVs into the fleet and accelerate the installation of charging infrastructure. 

Fuel Price Increases 

The transition away from petroleum-fueled vehicles will also serve as a hedge against future fuel price increases. 

According to the Federal Reserve Economic Data website, the weekly price per gallon for gasoline and diesel fuel in 

FY 2021 rose 46.7 and 42.7 percent, respectively. While the consumer price indices (CPI) also increased for new 

vehicles, service, and repair (by 8.7 percent, 4.0 percent, and 6.9 percent, respectively), the CPI for used cars and 

trucks is helping to offset some of these price increases by increasing revenue from the sale of used vehicles (up 

24.4 percent during FY 2021). Overall, these numbers indicate that fleet costs will continue to increase. 

Table FS-9. Size, Composition, and Annual Costs of Motor Vehicle Fleet 

Item 

Sedans 

and 

Station 

Wagons Vans SUV’s 

Light 

Trucks 

4X2 

Light 

Trucks 

4X4 

Medium 

Duty 

Vehicles Buses 

Heavy 

Duty 

Vehicles 

Total 

Vehicles 

Annual 

Operating 

Costs 

2018 End of Year 

Operating Inventory . 277 79 2,301 461 5,882 6,539 80 2,079 17,698 $88,608,809 

2020 End of Year 

Operating Inventory . 245 108 2,591 368 5,658 6,669 60 2,111 17,810 87,112,518 

2021 Planned 

Acquisitions ................ 15 13 240 21 583 777 6 178 1,833 

2021 Planned Disposals . 39 20 290 45 451 554 5 118 1,522 

2021 End of Year 

Operating Inventory . 221 101 2,541 344 5,790 6,892 61 2,171 18,121 77,955,720 

2022 Planned 

Acquisitions ................ 99 12 306 95 905 864 16 41 2,338 

2022 Planned Disposals . 119 31 543 83 934 899 0 475 3,084 

2022 End of Year 

Operating Inventory . 201 82 2,304 356 5,761 6,857 77 1,737 17,375 80,953,897 

2023 Planned 

Acquisitions ................ 33 28 281 51 704 909 3 41 2,050 

2023 Planned Disposals . 34 11 326 45 641 842 3 154 2,056 

2023 End of Year 

Operating Inventory . 200 99 2,259 362 5,824 6,924 77 1,624 17,369 83,952,314 

Notes: The number of vehicles by type include agency-owned and leased from commercial sources or GSA. Annual Operating 

Costs excludes acquisition costs and gains from sale of vehicles as shown in FAST. 

19 
 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

SHARED FUNDING PROJECTS 

Table FS-10. Shared Funding Projects (thousands of dollars) 

Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

Working Capital Fund: 

Administrative Services: 

Materiel Management Service......................................... $928 $780 $792 $798 

Mail and Reproduction Services ..................................... 820 628 574 573 

Integrated Procurement Systems ..................................... 8,235 8,611 8,637 8,583 

Human Resources Enterprise System Management........ 1,154 1,126 1,064 1,097 

Procurement Operations Services.................................... 126 123 79 84 

Subtotal, Administrative Services ................................ 11,263 11,268 11,146 11,135 

Communications: 

Creative Media and Broadcast Center ............................. 496 229 449 556 

Finance and Management: 

National Finance Center.................................................. 8,116 8,456 8,550 8,655 

Financial Shared Services ............................................... 47,085 45,960 45,636 47,493 

Internal Control Support Services ................................... 489 394 382 281 

Subtotal, Finance and Management.............................. 55,690 54,810 54,568 56,429 

Information Technology: 

Digital Infrastructure Services Center ............................. 41,791 37,918 35,206 34,799 

Department Administration Information Technology 

Office............................................................................ - 1,214 12 12 

Client Experience Center................................................. 23,159 50,796 55,530 55,633 

Enterprise Network Services ........................................... 16,940 15,069 16,292 15,243 

Subtotal, Information Technology................................ 81,890 104,997 107,040 105,687 

Correspondence Management Services: 

Office of the Executive Secretariat.................................. 509 318 401 401 

Total, Working Capital Fund............................................. 149,848 171,622 173,604 174,208 

Department-Wide Shared Cost Programs: 

Advisory Committee Liaison Services............................... 189 267 302 302 

Agency Partnership Outreach............................................. 2,312 2,071 2,330 2,330 

Honor Awards .................................................................... 3 2 3 3 

Human Resources Self-Service Dashboard........................ 181 - - -

Intertribal Technical Assistance Network .......................... 962 1,022 1,079 1,079 

Medical Services ................................................................ 25 126 143 143 

National Capital Region Interpreting Services................... - 75 60 75 

Office of Customer Experience.......................................... 1,729 2,901 2,763 2,763 

Personnel and Document Security ..................................... 520 640 670 670 

Physical Security................................................................ 1,764 1,287 1,339 1,364 

Security Detail.................................................................... 1,394 1,385 1,432 1,444 

Security Operations Program ............................................. 1,758 1,944 1,941 1,941 

20 
TARGET Center 342 356 419 421 

USDA Enterprise Data Analytics Services 2,442 1,631 1,406 1,406 

Total, Department-Wide Shared Cost Programs

E-Gov: 

13,621 13,707 13,887 13,941 

Budget Formulation and Execution Line of Business 30 39 37 37 

E-Rulemaking 9 36 51 53 

Financial Management Line of Business 100 87 85 85 

Geospatial Line of Business 12 12 12 12 

Grants.gov 5 8 11 13 

Hiring Assessment Tool - - 72 72 

Human Resources Line of Business 90 92 90 90 

Integrated Acquisition Environment 573 623 193 193 

............................................... 

.......................................................................... 

..................................................... 

................................... 

.................................. 

Total, E-Gov ........................................................................ 819 897 551 555 

Total, Forest Service ........................................................... 162,807 186,226 188,042 188,704 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

................................................................ 

........................ 

............. 

........ 

.................................................................... 

........................... 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

FOREST SERVICE OPERATIONS 

LEAD-OFF TABULAR STATEMENT 

Table FS-11. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Annualized CR, 2022............................................................................................................... $1,026,163,000 

Change in Appropriation.......................................................................................................... +86,489,000 

Budget Request, 2023 .............................................................................................................. 1,112,652,000 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 

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

For necessary expenses of the Forest Service, not otherwise provided for, [$1,074,086,000]$1,112,652,000, to 

remain available through September 30, [2025]2026: Provided, That [of the funds provided, not less than 

$42,000,000 shall be for activities related to climate change, of which $28,000,000 shall be for wildfire risk 

management, $8,000,000 shall be for climate reclamation, and $6,000,000 shall be for climate resilience: Provided 

further, That] a portion of the funds made available under this heading shall be for the base salary and expenses of 

employees in the Chief's Office, the Work Environment and Performance Office, the Business Operations Deputy 

Area, and the Chief Financial Officer's Office to carry out administrative and general management support 

functions: Provided further, That funds provided under this heading shall be available for the costs of facility 

maintenance, repairs, and leases for buildings and sites where these administrative, general management and other 

Forest Service support functions take place; the costs of all utility and telecommunication expenses of the Forest 

Service, as well as business services and information technology, including cyber security requirements: Provided 

further, That funds provided under this heading may be used for necessary expenses to carry out administrative and 

general management support functions of the Forest Service not otherwise provided for and necessary for its 

operation. 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

Change Description 

The first change removes specific language for climate change funding. 

FOREST SERVICE OPERATIONS 

[For an additional amount for "Forest Service Operations", $105,000,000, to remain available until expended, for 

necessary expenses related to the consequences of calendar year 2019, 2020, and 2021 wildfires, hurricanes, and 

other natural disasters. (Disaster Relief Supplemental Appropriations Act, 2022.)] 

(Disaster Relief Supplemental Appropriations Act, 2022.) 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-12. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Discretionary Appropriations: 

Salaries and Expenses ...................................... 

................... 

..................................................... 

................................... 

.............. 

- - $359,577 2,359 $359,577 2,755 $389,406 2,755 +$29,829 - (1) 

Facilities Maintenance and Leases - - 158,900 - 158,900 - 169,900 - +11,000 - (2) 

Information Technology and Centralized 

Processing - - 374,408 - 374,408 - 409,908 - +35,500 - (3) 

Organizational Services - - 133,278 - 133,278 - 143,438 - +10,160 - (4) 

Total, Discretionary Appropriations - - 1,026,163 2,359 1,026,163 2,755 1,112,652 2,755 +86,489 -

Supplemental Appropriations: 

Disaster Relief Appropriations (P.L. 117-43) a - - - - 105,000 42 - 59 -105,000 +17 

Total, Supplemental Appropriations ............. 

........................................... 

- - - - 105,000 42 - 59 -105,000 +17 

Total Appropriations - - 1,026,163 2,359 1,131,163 2,797 1,112,652 2,814 -18,511 +17 

Transfers In: 

Capital Improvement and Maintenance ........... 

....................... 

.................................... 

................................ 

.............................. 

......................................... 

- - 264 - 11,520 - 8,640 - -2,880 -

Forest and Rangeland Research - - 413 - - - 2,150 - +2,150 -

National Forest System - - 15,668 - 117,568 - 63,576 - -53,992 -

State and Private Forestry - - 6,034 - 48,856 - 36,640 - -12,216 -

Wildland Fire Management - - 4,025 - 21,552 - 4,320 - -17,232 -

Total, Transfers In - - 26,404 - 199,496 - 115,326 - -84,170 -

Transfers Out: 

Department of the Interior................................ 

...................................... 

..................................... 

.................................................... 

..................................... 

................................................ 

- - -1,171 - - - - - - -

Total, Transfers Out - - -1,171 - - - - - - -

Balance Available, SOY - - - - 29,920 - 116,098 - +86,178 -

Total Available - - 1,051,396 2,359 1,360,579 2,797 1,344,076 2,814 +67,667 +17 

Balance Available, EOY - - -29,920 - -116,098 - -37,391 - +78,707 -

Total Obligations - - 1,021,476 2,359 1,244,481 2,797 1,306,685 2,814 +62,204 +17 

a P.L. 117-43 provided $105,000,000 for necessary expenses related to wildfires, hurricanes, and other natural disasters that occurred between calendar years 2019 through 2021. 

23 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Table FS-13. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Discretionary Obligations: 

Salaries and Expenses .............................................. 

........................... 

............................................................. 

........................................... 

........................... 

........ 

........................... 

........................................................ 

.............................................. 

........................... 

- - $339,614 2,359 $405,030 2,755 $413,335 2,755 +$8,305 -

Facilities Maintenance and Leases - - 149,544 - 178,349 - 186,953 - +8,604 -

Information Technology and Centralized - - 404,977 - 482,983 - 469,812 - -13,171 -

Processing 

Organizational Services - - 127,341 - 151,869 - 157,835 - +5,966 -

Total, Discretionary Obligations - - 1,021,476 2,359 1,218,231 2,755 1,227,935 2,755 +9,704 -

Supplemental Obligations: 

Disaster Relief Appropriations (P.L. 117-43) a - - - - 26,250 42 78,750 59 +52,500 +17 

Total, Supplemental Obligations - - - - 26,250 42 78,750 59 +52,500 +17 

Total Obligations - - 1,021,476 2,359 1,244,481 2,797 1,306,685 2,814 +62,204 +17 

Balances Available, EOY: 

Salaries and Expenses - - 10,463 - 17,022 - 17,040 - +18 -

Facilities Maintenance and Leases - - 9,356 - 9,907 - 9,919 - +12 -

Information Technology........................................... 

........................................... 

........ 

.............................. 

............................................................ 

..................................................... 

.................................................. 

.......................................... 

................................................... 

- - 1,029 - 952 - 954 - +2 -

Organizational Services - - 9,072 - 9,467 - 9,478 - +11 -

Disaster Relief Appropriations (P.L. 117-43) a - - - - 78,750 - - - -78,750 -

Total Balance Available, EOY - - 29,920 - 116,098 - 37,391 - -78,707 -

Total Available - - 1,051,396 2,359 1,360,579 2,797 1,344,076 2,814 -16,503 +17 

Less: 

Total Transfers In - - -26,404 - -199,496 - -115,326 - +84,170 -

Total Transfers Out - - 1,171 - - - - - - -

Balance Available, SOY - - - - -29,920 - -116,098 - -86,178 -

Total Appropriations - - 1,026,163 2,359 1,131,163 2,797 1,112,652 2,814 -18,511 +17 

a P.L. 117-43 provided $105,000,000 for necessary expenses related to wildfires, hurricanes, and other natural disasters that occurred between calendar years 2019 through 2021. 

24 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

JUSTIFICATIONS OF INCREASES AND DECREASES 

Salaries and Expenses: An increase of $29,829,000 from the FY 2022 annualized CR, which 

includes the following: 

a) An increase of $10,165,000, which includes $7,222,222 for pay inflation and $2,943,000 for FERS for 2022 

Pay and FERS. This increase supports the pay increase which went into effect January 1, 2022, of a 2.7 percent 

Cost of Living pay increases for civilian employees, and a 1.1 percent increase to cover the expenses for the 

mandated increase of USDA’s contribution to FERS.

b) An increase of $14,406,000 for 2023 Pay. This increase will support the annualization of the 2022 2.7 percent 

Cost of Living pay increase and the 2023 4.6 percent Cost of Living pay increase. Without this increase, the 

Forest Service would not be able to cover projected personnel cost increases without potentially reducing 

services across the agency that could negatively impact agency operations and priorities, including in wildland 

fire risk management, climate resilience, and racial equity. 

c) An increase of $5,258,000 funds current staffing needs in the Chief’s Office, the Work Environment and

Performance Office, the Business Operations Deputy Area, and the Chief Financial Officer’s Office to carry out 

administrative and general management support functions. This increase provides limited funds to the Work 

Environment and Performance Office and Civil Rights to address the Administration’s priorities of racial 

justice, equity, and inclusion. The agency recognizes there is significant work to do to address the need for 

increasing data analytics, developing data strategies, data governance, Information Technology program 

management, and cyber security subject matter expertise. In fiscal year 2022, the Forest Service Operations 

Salaries and Expenses funding was increased by over $83 million through supplemental funding from 

Extending Government Funding and Delivering Emergency Assistance Act and Infrastructure Investment and 

Jobs Act, where appropriate. These funds provide the agency the short-term ability to increase capacity across 

Forest Service Operations to meet the increasing demand for administrative and general services related to the 

supplemental funding acts and the Administration’s priorities, including human resources, acquisition, and

information technology support. These supplemental funds will also support the Wildfire Risk Reduction and 

Infrastructure Team and increases in Civil Rights and Work Environment and Performance Office related to 

diversity, equity, and inclusion in accordance with the acts. The agency expects the ability to fund increases in 

capacity through supplemental funding will be exhausted in FY 2024 or 2025 depending on workforce planning 

and hiring execution. 

Facility Maintenance and Leases: An increase of $11,000,000 from the FY 2022 annualized CR, 

which includes the following: 

a) An increase of $2,940,163 to offset projected inflationary increases for facility leasing costs. This increase is 

needed for the agency to continue to adequately fund leases for buildings and sites that support the Forest 

Service workforce in accomplishing its program of work 

b) An increase of $ $8,059,837 to offset anticipated increases in leased and owned facility costs associated with 

consolidation and reduction efforts; building safety, security, and accessibility; and green building alterations. 

This increase is needed for the agency to continue to address facility maintenance, repairs, and 

decommissioning for buildings and sites that support the Forest Service workforce in accomplishing its program 

of work. 

Information Technology: An increase of $35,500,000 from the FY 2022 annualized CR, which 

includes the following: 

a) An increase of $21,500,000 is needed to fund information technology, including cybersecurity requirements and 

telecommunications costs to support the National Forest System and State and Private Forestry efforts to 

address climate resilience and conservation on public and private lands, remediate abandoned wells and mines, 

and mitigate wildfire risk. Increased funding would be used for data and system developments and 

enhancements necessary to improve efficiency and support new performance metrics for the above priorities. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Funding would also cover cost increases on software licensing, hardware costs, wireless services, and land 

mobile radio that are driven by increases in the number of employees. 

b) An increase of $14,000,000 will support cost increases in critical information technology systems. The agency 

recognizes there is significant work to do to meet information technology needs. In fiscal year 2021, the Forest 

Service used $47 million in prior year funds to subsidize Information Technology costs including Working 

Capital Fund and interagency foundational technology expenses shared across all department mission areas. 

These mission areas include Enterprise Application for software licenses, Enterprise Cloud and Data for hosting 

and storage services, Enterprise Delivery for customer service support, Enterprise Network for wireless 

services, Enterprise Platform for data warehouse expenses, and Internal Shared Services for services provided 

by USDA. 

In FY 2022, the agency’s information technology funding was increased by over $140 million through 

supplemental funding from Extending Government Funding and Delivering Emergency Assistance Act and 

Infrastructure Investment and Jobs Act, where appropriate. These supplemental funds will help the agency 

address significant information technology needs in accordance with the acts. With the agency’s new budget 

structure, additional regular funds are needed in this allocation to support the current level of Information 

Technology services throughout the agency and a growing number of demands directly correlated to public 

expectations for self-service (i.e., rec.gov, ePermit, Automated Timber Sales), increased demand for technology 

to support the fire mission, and general Forest Service operations. Without these supplemental funds, the agency 

would have had to severely limit critical Information Technology services such as fire modeling and support 

capabilities that are critical to supporting forest operations. This would have a significant impact on services to 

the public and likely significantly increase the need for additional staffing to compensate. 

Organizational Services: An increase of $10,160,000 from the FY 2022 annualized CR, which 

includes the following: 

a) An increase of $2,411,000 to offset projected inflationary increases in working capital and greenbook charges, 

vehicle fleet costs, and agency utility costs. 

b) An increase of $8,549,000 for costs associated with business services and other administrative support functions 

necessary to support Forest Service-wide staffing increases linked to the Administration’s priorities, including 

mitigating wildfire risk and addressing climate resilience and conservation on public and private lands. 

Increased funding would be used for activities such as increased capacity for training and development; human 

resources efforts to support hiring, onboarding, and employee support services; safety initiatives; and grants and 

acquisition contract support. These investments in hiring, onboarding, and employee support will build on 

existing efforts to increase the diversity and inclusivity of the Forest Service workforce. Additional funding is 

also needed for costs indirectly associated with staffing levels, such as $500,000 for litigation costs. The agency 

will also invest $800,000 for Energy Savings Performance contracts directed towards reducing the agency’s

utility consumption and carbon footprint. 

c) In FY 2022, the Organizational Services funding was increased by over $85 million in supplemental funding 

from Extending Government Funding and Delivering Emergency Assistance Act and Infrastructure Investment 

and Jobs Act. These funds provide the agency the short-term ability to increase capacity across Forest Service 

Operations to meet the increasing demand for administrative and general services related to the supplemental 

funding acts and the Administration’s priorities, including human resources and acquisition. These 

supplemental funds will also support the Wildfire Risk Reduction and Infrastructure Team and increases in 

Civil Rights and Work Environment Program Office related to diversity, equity, and inclusion in accordance 

with the acts. The agency expects the ability to fund increases in capacity through supplemental funding will be 

exhausted in FY 2025 or 2026, depending on demands for services. 

26 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CLASSIFICATION BY OBJECTS 

Table FS-14. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

Personnel Compensation: 

Washington D.C.......................................................... 

.................................... 

................................

......................................................... 

................................

......................... 

........................... 

.............................................. 

............................................. 

........................................... 

............. 

............................................ 

................................ 

.................... 

.......... 

...................... 

- $21,774 $25,817 $25,974 

Personnel compensation, field - 193,812 229,797 231,194 

11.0 Total personnel compensation .. 

..... 

- 215,586 255,614 257,168 

12.0 Personal benefits - 79,573 94,347 94,921 

13.0 Benefits for former personnel - 38,869 46,086 46,366 

Total, personnel comp. and benefits - 334,028 396,047 398,455 

Other Objects: 

21.0 Travel and transportation of persons - 381 470 503 

22.0 Transportation of things - 1,528 1,886 2,019 

23.1 Rental payments to GSA - 32,738 40,405 43,252 

23.2 Rental payments to others - 59,123 72,968 78,111 

23.3 Communications, utilities, and misc. charges - 83,840 103,474 110,766 

24.0 Printing and reproduction - 218 269 288 

25.1 Advisory and assistance services - 2,414 2,979 3,189 

25.2 Other services from non-Federal sources - 86,042 106,191 113,668 

25.3 Other goods and services from Federal sources - 344,029 424,595 454,525 

25.4 Operation and maintenance of facilities - 2,577 3,180 3,405 

25.5 Research and development contracts .......................... 

................................................................ 

................... 

................................................ 

- 1,470 1,814 1,942 

25.6 Medical care - 21 26 28 

25.7 Operation and maintenance of equipment - 4,385 5,412 5,793 

26.0 Supplies and materials - 17,367 21,434 22,945 

31.0 Equipment................................................................... 

..................................................... 

............................ 

............................... 

................................................. 

.............................................................. 

................................................... 

- 42,244 52,137 55,811 

32.0 Land and structures - 2,634 3,251 3,480 

41.0 Grants, subsidies, and contributions - 6,295 7,769 8,317 

42.0 Insurance claims and indemnities - 121 149 160 

43.0 Interest and dividends - 2 2 3 

92.0 Undistributed - 19 23 25 

Total, other objects - 687,448 848,434 908,230 

99.9 Total, new obligations........................................... 

...................................... 

..................................................................... 

- 1,021,476 1,244,481 1,306,685 

DHS Building Security Payments (included in 25.3) .... - 4,819 5,301 5,831 

Information Technology Investments: 

Interagency Resource Ordering Capability (IROC): 

External Labor (Contractors) $3,001 - - -

Hardware - 2,673 3,006 3,006 

Total, Interagency Resource Ordering Capability 

(IROC) .................................................................. 

...................................... 

.................................... 

..................................................................... 

3,001 2,673 3,006 3,006 

Mission Support Services: 

External Labor (Contractors) - 2,055 6,882 7,989 

25.2 Outside Services (Consulting) - 36,468 22,251 32,425 

Hardware - - 627 627 

27 
Software - 9,988 17,383 18,000 

Total, Mission Support Services - 48,511 47,143 59,041 

Natural Resource Manager (NRM): 

11 Internal Labor - 6,485 6,485 8,000 

External Labor (Contractors) 25,453 20,285 21,191 30,000 

25.2 Outside Services (Consulting) 2,900 2,160 1,990 1,990 

Software 500 - 500 2,000 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

...................................................................... 

.............................. 

............................................................. 

...................................... 

.................................... 

...................................................................... 

Total, Natural Resource Manager (NRM)................ 

.................................... 

................................................................. 

...................................... 

............................................... 

...................................... 

.................................................................. 

............................................................. 

...................................... 

.................................... 

28,853 28,930 30,166 41,990 

Open Forest (Forest Service Enterprise ePermit): 

25.2 Outside Services (Consulting) 1,900 - - -

Total, Open Forest (Forest Service Enterprise 

ePermit) 1,900 - - -

Recreation.gov: 

External Labor (Contractors) 2,250 - - -

Total, Recreation.gov 2,250 - - -

Resource Ordering and Status System (ROSS): 

External Labor (Contractors) 2,850 - - -

Total, Resource Ordering and Status System 

(ROSS) 2,850 - - -

USDA Public Safety Land Mobile Radio System: 

11 Internal Labor 20,573 20,945 20,945 27,000 

External Labor (Contractors) 1,250 2,043 2,045 2,045 

25.2 Outside Services (Consulting) 2,032 2,032 2,035 3,000 

Hardware..................................................................... 

....................................................................... 

................................................................... 

18,197 17,558 16,275 36,000 

Other IT - - 1,250 1,500 

Total, USDA Public Safety Land Mobile Radio 

System 42,052 42,578 42,550 69,545 

Wildland Fire and Aviation Management: 

External Labor (Contractors) ...................................... 

.................................... 

- 508 - -

25.2 Outside Services (Consulting) - 31,128 85,925 85,925 

Hardware..................................................................... 

...................................................................... 

....................................................................... 

...... 

................. 

..................... 

........................................ 

........................................ 

...................................................... 

- 1,611 1,125 1,125 

Software - 5,403 2,044 2,044 

Other IT - - 800 800 

Total, Wildland Fire and Aviation Management - 38,650 89,894 89,894 

Mission Area Non-Major Investment Totals 83,693 25,269 24,537 24,537 

Mission Area Standard Investment Totals 187,330 165,317 142,667 195,000 

25.3 Mission Area WCF Transfers 145,670 158,421 188,372 190,000 

Total Non-Major Investment 416,693 349,007 355,576 409,537 

Total IT Investments 497,599 510,349 568,335 673,013 

Position Data: 

Average Salary (dollars), ES Position......................... 

........................ 

....................................... 

N/A $192,131 $197,319 $202,646 

Average Salary (dollars), GS Position N/A $82,803 $85,039 $87,335 

Average Grade, GS Position N/A 10.7 11.0 11.3 

28 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

Salaries and Expenses 

Forest Service Operations (FSO) Salaries and Expenses (S&E) funds personnel salaries3 and personnel-related 

expenses4 in the Office of the Chief, the Work Environment and Performance Office (WEPO), Business Operations, 

and the Chief Financial Officer’s (CFO) office. FSO S&E also funds Workers’ Compensation and Unemployment 

benefits for all Forest Service employees – except employees covered under Wildland Fire Management – and other 

agency-wide personnel service costs not directly attributable to any one group of employees. 

Current Activities 

The Office of the Chief provides support to overarching Forest Service programs and includes the Office of Civil 

Rights, Legislative Affairs, and the Office of Communication. 

Business Operations provides essential services that Forest Service employees, partners, and stakeholders rely on to 

care for the Nation’s natural resources, using technology, budget, procurement, and other administrative functions. 

Business Operations staff areas include Acquisition Management; Budget and Finance; Chief Information Office; 

Casualty Assistance Program; Controlled Correspondence Unit; Human Resources Management; Office of Safety 

and Occupational Health; and Strategic Planning, Budget, and Accountability. 

The WEPO leads the agency’s efforts to improve and sustain a thriving and accountable organizational culture in 

which all employees feel safe, secure, valued, respected, free of harassment, and supported. The foundation of these 

efforts is a framework for living the agency’s core values of Service, Safety, Diversity, Interdependence, and 

Conservation. 

The CFO office is responsible for the financial leadership of the Forest Service and is committed to achieving 

improved Federal financial management through increased accountability and strengthened internal controls. The 

CFO office is currently building internal capacity in financial services to support expanded partnerships in wildfire 

risk reduction and other Forest Service programs. The CFO office will support, track, and reconcile additional 

agency transactions as wildfire risk reduction and infrastructure investment projects increase in scale. 

Specifically Addressed Areas 

FSO S&E program funds support effective and efficient program delivery, customer service, and mitigation of 

enterprise risks such as human capital management, cybersecurity, procurement and grant compliance, work 

environment, and financial accountability. 

The WEPO seeks to diagnose and address the root causes and cultural barriers to safety (physical, psychological, 

social), diversity, and inclusion in the work environment. Additionally, the WEPO collaborates with managers and 

employees to address workplace issues and facilitate a positive, productive, harassment-free workplace. These 

efforts create greater safety for employees and a more productive work environment with increased capacity to 

deliver mission critical work. 

Business Operations is continuously modernizing the agency's information and administrative delivery systems to 

improve processes, better equip the workforce, eliminate duplication, capitalize on data assets and new technologies, 

and provide services more efficiently. 

Selected Examples of Recent Progress 

This is Who We Are Engagement Sessions. In FY 2021, more than 14,000 Forest Service employees participated in 

the first of three This is Who We Are employee engagement sessions. The goal of This is Who We Are is to 

cultivate a values-based, purpose-driven, and relationship focused agency. Session one, which will continue into FY 

2022, educated Forest Service employees on the agency’s mission, purpose, values, and commitments.

3 Personnel salaries include base salaries, overtime, and pay differentials for permanent and seasonal employees. 4 Personnel-related expenses include but are not limited to monetary awards, travel, training, uniforms, boot replacement, 

wellness reimbursement, transfer of station, and insurance claims and indemnities. 

29 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Acquisition Mission Area Consolidation Implementation. In FY 2021, the Forest Service initiated the Acquisition 

Mission Area Consolidation (AMAC) to reorganize the Regional Acquisition Management (AQM) units into a 

National Procurement and Property Services (PPS) unit through an approved Departmental Regulation 10105 action. 

The reorganization consolidated all Regional Directorates under the Washington Office Headquarters, resulting in 

increased efficiencies, effective processes, and better customer service. Additionally, the consolidation provides 

flexibility when forming teams dedicated to specialized programs, such as AtIncident Contracting, Stewardship 

Contracting, and purchase card oversight. 

Facilities Maintenance and Leases 

The Facilities Maintenance and Leases program manages over 16,000 fire6, administrative7, and other8 (FA&O) 

owned facilities, and provides resources to address preventative, annual, and deferred maintenance, as well as funds 

needed toward the rehabilitation, and decommissioning of FA&O government-owned facilities. Additionally, the 

Facilities Maintenance and Leases manages more than 650 Forest Service and General Services Administration 

leases, including co-locations with other USDA agencies and the Department of the Interior. 

Facilities Maintenance and Leases also funds costs associated with long-term contracts and leases, such as security 

paid through the Federal Protective Service, leases paid to partners through agreements, and the Washington Office 

Headquarters lease and security costs paid through USDA Shared Costs (also referred to as Greenbook charges). 

Short-term, fire-related incident leases continue to be funded through Wildland Fire Management. 

Current Activities 

Facilities Maintenance and Leases continues to refine the development and implementation of the National Facilities 

and Lease Strategy9. Current activities include education, awareness, and establishment of regional, research and 

development, fire, and Washington Office investment boards to assist in making mutually consistent decisions 

related to asset management for the good of the agency. Continued governance development and increased data 

integrity will be important aspects of the strategy moving forward. Additionally, the agency’s new budget structure

continues with an allocation methodology focusing on reaching a more balanced portfolio between leased and 

owned facilities. 

Specifically Addressed Areas 

In FY 2021, Facilities Maintenance and Leases began implementing the National Facilities and Lease Strategy in 

support of the Forest Service’s budget modernization effort. The strategy will continue implementation in FY 2022. 

The strategy will not only help the agency prioritize its work but will also support the Office of Management and 

Budget’s Reduce the Footprint Initiative, USDA’s co-location and consolidation efforts, and will identify a five-year 

program of work for owned and leased facilities, improving consistency and transparency in facilities asset 

management. As part of the new allocation methodology, the Forest Service will implement projects that yield a 

large return on investment to move to a more sustainable lease and owned portfolio. The Forest Service has several 

large leases with expiration dates approaching that will be examined to determine the best opportunities for the 

agency as it continues to face the challenges maintaining owned assets under current funding levels. 

5 Departmental Regulation 1010 describes the policy and actions for making changes to organizational structures within the 

USDA. It is intended to streamline and simplify the process of organizational change in order to facilitate the implementation of 

optimal organizational structures throughout the agency. 6 Examples of fire facilities include airports, airtanker bases, fire lookouts, fire management centers, and heliports. 

7 Examples of administrative facilities include Regional, Forest, and District offices, research stations and laboratories, and 

service and storage buildings. 

8 Other facilities include telecommunications facilities and towers. 9 The National Facility and Lease Strategy (NFLS) is an initiative that supports the concept of stewarding the whole by gaining 

leadership support at all levels to reduce the agencies overall footprint, owned facility maintenance backlog, and lease costs. 

Goals of NFLS include: (1) provide a shared vision and framework for facilities management (lease and owned); (2) address 

space management challenges; (3) set forth processes for governance, coordination, and accountability; (4) promote equitable and 

cost-effective space management decisions; and (5) support budgetary management of the agency ‘s facility management and 

lease costs. 

30 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Selected Examples of Recent Progress 

Decreasing the Agency’s Footprint. In FY 2021, the agency reduced the owned and leased footprint by 

approximately 215,000 square feet. In addition, investments in owned facility maintenance on non-recreation 

facilities, including decommissioning, was $7.7 million in FY 2021 and is estimated to be $4.9 million in FY 2022, 

and $4.2 million in FY 2023. 

Information Technology 

Information Technology (IT) funds Forest Service costs associated with information technology10, including 

cybersecurity requirements and telecommunications, and is managed by the Chief Information Officer (CIO) office. 

Current Activities 

The current IT investment strategy is driven by the Secretary’s direction to mitigate wildland fire and improve the 

conditions of national forests and grasslands by using innovative technology modernization11. The CIO office 

manages seventeen Enterprise Standard, Major, and Non-Major IT investments as directed by OMB and USDA 

capital planning and governance guidance. There are eight Enterprise Standard Investments that include the core IT 

service delivery functions and capabilities provided across the Forest Service. The Major and Non-Major 

Investments include the technical portfolios that support business processes and functions by mission area. Major 

and Non-Major Business Owners work through aligned Integrated Investment Teams that include CIO product 

owners and subject matter experts to develop lifecycle management and acquisitions plans that support technology 

modernization and standardization across the IT portfolio. Modernization efforts focus on sustaining legacy business 

applications while planning for modernization and migration to approved hosting environments. Modernization 

efforts follow the CIO Council and Department guidance and policy to improve agency practices related to the 

design, acquisition, development, modernization, use, sharing, and performance of Federal information resources. 

Specifically Addressed Areas 

IT includes costs based on definitions included in the Federal Information Technology Acquisition Reform Act 

(FITARA). Base funding primarily supports Operations and Maintenance, USDA Shared Costs (also referred to as 

Greenbook charges), and USDA Working Capital Fund costs. The Forest Service incorporates service consolidation 

into acquisition planning across the portfolio, coordinating with the Department to transition IT customer support 

functions to enterprise services managed by OCIO as part of Customer Experience Center consolidation. USDA has 

initiated technology cost reassessments with the agencies to right-size cost, baseline service level agreements, and 

realign cost with the Department. 

Selected Examples of Recent Progress 

IT Support for Wildland Fire Management. In FY 2021, IT improvements to interagency fire management enabled 

better communication and coordination with local, State, and other Federal partners. These efforts, as well as 

technological improvements to other resources such as unmanned aircraft systems, satellite-enabled wildland fire 

detection capabilities, etc., have significantly increased the effectiveness and efficiency of wildland fire fighting 

capability. 

IT Automation Tools for Employee Onboarding. In FY 2021, the Forest Service made significant investments in 

improving business processes and developing automation tools to reduce the timeline for onboarding new 

employees. 

Organizational Services 

Organizational Services funds costs associated with utility expenses, business services, and other administrative 

expenses necessary for the operation of multi-purpose facilities and personnel. Expenses include utilities, janitorial 

services, security for government-owned facilities, furniture, office move contracts, basic office materials, and 

supplies that support administrative and management employees. 

10 Information technology is defined in the Office of Management and Budget’s memorandum “Management and Oversight of 

Federal Information Technology (M-15-14). The memorandum is located at https://management.cio.gov/implementation/. 11 https://www.fs.usda.gov/news/releases/secretaries-haaland-and-vilsack-announce-implementation-new-pay-initiatives-wildland 

31 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Current Activities 

Organizational Services support administrative and management employees, as well as contract and interagency 

acquisition costs. Utility expenses encompass all Forest Service utility costs and include Energy Savings 

Performance Contracts12. Organizational Services also includes administrative services provided through the USDA 

Working Capital Fund (WCF) and external programs administered through USDA Departmental Shared Cost (also 

referred to as Greenbook charges) and Central Cost Distribution programs. USDA Shared Costs are for departmentwide initiatives authorized by the Office of the Secretary that are not already allocated to a USDA staff office (see 

Special Exhibit on page 198). 

Specifically Addressed Areas 

The Consolidated Appropriations Act, 2021 (Public Law 116-260) allowed for not more than $82 million in funds 

available to the Forest Service to be transferred to the USDA WCF and not more than $14.5 million in funds 

available to the Forest Service to be transferred to USDA for Greenbook charges. 

The USDA WCF is a financing mechanism that currently supports 17 activity centers across five department-level 

organizations. These centers provide services to all USDA agencies and many Federal entities outside USDA. 

Customers reimburse activity centers for the cost of services provided. The Forest Service works with the USDA’s

Chief Financial Officer office to review items included as Greenbook costs attributed to the Forest Service. 

Selected Examples of Recent Progress 

Procurement and Property Services Accomplishments. The Forest Service’s Procurement and Property Services 

(PPS) office is charged with contracting and procurement for the agency. In FY 2021, the agency awarded 27,670 

actions valued at $1.55 billion. These numbers represent 100 percent of requests from PPS mission partners. 

Highlights include: (1) multiple USDA-wide Blanket Purchase Agreements to facilitate streamlined, cost effective 

ordering of IT; (2) a variety of national contracts for incident support needs that enabled a successful incident 

response in FY 2021, including implementing bridge contracts to ensure continuity of support and adding surge 

capacity for incident support vendors to meet increased needs; (3) Created and implemented Acquisition Center of 

Excellence for strategic sourcing and category management; (4) Targeted buyer training in strategic sourcing and 

category management principles and created a repository for national contracts and common national procurements 

for consolidation, efficiency, and quantity discounts. 

In FY 2021, the Office of Grants and Agreements (OGA) implemented process improvements where all grants and 

agreements are approved based on USDA requirements. In FY 2021, the OGA processed more than 12,874 actions. 

In FY 2021, the grants and agreements staff processed 5,005 new awards and 7,869 modifications to existing 

awards. 

12 Energy savings performance contracts are partnerships between a federal agency and an energy service company that allow 

agencies to procure energy savings and facility improvements with no up-front capital costs or special appropriations from 

Congress. 

32 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

FOREST AND RANGELAND RESEARCH 

LEAD-OFF TABULAR STATEMENT 

Table FS-15. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Annualized CR, 2022............................................................................................................... 

.......................................................................................................... 

.............................................................................................................. 

$258,760,000 

Change in Appropriation +59,013,000 

Budget Request, 2023 317,773,000 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 

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

For necessary expenses of forest and rangeland research as authorized by law, [$313,560,000,]$317,773,000, to 

remain available through September 30, [2025]2026: Provided, That of the funds 

provided, [$17,621,000]$22,197,000 is for the forest inventory and analysis program: Provided further, That of the 

funds provided, [$3,000,000]$4,000,000 is for the Joint Fire Science Program[: Provided further, That of the funds 

provided, not less than $42,000,000 shall be for activities related to climate change, of which $37,000,000 shall be 

for climate research and $5,000,000 shall be for climate hubs]: 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. 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

Change Description 

The first change removes specific language for climate change funding. 

FOREST AND RANGELAND RESEARCH 

[For an additional amount for "Forest and Rangeland Research", $25,000,000, to remain available until expended, 

for necessary expenses related to the consequences of calendar year 2019, 2020, and 2021 wildfires, hurricanes and 

other natural disasters for the forest inventory and analysis program.] 

(Disaster Relief Supplemental Appropriations Act, 2022.) 

FOREST AND RANGELAND RESEARCH 

[For an additional amount for "Forest and Rangeland Research", $10,000,000, to remain available until September 

30, 2029, for the Secretary of Agriculture, acting through the Chief of the Forest Service, to carry out activities of 

the Joint Fire Science Program, as authorized in section 40803 of division D of this Act: Provided, That $2,000,000, 

to remain available until September 30, 2025, shall be made available for fiscal year 2022, $2,000,000, to remain 

available until September 30, 2026, shall be made available for fiscal year 2023, $2,000,000, to remain available 

until September 30, 2027, shall be made available for fiscal year 2024, $2,000,000, to remain available until 

September 30, 2028, shall be made available for fiscal year 2025, and $2,000,000, to remain available until 

September 30, 2029, shall be made available for fiscal year 2026: Provided further, That such amount is designated 

by the Congress as being for an emergency requirement pursuant to section 4112(a) of H. Con. Res. 71 (115th 

Congress), the concurrent resolution on the budget for fiscal year 2018, and to section 251(b) of the Balanced 

Budget and Emergency Deficit Control Act of 1985.] 

33 
 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

(Infrastructure Investments and Jobs Appropriations Act.) 

34 
 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-16. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Discretionary Appropriations: 

Salaries and Expenses ........................................ 

......................... 

............................ 

................ 

- - $200,419 1,374 $200,419 1,442 $215,576 1,442 +$15,157 - (1) 

Forest and Rangeland Research $228,000 1,010 40,720 47 40,720 - 80,000 - +39,280 - (2) 

Forest Inventory and Analysis 77,000 414 17,621 21 17,621 - 22,197 - +4,576 - (3) 

Total, Discretionary Appropriations 305,000 1,424 258,760 1,442 258,760 1,442 317,773 1,442 +59,013 -

Supplemental Appropriations: 

Disaster Relief Appropriations (P.L. 116-20) a .. - 2 - - - - - - - -

Coronavirus Relief Appropriations (P.L. 116-

136) b ............................................................... 3,000 1 - 4 - - - - - -

Disaster Relief Appropriations (P.L. 117-43) c .. - - - - 25,000 - - - -25,000 -

Infrastructure Investment and Jobs Act (P.L. 

117-58) d .......................................................... - - - - 2,000 - 2,000 - - -

Total, Supplemental Appropriations ............... 3,000 3 - 4 27,000 - 2,000 - -25,000 -

Total Appropriations ............................................. 308,000 1,427 258,760 1,446 285,760 1,442 319,773 1,442 +34,013 -

Transfers In: 

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

.................................. 

................................ 

........................................... 

- - - - 55,000 - 42,840 - -12,160 -

State and Private Forestry - - - - 4,020 - 4,020 - - -

Wildland Fire Management - - - - 7,000 - 3,490 - -3,510 -

Total, Transfers In - - - - 66,020 - 50,350 - -15,670 -

Transfers Out: 

Forest Service Operations .................................. 

........................................ 

.................................................. 

- - -413 - - - -2,150 - -2,150 -

Total, Transfers Out - - -413 - - - -2,150 - -2,150 -

Recoveries, Other 3,944 - 3,731 - 3,731 - 3,731 - - -

Balance Available, SOY ....................................... 

...................................................... 

....................................... 

8,845 - 14,206 - 10,388 - 20,229 - +9,841 -

Total Available 320,789 1,427 276,284 1,446 365,899 1,442 391,933 1,442 +26,034 -

Balance Available, EOY -14,206 - -10,388 - -20,229 -9,347 +10,882 -

Total Obligations .................................................. 306,583 1,427 265,896 1,446 345,670 1,442 382,586 1,442 +36,916 -

35 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

a P.L. 116-20 provided $1,000,000 for necessary expenses related to the consequences of Hurricanes Florence and Michael, and the calendar year 2018 wildfires. All remaining 

funds were obligated in FY 2021. 

b P.L. 116-136 provided $3,000,000 to prepare, prevent, and respond to coronavirus. Budget authority expired effective October 1, 2021. c P.L. 117-43 provided $25,000,000 to the Forest and Inventory Analysis program for necessary expenses related to wildfires, hurricanes, and other natural disasters that occurred 

between calendar years 2019 through 2021. 

d FY 2022 supplemental appropriations include disaster relief (P.L. 117-43) and advance appropriations in the Infrastructure Investment and Jobs Act (P.L. 117-58). FY 2023 

supplemental appropriations are entirely advance appropriations from the Infrastructure Investment and Jobs Act. See also the spend plans for advance appropriations on page 213. 

P.L. 117-58 provided $2,000,000 to the Joint Fire Science program each year from fiscal years 2022 through 2026. 

Table FS-17. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Discretionary Obligations: 

Salaries and Expenses ........................................... 

............................ 

............................... 

................................................. 

- - $193,647 1,374 $239,867 1,442 $280,430 1,442 +$40,563 -

Forest and Rangeland Research $198,836 1,010 49,058 47 60,767 - 71,044 - +10,277 -

Forest Inventory and Analysis 67,477 414 19,127 21 23,693 - 22,862 - -831 -

National Fire Plan 78 - 9 - 144 - - - -144 -

Forest Products...................................................... 

............... 

........................ 

- - - - 2 - - - -2 -

Forest and Rangeland Research – Other 39,255 - 1,049 - 447 - - - -447 -

Total, Discretionary Obligations 305,646 1,424 262,890 1,442 324,920 1,442 374,336 1,442 +49,416 -

Supplemental Obligations: 

Disaster Relief Appropriations (P.L. 116-20) a ..... 875 2 125 - - - - - - -

Coronavirus Relief Appropriations (P.L. 116-

136) b .................................................................. 62 1 2,881 4 - - - - - -

Disaster Relief Appropriations (P.L. 117-43) c ..... - - - - 18,750 - 6,250 - -12,500 -

Infrastructure Investment and Jobs Act (P.L. 117-

58) d .................................................................... 

........................ 

..................................................... 

........................................... 

- - - - 2,000 - 2,000 - - -

Total, Supplemental Obligations 937 3 3,006 4 20,750 - 8,250 - -12,500 -

Total Obligations 306,583 1,427 265,896 1,446 345,670 1,442 382,586 1,442 +36,916 -

Balances Available, EOY: 

Salaries and Expenses - - 5,777 - 2,283 - 1,319 - -964 -

Forest and Rangeland Research ............................ 8,550 - 3,243 - 9,573 - 6,570 - -3,003 -

36 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or Inc. or 

Actual FTE Actual FTE Resolution FTE Request FTE Dec. Dec. 

Forest Inventory and Analysis............................... 

................................................. 

...................................................... 

............... 

.................................................................. 

............. 

1,637 - 719 - 2,123 - 1,458 - -665 -

National Fire Plan 35 - 144 - - - - - - -

Forest Products 1 - 2 - - - - - - -

Forest and Rangeland Research – Other 920 - 447 - - - - - - -

Disaster Relief Appropriations (P.L. 116-20) a ..... 

...... 

.................................................................... 

........................... 

......................................................... 

............................................... 

................................................. 

....................................... 

................................

125 - - - - - - - - -

Coronavirus Relief Appropriations (P.L. 116-

136) b 2,938 - 56 - - - - - - -

Disaster Relief Appropriations (P.L. 117-43) c - - - - 6,250 - - - -6,250 -

Infrastructure Investment and Jobs Act (P.L. 117-

58) d - - - - - - - - - -

Total Balance Available, EOY 14,206 - 10,388 - 20,229 - 9,347 - -10,882 -

Total Available 320,789 1,427 276,284 1,446 365,899 1,442 391,933 1,442 +26,034 -

Less: 

Total Transfers Out - - 413 - - - 2,150 - +2,150 -

Recoveries, Other -3,944 - -3,731 - -3,731 - -3,731 - - -

Balance Available, SOY -8,845 - -14,206 - -10,388 - -20,229 - -9,841 -

Total Appropriations 308,000 1,427 258,760 1,446 285,760 1,442 319,773 1,442 34,013 -

a P.L. 116-20 provided $1,000,000 for necessary expenses related to the consequences of Hurricanes Florence and Michael, and the calendar year 2018 wildfires. All remaining 

funds were obligated in FY 2021. 

b P.L. 116-136 provided $3,000,000 to prepare, prevent, and respond to coronavirus. Budget authority expired effective October 1, 2021. 

c P.L. 117-43 provided $25,000,000 to the Forest and Inventory Analysis program for necessary expenses related to wildfires, hurricanes, and other natural disasters that occurred 

between calendar years 2019 through 2021. 

d P.L. 117-58 provided $2,000,000 to the Joint Fire Science program each year from fiscal years 2022 through 2026. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

JUSTIFICATIONS OF INCREASES AND DECREASES 

Salaries and Expenses: An increase of $15,157,000 from the FY 2022 annualized CR, which 

includes the following: 

a) An increase of $6,800,000, which includes $4,832,000 for pay costs and $1,968,000 for FERS for 2022 Pay and 

FERS. This increase supports the pay increase which went into effect January 1, 2022, of a 2.7 percent Cost of 

Living pay increases for civilian employees, and a 1.1 percent increase to cover the expenses for the mandated 

increase of USDA’s contribution to FERS.

b) An increase of $8,357,000 for 2023 Pay. This increase will support the annualization of the 2022 2.7 percent 

Cost of Living pay increase and the 2023 4.6 percent Cost of Living pay increase. These critical increases will 

allow Forest and Rangeland Research to maintain the workforce of scientists and technicians currently 

providing scientific information and new technology to support the sustainable management of the Nation’s

forests and grasslands and to advance understanding of climate change and the development of mitigation and 

adaptation solutions. Without this increase, a combination of mission-essential travel, training, and FTEs would 

be reduced, decreasing the agency’s ability to produce and provide natural resource science to Federal, State,

local, and Tribal governments to inform climate mitigation, adaptation, and resilience activities for land 

management. 

Forest and Rangeland Research: An increase of $39,280,000 from the FY 2022 annualized CR, 

which includes the following: 

This increase will partially restore losses in Forest and Rangeland Research funding that have occurred over the last 

five years. This funding increase will enable the Forest Service to continue to make progress in restoring and 

increasing investments in scientific research to address Administration priorities, including improving the 

understanding of climate change, increasing adaptation and resilience to climate change, and pursuing nature-based 

climate solutions. This includes research to inform ecosystem restoration to enhance carbon sequestration and 

storage and research to inform international climate adaptation and mitigation activities. This increase will also 

allow the Forest Service to invest more in studying wildfire risk management through strategic hazardous fuel 

reduction treatments and other climate adaptation and resilience strategies in forested ecosystems. 

a) Of this increase, $3 million will be applied to investments in targeted projects specifically addressing Forest 

Service national research priorities. These national research priorities include applied science to support shared 

stewardship and improve forest conditions, analysis of forest inventory and trends, enhancements to the 

wildland fire system, and innovations in wood products and their markets. 

With this increase, Forest and Rangeland Research will be able to maintain its collaborative work with partners 

in the scientific community and with Forest Service land managers to co-produce science that is directly 

relevant and applicable to the agency’s most pressing land management challenges. 

b) The Forest Service will contribute $4 million to the Joint Fire Science Program in FY 2023. Projects funded 

through the interagency Joint Fire Science Program provide critical science and technology to address the 

challenges of wildland fire. These projects also improve understanding of the effects of climate and climate 

change on wildland fire and enhance the ability of land management agencies to assess and manage fire risk 

effectively. 

c) The Forest Service will apply $25 million of this increase to research and science delivery related to climate 

mitigation, adaptation, and resilience. This increase will allow Forest and Rangeland Research to increase its 

scientific contributions in support of the Administration’s science-based approach to improving the climate 

resilience of forest and rangeland ecosystems. Relative to FY 2022, Forest and Rangeland Research will expand 

the scope and scale of research and science delivery programs related to reforestation, carbon sequestration, and 

carbon accounting, all of which are essential to informing climate adaptation and mitigation. 

This increase in funding for climate science will also strengthen fire and fuels research to advance the scientific 

knowledge needed to inform climate mitigation and adaptation strategies as increasingly hot, dry, and windy 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

conditions exacerbate the severity and frequency of wildfire throughout the Nation. This increased investment 

in fire and fuels research and science delivery will inform the Administration’s science-based approach to 

improving the resilience of forest and rangeland ecosystems to water stress from multiyear drought conditions 

and to protect watersheds, wildlife habitat, and the wildland-urban interface from the negative impacts of 

uncharacteristically severe wildfire. For example, this funding will accelerate the agency’s development and 

testing of science-based conservation investment planning tools to inform the targeted selection of sites for 

hazardous fuels treatments to optimize risk reductions to communities and structures from uncharacteristically 

severe wildfire associated with climate change. 

d) Of this increase, $3.2 million will be invested in restoring capacity for foundational research disciplines, 

including forest soils, air quality, hydrology, silviculture, genetics, and forest ecology, that are needed to 

discover and design innovative adaptation strategies to promote the resilience of forest and rangeland 

ecosystems to climate change. 

The Forest Service will dedicate a total of $4 million of this increase to raise program funding available to each 

of the five USDA Climate Hubs sponsored by the Forest Service: Northeast, Southeast, Northwest, Caribbean, 

and Northern Forests. The total Forest Service program funding available to these five Climate Hubs at the FY 

2021 Enacted levels was less than $500,000 combined. Climate Hubs provide region-specific research and 

science information synthesis, tool development, implementation assistance, and outreach to support robust 

agricultural production and natural resources under increasing conditions of climate variability and change. 

Additional funding for these five Climate Hubs will accelerate science production and technology transfer to aid 

land management agencies, private landowners, and agricultural producers, including foresters, with 

scientifically sound climate adaptation. When combined with the $2 million of salaries and expenses Forest 

Service Research will invest in Climate Hubs, the Forest Service investment in Climate Hubs will be $6 million. 

Forest Inventory and Analysis: An increase of $4,576,000 from the FY 2022 annualized CR, which 

includes the following: 

a) This increase will sustain current FIA program delivery, allow for additional soil carbon sampling to partially 

fill spatial and temporal gaps in soil carbon data and to harmonize this new soil carbon data with existing soil 

survey data from National Forests, and provide for investments in the FIA Program’s use of remote sensing

technologies (as directed in report language contained in Sec. 8632 of the 2018 Farm Bill). As the Nation’s

foremost continuous forest census covering all 50 States, the FIA program is critical to supporting the 

Administration’s priority of advancing climate science and facilitating public access to climate-related 

information that will assist Federal, State, local, and Tribal governments in climate planning and resilience 

activities. The FIA program also benefits States and industry, which rely on FIA data and analysis to inform 

forest management plans and to guide forest product infrastructure investment. A portion of this increase will 

fund partnership agreements and contracts with States to survey FIA plots and to assist with data analysis. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CLASSIFICATION BY OBJECTS 

Table FS-18. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

Personnel Compensation: 

Washington D.C.......................................................... 

.................................... 

.................................. 

$849 $4,884 $4,870 $5,002 

Personnel compensation, field 133,436 134,647 134,275 137,900 

11.0 Total personnel compensation 134,285 139,531 139,145 142,902 

12.0 Personal benefits ......................................................... 50,249 52,891 52,745 54,169 

Total, personnel compensation and benefits ............ 184,534 192,422 191,890 197,071 

Other Objects: 

21.0 Travel and transportation of persons........................... 3,346 1,799 3,765 4,542 

22.0 Transportation of things.............................................. 

............................................. 

........................................... 

1,727 1,192 2,495 3,010 

23.1 Rental payments to GSA 2,300 - - -

23.2 Rental payments to others 3,151 201 421 508 

23.3 Communications, utilities, and misc. charges ............. 7,954 154 322 389 

24.0 Printing and reproduction............................................ 318 70 147 177 

25.1 Advisory and assistance services ................................ 176 16 33 40 

25.2 Other services from non-Federal sources.................... 15,486 8,683 18,173 21,924 

25.3 Other goods and services from Federal sources.......... 23,799 14,365 30,067 36,270 

25.4 Operation and maintenance of facilities...................... 97 54 113 136 

25.5 Research and development contracts .......................... 35,582 27,556 57,674 69,576 

25.6 Medical care................................................................ 3 2 4 5 

25.7 Operation and maintenance of equipment................... 772 299 626 755 

26.0 Supplies and materials ................................................ 

................................................................... 

..................................................... 

............................ 

............................... 

................................................. 

.............................................................. 

................................................... 

........................................... 

5,031 3,270 6,844 8,256 

31.0 Equipment 5,503 2,201 4,607 5,557 

32.0 Land and structures 10 2 4 5 

41.0 Grants, subsidies, and contributions 16,761 13,608 28,481 34,359 

42.0 Insurance claims and indemnities 26 1 2 3 

43.0 Interest and dividends 2 1 2 3 

92.0 Undistributed 5 - - -

Total, other objects 122,049 73,474 153,780 185,515 

99.9 Total, new obligations 306,583 265,896 345,670 382,586 

DHS Building Security Payments (included in 25.3) .... 29 - - -

Position Data: 

Average Salary (dollars), ES Position......................... 

........................ 

................................

$184,834 $181,691 $186,597 $191,635 

Average Salary (dollars), GS Position $87,999 $89,256 $91,666 $94,141 

Average Grade, GS Position ....... 10.5 10.8 11.1 11.4 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

Forest Service Research and Development (R&D) produces innovative science and technology to support 

sustainable management of the Nation’s diverse forests and rangelands. Forest Service R&D programs include basic 

and applied research, inventory and assessment of forest resources, and science delivery and decision support. 

Forest and Rangeland Research 

Current Activities 

The national research priorities of Forest Service R&D are: 1) applied science to improve forest and grassland 

conditions, including science to inform adaptation to climate change and to enhance greenhouse gas mitigation 

through forest management; 2) forest inventory and trend analysis; 3) wood product and market innovations; and 4) 

enhanced prediction, planning, decision support, impact assessment, and recovery guidance for the wildland fire 

system. Forest Service R&D also conducts foundational research related to forest and grassland health, forest soils, 

air quality, hydrology, ecology, and silviculture. These research priorities and foundational research areas are 

aligned with Forest Service land management priorities and stewardship responsibilities. 

Science to inform natural resource management for climate-resilient landscapes is central to Forest Service R&D 

activities. Forest Service R&D produces authoritative information about the Nation’s forests and rangelands and

contributes to understanding climate impacts, including uncharacteristically severe wildfire. Forest Service R&D 

also delivers science to inform investments in climate mitigation and adaptation, such as prioritizing hazardous fuels 

treatments to mitigate wildfire risk. Forest Service R&D is also a key contributor to the USDA Climate Hubs.

13 

Specifically Addressed Areas 

Climate science to enhance adaptation and resilience in forest and grassland ecosystems. Forest Service R&D is 

exploring the effects of silvicultural treatments for climate change adaptation at multiple forest sites across the 

United States. These studies are informing new tools to understand and predict potential shifts in tree species 

distributions due to climate change and make it possible to update the Climate Change Tree Atlas14 and expand its 

coverage to the Western United States. Forest Service R&D is also using its network of Experimental Forests and 

Ranges to examine relationships among climate change and changes in ecosystem processes and to identify longterm implications of management activities, such as the effects of silvicultural practices on carbon storage. Recently 

published Forest Service national science syntheses provide managers with the latest science on forest and rangeland 

soils and invasive species in a changing climate, and science-based, climate-smart management opportunities. Forest 

Service R&D continues to develop science-based guidance about climate adaptation practices for natural resource 

managers, including recent guidance focused on wildlife and urban forests and health. Forest Service scientists have 

also made strides breeding trees resistant to insects and pathogens, such as ash and pine, being exacerbated by 

climate change. 

Partnership with USDA Climate Hubs. Forest Service R&D and the USDA Climate Hubs work with the National 

Forest System, States, and Tribes to identify site-specific adaptation actions and to support their incorporation into 

forest management plans. Forest Service scientists contribute to the Climate Hubs’ expansion of Drought Learning 

Networks15 and help produce guidebooks for farmers and foresters seeking to better prepare for and respond to 

hurricanes. Forest Service scientists, partnerships, and tools are featured on numerous USDA Climate Hub science 

delivery webinars. These webinars share knowledge, encourage collaboration among peers, and engage diverse 

groups of partners. They also serve as a communication tool to highlight extreme weather potential, including 

elevated wildfire risk, in specific geographic regions. Forest Service R&D works with the USDA Climate Hubs and 

diverse stakeholders spanning the agriculture and forest sectors, rural and urban areas, and public and private lands 

to better engage and serve communities, including underserved communities. 

13 Climate Hubs provide region-specific research and science information synthesis, tool development, implementation 

assistance, and outreach to support robust agricultural production and resilient natural resources under increasing climate 

variability and climate change. 14 https://www.fs.fed.us/nrs/atlas/tree/ 15 https://dln.swclimatehub.info/; https://caribbeanclimatehub.org/projects/caribbean-drought-learning-network/ 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Research to inform environmental justice and equity. Forest Service researchers, in particular social scientists, study 

environmental justice and equity. The Forest Service conducts research to understand how underserved communities 

access, use, or benefit from forests and natural resources. For example, recent studies by Forest Service researchers 

and partners offer insights into Latinx use and perception of Federal and State lands. Forest Service scientists also 

study land ownership, heirs’ property, and minority ties to the land. Forest Service researchers study environmental 

justice implications of management efforts. Recent research in this area includes developing methods for identifying 

underserved communities and understanding environmental justice impacts. 

Selected Examples of Recent Progress 

Data and tools to improve wildfire management. In February 2021, Forest Service scientists updated the national 

Wildland Fire Hazard Potential map16 using the most current vegetation data. This map informs risk reduction 

models of hazardous fuels treatments and supports wildland fire response systems. For example, the WildfireSAFE 

response tool is a web interface that integrates real-time data from multiple data sources, including fire hazard 

potential, drought conditions, satellite-derived vegetation conditions, and weather analysis to automatically analyze 

the fuels, terrain conditions, and values at risk in the surrounding area. Fire managers can view data for any active 

incident, compare active incidents within an area of interest, and capture observations about fire behavior. 

Forest Service research about pre-fire management planning processes also supports wildland fire response. For 

instance, recent research about potential control locations17 showed the extent to which forest roads are useful in fire 

operations response planning, accounting for 82 percent of fire holding features during a coordinated planning 

process. Additional research in FY 2021 produced new information about the vulnerability of communities to 

wildland fire, including a new spatial dataset of wildfire risk for populated areas in the United States, and a Fireshed 

Registry that uses information about community vulnerability as one of the datasets to inform the agency’s strategic 

placement of fuel treatments to reduce risk. In FY 2021, Forest Service scientists also produced studies and decision 

support tools to assess the effectiveness of techniques for post-fire flood mitigation and to identify likely locations of 

post-fire debris flows. 

Collaborative, participatory research with underserved communities. During FY 2021, Forest Service R&D and 

USDA Climate Hubs worked together with Tribes to investigate how climate change could affect various Tribal 

agricultural efforts and communities, as well as to assess priorities for post-fire rehabilitation of Tribal lands. 

Another recent example of collaborative research with the Stillmeadow Community PeacePark and Forest in 

Baltimore, Maryland demonstrates the value of working together to improve urban green spaces. In FY 2021, Forest 

Service R&D worked with Stillmeadow community members to transform an ecologically degraded, hazardous 

forest into a place of healing and resilience for the Baltimore community. Forest Service R&D provided best 

practices for urban reforestation, long-term monitoring and evaluation, empowering citizen stewards, and knowledge 

exchange through field visits, demonstrations, webinars, and multi-media content. 

Forest Inventory and Analysis Program 

Current Activities 

Forest Service R&D’s Forest Inventory and Analysis (FIA) program is the Nation's foremost continuous forest 

census covering all 50 States, and territories. Using nationwide statistically robust field surveys integrated with the 

latest geospatial technologies, including remote sensing, the FIA program produces data and products to monitor 

forest trends, disturbance, and climate impacts. The FIA program generates data on past, current, and projected tree 

numbers by species; the size and health of trees; tree growth, mortality, and harvest removals; loss of forested lands 

due to disturbances, such as hurricanes and wildland fires; extent of forest area including increases or decreases in 

forest land; wood production and utilization; and forest landownership. These data are needed to assess forest carbon 

stocks and changes over time. Working with State forestry agencies, universities, and other partners, FIA leverages 

one partner dollar for every six Federal dollars spent. 

16 https://usfs.maps.arcgis.com/home/item.html?id=55226e8547f84aae8965210a9801c357. Additional information at 

https://www.firelab.org/project/wildfire-hazard-potential. 17 Publication titled “Forest roads and operational wildfire response planning” available at https://www.fs.usda.gov/

treesearch/pubs/62189. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

43 

Specifically Addressed Areas 

FIA program data and products are fundamental to assessing forest carbon stocks and change. Using FIA data and 

enhanced peer-reviewed methodologies, the FIA program calculates authoritative estimates of carbon stocks and 

change on forest land, forest land conversions, trees outside of forests (such as urban forests and agroecosystems), 

and harvested wood products in the United States annually. These are submitted as a component of the United States 

National Inventory Report as required by the United States commitment to the United Nations Framework 

Convention on Climate Change, with additional estimation by FIA and partners providing carbon stock assessments 

for the United States Biennial Report. Current research includes investigation of carbon monitoring system designs 

for forest carbon assessments, in partnership with the National Aeronautics and Space Administration’s (NASA)

Carbon Monitoring System, as well as using FIA data to estimate carbon benefits from forest management activities 

at the landscape level. Forest Service scientists are also making progress to increase the resolution of harvested 

wood products information and related carbon estimates. 

FIA continues to inform forest management. Through partnerships and other national and regional efforts, FIA 

supports Federal, other public, and private land managers with authoritative information to aid management 

decisions. Contributions include producing the Landscape Change Monitoring System Data Explorer18, an 

interactive application designed to provide visualization and download of landscape change products and related 

geospatial data; contribute to the development and maintenance of LANDFIRE19, with one-third of the ground truth 

data points coming from FIA; updating national risk maps with the Forest Service Forest Health Assessment and 

Applied Science Team; and delivering and integrating forest inventory data with other tools such as the agency’s

Forest Vegetation Simulator20. 

Selected Examples of Recent Progress 

Insect and disease disturbances correlate with reduced carbon sequestration in forests. In FY 2021, using FIA data, 

researchers found that forests damaged by insects sequestered about 70 percent less carbon than undamaged forests. 

Those affected by disease sequestered 28 percent less carbon. In total, the damage currently being caused by insects 

and diseases across the contiguous U.S. is reducing the sequestration potential of America’s forests by roughly 50

million tons of carbon dioxide each year, the equivalent of emissions from more than 10 million cars. Science-based 

strategies to reduce the frequency and intensity of forest insects and diseases include enhancing forest health 

protection and preventing non-native insects and diseases from entering North America. 

Integrating FIA field survey data with remote sensing data increases the scope and precision of geospatial products 

for forestry. In May 2021, FIA launched the Big Data Mapping and Analytics Platform (BIGMAP)21. BIGMAP 

features an interactive mapping system that uses FIA data and auxiliary information to produce geospatial products 

of forest attributes. The goal of the project is to produce and share FIA data in a mapped format, allowing users to 

perform their own analyses. Another goal is to improve the precision of FIA estimates while maintaining plot 

confidentiality. FIA staff also released a geospatial showcase website. This public, user-friendly data hub22 hosts 

geospatial FIA data products such as the Forest Atlas of the United States; one-click State forest factsheets; the FIA 

DataMart application; and BIGMAP raster maps, including live tree aboveground biomass for multiple species, 

forest type groups, forest carbon pools, stand size class, and forest stocking, age, and height. 

Forest inventories making progress in Interior Alaska despite increasingly remote survey areas. The FIA program 

partnered with the State of Alaska and the NASA starting in FY 2015 to collect data on forest plots in Interior 

Alaska. FIA continued sending personnel to remote forest plots never visited and measured before where access is 

only possible by air. During the FY 2021 field season, FIA crews began to measure the third unit of Interior Alaska, 

the Southwest unit, which has an area equivalent to the State of Virginia and is scheduled to be completed in FY 

2022. 

18 https://apps.fs.usda.gov/lcms-viewer/ 19 https://landfire.gov/ 20 https://www.fs.fed.us/fvs/ 21 https://storymaps.arcgis.com/stories/c710684b98f54452804e8960d37905b2 22 https://fia-usfs.hub.arcgis.com/ 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATE AND PRIVATE FORESTRY 

LEAD-OFF TABULAR STATEMENT 

Table FS-19. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Annualized CR, 2022............................................................................................................... $267,180,000 

Change in Appropriation.......................................................................................................... +39,783,000 

Budget Request, 2023 .............................................................................................................. 306,963,000 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 

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

For necessary expenses of cooperating with and providing technical and financial assistance to States, territories, 

possessions, and others, and for forest health management, including for invasive plants, and conducting an 

international program and trade compliance activities as authorized, [$304,614,000]$306,963,000 to remain 

available through September 30, [2025]2026, as authorized by law[: Provided, That of the funds provided, not less 

than $29,000,000 shall be for activities related to climate change, of which $7,000,000 shall be for wildfire risk 

management and $22,000,000 shall be for climate resilience]. 

[Of the unobligated balances from amounts made available for the Forest Legacy Program and derived from the 

Land and Water Conservation Fund, $5,809,000 is hereby permanently cancelled from projects with cost savings or 

failed or partially failed projects: Provided, That no amounts may be cancelled from amounts that were designated 

by the Congress as an emergency requirement pursuant to the Concurrent Resolution on the Budget or the Balanced 

Budget and Emergency Deficit Control Act of 1985.] 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

Change Description 

The first change adds invasive plants. 

The second change removes specific language for climate change funding. 

The third change removes language cancelling unobligated balances from the Forest Legacy Program. 

STATE AND PRIVATE FORESTRY 

[For an additional amount for "State and Private Forestry", $50,000,000, to remain available until expended, for 

necessary expenses related to the consequences of calendar year 2019, 2020, and 2021 wildfires, hurricanes, and 

other natural disasters.] 

(Disaster Relief Supplemental Appropriations Act, 2022.) 

STATE AND PRIVATE FORESTRY 

[(Including Transfers of Funds)] 

[For an additional amount for "State and Private Forestry", $1,526,800,000, to remain available until September 30, 

2029: Provided, That $305,360,000, to remain available until September 30, 2025, shall be made available for fiscal 

year 2022, $305,360,000, to remain available until September 30, 2026, shall be made available for fiscal year 2023, 

$305,360,000, to remain available until September 30, 2027, shall be made available for fiscal year 2024, 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

$305,360,000, to remain available until September 30, 2028, shall be made available for fiscal year 2025, and 

$305,360,000, to remain available until September 30, 2029, shall be made available for fiscal year 2026: Provided 

further, That of the funds made available under this heading in this Act, the following amounts shall be for the 

following purposes in equal amounts for each of fiscal years 2022 through 2026-- (1) $718,000,000 for the Secretary 

of Agriculture, acting through the Chief of the Forest Service, to carry out activities for the Department of 

Agriculture, as authorized in sections 40803 and 40804 of division D of this Act;(2) In addition to amounts made 

available in paragraph (1) for grants to at-risk communities for wildfire mitigation activities, not less than 

$500,000,000 for such purposes;(3) Not less than $88,000,000 for State Fire Assistance; and(4) Not less than 

$20,000,000 for Volunteer Fire Assistance: Provided further, That amounts made available under this heading in this 

Act for each of fiscal years 2022 through 2026 may be transferred between accounts affected by the Forest Service 

budget restructure outlined in section 435 of division D of the Further Consolidated Appropriations Act, 2020 

(Public Law 116-94) to carry out the activities in support of this heading: Provided further, That up to 3 percent of 

the amounts made available under this heading in this Act in each of fiscal years 2022 through 2026 shall be for 

salaries, expenses, and administration: Provided further, That one-half of one percent of the amounts made available 

under this heading in this Act in each of fiscal years 2022 through 2026 shall be transferred to the Office of 

Inspector General of the Department of Agriculture for oversight of funding provided to the Forest Service in this 

title in this Act: Provided further, That such amount is designated by the Congress as being for an emergency 

requirement pursuant to section 4112(a) of H. Con. Res. 71 (115th Congress), the concurrent resolution on the 

budget for fiscal year 2018, and to section 251(b) of the Balanced Budget and Emergency Deficit Control Act of 

1985.] 

(Infrastructure Investments and Jobs Appropriations Act.) 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-20. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE Inc. or Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Discretionary Appropriations: 

Salaries and Expenses .............................. - - $51,308 324 $51,308 385 $65,091 418 +$13,783 +33 (1) 

Landscape Scale Restoration.................... $14,000 1 14,000 - 14,000 - 21,000 - +7,000 - (2) 

FHM - Federal Lands ............................... 56,000 244 15,485 11 15,485 - 22,485 - +7,000 - (3) 

FHM - Cooperative Lands........................ 44,000 77 30,747 6 30,747 - 36,747 - +6,000 - (4) 

Forest Stewardship Program .................... 21,000 50 11,902 2 11,902 - 17,902 - +6,000 - (5) 

Forest Legacy Program ............................ 63,990 22 - 5 - - - - - -

Community Forest and Open Space 

Conservation.......................................... 4,000 - 4,000 - 4,000 - 4,000 - - -

Urban and Community Forestry............... 32,000 45 31,910 1 31,910 - 31,910 - - -

International Programs ............................. 12,000 17 15,395 1 15,395 - 15,395 - - -

National Fire Capacity ............................. 82,000 52 73,433 - 73,433 - 73,433 - - -

Rural Fire Capacity .................................. 18,000 - 19,000 - 19,000 - 19,000 - - -

State and Private Forestry – Other ........... - - - 37 - - - - - -

Total, Discretionary Appropriations...... 346,990 508 267,180 387 267,180 385 306,963 418 +39,783 +33 

Mandatory Appropriations: 

Forest Legacy (Great American Outdoors 

Act)........................................................ - - 94,255 7 94,255 12 94,255 12 - -

Total, Mandatory Appropriations.......... - - 94,255 7 94,255 12 94,255 12 - -

Supplemental Appropriations: 

Disaster Relief Appropriations (P.L. 117-

43) a ....................................................... - - - - 50,000 - - - -50,000 -

Infrastructure Investment and Jobs Act 

(P.L. 117-58) b ....................................... 

..... 

................................... 

- - - - 305,360 53 305,360 161 - +108 

Total, Supplemental Appropriations - - - - 355,360 53 305,360 161 -50,000 +108 

Total Appropriations 346,990 508 361,435 394 716,795 450 706,578 591 -10,217 +141 

46 
 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE Inc. or Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Transfers Out: 

Department of the Interior........................ 

............... 

........................ 

...................... 

.............................. 

................................................... 

............................................... 

........................................ 

............................. 

............................................ 

........................................ 

............................. 

........................................ 

-55 - -187 - - - - - - -

Forest and Rangeland Research - - - - -4,020 - -4,020 - - -

Forest Service Operations - - -6,034 - -48,856 - -36,640 - +12,216 -

Office of Inspector General - - - - -1,527 - -1,527 - - -

Total, Transfers Out -55 - -6,221 - -54,403 - -42,187 - +12,216 -

Rescission - - -5,809 - -5,809 - - - +5,809 -

Sequestration - - - - -5,373 - - - +5,373 -

Recoveries, Other 16,365 - 24,686 - 24,686 - 24,686 - - -

Balance Available, SOY 62,559 - 65,806 - 75,368 - 168,391 - +93,023 -

Total Available 425,859 508 439,897 394 751,264 450 857,468 591 +106,204 +141 

Lapsing Balances -9 - -19 - - - - -

Balance Available, EOY -65,806 - -75,368 - -168,391 - -114,399 +53,992 -

Total Obligations 360,044 508 364,510 394 582,873 450 743,069 591 +160,196 +141 

a P.L. 117-43 provided $25,000,000 to the Forest and Inventory Analysis program for necessary expenses related to wildfires, hurricanes, and other natural disasters that occurred 

between calendar years 2019 through 2021. 

b FY 2022 supplemental appropriations include disaster relief (P.L. 117-43) and advance appropriations in the Infrastructure Investment and Jobs Act (P.L. 117-58). FY 2023 

supplemental appropriations are entirely advance appropriations from the Infrastructure Investment and Jobs Act. See also the spend plans for advance appropriations on page 213. 

P.L. 117-58 provides $305,360,000 each year from fiscal years 2022 through 2026. 

Table FS-21. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Discretionary Obligations: 

Salaries and Expenses ................................................... 

......................................... 

.................................................... 

............................................. 

- - $48,806 324 $44,485 385 $60,547 418 +$16,062 +33 

Landscape Scale Restoration $13,891 1 13,787 - 12,568 - 17,104 - +4,536 -

FHM - Federal Lands 45,007 244 15,606 11 14,225 - 19,360 - +5,135 -

FHM - Cooperative Lands 42,174 77 30,705 6 27,987 - 38,092 - +10,105 -

47 
 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or Inc. or 

Actual FTE Actual FTE Resolution FTE Request FTE Dec. Dec. 

Forest Stewardship Program ......................................... 

................................................. 

........ 

.................................... 

.................................................. 

.................................................. 

....................................................... 

................................ 

................................ 

20,064 50 11,833 2 10,786 - 14,680 - +3,894 -

Forest Legacy Program 63,659 22 2,459 5 2,241 - 3,051 - +810 -

Community Forest and Open Space Conservation 4,806 - 3,998 - 3,644 - 4,960 - +1,316 -

Urban and Community Forestry 30,948 45 31,866 1 29,046 - 39,532 - +10,486 -

International Programs 11,278 17 14,565 1 13,277 - 18,069 - +4,792 -

National Fire Capacity 81,636 52 75,276 - 68,614 - 93,385 - +24,771 -

Rural Fire Capacity 18,001 - 19,146 - 17,451 - 23,752 - +6,301 -

State and Private Forestry – Other 15,317 - 7,674 37 6,995 - 9,520 - +2,525 -

Total, Discretionary Obligations 346,781 508 275,721 387 251,319 385 342,052 418 +90,733 +33 

Mandatory Obligations: 

Forest Legacy (Great American Outdoors Act) ............ 

.................................... 

........... 

............. 

.............. 

...................................... 

............................................................. 

- - 87,908 7 80,014 12 109,054 12 +29,040 -

Total, Mandatory Obligations - - 87,908 7 80,014 12 109,054 12 +29,040 -

Supplemental Obligations: 

Disaster Relief Appropriations (P.L. 115-123) a 1,263 - 881 - 815 - - - -815 -

Disaster Relief Appropriations (P.L. 116-20) b 12,000 - - - - - - - - -

Disaster Relief Appropriations (P.L. 117-43) c - - - - 12,500 - 37,500 - +25,000 -

Infrastructure Investment and Jobs Act (P.L. 117-58) d - - - - 238,225 53 254,463 161 +16,238 +108 

Total, Supplemental Obligations 13,263 - 881 - 251,540 53 291,963 161 +40,423 +108 

Total Obligations 360,044 508 364,510 394 582,873 450 743,069 591 +160,196 +141 

Add back: 

Lapsing Balances .......................................................... 

................................................... 

......................................... 

.................................................... 

............................................. 

......................................... 

................................................. 

9 - 19 - - - - - - -

Balances Available, EOY: 

Salaries and Expenses - - 4,351 - 6,877 - 6,121 - -756 -

Landscape Scale Restoration 1,316 - 1,158 - 1,830 - 1,629 - -201 -

FHM - Federal Lands 3,394 - 1,611 - 2,546 - 2,266 - -280 -

FHM - Cooperative Lands 1,135 - 441 - 697 - 620 - -77 -

Forest Stewardship Program 890 - -209 - - - - - - -

Forest Legacy Program 37,984 - 45,705 - 72,235 - 64,298 - -7,937 -

48 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 

Continuing 

Resolution 

2023 

Budget 

Request 

FTE 

Inc. or 

Dec. 

Item 2020 

Actual 

2021 

Actual 

Inc. or 

FTE FTE FTE FTE Dec. 

Community Forest and Open Space Conservation........ 

.................................... 

.................................................. 

.................................................. 

....................................................... 

................................ 

............ 

........... 

.............. 

................................... 

................................................................. 

...................................................................... 

....................................................... 

.......................................................... 

............................................... 

........................................................ 

- - 65 - 103 - 92 - -11 -

Urban and Community Forestry 995 - 369 - 583 - 519 - -64 -

International Programs 1,068 - 2,360 - 3,730 - 3,320 - -410 -

National Fire Capacity 2,273 - 1,638 - 2,589 - 2,304 - -285 -

Rural Fire Capacity 12 - 76 - 120 - 107 - -13 -

State and Private Forestry – Other 15,082 - 10,641 - 16,818 - 14,969 - -1,849 -

Forest Legacy (Great American Outdoors Act) - - 6,347 - 10,031 - 8,928 - -1,103 -

Disaster Relief Appropriations (P.L. 115-123) a 1,657 - 815 - - - - - - -

Disaster Relief Appropriations (P.L. 117-43) c - - - - 37,500 - - - -37,500 -

Infrastructure Investment and Jobs Act (P.L. 117-58) d - - - - 12,732 - 9,226 - -3,506 -

Total Balance Available, EOY 65,806 - 75,368 - 168,391 - 114,399 - -53,992 -

Total Available 425,859 508 439,897 394 751,264 450 857,468 591 +106,204 +141 

Less: 

Rescission - - 5,809 - 5,809 - - - -5,809 -

Total Transfers Out 55 - 6,221 - 54,403 - 42,187 - -12,216 -

Recoveries, Other -16,365 - -24,686 - -24,686 - -24,686 - - -

Balance Available, SOY -62,559 - -65,806 - -75,368 - -168,391 - -93,023 -

Total Appropriations 346,990 508 361,435 394 716,795 450 706,578 591 -10,217 +141 

a P.L. 115-123 provided $7,500,000 for necessary expenses related to the consequences of Hurricanes Harvey, Irma, and Maria. b P.L. 116-20 provided $1,000,000 for necessary expenses related to the consequences of Hurricanes Florence and Michael, and the calendar year 2018 wildfires. All remaining 

funds were obligated in FY 2021. 

c P.L. 117-43 provided $25,000,000 to the Forest and Inventory Analysis program for necessary expenses related to wildfires, hurricanes, and other natural disasters that 

occurred between calendar years 2019 through 2021. 

d P.L. 117-58 provides $305,360,000 each year from fiscal years 2022 through 2026. 

49 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

JUSTIFICATIONS OF INCREASES AND DECREASES 

Salaries and Expenses: An increase of $13,783,000 and 79 full-time equivalents (FTE) from the FY 

2022 annualized CR, which includes the following: 

a) An increase of $1,434,000, which includes $1,019,000 for pay inflation and $415,000 for FERS for 2022 Pay 

and FERS. This increase supports the pay increase which went into effect January 1, 2022, of a 2.7 percent Cost 

of Living pay increases for civilian employees, and a 1.1 percent increase to cover the expenses for the 

mandated increase of USDA’s contribution to FERS. 

b) An increase of $2,349,000 for 2023 pay costs. This increase will support the annualization of the 2022 2.7 

percent Cost of Living pay increase and the 2023 4.6 percent Cost of Living pay increase. Without this increase, 

a combination of mission-essential travel, training, and FTEs would be reduced, and the agency will have 

diminished capacity to help sustain State and private forests, provide support to keep working forests intact, 

facilitate sound stewardship of lands across all ownerships on a landscape scale, and provide an avenue for 

nature-based climate solutions to enhance ecosystem and human community resilience to climate change. 

c) An increase of $10,000,000 for a total of 418 FTEs to support increased capacity to help sustain State and 

private forests, provide support to keep working forests intact, facilitate sound stewardship of lands across all 

ownerships on a landscape scale, and provide an avenue for nature-based climate solutions to enhance 

ecosystem and human community resilience to climate change. 

Landscape Scale Restoration: An increase of $7,000,000 from the FY 2022 annualized CR, which 

includes the following: 

a) An increase of $7,000,000 will support the competitive Landscape Scale Restoration grant program, which 

provides financial and technical assistance to State, private, and Tribal landowners to encourage collaborative, 

science-based restoration of priority forest landscapes. The program supports projects that align with the 

Administration’s priorities to reduce the risk of uncharacteristically severe wildfires, maintain or improve forest 

and rangeland ecosystem resilience, improve fish and wildlife habitats, maintain or improve water quality and 

watershed function, and mitigate invasive species, insect infestation, and disease. 

Forest Health Management - Federal Lands: An increase of $7,000,000 from the FY 2022 

annualized CR, which includes the following: 

a) $7,000,000 to address the effects of climate change on public lands and support the conservation priorities of 

the Administration. This increase will be used to support outcome performance measures for the America the 

Beautiful initiative and other climate resilience outcomes. The Forest Health Management-Federal Lands 

program will ensure healthy forests and functional landscapes, support to rural economies and underserved 

populations, and reduction in infestation risk to adjacent lands and communities. The additional funds will 

facilitate the expansion of performance measures which demonstrate the contribution and impact of forest 

health management activities on National Forest System and other Federal lands, and foster cross-boundary 

work. Additionally, the expanded budget will facilitate an increase in acres treated for the suppression and 

prevention of forest pests, diseases, and invasive plants. 

Table FS-22. Funding for selected insects, diseases, and invasive plants by Fiscal Year (thousands of dollars) 

RD - (Research Appropriation), SPF – (State and Private Forestry, 

Forest Health Appropriation) 2020 

Actual 

2021 

Enacted 

2022 

Budget 

Request 

2023 

Budget 

Request 

Asian Longhorned Beetle (Total) ................................................................... 

................................................................................................................. 

.................................................................. 

................................................................................................................ 

............................................................................. 

................................................................................................................ 

$120 $294 $300 $300 

RD 120 294 300 300 

Douglas-fir Tussock Moth (Total) 25 25 25 25 

SPF 25 25 25 25 

Emerald Ash Borer (Total) 1,648 1,530 1,900 2,050 

SPF 516 334 600 750 

50 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

RD - (Research Appropriation), SPF – (State and Private Forestry, 

Forest Health Appropriation) 2020 

Actual 

2021 

Enacted 

2022 

Budget 

Request 

2023 

Budget 

Request 

RD................................................................................................................. 

................................................................................................................ 

................................................................................................................. 

......................................................................................... 

................................................................................................................ 

................................................................................................................. 

................................................................... 

................................................................................................................ 

................................................................................................................. 

.................................................................................... 

................................................................................................................ 

................................................................................................................. 

.............................................................................................. 

................................................................................................................ 

................................................................................................................. 

....................................................... 

................................................................................................................ 

1,132 1,196 1,300 1,300 

Gold Spotted Oak Borer, Thousand Canker Disease, Laurel Wilt (Total). 1,120 903 1,100 1,250 

SPF 458 338 500 650 

RD 662 565 600 600 

Gypsy Moth (Total) 7,747 7,885 8,300 8,500 

SPF 7,426 7,610 8,000 8,200 

RD 321 275 300 300 

Hemlock Woolly Adelgid (Total) 2,623 2,625 2,900 3,400 

SPF 1,756 1,785 2,000 2,500 

RD 867 840 900 900 

Invasive Plants (Total) 3,966 3,778 3,900 4,400 

SPF 2,563 2,477 2,500 3,000 

RD 1,403 1,301 1,400 1,400 

Oak Wilt (Total) 660 707 790 890 

SPF 570 537 600 700 

RD 90 170 190 190 

Port Orford Cedar Root Disease (Total) 75 75 75 100 

SPF 75 75 75 100 

Sirex Woodwasp (Total) ................................................................................. 

................................................................................................................. 

.......................................................................... 

................................................................................................................ 

................................................................................................................. 

...................................................................... 

................................................................................................................. 

150 160 180 180 

RD 150 160 180 180 

Southern Pine Beetle (Total) 4,541 3,731 6,200 7,400 

SPF 4,250 3,540 6,000 7,200 

RD 291 191 200 200 

Subterranean Termites (Total) 1,000 1,025 1,100 1,100 

RD 1,000 1,025 1,100 1,100 

Sudden Oak Death (Total).............................................................................. 

................................................................................................................ 

................................................................................................................. 

......................................................................... 

................................................................................................................ 

................................................................................................................. 

......................................................................... 

................................................................................................................ 

................................................................................................................. 

...................................................................... 

................................................................................................................ 

................................................................................................................. 

.................................................................................................. 

........................................................................................................ 

.......................................................................................................... 

2,064 1,909 2,230 2,630 

SPF 1,780 1,700 2,000 2,400 

RD 284 209 230 230 

Western Bark Beetles (Total) 5,778 5,853 7,800 9,300 

SPF 4,123 4,190 6,000 7,500 

RD 1,655 1,663 1,800 1,800 

Whitebark Pine Pests (Total) 517 452 480 530 

SPF 155 196 200 250 

RD 362 256 280 280 

White Pine Blister Rust (Total) 435 317 390 415 

SPF 339 234 300 325 

RD 96 83 90 90 

Total Funding 32,469 31,269 37,670 42,470 

SPF Total 24,036 23,041 28,800 33,600 

RD Total 8,433 8,228 8,870 8,870 

Forest Health Management - Cooperative Lands: An increase of $6,000,000 from the FY 2022 

annualized CR, which includes the following: 

a) $6,000,000 to address the Administration’s priorities around climate adaptation and resilience and protection of

biodiversity on State and private lands as well as prioritizing identification and agreement on outcome 

performance measures for the America the Beautiful initiative and other climate resilience outcomes. The 

program will provide increased financial assistance to ensure that stewards of State and local public lands, and 

private forest partners, continue to have capacity to successfully manage their forested lands during this time of 

economic stress caused by the COVID-19 pandemic. The additional funds will facilitate the expansion of 

51 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

performance outcomes which demonstrate the contribution and impact of forest health management activities 

on State, Tribal, and private lands, and foster cross-boundary work. Additionally, the expanded budget will 

facilitate an increase in acres treated to prevent the spread of insects and disease and invasive plants. 

Forest Stewardship Program: An increase of $6,000,000 from the FY 2022 annualized CR, which 

includes the following: 

a) Most of the forest land in the United States is in private ownership. Landscape restoration, land retention, and 

landscape resilience to climate change cannot succeed without private forests. The Forest Stewardship Program 

provides planning and technical support to private landowners to help them manage their forests sustainably. 

Technical assistance supports private landowners to keep their forests as working forests. Financial support for 

activities to implement these plans increases the likelihood of keeping forests as forest land and increases the 

flow of public benefits and ecosystem services from private lands. These public benefits include wildland fire 

risk reduction, water security, and rural economic development achieved through local collaboration across 

public and private lands. This increase in funding will be allocated to State Forestry Agencies to engage directly 

with private forest landowners in areas of high value for climate resilience to support management activities on 

private forests. The Forest Service is committed to addressing the historic injustices experienced by minority 

landowners. State Forestry Agencies are encouraged to provide technical assistance to landowners from 

historically underfunded and marginalized communities facing persistent poverty. 

52 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CLASSIFICATION BY OBJECTS 

Table FS-23. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

Personnel Compensation: 

Washington D.C.......................................................... 

.................................... 

.................................. 

$2,745 $2,238 $2,556 $3,357 

Personnel compensation, field 47,685 38,880 44,406 58,320 

11.0 Total personnel compensation 50,430 41,118 46,962 61,677 

12.0 Personal benefits ......................................................... 

..................................... 

............ 

........................... 

.............................................. 

............................................. 

........................................... 

............. 

21,153 15,231 17,396 22,847 

13.0 Benefits for former personnel 175 - - -

Total, personnel compensation and benefits 71,758 56,349 64,358 84,524 

Other Objects: 

21.0 Travel and transportation of persons 1,858 405 681 865 

22.0 Transportation of things 629 391 658 836 

23.1 Rental payments to GSA 1,632 656 1,104 1,402 

23.2 Rental payments to others 1,187 7 12 15 

23.3 Communications, utilities, and misc. charges 1,649 31 52 66 

24.0 Printing and reproduction............................................ 

................................ 

.................... 

.......... 

...................... 

.......................... 

................................................................ 

................... 

................................................ 

................................................................... 

............................ 

............................... 

................................................... 

........................................... 

92 126 212 269 

25.1 Advisory and assistance services 124 4 7 9 

25.2 Other services from non-Federal sources 7,257 16,635 27,990 35,550 

25.3 Other goods and services from Federal sources 10,957 4,187 7,045 8,948 

25.4 Operation and maintenance of facilities 682 59 99 126 

25.5 Research and development contracts 17 6 10 13 

25.6 Medical care 12 1 2 2 

25.7 Operation and maintenance of equipment 136 47 79 100 

26.0 Supplies and materials 2,322 1,409 2,371 3,011 

31.0 Equipment 401 1,118 1,881 2,389 

41.0 Grants, subsidies, and contributions 259,265 283,079 476,312 604,944 

42.0 Insurance claims and indemnities 66 - - -

Total, other objects 288,286 308,161 518,515 658,545 

99.9 Total, new obligations 360,044 364,510 582,873 743,069 

DHS Building Security Payments (included in 25.3) .... 16 - - -

Position Data: 

Average Salary (dollars), ES Position......................... 

........................ 

....................................... 

$180,740 $178,999 $183,832 $188,795 

Average Salary (dollars), GS Position $92,640 $104,775 $107,604 $110,509 

Average Grade, GS Position 11.2 12.0 12.3 12.7 

53 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

Landscape Scale Restoration 

Current Activities 

The Landscape Scale Restoration (LSR) program funds competitive cross-boundary projects in high-priority rural 

landscapes by leveraging State, Tribal, and partner capacity with strategic Federal investments. The program helps 

ensure the Nation’s non-Federal forest lands continue to provide public benefits by supporting high impact 

landscape-scale projects that focus on priorities identified in State Forest Action Plans and deliver on-the-ground 

results. The program is a key contributor to delivering shared stewardship. 

Specifically Addressed Areas 

In FY 2021, the LSR program restored healthy, resilient landscapes and communities within State priority areas via 

$12.5 million in competitive grants to accomplish 54 projects in 41 States and 3 territories. This was a similar 

geographic reach as FY 2020 when $12.5 million in grants was awarded for 53 projects in 30 States and 2 territories. 

These projects include assistance for underrepresented minority and women landowners, with projects ranging from 

empowering women toward stewardship of Vermont’s forests through demonstration and career development and 

developing upland restoration techniques for Guam’s degraded southern watersheds. In FY 2021, the program

formalized a new Federal Directive, FSM 3800 Landscape Scale Restoration Program, which sets forth policy, 

responsibilities, and programmatic direction for the LSR program. The program also developed enhanced reporting 

standards in fulfillment of Congressional intent provided by the 2018 Farm Bill. 

Selected Examples of Recent Progress 

Willamette Valley Oak Collaboration (Oregon). The Willamette Valley Oak Collaboration project simplifies 

landowner access to planning and cost-share services to increase restoration of critical oak habitat. The project 

focuses on creating a landscape management plan that covers 575,000 acres of Willamette Valley oak and prairie 

habitat, an endangered forest ecotype in a fragmented high priority landscape. The project also supports 

collaboration across key State and Federal agencies to provide landowners with a simple menu of management 

actions that can be uniformly approved for cost-share as projects under one landscape management plan. This effort 

can reduce the per-acre cost of restoration across the landscape. As climate change transforms the landscape, 

drought tolerant oak forests are a resilience strategy to reduce future wildfire risk and improve wildlife habitat in the 

wildland-urban interface in the next 20 years. 

Restoring the Teton River Riparian Forest in Idaho. The Teton Watershed in southeast Idaho is a high priority 

landscape for habitat restoration and protection of at-risk fish and wildlife species due to urbanization and canopy 

loss that compromise riparian forest resilience, water quality, and watershed function. It is also home to one of the 

most ecologically significant systems for Yellowstone cutthroat trout, a species of special concern under threat 

throughout the West due to habitat degradation and climate change. The project focuses on restoring highly visible 

riparian lands along the upper Teton River within the Teton Valley Watershed, which are critical for sustaining 

native at-risk species and supporting southeast Idaho’s agricultural and recreation-based economy. In FY 2021, 

partners stabilized river channels through willow/cottonwood planting to reduce erosion and improve water quality 

and initiated development of riparian restoration management plans for Teton Creek and the Teton River. 

Forest Health Management on Federal Lands 

Current Activities 

Forest health management activities support ecological resilience, sustainable timber production, recreation 

opportunities, clean water, clean air, and robust economies. Threats from insects, diseases, invasive plants, hazard 

trees, and wildland fire are mitigated through efficient, effective forest health management. 

Specifically Addressed Areas 

The Forest Health Management on Federal Lands program (FHM-Federal Lands) helps the National Forest System 

and other actively managed Federal lands to suppress forest insects and diseases. FHM-Federal Lands’ work

includes technical assistance, suppression and prevention efforts, as well as long-term management strategies to 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

slow-the-spread of forest insects and diseases. FHM-Federal Lands program funds support forest insect and disease 

detection surveys and long-term monitoring activities that gather data on forest health conditions to inform 

management activities across Federal forested lands in the United States. 

Table FS-24. Acres treated to prevent the spread of native and invasive pests on Federal and non-Federal lands in 

FY 2021. 

Forest Health Management Activity Acres treated 

Native pests on Federal landsa 212,256 

Invasive pests on Federal landsa 589,908 

Native pests on non b -Federal lands 34,575 

Invasive pests on non-Federal landsb 539,829 

Total 1,376,568 

a Funded through Forest Health Management on Federal Lands 

b Funded through Forest Health Management on Cooperative Lands 

Selected Examples of Recent Progress 

Reducing Risk and Damage on National Forests. In FY 2021, FHM-Federal Lands staff worked with National 

Forest System partners to provide technical assistance, surveys, and forest health treatment funds to reduce forest 

susceptibility to insects and disease pests. This includes $3.5 million provided to National Forest System partners 

through the Western and Southern Pine Beetle programs. Treatments, such as forest thinning, promote forest health 

in a holistic manner that can reduce forest susceptibility to pests while also reducing wildland fire hazard. This is 

important as each of these disturbances are being amplified by climate change. 

Working Cross boundary for Watershed Protection. In FY 2021, projects in the Tahoe Basin in California increased 

resilience of forests to bark beetle infestations and wildfire. Within the Tahoe National Forest, 700 acres of forests 

were thinned to increase tree health, reduce risk of bark beetle impacts, and reduce hazardous fuel loads. Associated 

with this effort, a cross-boundary project in partnership with the Mooretown Maidu Tribe treated more than 200 

acres in the Sierraville area to improve forest and tree health and reduce the risk of wildfire and beetles. 

Forest Health Management on Cooperative Lands 

Current Activities 

Pest management methods are more effective in an all-lands approach. The Forest Health Management on 

Cooperative Lands (FHM-Cooperative Lands) program works with States, the District of Columbia, U.S. 

Territories, Freely Associated States, and other partners to provide technical and financial assistance to monitor, 

assess, and mitigate forest health threats on non-Federal lands before they spread to healthy forests. Investments in 

this program are typically matched dollar for dollar by partners. The Forest Health Assessment and Applied Science 

team produces the annual Forest Conditions Reports and the National Insect and Disease Risk Map (Risk Map) that 

characterizes and predicts forest pest mortality and damage across Federal, State, Tribal, and private lands. The 

current edition of the Risk Map, which covers 2013-2027, estimates that approximately 27 million acres across all 

lands could be affected by forest insects and diseases over the next five years depending on infestation rates and 

long-term weather patterns. These analysis projects help guide management focus and target areas designated for 

attention by Section 8204 of the Agricultural Act of 2014 (P.L. 113-79). 

The FHM-Cooperative Lands program works across landownership boundaries to reduce risk and improve forest 

conditions on landscape and watershed scales. The program produces data, analysis, and forest health condition 

reports to assist active forest management decisions and cross-boundary treatment plans with partners. The program 

is an example of shared stewardship: working with States and other partners to set priorities and co-manage risk; 

using science-based tools to target treatment investments; and focusing on landscape-scale outcomes using all active 

management tools. Program work also includes active coordination with the USDA Animal and Plant Health 

Inspection Service on forest pest activities in the form of monthly agency-to-agency coordination calls, peer-to-peer 

cooperation, and thorough collaboration on survey and monitoring efforts across the country. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Specifically Addressed Areas 

FHM-Cooperative Lands staff work in partnership with State land management agencies to conduct detection 

surveys across all forested lands. In FY 2020, COVID-19 halted annual aerial surveys by grounding flights which 

prompted use of alternative data sources in conjunction with manned aerial flights. In FY 2021, annual aerial 

surveys resumed with State partners and were supplemented to incorporate ground surveys, aerial photography, 

satellite imagery, and other remote sensing technologies. These efforts to pursue alternate technologies resulted in a 

total of about 300 million acres surveyed, compared to about 500 million acres surveyed prior to COVID-19 

restrictions, which showed areas in the western U.S. with substantial pest activity driven by expansive dry 

conditions and climate change. The implementation of new approaches to surveying has helped reduce flight hours, 

thus reducing risk of surveyor exposure to hazardous aviation missions in small, fixed-wing aircraft. The Forest 

Service has launched an effort to build a strategy for the improved integration of ground, aerial, and remotely sensed 

data sources to shape the future of the Nation’s forests. 

Selected Examples of Recent Progress 

Sudden Oak Death in Oregon and California. The FHM-Cooperative Lands program continues to support Sudden 

Oak Death (SOD) detection and containment efforts with $1.55 million in FY 2021 implementation funds provided 

to support State and county-level efforts. Treatments to reduce SOD spread were supported with FHM-Cooperative 

Lands program funds for multiple land ownerships with the majority (71 percent) applied to private lands. In FY 

2021, a SOD positive detection occurred outside the quarantine area in California. This information led to extending 

the quarantine zone to include Del Norte County, bringing the total to 16 SOD counties in the State. FHMCooperative Lands funding to support detection, treatments, and education have been critical to slow the rate of 

spread of this disease. Since 2001, the joint efforts of FHM and the State have attained over 7,800 acres in 

containment treatments. 

Expanded Partnership to Address Emerald Ash Borer. Emerald Ash Borer (EAB) continues to impact ash trees in 

both urban and rural forests. It is now found in 35 states and the Forest Service is working with State partners to help 

communities deal with the impacts of this invasive beetle. In the northeast, the Forest Service provided $125,000 

total to Minnesota, New Jersey, and Maryland to utilize an integrated pest management approach to reduce 

populations and impacts. High value and ecologically significant ash trees were targeted with insecticide treatments, 

and biocontrol organisms were utilized to reduce populations of EAB. The Forest Service is also conducting surveys 

and implementing adaptive management in culturally significant ash forests with the Saint Regis Mohawk Tribe. 

This ongoing project involves multiple partners, including the Tribe, USDA Animal and Plant Health Inspection 

Service, and the New York State Department of Environmental Conservation. It leverages several projects to 

maximize implementation of EAB treatments on Tribal lands and nearby State lands in easement with the Tribe. 

Cooperative Partnership to Fight Invasive Plants in Idaho. In FY 2021, the cooperative invasive plant program 

worked with the Idaho State Department of Agriculture, Nez Perce Bio-Control Center, Idaho Association of Weed 

Control Superintendents, Idaho Cooperative Weed Management Areas, Idaho Noxious Weed Control Association, 

County Weed Control Departments, private landowners, and other Federal agencies to plan and implement strategies 

for early detection and eradication of newly established weeds. In total, nearly 3,000 acres of invasive plants were 

treated and over 18,000 acres were surveyed. These efforts helped to prevent new introductions and control 

established weed populations, resulting in the restoration of these weed-infested lands to healthy and productive 

conditions. 

Program Evaluations 

Beginning in 2020 and throughout 2021, FHM staff worked with the National Association of State Foresters 

(NASF) to develop a set of performance metrics to better illustrate the full range of impact by the FHM program. 

For many years the program has expressed its accomplishments in the form of “acres treated” alone. However, forest 

health programs have made great progress on targeting treatments through improved survey and monitoring, 

application technology, and pesticide management. Forest health programs also use education and outreach to 

engage landowners and the public in behaviors that help reduce the need for treatment, such as preventing spread of 

invasive species. To better represent the work and accomplishments achieved by forest health programs, a new set of 

performance metrics that encompass forest health treatments, survey and monitoring, as well as education and 

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outreach were developed jointly with NASF. Implementation guidance is currently being developed between the 

Forest Service and the States, and the metrics will be implemented in FY 2022. 

Forest Stewardship Program 

Current Activities 

Actively managed State and private forests provide timber, wildlife habitat, watershed protection, recreational 

opportunities, carbon sequestration, and many other benefits for communities and the Nation. Families and 

individuals make decisions impacting the sustainability of 39 percent of all forest land in the United States, with 300 

million acres of forests privately owned by family landowners. The Forest Stewardship Program focuses on active 

management and conservation, providing non-industrial private forest landowners with comprehensive technical 

assistance, forest management plans, and tools to access other Federal, State, and private programs that deliver onthe-ground results in sustaining the productivity, health, and resilience of their land and forest resources. The 

program works at meaningful scales to address key resource issues (fire, water, jobs, and wildlife habitat) identified 

in State Forest Action Plans. The program creates jobs in rural communities by sustaining local forest product 

markets and increasing demand for qualified private forestry consultants, loggers, and State agency field foresters. 

Specifically Addressed Areas 

Assistance offered through the program provides landowners with access to multiple services and incentives, such as 

USDA conservation programs, forest certification programs, forest product and ecosystem service markets, and tax 

incentives that can help landowners maintain their forests and the benefits the Nation receives from them. The 

Forest Service maintains longstanding partnerships to coordinate and streamline technical assistance and address 

diverse landowner needs. Program staff collaborate with partners on market development to support landowners. 

Supporting market opportunities, including participation in emerging carbon markets or payments for forest 

watershed services, supports rural economic development, mitigates the effects of climate change, and promotes 

healthy, climate resilient forests. Landowners with access to markets are more likely to keep their forests as forests 

rather than convert the land to other uses. See the Biomass and Wood Innovations Special Exhibit for additional 

information on wood products, energy, and markets. 

Selected Examples of Recent Progress 

Partnerships to Educate and Engage Woodland Owners: Education is the first step in development of a longterm relationship with landowners that can ultimately lead to healthier, more sustainable and resilient forests. 

Through strategic partnerships, the Forest Stewardship Program educates woodland owners to improve 

management of private forest lands for public benefits, including the protection of wildlife habitat and water 

quality. In FY 2021, the program partnered with the National Woodland Owners Association to highlight 

conservation successes in their educational publications and digital outreach, focusing on the experiences of 

women and historically underserved landowners to engage new and historically marginalized landowners in 

conservation. The agency partnered with the American Forest Foundation and the Nature Conservancy to pilot 

the Family Forest Carbon Program in Pennsylvania, West Virginia, and Maryland to empower America’s rural

family forest owners to improve forest health while addressing climate change. In FY 2022, this program will 

enroll landowners with as few as 30 acres of forestland to tap into carbon markets and keep forests healthy and 

connected. The Forest Stewardship Program also supported a national Timber Tax website to help experienced 

and new forest landowners navigate tax planning associated with timber harvesting. 

Grant Making: In FY 2021, Forest Stewardship Program grants were provided in support of partners and 

projects to provide technical assistance to women landowners, African American landowners, Hispanic and 

Latinx landowners, and to conduct agroforestry projects with Tribes and in high poverty communities to 

increase economic opportunities and promote sustainable natural resource management. Examples include: 

• The Women Owning Woodlands Network operated by the Forest Stewards Guild is conducting 

extension education research about knowledge gaps and preferred outreach and training methods to 

serve minority and other underserved women landowners. Agency support enables the network to host 

virtual conferences, leadership training, and direct technical assistance provided by certified foresters. 

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Women landowners are a rapidly growing segment of forest land ownership23, comprising over 20 

percent of private forest landowners. Within this group, many have inherited land from a deceased 

spouse and are new to making financial and resource management decisions about the land. Enabling 

continued generational ownership is critical to sustaining the long-term health, integrity, and 

sustainable management of private forestlands. 

• The Quivira Coalition and Southwest Agricultural Action Network received FY 2021 program support 

to develop educational materials and training for southwestern Tribal entities and natural resource 

professionals interested in or practicing agroforestry. This project highlights examples of Indigenous 

agroforestry in the Southwest to meet the demands of climate change across the region while uplifting 

the cultural relevance of agroforestry practices. Materials focus on windbreaks, riparian buffers, 

silvopasture, and forest farming by utilizing case studies featuring southwestern Tribal-led 

agroforestry initiatives. Testimonial videos center Tribal partners who tell their stories in their own 

way. Outreach tools, including 508 compliant Spanish/English information sheets, webinars, and a 

podcast, support technical assistance delivery to revitalize indigenous agroforestry in the Southwest. 

• With program support, Future Generations University in West Virginia is developing technical 

assistance materials for landowners in central and southern Appalachia to incorporate trees, shrubs, 

and other plants in riparian forest buffers to provide an additional source of income. Landowners are 

taught to cultivate species like sycamore and black walnut that can produce syrups, and elderberry and 

nettles for culinary and herbal production within riparian buffers that protect vital water resources. 

The project introduces farmers and landowners to incentives beyond the one-time funds for riparian 

buffer protection through programs such as the Conservation Reserve Enhancement Program 

administered by the USDA Farm Service Agency. Too often, farmers see riparian buffer protection for 

reduced sedimentation and livestock exclusion as a loss of productive land and therefore undesirable. 

This project helps Appalachian farmers and landowners realize the economic potential of their riparian 

buffer zones in the long term while supporting conservation practices that protect water resources. 

Program Evaluations 

In FY 2021, the Forest Stewardship Program implemented recommendations made by a team of Forest Service staff 

and State partners to modernize the program. Modernization has focused Federal assistance on geographic priority 

areas and incentivizes performance. Using their State Forest Action Plans and Forest Stewardship Program 

priorities, States selected areas to target their Federal program funds. These areas are called Federal Investment 

Areas, and over 250 million acres were identified for prioritization. States now spend Federal program funding in 

prioritized Federal Investment Areas. Funding is allocated to State partners based on performance and program 

potential, and monitoring data is collected to show the on-the-ground results of technical and planning assistance. 

Forest Legacy Program 

Current Activities 

The Forest Legacy Program (FLP) protects critical forest landscapes threatened by land conversion through 

conservation easements and fee-simple purchases in partnership with State agencies and private landowners. The 

program does not add to the Federal estate. Purchase of conservation easements assist landowners to conserve and 

actively manage private working forests. Fee acquisitions by States create or add to State forests, State parks, and 

State wildlife management areas securing public benefits, including recreational access. This locally driven, 

nationally scaled program is a key contributor to the Administration’s goal to conserve 30 percent of America’s

lands and waters by 2030. 

The FLP is funded by the Land and Water Conservation Fund (LWCF) Act. The LWCF Act was amended in August 

2020, by the Great American Outdoors Act (GAOA) (P.L. 116-152) which provides up to $900 million in 

mandatory funding annually for all Federal land acquisition and State land acquisition and easement programs 

across the Forest Service and the Department of the Interior. This mandatory funding first became available in FY 

2021, and the Forest Service received $94,255,000 for FLP projects and program administration. 

23 https://doi.org/10.1371/journal.pone.0256654 

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Specifically Addressed Areas 

Conservation across landscapes and ownerships is essential to addressing large-scale conservation issues, including 

watershed protection, reduced wildfire risk, and protection of at-risk species. Intact working forests provide clean 

drinking water, store and sequester carbon, protect wildlife habitat and biodiversity, and offer recreation access. 

Conserving working lands supports local, regional, and national economies. To select projects for funding, FLP uses 

a two-tiered competitive process at both the State and national levels. To date, FLP has conserved nearly 3 million 

acres, including 79,299 acres in FY 2021. Historically, FLP leverages more than one dollar for every Federal dollar 

spent. 

Selected Examples of Recent Progress 

Ceylon (GA): A fee acquisition completed in FY 2021 conserves 12,500 acres of coastal forestland with spectacular 

waterfront vistas. The 12,500-acre project will be managed as a Wildlife Management Area and publicly accessible 

to outdoor enthusiasts. The project serves as a critical buffer to the Naval Submarine Base Kings Bay, as well as 

Cumberland Island National Seashore and includes nearly 1,500 acres of maritime forests which are important for 

wildlife habitat, water percolation (the movement of water through soil), erosion control, and buffering from storm 

events. This area is home to multiple game species, at least 10 Federally listed, candidate, or petitioned species, and 

24 State-protected, rare, or species of concern, including four viable gopher tortoise populations, wood stork, Florida 

manatee, and bald eagle. 

Lost Trail (MT): A conservation easement completed in FY 2021 conserves over 7,000 acres of highly productive 

Weyerhaeuser timberland in northwest Montana and critical wildlife habitat. The project protects grizzly bear and 

Canada lynx, threatened species found on the property, two large elk herds, and an important wildlife corridor. 

Wolves naturally recolonized the project area in 1989, six years before they were reintroduced into Yellowstone 

National Park and Idaho. The project complements the adjacent 7,965-acre Lost Trail National Wildlife Refuge, 

4,093 acres of Natural Resources Conservation Service-held Wetland Reserve Program easements, and the nearby 

142,200-acre Thompson-Fisher Forest Legacy Conservation Easement. The project enables Weyerhaeuser to 

continue sustainable forest management, sustain wood-products jobs, protect wildlife habitat and a key landscape 

connectivity corridor, and provide permanent public access to recreation lands for hunting, hiking, and 

birdwatching. 

Program Evaluations 

In FY 2021, the agency worked with State partners to evaluate capacity gaps and barriers that impact program 

delivery. States are partnering with the agency to expand and accelerate implementation of high quality and strategic 

conservation projects by improving staff expertise through peer-to-peer learning, improving project readiness, and 

expanding partner capacity. In FY 2021, the agency approved a GAOA staffing plan that adds 15 full time 

equivalents to the FLP across the Nation. This additional capacity will enable the agency to bridge capacity gaps in 

program oversight and technical assistance provided to State partners, increasing overall delivery capacity for 

projects. To fulfill an expanded program under GAOA, the program increased the project request cap to $20 million 

per State, which takes effect for the FY 2022 and FY 2023 request for proposal cycles. The program also increased 

communications to Congress and program stakeholders through LWCF stakeholder listening sessions and 

Department-level reporting on GAOA performance. 

Community Forest and Open Space Conservation 

Current Activities 

The Community Forest and Open Space Conservation Program (CFP) provides financial assistance grants for 

acquiring and establishing working community forests that provide public benefits. CFP was authorized in 

2008, and the first grants were awarded in FY 2012. Projects are selected through a competitive process that 

evaluates community benefits, contribution to landscape conservation initiatives, and likelihood of land 

conversion. 

Specifically Addressed Areas 

CFP works directly with local governments, Tribes, and qualified nonprofit organizations to acquire and 

establish working community forests. These areas provide public benefits such as clean drinking water, 

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wildlife habitat, public access and recreation opportunities, economic benefits from timber and non-timber 

products, and educational opportunities to local communities. In FY 2021, the agency awarded 10 new grants 

to communities in 9 States, totaling over 2,000 acres. Since the first grant in FY 2012, the program has 

protected 24,900 acres. 

The Forest Service updated its regulations governing CFP to ensure that the regulations align with the intent and 

purposes of the authorizing legislation. The final rule was published in the Federal Register on April 2, 202124. The 

revisions allow CFP grant recipients to convey or encumber an interest in community forest land to other eligible 

entities with approval from the Forest Service. The rule also improves Tribal governments’ access to the program by 

eliminating the separate cost share and grant requirements, thus advancing racial equity. Finally, the rule clarifies the 

definitions of program-specific terms, streamlines the application process, and implements the Office of 

Management and Budget’s Uniform Administrative Requirements, Cost Principles, and Audit Requirements for 

Federal Awards. The final rule became effective on May 3, 2021. 

Forest Service-funded research25 examined the contributions of CFP to healthy, flourishing communities by 

identifying and expanding on the values provided by community forests, including access to amenities for 

recreation, education, and tourism; offer forest-based products (e.g., timber, maple syrup, and firewood); produce 

forest-based services (e.g., carbon sequestration, habitat, fire risk mitigation, and water quality); and foster economic 

development opportunities by bolstering the recreation economy and enhancing property value. The report and case 

studies document the wide-ranging economic, social, and conservation benefits of 17 community forests in 12 States 

and Puerto Rico supported through CFP. For example, the Stemilt-Squilchuck Community Forest in Washington is a 

water provider that safeguards the productivity of orchards responsible for $76 million in economic output, 1,000 

seasonal jobs, and 34 million pounds of cherries annually. In Hawaii, the Amy B. H. Greenwell Ethnobotanical 

Garden Community Forest educates the public about Hawaiian cultural traditions of land use and plants and 

conserves the plant resources of traditional Hawaiian cultural activities. During the COVID-19 pandemic, the 

Catamount Community Forest in Vermont was utilized as an outdoor classroom to host outdoor nature camps, K-12 

after-school programs, and university field studies providing safe opportunities for social development and learning. 

Selected Examples of Recent Progress 

Huntington Community Forest (VT). The Town of Huntington, Vermont acquired 245-acres of strategic forestland 

to create the Huntington Community Forest through CFP funding in FY 2021. This community forest is located 

directly in Huntington’s Lower Village with frontage on the Huntington River and has good access and parking 

opportunities. The forest has trails for hiking, snowmobiling, and mountain biking, and offers direct opportunities 

for education as it is located immediately adjacent to the local public elementary school, Brewster-Pierce Memorial 

School. It includes 2.7 acres donated by neighboring landowners along the Huntington River to preserve a key part 

of the Huntington Valley Trail and permanent protection of the river corridor and its floodplain. This project also 

helps the town maintain scenic views and outdoor recreation opportunities that attract visitors to the area and support 

the local economy. 

Hall Mountain Community Forest (Eastern Band of the Cherokee Indians). In FY 2021, the Eastern Band of the 

Cherokee Indians (EBCI) purchased 20.3 acres of forested land to add to the original 108.14-acre tract obtained by 

the EBCI through CFP funding in 2013. The phase II acquisition connects the community forest to the Little 

Tennessee River and is historically and culturally significant forest land which has been shaped by thousands of 

years of use and will allow for the continuation of traditional use and forest management that fits the values of 

Cherokee land stewardship. The project will support infrastructure for recreation, interpretation, and an envisioned 

eagle aviary complex, as well as management for rivercane stands, white oak, and hickory for artisan needs. The 

river frontage will enable additional water and aquatic organism monitoring, as well as potential recreational access 

points. 

24 https://www.federalregister.gov/documents/2021/04/02/2021-06757/community-forest-program. 25 “Community Forests: A path to prosperity and connection” https://www.tpl.org/community-forest-economic-case-studies 

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Urban and Community Forestry 

Current Activities 

The Urban and Community Forestry (UCF) program is the only dedicated urban forest program in the Federal 

government to conserve, protect, and enhance trees across various landownership types. UCF is a technical, 

financial, and educational assistance program, delivering nature-based solutions for climate and environmental 

justice, and green jobs and training where more than 84 percent of Americans live, work, and play. The 

program is delivered in partnership with 63 State and territory forestry agencies, more than 30 national 

partners, and more than 150 community tree groups. 

Specifically Addressed Areas 

The Forest Service works with State forestry agencies and other partners to support science-based management 

of urban and community forest resources in all 50 States, the District of Columbia, U.S. Territories, and 

affiliated Pacific Island Nations. In FY 2021, the program assisted more than 7,168 communities to better manage 

their trees to produce public benefits. With limited exceptions, the program requires a 1:1 match to Federal 

funds, but this value is often far exceeded. According to a 2021 study by the Arbor Day Foundation, urban and 

community trees provide a $73 billion benefit to society from environmental benefits, including carbon 

sequestration, reduced air pollution, and reduced storm water runoff.

26 

Selected Examples of Recent Progress 

Addressing Urban Forest Health. In FY 2021, the UCF appropriation included $2.5 million to restore urban 

forests due to catastrophic losses from forest pests and build climate change resiliency. In partnership with the 

National Association of State Foresters (NASF) Urban Forestry Committee, the State Urban Forest Resilience 

Program (SUFR) competitively awarded funds to 18 recipients across 20 States. Selected projects will leverage 

over $2.5 million in matching funds to improve the health and resilience of urban forests, remove hazardous 

trees, improve resident safety, and provide critical access to green spaces and urban canopy for diverse 

communities across the nation. Fifteen projects will specifically help communities respond to and recover from 

emerald ash borer infestations. Customer service and accountability processes were built into the design of the 

competitive process, with project monitoring schedules, a process improvement review, and a new online 

portal for project proposal submissions. 

Five Star and Urban Waters Restoration Program. In FY 2021, UCF completed a five-year agreement with 

National Fish and Wildlife Foundation to manage the Five Star and Urban Waters Grant Program, a publicprivate partnership to provide grants to address water quality issues in priority watersheds, such as erosion due 

to unstable streambanks, pollution from stormwater runoff, and degraded shorelines caused by development. 

The agreement resulted in 170 projects totaling over $6 million in awarded funding and matched by grantee 

contributions valued at $13 million for a total conservation impact of over $19 million. These 170 projects 

engaged over 500,000 people, restored more than 8,000 acres of habitat, and planted nearly 90,000 trees. Over 

60 percent of the funds supported environmental justice and underserved communities through community 

partnerships, job programs, and environmental education and engagement. 

Program Evaluations 

In FY 2020, the UCF program began to improve the UCF Federal and State workforce transition processes and 

associated materials. The National State and Private Forestry program reviews identified that lack of knowledge 

transfer to new hires resulted in inconsistencies within foundational program guidance, authorities, and performance 

responsibilities. In response, in FY 2021, the National UCF program established a national Federal-State working 

group of UCF program managers and coordinators to assess and update national performance definitions on the 

required Community Accomplishment Reporting System (CARS) database. These updates were approved by the 

Forest Service and National Association of State Foresters (NASF) and were incorporated into National UCF 

program guidance documents and allocation methodology language. 

26The Economic Footprint and Quality-of-Life Benefits of Urban Forestry in the United States at 

https://www.arborday.org/urban-forestry-economic/ 

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States submitted updated 10-year State Forest Action Plans in FY 2021. These stakeholder engagement processes 

provided a new lens and guidance for UCF program collaboration and program delivery. The UCF program also 

partnered with NASF to solicit feedback and conduct an after-action review of awarded State Urban Forest 

Resilience funds to ensure continuous process improvements in equity and efficiency. In addition, the UCF program 

identified national external partnership programs that closely align with UCF program delivery for consistency in 

project materials and participation requirements. For instance, in partnership with the Arbor Day Foundation, UCF 

is convening a joint working group to advise and formulate a 3–5-year strategic plan for TreeCity USA, a program 

which receives UCF funding for technical and education assistance to communities across the Nation. 

International Programs and Trade Compliance 

Current Activities 

Forest Service International Programs and Trade Compliance promotes sustainable forest management globally and 

brings important technologies and innovations back to the United States. The program represents the interests of the 

entire U.S. forestry community and its stakeholders through international engagement. Effective forest management 

at the global level is necessary to protect American trade interests, such as the ability of domestic timber producers 

to compete on a level playing field, and to ensure the sustainability of critical domestic and global natural resources. 

Specifically Addressed Areas 

International Programs and Trade Compliance provides technical assistance to other countries to combat illegal 

logging, which costs the U.S. forest products industry an estimated $1 billion annually due to lost export 

opportunities and depressed wood prices. International Programs and Trade Compliance also improves the 

management of forest invasive species, which cause an estimated $4.2 billion in loss and damage annually in the 

forest products industry, by supporting collaborative work to control and prevent invasions. 

Selected Examples of Recent Progress 

Combatting Illegal Logging. In FY 2021, International Programs and Trade Compliance invested about $4 million 

supporting enforcement of the Lacey Act (16 U.S.C. §§ 3371-3378) and provided technical assistance to timberproducing countries in combatting illegal logging and improving forest governance. Work included: 

• organizing and facilitating monthly Lacey Act Interagency meetings for U.S. government agencies; 

• implementing law enforcement trainings for partners from 12 timber-producing countries with support 

from the Department of Justice and in coordination with Forest Service Law Enforcement and 

Investigations; 

• supporting the collection and analysis of wood samples from 6 high-risk countries that are used to identify 

wood products in trade; 

• working with partners to improve data and intelligence on global forest trends that helps the U.S. 

government prioritize screening of the most suspicious wood imports; 

• supporting transparency tools and technologies that provide near real-time monitoring of forest cover 

changes to quickly detect illegal logging; and working with partners to develop a methodology to analyze 

the full social, environmental, and economic costs of illegal deforestation at a country scale. 

Protecting the United States against Invasive Species. International Programs and Trade Compliance invested about 

$1 million in continued work on sentinel forests27 in FY 2021, establishing seven sentinel forests in China and 

two in Western Europe for monitoring pest and pathogen vulnerability of economically valuable U.S. species, 

in partnership with the University of Florida and Ohio State University. In addition, a new partnership with 

Botanic Gardens Conservation International monitors five U.S. species in established botanic gardens in Asia 

and Europe for pests and pathogens. This work provides an early warning on the most damaging invasive pests 

and pathogens that could impact U.S. species if they are accidentally introduced to the U.S. through trade, as 

well as what the impacts of climate change might mean for the ability of invasive pests to become established 

in the U.S. Also in FY 2021, International Programs and Trade Compliance coordinated with USDA Animal and 

27 Sentinel plantings are an approach to assess the vulnerability of native trees to non-native pests and pathogens by planting and 

studying those trees in other countries. 

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Plant Health Inspection Service to analyze data on the risk of wood-boring insect introductions to the U.S. from 

imported solid wood packaging, and the effectiveness of global phytosanitary standards aimed to decrease risk. 

The program continues to engage with various stakeholder groups including industry, academia, civil society, 

and government on gaps and opportunities for preventing forest insect infestation in the global wood 

packaging material supply chain. 

National Fire Capacity 

Current Activities 

More than one-third of all homes in the United States are in fire-prone wildland-urban interface (WUI) areas, 

which comprise just 10 percent of the Nation’s land area. The first responders on almost 75 percent of 

wildfires are local fire departments or State agencies. Collaboration between the Forest Service, the 

Department of the Interior, and non-Federal government entities is important for an effective, all-lands 

approach to wildland fire management. 

Specifically Addressed Areas 

Through the State Fire Assistance program, the Forest Service supports and assists State Foresters and local 

communities in building capacity for wildfire prevention, mitigation, control, and suppression on non-Federal 

lands. The program helps State agencies create more fire-adapted communities and resilient landscapes by 

implementing pre-fire prevention and mitigation programs and emphasizing pre-fire planning and risk 

reduction in the WUI. The program funds important training for safer initial attack responses to wildfire. 

Additionally, the program improves capacity to assist other Federal, State, and local agencies in aiding 

communities affected by fire and non-fire emergencies, such as hurricanes and floods. 

State Fire Capacity Grants funding enables States to increase and maintain wildfire suppression capacity, which, in 

turn, increases national capacity. The Forest Service makes its resources available to the national system through 

regional coordination centers. The summer of 2021 was one of the worst fire seasons in modern times, setting a 

record of 68 days at Preparedness Level 5, indicating the highest demand for wildland fire suppression resources. 

The sustained Preparedness Level 5 was due to multiple large incidents occurring simultaneously across geographic 

areas. Through support of State Fire Capacity Grants funding, Florida, for example, provided over 168 firefighters to 

assist with suppression efforts in Western States; North Carolina provided an engine task force to Washington State; 

and Pennsylvania provided an Incident Management Team to assist with the Snake River and Cougar Rock wildfire 

complex in Idaho. 

Selected Examples of Recent Progress 

Fire Adapted Community Net. The Nature Conservancy’s Fire Adapted Community (FAC) Net is funded through 

State Fire Capacity Grants. FAC supports Fire Adapted New Mexico’s “Wildfire Wednesdays Newsletter” that 

provides information focused on both preparing for the wildfire season and on post-fire recovery. The newsletter led 

to several livestream events and interagency collaborations among partner public information officers for messaging 

during the FY 2021 wildfire season. This work has evolved into monthly “Wildfire Preparedness is Year-Round” 

press releases with actionable steps to reduce wildfire risk to properties and people. 

Fire Adapted Montana Learning Network (FAMLN). Funded through the State Fire Capacity Grant Program, the 

FAMLN created an online learning exchange for prescribed fire enthusiasts and practitioners in Montana in FY 

2021. More than 60 Montanans were joined by 21 speakers from across the United States. FAMLN made 

connections with many of the speakers through FAC Net, and facilitation and event design were supported by FAC 

Net staff. The exchange has resulted in critical fire adaptation connections; for example, it has allowed a legal intern 

for the State to learn from other States’ prescribed fire councils as they draft options to address prescribed fire 

liability in Montana. 

Rural Fire Capacity 

Current Activities 

The Volunteer Fire Capacity Grant program provides technical and financial assistance to eligible local 

volunteer fire departments that protect communities with populations of 10,000 or fewer. There are over 

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24,000 rural and predominantly volunteer fire departments nationwide. In many rural areas across the Nation, 

the local volunteer fire department is the first responder to protect local communities and actively supports 

community mitigation efforts. 

Specifically Addressed Areas 

The Volunteer Fire Capacity Grant program focuses on increasing the capacity of local fire departments to 

provide initial attack on wildfires by providing additional firefighter training and assistance to departments 

with grant funding to purchase equipment. Recipients match grants dollar-for-dollar to maximize the value of 

the Federal investment. Rural fire departments also play a key role in educating constituents about fire 

adaptation and mitigation and help meet expanded fire protection needs within the WUI. Together, these 

initiatives combine to create more fire-adapted communities. 

Selected Examples of Recent Progress 

Lookingglass Rural Fire District. In Oregon, the Lookingglass Rural Fire District used Volunteer Fire Capacity 

Grant funding in FY 2021 to purchase a portable pump that will make it easier to refill fire engines and water 

tenders. In this wildland-urban interface community about nine miles south of Roseburg, OR, there are only three 

fire hydrants available for refilling firefighting apparatus, so this portable pump is critical for aiding fire suppression 

efforts. Also, in Oregon, the Elkhorn Rural Fire Protection District used Volunteer Fire Capacity Grants funding to 

build a water tender from a used military truck that was acquired through the Federal Excess Property Program 

(FEPP). The overall cost of having a fully functional water tender was very low due to the use of the grant and the 

truck acquired through the FEPP. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

NATIONAL FOREST SYSTEM 

LEAD-OFF TABULAR STATEMENT 

Table FS-25. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Annualized CR, 2022............................................................................................................... 

.......................................................................................................... 

.............................................................................................................. 

$1,786,870,000 

Change in Appropriation +394,045,000 

Budget Request, 2023 2,180,915,000 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 

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

For necessary expenses of the Forest Service, not otherwise provided for, for management, protection, improvement, 

and utilization of the National Forest System, and for hazardous fuels management on or adjacent to such lands, 

[$2,369,634,000]$2,180,915,000 to remain available through September 30, [2025]2026: Provided, That of the 

funds provided, $80,000,000 shall be deposited in the Collaborative Forest Landscape Restoration Fund for 

ecological restoration treatments as authorized by 16 U.S.C. 7303(f)[, of which $66,213,000 shall be for wildfire 

risk management]: Provided further, That of the funds provided, [$47,017,000]$37,645,000 shall be for forest 

products: [Provided further, That of the funds provided, $321,388,000 shall be for hazardous fuels management 

activities, of which $141,000,000 shall be for wildfire risk management, and of which not to exceed $15,000,000 

may be used to make grants, using any authorities available to the Forest Service under the "State and Private 

Forestry" appropriation, for the purpose of creating incentives for increased use of biomass from National Forest 

System lands: Provided further, That $20,000,000 may be used by the Secretary of Agriculture to enter into 

procurement contracts or cooperative agreements or to issue grants for hazardous fuels management activities, and 

for training or monitoring associated with such hazardous fuels management activities on Federal land, or on nonFederal land if the Secretary determines such activities benefit resources on Federal land: Provided further, That 

funds made available to implement the Community Forest Restoration Act, Public Law 106-393, title VI, shall be 

available for use on non-Federal lands in accordance with authorities made available to the Forest Service under the 

"State and Private Forestry" appropriation: Provided further, That of the funds provided under this heading, not less 

than $413,000,000 shall be for activities related to climate change, of which $265,000,000 shall be for wildfire risk 

management, inclusive of the amounts for wildfire risk management in the first and third provisos; $92,000,000 

shall be for climate reclamation; and $56,000,000 shall be for climate resilience:]Provided further, That any 

unobligated funds appropriated in a previous fiscal year for hazardous fuels management may be transferred to the 

Wildland Fire Management account: Provided further, That notwithstanding section 33 of the Bankhead Jones Farm 

Tenant Act (7 U.S.C. 1012), the Secretary of Agriculture, in calculating a fee for grazing on a National Grassland, 

may provide a credit of up to 50 percent of the calculated fee to a Grazing Association or direct permittee for a 

conservation practice approved by the Secretary in advance of the fiscal year in which the cost of the conservation 

practice is incurred, and that the amount credited shall remain available to the Grazing Association or the direct 

permittee, as appropriate, in the fiscal year in which the credit is made and each fiscal year thereafter for use on the 

project for conservation practices approved by the Secretary: Provided further, That funds appropriated to this 

account shall be available for the base salary and expenses of employees that carry out the functions funded by the 

"Capital Improvement and Maintenance" account, the "Range Betterment Fund" account, and the "Management of 

National Forests for Subsistence Uses" account. 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

Change Description 

The first change removes language for wildfire risk management. 

The second change removes language pertaining to Hazardous Fuels which is moved to Wildland 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Fire Management and removes specific language for climate change funding. 

The third change allows for the transfer of prior year Hazardous Fuels unobligated balances from National Forest 

System to Wildland Fire Management. 

NATIONAL FOREST SYSTEM 

[For an additional amount for "National Forest System", $710,000,000, to remain available until expended: 

Provided, That of the amounts provided under this heading in this Act, $535,000,000 shall be for necessary expenses 

related to the consequences of calendar year 2019, 2020, and 2021 wildfires, hurricanes and other natural disasters, 

including no less than $175,000,000 for high priority post-wildfire restoration for watershed protection, critical 

habitat, and burned area recovery: Provided further, That of the amounts provided under this heading in this Act, 

$175,000,000 shall be for hazardous fuels mitigation.] 

(Disaster Relief Supplemental Appropriations Act, 2022.) 

NATIONAL FOREST SYSTEM 

[(Including Transfers of Funds)] 

[For an additional amount for "National Forest System", $2,854,000,000, to remain available until expended: 

Provided, That $734,800,000, to remain available until expended, shall be made available for fiscal year 2022, 

$529,800,000, to remain available until expended, shall be made available for fiscal year 2023, $529,800,000, to 

remain available until expended, shall be made available for fiscal year 2024, $529,800,000, to remain available 

until expended, shall be made available for fiscal year 2025, and $529,800,000, to remain available until expended, 

shall be made available for fiscal year 2026: Provided further, That of the funds made available under this heading 

in this Act, the following amounts shall be for the following purposes-- (1) $2,115,000,000 for the Secretary of 

Agriculture, acting through the Chief of the Forest Service, to carry out activities for the Department of Agriculture 

as authorized in sections 40803 and 40804 of division D of this Act, of which $587,000,000, to remain available 

until expended, shall be made available for fiscal year 2022 and $382,000,000, to remain available until expended, 

shall be made available for each of fiscal years 2023 through 2026;(2) In addition to amounts made available in 

paragraph (1) for hazardous fuels management activities, $102,800,000 for each of fiscal years 2022 through 2026 

for such purposes; and(3) In addition to amounts made available in paragraph (1) for burned area recovery, 

$45,000,000 for each of fiscal years 2022 through 2026 for such purposes: Provided further, That up to $12,000,000 

for each of fiscal years 2022 through 2026 from funds made available in paragraph (2) of the preceding proviso may 

be used to make grants, using any authorities available for the Forest Service under the "State and Private Forestry" 

appropriation for the purposes of creating incentives for increased use of biomass from National Forest System 

lands, including the Community Wood Energy Program and the Wood Innovation Grants Program: Provided 

further, That up to $8,000,000 for each of fiscal years 2022 through 2026 from funds made available in paragraph 

(2) of the preceding proviso shall be for implementation of the Tribal Forestry Protection Act, as amended (Public 

Law 108-278): Provided further, That funds appropriated under this heading in this Act may be transferred to the 

United States Fish and Wildlife Service and the National Marine Fisheries Service for the costs of carrying out their 

responsibilities under the Endangered Species Act of 1973 (16 U.S.C. 1531 et seq.) to consult and conference, as 

required by section 7 of such Act, in connection with wildland fire management activities: Provided further, That the 

Secretary of the Interior and the Secretary of Agriculture, acting through the Chief of the Forest Service, may 

authorize the transfer of funds provided under this heading in this Act between the Departments for the purpose of 

carrying out activities as authorized in section 40804(b)(1) of division D of this Act: Provided further, That amounts 

made available under this heading in this Act for each of fiscal years 2022 through 2026 may be transferred between 

accounts affected by the Forest Service budget restructure outlined in section 435 of division D of the Further 

Consolidated Appropriations Act, 2020 (Public Law 116-94) to carry out the activities in support of this heading: 

Provided further, That amounts made available under this heading in this Act in each of fiscal years 2022 through 

2026 shall be available for salaries and expenses: Provided further, That one-half of one percent of the amounts 

made available under this heading in this Act in each of fiscal years 2022 through 2026 shall be transferred to the 

Office of Inspector General of the Department of Agriculture for oversight of funding provided to the Forest Service 

in this title in this Act: Provided further, That such amount is designated by the Congress as being for an emergency 

requirement pursuant to section 4112(a) of H. Con. Res. 71 (115th Congress), the concurrent resolution on the 

budget for fiscal year 2018, and to section 251(b) of the Balanced Budget and Emergency Deficit Control Act of 

1985.] 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

(Infrastructure Investments and Jobs Appropriations Act.) 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-26. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Discretionary Appropriations: 

Salaries and Expenses .............................................. 

...................... 

........... 

............................................................ 

..................................................... 

...................... 

- - $1,409,352 12,697 $1,409,352 12,884 $1,681,133 14,545 +$271,781 +1,661 (1) 

Integrated Resource Restoration Pilot - 1 - - - - - - - -

Collaborative Forest Landscape Restoration $40,000 194 13,787 8 13,787 - 80,000 - +66,213 - (2) 

Land Management Planning, Assessment and 

Monitoring 180,000 861 16,544 36 16,544 - 21,544 - +5,000 - (3) 

Hazardous Fuels a 445,310 2,254 180,388 95 180,388 - - - -180,388 - (4) 

Recreation, Heritage, and Wilderness 262,000 1,632 35,241 62 35,241 - 109,661 - +74,420 - (5) 

Wildlife and Fisheries Habitat Management............ 138,000 881 20,727 38 20,727 - 29,027 - +8,300 - (6) 

Grazing Management............................................... 

........................................................ 

................. 

........................ 

........................ 

.................................. 

57,000 390 5,410 14 5,410 - 25,547 - +20,137 - (7) 

Forest Products 373,000 2,800 37,017 112 37,017 - 37,645 - +628 - (8) 

Vegetation and Watershed Management 182,000 1,016 28,683 45 28,683 - 98,470 - +69,787 - (9) 

Minerals and Geology Management 74,200 405 13,282 18 13,282 - 44,982 - +31,700 - (10) 

Land Use Authorization and Access 75,000 437 6,934 19 6,934 - 28,934 - +22,000 - (11) 

Law Enforcement Operations 131,000 635 19,505 22 19,505 - 23,972 - +4,467 - (12) 

Total, Discretionary Appropriations ..................... 1,957,510 11,506 1,786,870 13,166 1,786,870 12,884 2,180,915 14,545 +394,045 +1,661 

Supplemental Appropriations: 

Disaster Relief Appropriations (P.L. 115-123) b ...... - 6 - 4 - 4 - 4 - -

Disaster Relief Appropriations (P.L. 116-20) c ........ - 8 - 7 - 7 - 7 - -

Coronavirus Relief Appropriations (P.L. 116-136) d 34,000 8 - 54 - - - - - -

Disaster Relief Appropriations (P.L. 117-43) e ........ - - - - 710,000 10 - 10 -710,000 -

Infrastructure Investment and Jobs Act (P.L. 117-

58) f ....................................................................... - - - - 734,800 1,530 529,800 3,455 -205,000 +1,925 

Total, Supplemental Appropriations ..................... 

................................................... 

................... 

34,000 22 - 65 1,444,800 1,551 529,800 3,476 -915,000 +1,925 

Total Appropriations 1,991,510 11,528 1,786,870 13,231 3,231,670 14,435 2,710,715 18,021 -520,955 +3,586 

Transfers In: 

Capital Improvement and Maintenance - - - - 20,780 - 21,600 - +820 -

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or Inc. or Chg 

Actual FTE Actual FTE Resolution FTE Request FTE Dec. Dec. Key 

Communication Site Administration - - - - 1,000 - - - -1,000 -

Total, Transfers In - - - - 21,780 - 21,600 - -180 -

Transfers Out: 

Department of the Interior -1,118 - -850 - - - - - - -

Forest Service Operations - - -15,668 - -117,568 - -63,576 - +53,992 -

Forest and Rangeland Research - - - - -55,000 - -42,840 - +12,160 -

Office of Inspector General - - - - -3,669 - -2,649 - +1,020 -

Wildland Fire Management - - - - -46,900 - -27,640 - +19,260 -

Total, Transfers Out -1,118 - -16,518 - -223,137 - -136,705 - +86,432 -

Recoveries, Other 29,509 - 52,133 - 52,133 - 52,133 - - -

Balance Available, SOY 147,931 - 155,008 - 134,871 - 972,196 - +837,325 -

Total Available 2,167,832 11,528 1,977,493 13,231 3,217,317 14,435 3,619,939 18,021 +402,622 +3,586 

Balance Available, EOY -155,009 - -134,871 - -972,196 - -894,245 - +77,951 -

Total Obligations 2,012,823 11,528 1,842,622 13,231 2,245,121 14,435 2,725,694 18,021 +480,573 +3,586 

....................... 

................................................. 

....................................... 

........................................ 

............................... 

..................................... 

..................................... 

.............................................. 

....................................................... 

............................................. 

........................................................... 

............................................. 

........................................................ 

a The Hazardous Fuels program will be shifted from National Forest System to Wildland Fire Management beginning in fiscal year 2023. 

b P.L. 115-123 provided $20,652,000 for necessary expenses related to the consequences of Hurricanes Harvey, Irma, and Maria. 

c P.L. 116-20 provided $84,960,000 for necessary expenses related to the consequences of Hurricanes Florence and Michael, and the calendar year 2018 wildfires. 

d P.L. 116-136 provided $34,000,000 to prepare, prevent, and respond to coronavirus. Budget authority expired effective October 1, 2021. 

e P.L. 117-43 provided $710,000,000 for necessary expenses related to wildfires, hurricanes, and other natural disasters that occurred between calendar years 2019 through 2021. 

f FY 2022 supplemental appropriations include disaster relief (P.L. 117-43) and advance appropriations in the Infrastructure Investment and Jobs Act (P.L. 117-58). FY 2023 

supplemental appropriations are entirely advance appropriations from the Infrastructure Investment and Jobs Act. See also the spend plans for advance appropriations on page 213 

. P.L. 117-58 provided $734,800,000 in fiscal year 2022 and $529,800,000 to be available each year from fiscal years 2022 through 2026. 

Table FS-27. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE Inc. or Dec. 

FTE 

Inc. or 

Dec. 

Discretionary Obligations: 

Salaries and Expenses.......................................... - - $1,400,609 12,697 $1,264,881 12,884 $1,779,970 14,545 +$515,089 +1,661 

Integrated Resource Restoration Pilot.................. $2,001 1 608 - 549 - 773 - +224 -

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or 

Actual FTE Actual FTE Resolution FTE Request FTE Inc. or Dec. Dec. 

Collaborative Forest Landscape Restoration ....... 39,531 194 18,381 8 16,600 - 23,356 - +6,756 -

Land Management Planning, Assessment and 

Monitoring ........................................................ 143,722 861 20,416 36 18,438 - 25,942 - +7,504 -

Hazardous Fuels a ................................................. 381,026 2,254 185,673 95 167,680 - 235,925 - +68,245 -

Recreation, Heritage, and Wilderness.................. 

........ 

........................................... 

.................................................... 

............. 

.................... 

.................... 

.............................. 

........................... 

............................. 

188,511 1,632 40,866 62 36,906 - 51,926 - +15,020 -

Wildlife and Fisheries Habitat Management 104,488 881 21,227 38 19,170 - 26,972 - +7,802 -

Grazing Management 41,432 390 5,503 14 4,970 - 6,992 - +2,022 -

Forest Products 277,603 2,800 39,405 112 35,587 - 50,070 - +14,483 -

Vegetation and Watershed Management 144,204 1,016 29,768 45 26,883 - 37,825 - +10,942 -

Minerals and Geology Management 58,393 405 12,659 18 11,432 - 16,085 - +4,653 -

Land Use Authorization and Access 57,012 437 6,636 19 5,993 - 8,432 - +2,439 -

Law Enforcement Operations 114,731 635 20,012 22 18,073 - 25,428 - +7,355 -

National Forest System – Other 435,044 - 10,985 - 9,921 - 13,958 - +4,037 -

Total, Discretionary Obligations 1,987,698 11,506 1,812,748 13,166 1,637,083 12,884 2,303,654 14,545 +666,571 +1,661 

Supplemental Obligations: 

Disaster Relief Appropriations (P.L. 115-123) b .. 2,928 6 4,135 4 5,044 4 1,698 4 -3,346 -

Disaster Relief Appropriations (P.L. 116-20) c .... 6,141 8 8,471 7 6,439 7 2,642 7 -3,797 -

Coronavirus Relief Appropriations (P.L. 116-

136) d ................................................................. 16,056 8 17,268 54 - - - - - -

Disaster Relief Appropriations (P.L. 117-43) e .... - - - - 106,500 10 106,500 10 - -

Infrastructure Investment and Jobs Act (P.L. 

117-58) f ............................................................ - - - - 490,055 1,530 311,200 3,455 -178,855 +1,925 

Total, Supplemental Obligations ............................ 25,125 22 29,874 65 608,038 1,551 422,040 3,476 -185,998 +1,925 

Total Obligations .................................................... 2,012,823 11,528 1,842,622 13,231 2,245,121 14,435 2,725,694 18,021 +480,573 +3,586 

Balances Available, EOY: 

Salaries and Expenses .......................................... - - 8,742 - 42,508 - 8,229 - -34,279 -

Integrated Resource Restoration Pilot.................. 234 - 130 - 633 - 780 - +147 -

Collaborative Forest Landscape Restoration ....... 5,714 - 2,472 - 11,559 - 13,828 - +2,269 -

Land Management Planning, Assessment and 

Monitoring ........................................................ 5,619 - 4,944 - 23,558 - 29,151 - +5,593 -

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or 

Actual FTE Actual FTE Resolution FTE Request FTE Inc. or Dec. Dec. 

Hazardous Fuels................................................... 

.................. 

........ 

........................................... 

.................................................... 

............. 

.................... 

.................... 

.............................. 

........................... 

4,350 - 7,570 - 36,335 - 45,403 - +9,068 -

Recreation, Heritage, and Wilderness 5,263 - 3,042 - 14,303 - 17,744 - +3,441 -

Wildlife and Fisheries Habitat Management 2,270 - 3,941 - 19,177 - 23,136 - +3,959 -

Grazing Management 819 - -17 - - - - - - -

Forest Products 4,813 - 5,872 - 28,073 - 34,719 - +6,646 -

Vegetation and Watershed Management 2,915 - 6,215 - 29,242 - 36,776 - +7,534 -

Minerals and Geology Management 4,475 - 5,714 - 27,304 - 34,270 - +6,966 -

Land Use Authorization and Access 2,722 - 1,820 - 8,855 - 10,915 - +2,060 -

Law Enforcement Operations 3,330 - 5,426 - 26,402 - 32,043 - +5,641 -

National Forest System – Other 7,148 - 2,556 - 12,437 - 15,329 - +2,892 -

Disaster Relief Appropriations (P.L. 115-123) b .. 10,596 - 6,742 - 1,698 - - - -1,698 -

Disaster Relief Appropriations (P.L. 116-20) c .... 76,797 - 68,872 - 62,433 - 59,791 - -2,642 -

Coronavirus Relief Appropriations (P.L. 116-

136) d ................................................................. 17,944 - 830 - - - - - - -

Disaster Relief Appropriations (P.L. 117-43) e .... - - - - 605,982 - 501,622 - -104,360 -

Infrastructure Investment and Jobs Act (P.L. 

117-58) f ............................................................ - - - - 21,697 - 30,509 - +8,812 -

Total Balance Available, EOY ............................... 155,009 - 134,871 - 972,196 - 894,245 - -77,951 -

Total Available ....................................................... 2,167,832 11,528 1,977,493 13,231 3,217,317 14,435 3,619,939 18,021 +402,622 +3,586 

Less: 

Total Transfers Out.............................................. 

................................................. 

...................................... 

............................................... 

1,118 - 16,518 - 223,137 - 136,705 - -86,432 -

Recoveries, Other -29,509 - -52,133 - -52,133 - -52,133 - - -

Balance Available, SOY -147,931 - -155,008 - -134,871 - -972,196 - -837,325 -

Total Appropriations 1,991,510 11,528 1,786,870 13,231 3,231,670 14,435 2,710,715 18,021 -520,955 +3,586 

a The Hazardous Fuels program will be shifted from National Forest System to Wildland Fire Management beginning in fiscal year 2023. 

b P.L. 115-123 provided $20,652,000 for necessary expenses related to the consequences of Hurricanes Harvey, Irma, and Maria. 

c P.L. 116-20 provided $84,960,000 for necessary expenses related to the consequences of Hurricanes Florence and Michael, and the calendar year 2018 wildfires. 

d P.L. 116-136 provided $34,000,000 to prepare, prevent, and respond to coronavirus. Budget authority expired effective October 1, 2021. 

e P.L. 117-43 provided $710,000,000 for necessary expenses related to wildfires, hurricanes, and other natural disasters that occurred between calendar years 2019 through 2021. 

f P.L. 117-58 provided $734,800,000 in fiscal year 2022 and $529,800,000 to be available each year from fiscal years 2022 through 2026. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

JUSTIFICATIONS OF INCREASES AND DECREASES 

Salaries and Expenses: An increase of $271,781,000 and 1,661 full-time equivalents (FTE) from the 

FY 2022 annualized CR, which includes the following: 

a) An increase of $40,401,000, which includes $28,706,000 for pay inflation and $11,695,000 for 2022 Pay 

and FERS. This increase supports the pay increase which went into effect January 1, 2022, of a 2.7 percent Cost 

of Living pay increases for civilian employees, and a 1.1 percent increase to cover the expenses for the 

mandated increase of USDA’s contribution to FERS. 

b) An increase of $61,702,000 for 2023 Pay. This increase will support the annualization of the 2022 2.7 percent 

Cost of Living pay increase and the 2023 4.6 percent Cost of Living pay increase. Without this increase, the 

agency will have diminished capacity in non-fire programs needed to meet Administration priorities for climate 

adaptation and resilience, equity, Tribal lands, building the recreation economy, land management monitoring, 

and land management science and planning. 

c) An increase of $100,000,000 to strengthen areas that are needed to support the Infrastructure Investment and 

Jobs Act (H.R. 3684) but are not targeted for funding in the bill. An increase in capacity is necessary to perform 

land line surveys, realty management, cadastral and engineering services in support of the increase in pace and 

scale of the Agency’s wildland fuels reduction activities outlined in the 10-year strategy. In addition, increased 

capacity in engineering, recreation planning, patrol and service technicians, and grants and agreement 

specialists are necessary to support The Great American Outdoors Act (GAOA) (P.L. 116-152) as well as the 

portions of the Infrastructure Investment and Jobs Act that target trail and recreation infrastructure. 

d) An increase of $3,000,000 for Law Enforcement and Investigations (LEI) Salaries and Expenses. In FY 2020 

and FY 2021, National Forest System lands experienced unprecedented visitation and use due to COVID-19 

related closures and restrictions of traditional recreation/use areas. Law Enforcement staff provided an increased 

public safety presence and documented an over 30 percent increase in enforcement activities. Increased 

visitation and workload, pandemic and natural disaster related response pressures, and current scrutiny on law 

enforcement nationwide resulted in significant losses of staff due to voluntary retirements and other voluntary 

separations. These losses have a significant detrimental impact on the agency’s ability to provide safety and

security on public lands. In addition, this impacts the agency’s ability to foster and maintain relationships with

the public and involvement in initiatives such as community policing. The increase would aid the LEI program 

in filling 12-15 vacant positions each year. Many positions remain vacant for 12-18 months until new staff are 

trained, or sometimes the positions simply cannot be filled due to lack of funding. Essential mission critical 

training and certifications were either cancelled or unachievable during the COVID-19 pandemic, and a critical 

backlog of required training requires additional funding and time to restore staff levels to pre-pandemic 

capabilities. The additional funding will also ensure that LEI personnel receive mandatory annual trainings such 

as use of force, defensive tactics, legal refresher, firearm requalification, professional standards, and leadership 

development. 

e) An increase of $66,678,000 to support staffing in visitor services, recreation improvements and enrichment 

opportunities, public engagement, enhanced customer experiences, planning, monitoring, electronic services 

through ePermits and eServices, special uses administration, grazing management, integrated vegetation 

management, reforestation, climate impact management, and the improvement and restoration of infrastructure 

on National Forest System lands. The Forest Service has lost more than 40 percent of its non-fire positions over 

the past 15 years, significantly limiting its ability to perform other critical mission work in recreation, multiple 

uses, landscape restoration and conservation, and species recovery. An investment in staffing for these other 

critical programs will enhance social and economic benefits to the American public, helping to achieve the 

Administration’s current priorities of building a recreation economy and enhancing community involvement in 

combating climate change. All programs contribute to providing equal opportunities to diverse and 

underprivileged communities to include tribal nations. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Finally, the increase will provide a substantial investment towards the agency’s focus on implementing a new 

staffing model in support of the continued fuels reduction targets the agency is expected to achieve. For 

instance, planning efforts, wildlife surveys, and land surveys must be completed in landscapes prior to a fuels 

project. Staff to support this work did not receive funding through the Infrastructure Investment and Jobs Act 

but are critical to meet the expected scale of work. Funding put towards planning efforts will also be used to 

finalize the Alaska Roadless rule by the end of FY 2023. The overall increase will allow the agency to begin the 

process of building the necessary capacity to meet the National Environmental Policy Act and other 

environment review and permitting requirements necessary to achieve the agency’s 10-year wildland fire 

strategy. As part of its efforts to increase capacity, the agency will target highly talented and diverse candidates 

from all backgrounds, age groups, and communities with a focus towards Tribal and underserved communities. 

Collaborative Forest Landscape Restoration: An increase of $66,213,000 from the FY 2022 

annualized CR, which includes the following: 

a) An increase of $66,213,000 to support the Administration’s priorities around climate adaptation and resilience 

that directly benefit sustainable ecosystems. The Collaborative Forest Landscape Restoration (CFLR) program 

promotes collaborative, science-based ecosystem restoration of priority forest landscapes. CFLR project 

landscapes are selected through a competitive process based, in part, on whether the proposal is likely to reduce 

wildland fire risk. A recent Forest Service analysis of fuels treatments on five CFLR projects across the country 

showed a decrease in average burn probability, expected annual area burned, and predicted flame lengths. 

Funding will be prioritized to support the implementation of the Infrastructure Investment and Jobs Act (H.R. 

3684) through service and supply contracts as well as agreements with partners. Funding provided through the 

Infrastructure Investment and Jobs Act expands the agency capacity to deliver benefits that directly support and 

focus on wildfire risk management. These benefits will directly contribute to sustainable and productive use of 

National Forest System lands. 

Land Management Planning, Assessment, and Monitoring: An increase of $5,000,000 from the FY 

2022 annualized CR, which includes the following: 

a) An increase of $5,000,000 to support the Administration’s priorities to coordinate, develop, and apply policies 

and practices that directly benefit climate adaptation and resilience. Managing lands requires a continuous cycle 

of assessing, planning, implementing, monitoring, and adjusting programs and projects based on new 

information. Funding will support all program areas across the National Forest System and help further the 

Administration’s goal of pursuing nature-based climate solutions by protecting and restoring National Forest 

System ecosystems to provide carbon sequestration and storage and to enhance ecosystem and human 

community resilience. 

Across the system, over 65 land management plans are over 15 years old and in need of amendment or 

revision. The funding requested will support the agency’s new business model for planning, helping to manage 

and reduce the plan backlog. The agency is proposing a “New Planning Model” that consolidates revision

efforts, staffing, and expertise into Planning Service Groups and National Teams. The additional funding would 

support the required assistance for designing and fully operationalizing the emerging New Planning Model and 

standing up the associated national teams. 

Recreation, Heritage and Wilderness: An increase of $74,420,000 from the FY 2022 annualized CR, 

which includes the following: 

a) An increase of $71,420,000 will be used to increase capacity for critical recreation operations, planning, 

services, and improvements, with particular emphasis on creating welcoming, sustainable, and equitable 

recreation opportunities for all Americans with a focus towards underserved and Tribal communities. The 

funding will be used to accelerate and simplify the permitting process for outfitters and guides and maintain 

strong collaborations with partners and volunteer groups to increase the ability to meet visitor needs. Increased 

funding will allow the Forest Service to pursue innovative ways to address and serve the recreational needs of 

the increasing numbers of new and returning visitors who want year-round activities on National Forest System 

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lands, while managing the associated social and environmental impacts, particularly in more dispersed 

recreation settings. 

A portion of this increase will also be used for Wilderness Stewardship Performance, Wilderness Character 

Monitoring, and critical planning processes associated with Wilderness and Wild and Scenic Rivers. This work 

will support critical efforts to better understand climate-related impacts and threats to congressionally 

designated areas and to plan, adjust, and implement climate resilient stewardship strategies that preserve 

wilderness character and protect and enhance river values, as the agency is required to do under the Wilderness 

Act and Wild and Scenic Rivers Act. 

The Great American Outdoors Act (P.L. 116-152) gave the agency new opportunities to deliver benefits to the 

American public through major investments in recreation infrastructure, public lands access, and land and water 

conservation. Outdoor recreation contributes an estimated $460 billion to the Nation’s economy, with

government leaders recognizing parks, beaches, and open spaces as indispensable infrastructure for livable and 

prosperous communities, for purifying air and providing clean drinking water, and in defending against the 

impacts of climate change. Funds will be prioritized to build the recreation economy through partnerships and 

contracts commensurate to the necessary maintenance of existing and new infrastructure the agency will acquire 

through the Great American Outdoors Act. This funding level will provide resources for managing and 

operating visitor services, visitor information centers, visitor interpretive programs, recreation improvements 

and enrichment opportunities, and public engagement programs that enhance customer experiences. 

b) Of this increase, the agency will also fund a minimum of $3,000,000 for the Climate Conservation Corps in 

support of the next generation of citizen stewards who will work in recreation or wilderness areas conducting 

educational and interpretive programs, monitor visitor use, pick-up trash along waterways or trails, and staff 

recreation areas. 

Wildlife and Fisheries Management: An increase of $8,300,000 from the FY 2022 annualized CR, 

which includes the following: 

a) An increase of $8,300,000 to support the Administration’s priorities of improving watershed and landscape 

conditions especially impacted by catastrophic wildfire. Using climate-informed decision making and 

considering additional agency priorities, restoration activities such as reforestation and source water protection 

will be increased. Agency capacity to accomplish other projects that mitigate climate change impacts, enhance 

watershed health, and improve landscape resilience will increase as well. The funding will also be used for 

green infrastructure that improves fish and wildlife habitat connectivity and helps to recover Endangered 

Species Act (ESA)-listed or ESA candidate species that depend on National Forest System lands. 

Additional funding in the Infrastructure Investment and Jobs Act (H.R. 3684) expands agency capacity to 

deliver benefits that directly support and focus on wildfire risk management. These benefits will directly 

contribute to sustainable and productive use of National Forest System lands. Funds will be prioritized to 

support the implementation of the Infrastructure Investment and Jobs Act through service and supply contracts 

as well as agreements with partners. 

Grazing Management: An increase of $20,137,000 from the FY 2022 annualized CR, which 

includes the following: 

a) An increase of $20,137,000 to support post-fire restoration and provide for strategic incentives to grazing 

permittees. This work supports the Administration’s priorities outlined in the America the Beautiful report with 

the goal of conserving at least 30 percent of the Nation’s lands and waters by 2030. The agency will use the 

increased funding to make investments in infrastructure and restore allotments impacted by wildfire, as well as 

invest in planning efficiencies and develop strategies to deploy best management practices across allotments. 

The goal of this work is to build vibrant rural economies that supply food and fiber while developing strong and 

lasting stewardship traditions. This investment will provide incentives for voluntary conservation practices, 

rewarding ranchers for being good stewards of working lands, waters, and wildlife habitat. 

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Additional funding in the Infrastructure Investment and Jobs Act (H.R. 3684) expands agency capacity to 

deliver benefits that directly support and focus on wildfire risk management. These benefits will directly 

contribute to sustainable and productive use of National Forest System lands. Funds will be prioritized to 

support the implementation of the Infrastructure Investment and Jobs Act through service and supply contracts 

as well as agreements with partners. 

Forest Products: An increase of $628,000 from the FY 2022 annualized CR, which includes the 

following: 

a) An increase of $628,000 to support forest product modernization efforts to realize efficiencies in the agency’s

vegetation program. The program will expand the use of new and existing technologies and will create 

efficiencies by reducing time and resources required to access remote and high-safety risk terrain. This work 

will include the expanded use of Unmanned Aerial Systems for monitoring, data collection, and surveillance; 

the use of GPS coordinates to establish cutting unit boundaries instead of the physical painting of trees; and the 

use of comparative cruising of similar areas to estimate sale quantities rather than taking actual sample 

measurements across a hazardous landscape. This will help safely provide critical knowledge to make decisions 

using artificial intelligence instead of physical labor. This increase will help sustain the agency’s Forest 

Management program as a critical piece of our overall strategy to reduce wildfire risk. 

Additional funding in the Infrastructure Investment and Jobs Act (H.R. 3684) expands agency capacity to 

deliver benefits that directly support and focus on wildfire risk management. These benefits will directly 

contribute to sustainable and productive use of National Forest System lands. Funds will be prioritized to 

support the implementation of the Infrastructure Investment and Jobs Act through service and supply contracts 

as well as agreements with partners. 

Vegetation and Watershed Management: An increase of $69,787,000 from the FY 2022 annualized 

CR, which includes the following: 

a) An increase of $69,787,000 to support healthy and resilient watersheds and landscapes, sustain the production 

of clean and abundant air and water, assist with meeting the Administration’s climate goals, and contribute to 

healthy and productive rural communities and Tribal Nations. This increase will also support the post-wildfire 

restoration work necessary for improving watershed and landscape conditions for areas impacted by 

catastrophic wildfire that do not qualify for Burned Area Emergency Response (BAER). 

The Forest Service’s post-wildfire restoration needs have outpaced available resources, leaving the agency 

unable to accomplish timely restoration of lands unlikely to recover naturally. Additional funding to rehabilitate 

burned areas would reduce the negative impacts of having to choose between rehabilitation of burned areas and 

other natural resource management priorities. The consequences of not restoring ecosystems post-fire can 

include conversion to non-forested conditions and much delayed ecosystem recovery, which impacts the 

ecosystem’s potential for carbon storage over time and the land’s capacity to assist with mitigation of further

climate change. Using climate-informed decision making and considering additional Administration and agency 

priorities, restoration activities such as reforestation and source water protection will be increased. Agency 

capacity to accomplish other projects that mitigate climate change impacts, enhance watershed health, and 

improve landscape resilience will also increase. 

Additional funding in the Infrastructure Investment and Jobs Act (H.R. 3684) expands the agency capacity to 

deliver benefits that directly support and focus on wildfire risk management. These benefits will directly 

contribute to sustainable and productive use of National Forest System lands. Funds will be prioritized to 

support the implementation of the Infrastructure Investment and Jobs Act through service and supply contracts 

as well as agreements with partners. 

Minerals and Geology Management: An increase of $31,700,000 from the FY 2022 annualized CR, 

which includes the following: 

a) An increase of $31,700,000 to support efforts to locate and prioritize orphaned oil and gas wells for remediation 

with a focus on plugging high risk, leaking wells. National Forest System lands contain thousands of orphan oil 

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and gas wells, primarily in the eastern United States. This work will utilize the Climate Conservation Corps and 

support the agency’s Diversity, Equity, Inclusion, and Accessibility goals. The next generation of citizen 

stewards will be deployed to identify legacy or orphan wells on National Forest System lands. A portion of the 

funding will be directed to contractors to undertake capping the wells. Funding will also support the inventory, 

environmental analysis, and clean-up of mine reclamation sites under the Comprehensive Environmental 

Response Compensation and Liability Act (CERCLA). 

Additional funding in the Infrastructure Investment and Jobs Act (IIJA) (H.R. 3684) expands the agency 

capacity to deliver benefits that support abandoned hardrock mine reclamation on National Forest System lands. 

The priority investment of IIJA will increase pace and scale for ecosystem restoration producing desired 

outcomes such as community protection, forest and grassland restoration, watershed restoration, mine 

remediation, and wildlife habitat improvement on National Forest System lands. 

Land Use Authorization and Access: An increase of $22,000,000 from the FY 2022 annualized CR, 

which includes the following: 

a) An increase of $6,000,000 to support the Administration’s priorities utilizing land appraisal and technical 

assistance contracting. This work will expedite land acquisitions and exchanges and facilitate third party 

acquisition agreements, supporting the expansion of public access to National Forest System lands. 

b) An increase of $8,000,000 to support needed cadastral surveys for roads and rights-of-way projects that would 

improve access, harden sites, and resolve title claims and encroachments from potential realignments. These 

efforts will increase the availability of access to remediate orphan oil and gas wells and abandoned mine lands 

and critical access points along pipelines, electric transmissions lines, and communications sites. 

c) An increase of $8,000,000 to fund various projects to bolster the resilience of National Forest System lands to 

climate change. This work includes repairing roads affected by flood events and examining and stabilizing dams 

that are at risk of failure due to unpredictable rain events. The agency will prioritize work that addresses 

potential exposure of fiber optic lines within road system rights-of-way due to erosion from more frequent rain 

events and addressing decreased life expectancy of permitted infrastructure due to the changes in climate. 

Funding will also be used for preparing for an influx of relicensing of Federal Energy Regulatory Commission 

(FERC) hydropower projects and removing large-scale sediment deposits that are causing clean water system 

failures. 

Additional funding from the Infrastructure Investment and Jobs Act (IIJA) (H.R. 3684) will further expand the 

agency’s capacity to deliver benefits, survey lands in advance of timber sales, and acquire rights-of-way. This 

additional funding will also allow the agency to administer road agreements necessary for public and agency 

access to complete activities, including timber production, transportation, recreation, and utility inspection. The 

priority investment of IIJA will increase pace and scale for ecosystem restoration producing desired outcomes 

such as community protection, forest and grassland restoration, watershed restoration, mine remediation, and 

wildlife habitat improvement on National Forest System lands. 

Law Enforcement Operations: An increase of $4,467,000 from the FY 2022 annualized CR which 

includes the following: 

The Law Enforcement Operations (LEI) program plays a critical role as a USDA Primary Mission Essential 

Function (PMEF) - Provide Safety and Security on Public Lands. Forest Service Law Enforcement Officers conduct 

a range of enforcement activities and criminal and civil investigations involving incidents of theft, assault, alcohol, 

and drug use; unauthorized motor vehicle use; illegal occupancy; trespassing; wildland fire arson; drug smuggling 

and manufacturing; fraud; and assaults and threats to employees. An increase of $4,467,000 is requested to address 

mission critical equipment and technology upgrades and rising fleet costs. 

a) An increase of $4,000,000 will enable the LEI program to provide an increased and more capable law 

enforcement presence on national forests. The funding will be used to maintain current cooperative agreements, 

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acquire much needed technology and equipment to support patrol activities and investigations, and continue to 

maintain safety and prevent damage to natural resources. 

At present, almost 80 percent of the program’s allocated funding is expended on Fleet and Cooperative Law 

Enforcement Agreements (CLE) alone. These CLE agreements are critical to public safety and State, local, and 

county law enforcement partners, but the large share of CLEs in the budget is unsustainable without adequate 

funding. 

The increase in funding will also allow the program to shift resources toward the acquisition and maintenance 

of technology and equipment for new and existing staff so they can properly serve the public and protect our 

Nation’s natural resources. Anticipated additional investments include body-worn cameras, in-vehicle cameras, 

personal protective equipment, the continued development of our National Instant Criminal Background Check 

System (NICS) and National Incident-Based Reporting System (NIBRS) compliant Law Enforcement 

Investigation Reporting System (LEIRS), technology upgrades and maintenance, LIDAR devices for fire 

investigations, and specialized equipment (UTVs, ATVs, Trailers) that meet unique needs of the geographic 

areas the agency serves. 

The additional funding will allow the LEI program to fully equip newly hired staff. For example, each new Law 

Enforcement Officer requires additional agency costs, including an average of $10,000 for equipment such as 

body armor, uniform, weapons and other safety equipment and outfitted vehicles costing more than $50,000. 

A portion of the $4,000,000 increase will also be used to continue to prevent the serious damage to natural 

resources caused by illegal marijuana cultivation on public lands. Hazardous materials and activities at illegal 

grow sites cause significant and long-lasting damage to ecosystems, water sources, and wildlife. Funding to 

support illegal grow sites and anti-smuggling efforts is consistent with the National Drug Control Strategy. The 

funding will also enable the law enforcement organization to maintain public safety at the annual Rainbow 

Family of Living Light Gatherings. Attendance at these national and regional gatherings is expected to increase 

by about 10,000 visitors, compared to past years. Serious property and person crime on national forests during 

these events has increased, and more LEI resources and staffing will be needed to manage safety and conduct 

law enforcement activities. 

b) An increase of $467,000 will be used to cover increased law enforcement fleet costs. Increased visitation to 

public lands has resulted in an increase in mileage/use along with wear and tear for law enforcement vehicles. 

Vehicle replacements have been delayed due to supply chain shortages, maintenance, and repair industry prices 

have also increased and are expected to continue to increase over the coming years. 

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CLASSIFICATION BY OBJECTS 

Table FS-28. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

Personnel Compensation: 

Washington D.C.......................................................... 

.................................... 

.................................. 

......................................................... 

..................................... 

............ 

$18,078 $20,331 $22,180 $27,691 

Personnel compensation, field 853,951 960,369 1,047,728 1,308,050 

11.0 Total personnel compensation 872,029 980,700 1,069,908 1,335,741 

12.0 Personal benefits 363,832 406,478 443,453 553,635 

13.0 Benefits for former personnel 1,173 81 88 110 

Total, personnel compensation and benefits 1,237,034 1,387,259 1,513,449 1,889,486 

Other Objects: 

21.0 Travel and transportation of persons........................... 

.............................................. 

............................................. 

........................................... 

............. 

............................................ 

................................ 

.................... 

.......... 

...................... 

.......................... 

................................................................ 

................... 

................................................ 

................................................................... 

..................................................... 

............................ 

............................... 

................................................. 

.............................................................. 

................................................... 

........................................... 

23,378 12,803 20,572 20,636 

22.0 Transportation of things 13,992 8,481 13,627 13,670 

23.1 Rental payments to GSA 18,013 4 6 6 

23.2 Rental payments to others 21,848 417 670 672 

23.3 Communications, utilities, and misc. charges 40,728 1,320 2,121 2,128 

24.0 Printing and reproduction 991 281 452 453 

25.1 Advisory and assistance services 337 13 21 21 

25.2 Other services from non-Federal sources 181,922 124,134 199,457 200,079 

25.3 Other goods and services from Federal sources 223,017 93,822 150,752 151,221 

25.4 Operation and maintenance of facilities 1,268 535 860 862 

25.5 Research and development contracts -5 701 1,126 1,130 

25.6 Medical care 153 98 157 158 

25.7 Operation and maintenance of equipment 5,683 3,243 5,211 5,227 

26.0 Supplies and materials 46,726 36,043 57,913 58,094 

31.0 Equipment 19,035 7,211 11,587 11,623 

32.0 Land and structures 2,282 741 1,191 1,195 

41.0 Grants, subsidies, and contributions 174,689 163,553 262,794 365,870 

42.0 Insurance claims and indemnities 1,612 1,784 2,867 2,875 

43.0 Interest and dividends 16 29 47 47 

92.0 Undistributed 104 150 241 241 

Total, other objects 775,789 455,363 731,672 836,208 

99.9 Total, new obligations 2,012,823 1,842,622 2,245,121 2,725,694 

DHS Building Security Payments (included in 25.3) .... 

......................... 

........................ 

....................................... 

334 2 2 2 

Position Data: 

Average Salary (dollars), ES Position $185,158 $183,533 $188,488 $193,578 

Average Salary (dollars), GS Position $54,110 $69,440 $71,315 $73,240 

Average Grade, GS Position 9.4 9.3 9.6 9.8 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

Collaborative Forest Landscape Restoration 

Current Activities 

This program uses collaborative, science-based approaches to enhance forest and watershed health, reduce risk from 

uncharacteristic wildfire, and provide benefits to rural economies. By working closely with communities, 

Collaborative Forest Landscape Restoration Program (CFLRP) projects continue to identify innovative techniques 

for increasing community support for restoration projects, leveraging capacity, and expanding the scale of 

restoration. CFLRP’s community-based investments in restoration support local rural communities through the 

production of forest products, such as timber and biomass, and the creation and maintenance of jobs. The CFLRP 

Advisory Committee evaluates, supports, and provides recommendations on nominated CFLRP projects to the 

Secretary of Agriculture. 

Specifically Addressed Areas 

With its focused investment on priority landscapes, partner capacity, and community support, CFLRP projects are 

expanding the pace and scale of treatments that reduce the risk of widespread, high-mortality fires. In FY 2020 and 

FY 2021, with 13 and then 14 active CFLRP projects, respectively, the program treated an average of 261,000 acres 

annually to reduce hazardous fuels and produced an average of 209 million board feet of timber volume sold 

annually. 

By promoting shared leadership, shared capacity, and shared risk, CFLRP projects generate community consensus, 

durable decisions, and the ability to solve problems when challenges arise. The majority of CFLRP participants have 

reported reduced conflict and improved decision-making processes28. In response to a 2020 survey of CFLRP 

agency and partner practitioners, 81 percent said that more restoration is happening due to collaboration29. The 

collaborative approach has expanded beyond the CFLRP landscape and has become a standard business practice 

across the agency. 

Selected Examples of Recent Progress 

CFLRP Project Implementation and New Selections. In FY 2021, there were 14 active projects, 13 of which ended 

their 10-year funding at the end of FY 2021 and one new project. In FY 2021, the active CFLRP projects 

accomplished integrated results including 315,000 acres of hazardous fuels treatments, 60 miles of stream habitat 

enhanced, 200 million board feet of timber volume sold, and 9,500 acres of forest vegetation established. 

Northern Blues CFLRP. A new CFLRP project first funded in FY 2021, the Northern Blues CFLRP was the top 

ranked new proposal from the 2020 request for new proposals. The proposal was developed by the Umatilla and 

Wallowa-Whitman National Forests with diverse partners who bring a strong record of cross-boundary restoration 

spanning Northeastern Oregon and Southeastern Washington. 

Project Extension Proposals. In FY 2021, a request for 2012 CFLRP project extensions was initiated. The CFLRP 

Federal Advisory Committee reviewed the proposals and recommended eight extensions to the Secretary. CFLRP 

projects can be granted a one-time extension for the shortest time practicable to complete their proposal. Extensions 

continue to generate results on the land and in communities alongside new CFLRP projects. CFLRP Advisory 

Committee members are appointed based on their expertise and knowledge in seven areas named in the authorizing 

legislation: ecological restoration, fire ecology, fire management, rural economic development, strategies for 

ecological adaptation to climate change, fish and wildlife ecology, and woody biomass and small-diameter tree 

utilization. In reviewing the proposals, the committee evaluated the ecological restoration strategies, the strength of 

the collaborative process, and the likelihood of achieving long term reductions in wildfire management costs among 

other criteria. 

28 Schultz et al (2017). Strategies for Success Under Forest Service Restoration Initiatives. Ecosystem Workforce Program 

Working Paper Number 81. 

29 National Forest Foundation CFLRP Collaboration Survey, 2020 (https://www.nationalforests.org/assets/pdfs/CollaborationIndicatorSurvey-Results-2020-publish.pdf). 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Land Management Planning, Assessment, and Monitoring 

Current Activities 

Land management plans (LMPs) guide National Forest System management activities on the 154 national forests 

and 20 grasslands. Land management requires a continuous cycle of assessing, planning, implementing, and 

adjusting programs and projects based on new information. In FY 2021, Forest Service researchers prioritized the 

use of collaborative science with resource managers on National Forest System lands to identify and accomplish 

mutually beneficial goals and further common interests to study and improve forest and grassland conditions. 

Specifically Addressed Areas 

In FY 2021, the agency continued to revise 19 LMPs (16 under the 2012 Planning Rule and three under the 1982 

Planning Procedures). 

Table FS-29. FY 2022 Land Management Revision and Amendment – Status of Projects 

Region National Forest 

Revision/ 

Amendment Status/Projected Completion 

01 Helena-Lewis and Clark National Forest Revision FY 2022 completion 

01 Custer Gallatin National Forest Revision FY 2022 completion 

01 Nez Perce-Clearwater National Forests Revision FY 2022 completion 

02 Grand Mesa, Uncompahgre, and Gunnison National Forests Revision Underway 

02 Black Hills National Forest Revision Underway 

03 Carson National Forest Revision FY 2022 completion 

03 Cibola National Forest Revision FY 2022 completion 

03 Gila National Forest Revision Underway 

03 Santa Fe National Forest Revision FY 2022 completion 

03 Tonto National Forest Revision FY 2022 completion 

03 Lincoln National Forest Revision Underway 

04 Ashley National Forest Revision Underway 

04 Manti-La Sal National Forest Revision Underway 

04 Salmon National Forest Revision Underway 

05 Sierra National Forest Revision FY 2022 completion 

05 Sequoia National Forest Revision FY 2022 completion 

06 Malheur National Forest Revision Underway 

06 Umatilla National Forest Revision Underway 

06 Wallowa-Whitman National Forest Revision Underway 

08 Nantahala-Pisgah National Forest Revision FY 2022 completion 

Selected Examples of Recent Progress 

Release of Land Management Plans. In FY 2021, the agency facilitated the clearance and release of several draft and 

final land management plans, in accordance with the 2012 Planning Rule. These include the Draft Forest Plan for 

Lincoln National Forest in the Southwestern Region; final plans for the Carson National Forest, Santa Fe National 

Forest, and the Cibola National Forest in the Southwestern Region; and the post-objection final plan for the CusterGallatin National Forest in the Northern Region. 

Monitoring Evaluation Reports. In the first 60 days of FY 2022, four monitoring reports were developed and 

released to provide information to responsible officials and the public about the status of the corresponding land 

management plan’s monitoring program. In FY 2021, 15 biennial monitoring and evaluation reports were developed 

and released. The Northern, Pacific Southwest, and Southern Regions have developed and released 5-year regional 

broad-scale monitoring strategies, and strategies are in development in other regions. Data stewardship to improve 

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the quality of data available for USDA monitoring and performance dashboards remains a priority, including 

promoting more consistent analysis methods. 

Recreation, Heritage, and Wilderness 

Current Activities 

The Recreation program administers recreation sites, including campgrounds, day-use and dispersed areas, trails, 

and special use authorizations, such as ski areas, year-round resorts, and numerous outfitter and guide permits. This 

program provides recreational access to over 193 million acres on national forest lands containing more than 27,000 

campgrounds, picnic areas, trailheads, and day-use areas; 220,000 miles of fishable streams; almost 160,000 miles 

of trail opportunities, 33,000 special use permits, and 122 ski areas. The Heritage program supports the agency’s

mission across most deputy areas by developing ways to streamline compliance with historic preservation laws 

while protecting more than 450,000 heritage sites. The Wilderness program manages more than 36 million acres of 

wilderness areas, and the Wild & Scenic Rivers program administers nearly 5,000 miles of wild and scenic rivers. 

Specifically Addressed Area 

Participation in all forms of outdoor recreation continues to grow, from 151.8 million participants in 2018 to 160.7 

million in 2020.30 Outdoor recreation accounts for 2.1 percent of U.S. Gross Domestic Product, and the Bureau of 

Economic Analysis calculates the economic output of outdoor recreation to be $788 billion. Outdoor recreation 

generates 5.2 million jobs in the United States and outdoor recreation amenities are consistently ranked as one of the 

top reasons people move to rural towns. 

Demand for access to outdoor settings and outdoor recreational experiences is increasing at a rapid pace. Federal 

land management agencies, assisted by partners and gateway communities, host the largest and most diverse array of 

outdoor recreation opportunities in the world. During the pandemic, participation in outdoor recreation increased 

significantly and is expected to continue to grow. Forest Service visitation figures confirm 168 million visits to 

National Forests in 2020, an increase of 18 million visits from 2019. 

Recreation, hunting, fishing, and wildlife viewing together sustain more jobs than any other activity on the National 

Forests and Grasslands. The associated visitor spending supports local businesses that provide guides, outfitting, 

transportation, food, lodging, and other services. Recreation visitor use supported about 168,300 jobs and $13.5 

billion to the Nation’s GDP in 2020.There are opportunities to integrate and coordinate an all-of-government 

approach to economic development by helping communities realize the potential of recreation as a driver to support 

healthy communities, strong businesses, thriving outdoor places, and equitable outdoor recreation opportunities. 

To sustain and grow this level of access, the Forest Service is increasing opportunities found on Recreation.gov, 

modernizing the national forest webpages, investing resources in simplifying the permitting process for outfitters 

and guides, maintaining and encouraging strong collaborations with partners and volunteer groups, and working to 

meet the recreational desires of today’s public who want year-round activities on National Forest System lands. 

Historic legislation like the Great American Outdoors Act (GAOA) (P.L. 116 – 152) invests in recreation 

infrastructure by addressing deferred maintenance of recreation sites and trail systems. Modernization of the 

recreation special uses program continues to be an agency focus, as these efforts enable the Forest Service to 

enhance mission delivery and access for services on NFS lands and forward critical advances in customer 

experience. The program has continued to grow, provide new customer service offerings like the Trail Stewardship 

program, and support critical issues in FY21 including economic recovery, wildfires, and COVID-19. 

National emphasis also continues to be placed on improving planning processes and completing and updating 

comprehensive river management plans for designated wild and scenic rivers. The Forest Service continues to 

emphasize efforts to use technology for organizing and sharing information, as well as expand opportunities for 

interactive learning and engagement with internal and external audiences. The successful shared river stewardship 

efforts through interagency collaborations and nongovernmental partnerships will continue to implement needed 

30 Inspiring the Future Outdoor Recreation Economy. 2021. Headwaters Economics and State Outdoor Business Alliance 

Network https://headwaterseconomics.org/wp-content/uploads/2021HE-SOBAN-Report-FINAL-DOWNLOAD_2.pdf 

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projects, complete water quality data collection, and facilitate connections with diverse communities throughout the 

country. 

Selected Examples of Recent Progress 

Modernizing Customer Service. To accommodate increased access, the Forest Service developed new ways of doing 

business to safely serve the recreating public. The Forest Service continues to offer Recreation.gov to the public as a 

single point of access to comprehensive information about Federal recreation activities. Site services include 

reservation and trip planning for 100,000 individual sites and activities, and 3,500 recreation areas managed by 

seven Federal agencies. Recreation.gov introduced timed reservation tickets to many popular recreation areas and 

National Parks to ensure social distancing and appropriate capacity. Online Christmas Tree Permits and digital 

passes were developed for the public to purchase recreation passes remotely and safely. Curbside pickup services for 

recreation permits have continued to minimize face-to-face transactions while ensuring the health and safety of the 

public and agency employees. Offline or online digital payments for first-come/first-served campsites were also 

successfully used by visitors through the Recreation.gov mobile application, reducing the need for cash handling. 

Many visitors were first-time recreation users of national forest lands. Steps were taken to ensure safe operations 

and long-term viability of recreation service provider partners. These partners ensured that the Forest Service was 

able to meet the needs of visitors. 

Wilderness Accomplishment Reporting. Since FY 2015, Wilderness Stewardship Performance has tracked 

management actions in the Forest Service’s 448 wilderness areas. Annual average accomplishment reporting

continues to show improvements towards addressing desired actions across 20 interdisciplinary elements. These 

elements help define successful wilderness stewardship based on the Wilderness Act and comprise the essential 

qualities of wilderness character. Collaborative efforts to leverage funds with partner organizations has doubled and, 

in some cases, quadrupled agency funds. In FY 2021, the Forest Service funded 31 Wilderness Stewardship 

Performance projects across 146 wilderness areas. National funding for Wilderness Stewardship Performance 

facilitated a continued upward trajectory of national performance measurement scores. Under the Wilderness 

Character Monitoring program, the first round of monitoring for all agency wilderness areas will be completed by 

the end of FY 2024. As of FY 2021, the agency has completed Wilderness Character Monitoring work on about 22 

percent of its wilderness areas (99 wilderness areas). Combined with baseline data collections in process, the Forest 

Service has collected baseline data or is in the process of doing so on about 60 percent of the agency’s wilderness 

areas. The Forest Service will continue to lead the effort in this interagency program to establish baseline data for all 

agency wilderness areas and prepare wilderness areas for the second round of monitoring. Following the second 

round, the agency can determine trends in wilderness character across agency boundaries. 

Improvements to Heritage Web. In FY 2021, the program made improvements to Heritage Web31. The 

improvements include a Heritage Export Tool enabling the Forest Service to share data with State Historic 

Preservation Officers (SHPOs) digitally instead of with conventional reports. This reduces data entry time by an 

estimated 25 percent. While the tool is still under development, substantial progress toward its completion was made 

in FY 2021. 

Wildlife and Fisheries Habitat Management 

Current Activities 

This program manages habitats and maintains ecological conditions needed to maintain the diversity, viability, and 

productivity of plant and animal communities; and reforestation and revegetation efforts in support of ecological 

restoration and post-wildfire recovery. Habitat restoration ensures vital amenities such as clean water and 

recreational opportunities remain available. 

National Forest System lands contain many different habitats, including 80 percent of elk, bighorn sheep, and 

mountain goat habitat; the majority of habitat remaining for rare and wide-ranging carnivores such as grizzly bear 

31 Internal, confidential database of Heritage assets. The data contained within the database is confidential as required by the 

1979 Archeological Resource Protection Act as amended 16 USC Chapter 18 Section 470hh/Recreation 

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and Canada lynx; greater than 28 million acres of wild turkey habitat; and 50 percent of the Nation’s premier trout 

and salmon habitat in the continental United States. 

Specifically Addressed Areas 

In FY 2021 an emphasis was placed on integrated projects that produced multiple resource benefits. Agency funds 

were used to leverage nearly $33 million from partners to conserve and restore more than 3.2 million acres of 

wildlife habitat while delivering important economic, social, and cultural benefits to communities and stakeholders. 

Working with partners, the wildlife program enhanced wildlife habitat in conjunction with commercial timber 

harvest on 123,261 acres and with hazardous fuels reduction on 1.3 million acres. The agency worked side-by-side 

with Federal, State, Tribal, nonprofit, and community partners to improve, maintain, monitor, and restore terrestrial 

and riparian habitats while delivering lands of many uses to the American people. 

Selected Example of Recent Progress 

Aquatic Organism Passage Improvements. In FY 2021, the Forest Service achieved the removal or upgrade of 

nearly 100 road-stream crossings, providing improved aquatic organism, such as fish, crustaceans, or mollusks, 

passage to more than 170 miles of reconnected stream segments. This critical climate change adaptation work 

provides ecological resiliency for many valuable threatened and endangered aquatic species and builds community 

and transportation infrastructure resiliency in the face of warming waters and increased flooding potential. Agency 

and partner investments in mitigating priority barriers will help reach the agency’s goal of making an additional 

1,500 culverts, dams, and irrigation diversions fish-passage friendly in the next five years. This significant milestone 

is made possible by the continued commitment of partners, as well as supplemental funding provided by the Great 

American Outdoors Act (P.L. 116-152). Major partners include the Federal Highway Administration, U.S. Fish & 

Wildlife Service, several Native American Tribes, Trout Unlimited, and State transportation and fish and wildlife 

agencies. 

Grazing Management 

Current Activities 

The Grazing Management program manages approximately 94 million acres (about half of all National Forest 

System lands) of rangeland resources on National Forest System lands to maintain a sustainable supply of forage for 

livestock, sustain water resources, and provide suitable wildlife habitat and ecosystem services. Program goals are 

met with support of partners, which include Society for Range Management, Public Lands Council, Sustainable 

Rangeland Roundtable, and numerous local livestock producer organizations. 

Specifically Addressed Areas 

Based on the agency’s FY 2020 economic analysis, livestock grazing on National Forests and Grasslands 

contributed about 14,200 jobs and $553 million to the Nation’s GDP. Providing forage for livestock promotes 

economic stability for rural communities while using livestock grazing as a management tool to reduce fine fuels, 

combat invasive plant populations, and enhance habitat for native plants and animals. To find the best solutions and 

monitoring strategies for vegetation management, the agency works with livestock permittees and the relevant 

regulatory agencies, such as the U.S. Fish and Wildlife Service and National Marine Fisheries Service. 

Grazing management practices are informed by Forest Service research. Rangelands within semiarid ecosystems 

face challenges such as invasive species, encroachment of woody vegetation, altered fire regimes, and drought. This 

research contributes to the development of long-term risk management strategies to improve rangeland management. 

Selected Examples of Recent Progress 

Policy and Regulatory Reforms. In FY 2021, the agency continued efforts on the proposed Rangeland Management 

directives (Forest Service Manual and Handbook) by analyzing and responding to public and internal comments 

received during the public comment period. Approximately 2,500 comment letters were received. Comments were 

analyzed and edits incorporated into the Final Directives, which will be finalized and released by chapters 

throughout FY 2022 and FY 2023. Revision of the Rangeland Management Directives is an effort to modernize and 

update the directives that have been essentially unchanged for the past 30 years. Efforts on the Proposed Excess and 

Unauthorized Use Rule (published October 2020) continued throughout FY 2021 as the agency began the process 

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for clearance of the Final Rule, publication, and implementation in FY 2022. Modifications to the rule were made 

based on Tribal and public input. 

Adapting to Challenges Posed by COVID-19. In FY 2020 and FY 2021, the agency was faced with many 

challenges, including COVID-19 and an intense fire season. Revised guidance for the FY 2021 grazing season was 

issued allowing line officer discretion when assisting livestock operators to mitigate these challenges. Staff were 

available to meet with permittees, either in person following the Centers of Disease Control and Prevention (CDC) 

recommendations, by phone, email, or other electronic platforms, to finalize FY 2021 grazing plans. Additionally, 

staff continued to conduct field visits while following CDC recommendations, and leveraged available tools, such as 

Pay.gov, to ensure flexibility in payment methods. 

Forest Products 

Current Activities 

This program ensures the productive and sustainable use of national forest lands by supporting healthy and resilient 

forests and communities. Through the annual sale of billions of board feet of timber, this program generates jobs in 

rural America. 

Specifically Addressed Areas 

The agency continues to grow relationships with State partners using the Good Neighbor Authority (GNA), which 

allows States to restore watersheds and manage forests on national forest lands via agreements or contracts. A total 

of 338 GNA agreements covering a variety of restoration activities are in place across 38 States, with 53 new 

agreements implemented in FY 2021. Timber harvesting under GNA continues to grow; 273 million board feet were 

sold in FY 2021 under this authority, an increase from 235 million board feet in FY 2020. The 2018 Farm Bill 

expanded GNA authority to allow counties and Tribes to participate in the program. There are currently three GNA 

agreements with counties and three with Tribes that are focused primarily on resource areas surrounding wildlife 

and fisheries habitat. 

In FY 2021, the program continued implementation of the Forest Products Modernization Strategic Framework for 

Long-Term Action, a five-year plan (2019-2023) to modernize and improve policies, business practices, and tools to 

increase efficiency in the planning and implementation of forest products delivery. In FY 2021, program staff 

continued to migrate many of their training programs to a virtual format, allowing field staff to receive necessary 

training while remaining safe during COVID-19, and lowering training costs. The program also continued revising 

the Forest Service Manual and Handbook directives for timber sale preparation for public comment, including 

consultation with Tribes. In FY 2021, the program developed and tested a web-based application for announcing 

timber sale contract advertisements. The application launched October 1, 2021. 

The agency continued implementation of 2018 Farm Bill provisions related to self-governance agreements (often 

referred to as 638 agreements or contracts) under the Indian Self-Determination and Education Assistance Act. This 

authority allows the agency to carry out demonstration projects by which Federally recognized Indian Tribes or 

Tribal organizations may contract to perform administrative, management, and other functions of programs of the 

Tribal Forest Protection Act. This enables Tribes across the Nation to collaborate in the “planning and

implementation of programs for the benefit of Indians in ways that are responsive to the true needs of Indian 

communities.” Agreements for inaugural pilot projects have been signed with the Tulalip tribes in Washington and 

the Pueblo of Jemez in New Mexico, with more projects planned across the country. 

The Forest Products program contributes approximately 42,500 jobs and $3.7 billion of gross domestic product, as 

reported in the agency’s FY 2020 economic analysis. These achievements were, in part, made possible by the use 

Good Neighbor Authority, modernization for National Environmental Policy Act Planning and Forest Products 

delivery, insect and disease designations, stewardship contracting, and the Agriculture Conservation Experienced 

Services Program. 

Selected Examples of Recent Progress 

Timber Sale Achievements and Economic Contributions. In FY 2021, the agency sold approximately 2.87 billion 

board feet (agency target of 4.0 billion board feet), a decrease from the 3.2 billion board feet sold in FY 2020, for a 

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total value of nearly $197 million. The decrease in sales was primarily due to limited staff capacity and no-bid sales. 

The COVID-19 pandemic limited the mobility of timber crews, and field work continues to be difficult to 

accomplish due to the large fire activity across the western U.S. For example, many employees that usually work to 

prepare timber sales were assigned to wildfire suppression and support. Recovery efforts after large fires, including 

stabilization work and hazard tree removal, necessitate the involvement of the staff who would typically work on 

preparing and administering timber sales. FY 2021 sales included more than 500 contracts greater than $10,000, 

nearly 66,000 small timber contracts and permits, and 20,000 special forest product permits for products other than 

timber. Various special Forest Management programs contributed to this volume; including, total volume sold from 

salvage sale funds, other permanent and trust funds, and Collaborative Forest Landscape Restoration Program 

funding exceeded 217 million board feet (MMBF). Additional programs that sold timber volume include GNA (273 

MMBF) and stewardship contracting and agreements (667 MMBF). 

Adapting Timber Sale Activities to COVID-19. The Forest Service has implemented many protocol changes in the 

way timber sale activities are prepared, delivered, and administered on National Forest System lands. The priority 

continues to be the safety of employees, contractors, and local communities. In FY 2021, several factors due to 

COVID-19, including travel restrictions, social distance requirements, and shelter-at-home issuances, contributed to 

the reduced number of timber sales. Additionally, market uncertainties and limited forest product manufacturing 

(due to the collapse in demand) affected the number of sales being awarded. In addition to increasing the use of the 

authorities to promote shared stewardship and the implementation of modernization efforts, the Forest Service has 

implemented new protocols to mitigate these issues. 

Vegetation and Watershed Management 

Current Activities 

This program ensures the productive and sustainable use of National Forest System lands by improving the 

condition and health of forest and rangeland vegetation, controlling the spread of invasive species, sustaining soil 

productivity, reducing the risk of severe flooding and erosion in areas affected by severe fire, and maintaining water 

quality. This program also funds the Wild Horse and Burro program. 

Specifically Addressed Areas 

The Forest Service has used the Watershed Condition Framework (WCF) to focus watershed restoration work on 

priority areas since FY 2011. In FY 2021, the Forest Service completed work necessary to improve or maintain 

conditions in 10 priority watersheds. The total area soil and water resources restored or enhanced in FY 2021, 

including those in priority watersheds, was more than 287,600 acres. Also, in FY 2021, more than 21,000 acres of 

lakes and 2,390 miles of stream habitat were restored or enhanced. In FY 2021, the Forest Service began a multiyear process to “modernize” the WCF to ensure consistency with the Agriculture Improvement Act of 2018 (2018 

Farm Bill, Title VIII, Subtitle D, Section 8405) and incorporate best available science and lessons learned over the 

first 10 years of program implementation. 

Beginning in FY 2020, the Forest Service tracked improvements to landscapes through the Terrestrial Condition 

Assessment, which identifies the ecological integrity and health of terrestrial ecosystems. The landscape condition is 

integrated with management activities tracked through the Forest Service Activity Tracking System (FACTS) to 

determine the outcomes of work accomplished. In FY 2021, 29 percent of landscape ecosystems where management 

occurred were improved, maintained, or are recovering. Many management activities supported by the program 

contribute to this reporting measure and the improvement of landscape conditions; in FY 2021, the total area of 

vegetation improved was over 169,000 acres of forestland and over 426,000 acres of rangeland. Over 489,000 acres 

were treated for invasive terrestrial and aquatic species with an additional 255,000 acres treated for noxious weeds 

and invasive plants. Additionally, 354,000 acres of native plant vegetation were established. 

Selected Examples of Recent Progress 

Best Management Practices (BMP) Evaluations. In FY 2021, the Forest Service completed BMP monitoring 

evaluations on more than 350 sites or projects to assess nonpoint source pollution control in agency activities. The 

Forest Service used the information gained in the BMP monitoring evaluation for three primary outcomes: 1) 

improve protection of aquatic and riparian resources through adaptive management; 2) document the use and 

effectiveness of BMP for National Environmental Policy Act (NEPA) analyses to support or strengthen the 

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environmental analyses for priority timber sale and fuels management projects, particularly landscape scale projects; 

and 3) continue to monitor BMPs and share data to document compliance with the State Nonpoint Source 

Management Plan, as directed by the Clean Water Act. In FY 2021, the Forest Service launched development of a 

new BMP monitoring data management system to improve sharing of this important information with State water 

quality agencies, the Environmental Protection Agency, and other partners. 

Wild Spotter Citizen Science Invasive Species Mapping Program on National Forests and National Grasslands 

Nationwide. This program involves multiple partnerships with public and private organizations nationwide and is 

designed to address capacity gaps in invasive species detection at the field level. Prior to visiting national forests, 

citizen scientists download a mobile phone app prior to visiting national forests that guides them through 

identifying, mapping, and reporting invasive species. In FY 2021, Wild Spotter Facebook posts reached 200,000 

users including 12,000 new users and there were 1,639 new smartphone app downloads. Through this program, the 

agency enhances its ability to find, monitor, and prevent invasive species and builds community-based networks that 

increase capacity to conserve natural resources of the National Forest System. 

Minerals and Geology Management 

Current Activities 

National forests and grasslands ensure the adequate and sustainable supply of domestic mineral and energy 

resources that contribute to the health, productivity, and overall wellbeing of all Americans. The benefits to society 

originate from mineral and energy extraction to produce metals, alloys, and plastics, and to transport and power the 

modern American life. The program secures and protects unique resources, such as fossils, caves, groundwater, 

wildlife habitat, and places of scientific, cultural, and recreational interest. The program protects people and the 

environment by monitoring and mitigating geologic hazards, like landslides, through the reclamation of surface 

resources for multiple recreational uses. Promoting economic growth, long-term healthy environments, 

sustainability for other forest uses, and stability for rural communities and underrepresented populations while 

enforcing the best practices for protection of the environment are pillars of this program. 

Specifically Addressed Areas 

The program contributes almost $5.6 billion annually to the Nation’s economy and supports approximately 38,700 

jobs as reported in the agency’s most recent economic analysis (FY 2020). Energy and mineral development from 

Federal leases on National Forest System lands produced commodities valued at $2.3 billion which generated $225 

million in revenue through royalties and other payments to the U.S. Treasury. This amounts to about 8 percent of all 

revenues collected from energy and mineral production on Federal onshore lands. All Federal oil and gas royalty, 

rental fee, and bonus bid revenue is split between the U.S. Treasury and the States with the energy and mineral 

development. 

Approximately $2.9 million worth of mineral materials (e.g., sand/gravel, crushed stone, and landscape materials) 

were removed under contract from National Forest System lands. Many forest units provide free use community 

mineral material permits to small or underrepresented populations for public construction projects. 

Selected Examples of Recent Progress 

Program Outreach. The Minerals and Geology Management program promotes public outreach activities and 

products such as volunteer-based geological resource conservation projects and activity booklets. These activities 

introduce a wealth of geologic and conservation resources on National Forest System lands to audiences from school 

children to adults. In collaboration with the National Park Service, the Minerals and Geology Management program 

produced a Junior Ranger Cave Scientist booklet, and, in FY 2021, the booklet was translated into Spanish. This 

booklet is an educational tool to share the resource conservation mission to the public, including under-represented 

and Spanish-speaking communities. 

Identification of Orphan and Abandoned Wells. The Forest Service Southern and Eastern Regions continue to 

identify 50- to 100-year-old orphan and abandoned wells located in the oil and gas regions in the Eastern United 

States forest lands. In FY 2021, pilot projects on the Allegheny and Daniel Boone National Forests facilitated the 

identification of 900 sites with orphan wells requiring plugging and abandoned oilfield infrastructure requiring 

removal. Agency-wide, this ongoing project continues to identify thousands of additional wells that are not listed on 

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State or internal Federal databases. These orphan and abandoned wells present a health and safety concern to 

National Forest System lands, especially adjacent to underrepresented or disadvantaged locations. 

Mineral Databases. A national self-reporting Abandoned Mine Lands database is operational for all National Forest 

System lands to enter legacy mining features that need safety remediation. This real-time database allows users to 

produce reports and maps with spot data outlining the locations, including the state of remediation. A national, realtime oil and gas database outlining legacy oil and gas sites, oil field equipment, and orphan and abandoned wells, 

including the state of remediation is in development. 

Land Use Authorization and Access 

Current Activities 

This program ensures the productive and sustainable use of National Forest System lands through various land and 

natural resource management activities in support of the social and economic wellbeing of rural and urban 

communities. The program secures and protects National Forest System lands and land interests. The Forest Service 

surveys lands in advance of timber sales, acquires rights-of-way, and administers road agreements necessary for 

public and agency access to complete activities, including timber production, transportation, recreation, and utility 

inspection. 

Specifically Addressed Areas 

This program oversees permit processing, administration, and surveying for energy infrastructure and commercial 

interests on national forests and grasslands. In FY 2021, this infrastructure generated $70 million in land use 

authorization fees to the U.S. Treasury. Current agency permits include about 2,700 power line authorizations, 

supporting approximately 18,000 miles of powerlines and carrying electricity to 70 million homes; 1,600 oil and gas 

pipelines covering 6,600 linear miles; 250 Federal Energy Regulatory Commission licensed and exempted facilities; 

2,000 reservoirs delivering water to municipalities in local towns; 14,000 recreation residences; 1,367 designated 

communications sites that accommodate over 10,000 wireless communication uses, including cellular and 

broadband technology; and significant water delivery infrastructure for communities. 

Selected Examples of Recent Progress 

Job Corps Special Uses Training/GIS Workforce Development Training. The Forest Service has faced challenges in 

effectively managing the Special Uses program due to increasing vacancies and an associated decrease in skilled 

Special Uses administrators. The Lands and Realty Management program, in partnership with the Lyndon B. 

Johnson Job Corps center, developed and piloted the Special Uses Workforce Development program, to expand the 

number of Special Uses administrators and to increase diversity in the field. As part of this two-year piloted 

program, students are trained in Office Administration and Special Uses before gaining on-the-job experience on 

Forest Service units. Following the program completion, students can gain additional experience with industry 

partners, complete college programming to earn a certification in Special Uses, and compete for or convert into 

permanent positions with the Forest Service. 

With the success of the pilot program, the Special Uses Workforce Development program is expanding its reach to 

other organizations seeking to introduce underrepresented groups to natural resources and provide training for 

successful careers in the agency. In FY 2021, the Lands and Realty Management program began a partnership with 

the Southern California Mountains Foundation under its Urban Conservation Corps (UCC) of the Inland Empire 

Program in developing Geographic Information System training for Special Uses professionals for corps members 

(ages 18-25). The goal is to develop the next generation of natural resource conservation stewards and ultimately 

transfer UCC diverse corps members from California to enter the Special Uses Workforce Development program at 

the Lyndon B. Johnson Center Job Corps in North Carolina. This will increase member’s opportunities to gain 

professional employment and/or internships with the Forest Service. 

Hydropower Relicensing. Hydropower generation on National Forest System lands represents 25 percent of the 

Nation’s total 80,000 megawatt (MW) generating capacity, providing electricity for approximately 70 million 

homes. Hydropower facilities on National Forest System lands also provide other public benefits including 

recreation, water supply, and flood control. The agency’s objectives are to encourage hydropower production where 

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compatible with national forest goals and to ensure that the planning, construction, and operation of hydropower 

facilities protect and effectively utilize National Forest System lands and resources. 

Hydropower licenses are issued by the Federal Energy Regulatory Commission (FERC) for a period of 30 to 50 

years. Many hydropower facilities on National Forest System lands have been in place for several decades and will 

begin relicensing in the next 5 to 10 years. License proceedings can be lengthy and complex, and considerable staff 

time is often required to meet agency objectives with respect to hydropower development. Current agency capacity 

to engage in FERC proceedings is limited compared to a similarly intensive period of hydropower licensing that 

started during the late 1990s. The difference in agency expenditures for FERC proceedings between 2000 and 2021 

when adjusted for inflation is about $9.6 million. Plans for increasing agency capacity to engage in the increasing 

numbers of proceedings are being developed with input from the Regional Hydropower staff. 

Law Enforcement Operations 

Law Enforcement Operations’ primary focus is the protection of natural resources, the public, Forest Service 

employees, and visitors on National Forest System lands. Forest Service law enforcement staff provide a critical 

presence on a vast number of public lands, roads, and recreation sites. Staff conduct enforcement activities and 

criminal and civil investigations involving incidents of theft, assault, alcohol, and drug use; unauthorized motor 

vehicle use; illegal occupancy; trespassing; wildland fire arson; drug smuggling and manufacturing; fraud; and 

assaults and threats to employees. The program maintains numerous cooperative partnerships with local agencies 

and communities to provide a wide range of services. 

Current Activities 

In FY 2021, National Forest System lands continued to experience unprecedented visitation and use due to the 

COVID-19 pandemic. Law Enforcement staff continued to provide an increased public safety presence, resource 

protection activities, and education to help manage the large numbers of users. Law Enforcement staff also used new 

operational procedures, such as minimizing physical contact, modifying sanitation measures, and promoting regular 

testing, to operate safely in the COVID-19 environment while continuing to successfully perform primary mission 

functions. The Forest Service maintained critical partnerships with other law enforcement agencies. In FY 2021, 

nearly $5.2 million was spent to maintain approximately 478 Cooperative Law Enforcement Agreements with State, 

county, and local partners. The agreements provide funding to law enforcement cooperators to enhance law 

enforcement coverage on National Forest System lands and ensure public safety. Under the Federal Emergency 

Management Agency’s Emergency Support Function (ESF) #13, Public Safety and Security Annex, the Forest 

Service collaborated with the Department of Justice and other partners to help with law enforcement emergencies 

during the fiscal year. Law Enforcement staff also provided significant support to fire prevention, protection, and 

suppression activities in FY 2021, including in California and Oregon, which experienced unprecedented forest 

closures and fire activity. 

Specifically Addressed Areas 

The Law Enforcement Operations program has continued to take steps to modernize, leverage technology, and make 

program management changes to improve the organization’s efficiency and effectiveness. In FY 2021, the 

program’s new enforcement and investigation reporting and record system underwent additional development and 

new functionality was added (training tracking, equipment tracking, time/work management features). The new 

system is a more efficient and robust system and is compliant with the National Incident-Based Reporting System, 

National Incident Criminal Background Check System, and use of force reporting requirements. Law Enforcement 

Operations also fully deployed a national Body Worn Camera (BWC) and video evidence storage system solution. 

The BWC is used by all field staff and has contributed to a significant increase in accountability and transparency to 

the public. Law Enforcement Operations also began a phased vehicle-mounted camera use and procurement 

program to complement the BWC use. 

In partnership with Forest Service Research and Development and academic research partners, the Forest Service 

has continued to develop and field a novel tool to detect highly destructive, illegal marijuana cultivation sites using 

satellite imagery and innovative machine-learning algorithms. The Forest Service has also worked with industry 

partners to develop a portable hand-held system to analyze and identify hazardous chemicals and pesticides in grow 

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sites. The system greatly increases safety of field personnel and allows rapid detection of substances while reducing 

clean-up and laboratory analysis costs. 

Selected Examples of Recent Progress 

Multi-agency Marijuana Eradication. The Forest Service has continued to conduct multi-agency eradication 

operations and investigations to target marijuana cultivated on National Forest System lands and adjacent public 

lands and to prioritize clean up and reclamation activities in support of the National Drug Control Strategy. Drug 

trafficking organizations produce large amounts of trash, hazardous materials, and toxic chemicals that create a 

significant risk to wildlife, water, and habitat near grow areas. In FY 2021, new technologies helped to assist in 

locating new clandestine grow sites and to identify dangerous toxicants in the field and reduce potential exposure to 

personnel. In FY 2021, historic fire activity in California, Oregon, and Washington hindered operations and reduced 

resources; however, the Forest Service and cooperators located 422 marijuana grow sites, resulting in 1.1 million 

marijuana plants being eradicated; over 134,000 pounds of processed marijuana being seized (102 percent increase 

from FY 2020); 1,425 aviation short-hauls; 269 arrests (97 percent increase from FY 2020); and 149 weapons 

seized. 

Reclamation occurred on over 250 public land sites, resulting in the removal of: over 60,000 pounds of 

infrastructure/refuse; over 65,000 pounds of fertilizer; over 9,400 ounces of pesticides; over 3,300 ounces of 

restricted poisons; 236 miles of water line; 393 propane tanks; 104 man-made dams; and 52 car batteries. Law 

Enforcement and Operations also collaborated with partners and other volunteer organizations to facilitate additional 

reclamation and rehabilitation of lands effected by illegal marijuana grows. 

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CAPITAL IMPROVEMENT AND MAINTENANCE 

LEAD-OFF TABULAR STATEMENT 

Table FS-30. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Annualized CR, 2022............................................................................................................... 

.......................................................................................................... 

.............................................................................................................. 

$140,371,000 

Change in Appropriation -

Budget Request, 2023 140,371,000 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 

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

For necessary expenses of the Forest Service, not otherwise provided for, [$148,371,000]$140,371,000, to remain 

available through September 30, [2025]2026, for construction, capital improvement, maintenance, and acquisition of 

buildings and other facilities and infrastructure; and for construction, reconstruction, and decommissioning of roads 

that are no longer needed, including unauthorized roads that are not part of the transportation system[,]; and for 

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. 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

CAPITAL IMPROVEMENT AND MAINTENANCE 

[For an additional amount for "Capital Improvement and Maintenance", $470,000,000, to remain available until 

expended, for necessary expenses related to the consequences of calendar year 2019, 2020, and 2021 wildfires, 

hurricanes, and other natural disasters.] 

(Disaster Relief Supplemental Appropriations Act, 2022.) 

CAPITAL IMPROVEMENT AND MAINTENANCE 

[(Including Transfers of Funds)] 

[For an additional amount for "Capital Improvement and Maintenance", $360,000,000, to remain available until 

September 30, 2029: Provided, That $72,000,000, to remain available until September 30, 2025, shall be made 

available for fiscal year 2022, $72,000,000, to remain available until September 30, 2026, shall be made available 

for fiscal year 2023, $72,000,000, to remain available until September 30, 2027, shall be made available for fiscal 

year 2024, $72,000,000, to remain available until September 30, 2028, shall be made available for fiscal year 2025, 

and $72,000,000, to remain available until September 30, 2029, shall be made available for fiscal year 2026: 

Provided further, That of the funds made available under this heading in this Act, the following amounts shall be for 

the following purposes in equal amounts for each of fiscal years 2022 through 2026--(1) $250,000,000 to carry out 

activities of the Legacy Road and Trail Remediation Program, as authorized in Public Law 88-657 (16 U.S.C. 532 et 

seq.) (commonly known as the "Forest Roads and Trails Act"), as amended by section 40801 of division D of this 

Act;(2) $100,000,000 for construction of temporary roads or reconstruction and maintenance of roads to facilitate 

forest restoration and management projects that reduce wildfire risk; and(3) $10,000,000 for the removal of nonhydropower Federal dams and for providing dam removal technical assistance: Provided further, That funds 

appropriated under this heading in this Act may be transferred to the United States Fish and Wildlife Service and the 

National Marine Fisheries Service for the costs of carrying out their responsibilities under the Endangered Species 

Act of 1973 (16 U.S.C. 1531 et seq.) to consult and conference, as required by section 7 of such Act, in connection 

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with wildland fire management activities: Provided further, That amounts made available under this heading in this 

Act for each of fiscal years 2022 through 2026 may be transferred between accounts affected by the Forest Service 

budget restructure outlined in section 435 of division D of the Further Consolidated Appropriations Act, 2020 

(Public Law 116-94) to carry out the activities in support of this heading: Provided further, That one-half of one 

percent of the amounts made available under this heading in this Act in each of fiscal years 2022 through 2026 shall 

be transferred to the Office of Inspector General of the Department of Agriculture for oversight of funding provided 

to the Forest Service in this title in this Act: Provided further, That such amount is designated by the Congress as 

being for an emergency requirement pursuant to section 4112(a) of H. Con. Res. 71 (115th Congress), the 

concurrent resolution on the budget for fiscal year 2018, and to section 251(b) of the Balanced Budget and 

Emergency Deficit Control Act of 1985.] 

(Infrastructure Investments and Jobs Appropriations Act.) 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-31. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Discretionary Appropriations: 

Facilities................................................................ 

.................................................................... 

..................................................................... 

.................. 

.................................................................. 

..... 

.................................................................... 

.................. 

................................................ 

..................................... 

......................................... 

................................

........................................... 

................................................... 

.......................................... 

........................................................ 

.......................................... 

..................................................... 

$154,000 425 $54,037 17 $54,037 - $54,037 - - -

Roads 220,000 1,079 68,895 50 68,895 - 68,895 - - -

Trails 81,000 525 17,439 28 17,439 - 17,439 - - -

Total, Discretionary Appropriations 455,000 2,029 140,371 95 140,371 - 140,371 - - -

Supplemental Appropriations: 

Disaster Relief Appropriations (P.L. 115-123) a ... - 11 - 8 - 6 - - - -6 

Disaster Relief Appropriations (P.L. 116-20) b ..... - 2 - 2 - 2 - 2 - -

Coronavirus Relief Appropriations (P.L. 116-

136) c 26,800 1 - 5 - - - - - -

Disaster Relief Appropriations (P.L. 117-43) d - - - - 470,000 - - - -$470,000 -

Infrastructure Investment and Jobs Act (P.L. 117-

58) e - - - - 72,000 - 72,000 - - -

Total, Supplemental Appropriations 26,800 14 - 15 542,000 8 72,000 2 -470,000 -6 

Total Appropriations 481,800 2,043 140,371 110 682,371 8 212,371 2 -470,000 -6 

Transfers Out: 

Forest Service Operations - - -264 - -8,640 - -8,640 - - -

National Forest System - - - - -21,600 - -21,600 - - -

Office of Inspector General .. - - - - -360 - -360 - - -

Total, Transfers Out - - -264 - -30,600 - -30,600 - - -

Recoveries, Other 8,375 - 17,051 - 17,051 - 17,051 - -

Balance Available, SOY 96,759 - 103,044 - 72,547 - 400,288 - +327,741 -

Total Available 586,934 2,043 260,202 110 741,369 8 599,110 2 -142,259 -6 

Balance Available, EOY -103,043 - -72,547 - -400,288 -162,492 +237,796 -

Total Obligations 483,891 2,043 187,655 110 341,081 8 436,618 2 +95,537 -6 

a P.L. 115-123 provided $91,600,000 for necessary expenses related to the consequences of Hurricanes Harvey, Irma, and Maria, and the calendar year 2017 fire season. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

b P.L. 116-20 provided $36,040,000 for necessary expenses related to the consequences of Hurricanes Florence and Michael, and the calendar year 2018 wildfires. 

c P.L. 116-136 provided $26,800,000 to prepare, prevent, and respond to coronavirus. Budget authority expired effective October 1, 2021. 

d P.L. 117-43 provided $710,000,000 for necessary expenses related to wildfires, hurricanes, and other natural disasters that occurred between calendar years 2019 through 2021. 

e FY 2022 supplemental appropriations include disaster relief (P.L. 117-43) and advance appropriations in the Infrastructure Investment and Jobs Act (P.L. 117-58). FY 2023 

supplemental appropriations are entirely advance appropriations from the Infrastructure Investment and Jobs Act. See also the spend plans for advance appropriations on page 213. P.L. 

117-58 provided $72,000,000 in fiscal year 2022 and reserves $72,000,000 each year from fiscal years 2022 through 2026. 

Table FS-32. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 2021 Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE Inc. or Dec. 

FTE 

Inc. or 

Dec. 

Discretionary Obligations: 

Facilities............................................................... 

................................................................... 

.................................................................... 

..................................................... 

...................................... 

.... 

....................... 

.. 

.... 

................................................................. 

.... 

............................................................ 

....................... 

.................................................... 

............................................................... 

................................................................... 

$144,481 425 $64,042 17 $68,840 - $67,317 - -$1,523 -

Roads 182,017 1,079 68,031 50 73,129 - 71,511 - -1,618 -

Trails 60,420 525 19,905 28 21,396 - 20,922 - -474 -

Deferred Maintenance and Infrastructure 

Improvement - - - - 93 - - - -93 -

Legacy Roads and Trails 1,108 - 70 - 1,178 - - - -1,178 -

Capital Improvement and Maintenance, Other 79,340 - 2,143 - 2,512 - - - -2,512 -

Total, Discretionary Obligations 467,366 2,029 154,191 95 167,148 - 159,750 - -7,398 -

Supplemental Obligations: 

Disaster Relief Appropriations (P.L. 115-123) a 5,526 11 11,829 8 14,572 6 - - -14,572 -6 

Disaster Relief Appropriations (P.L. 116-20) b 2,552 2 3,508 2 4,350 2 5,268 2 +918 -

Coronavirus Relief Appropriations (P.L. 116-

136) c 8,447 1 18,127 5 226 - - - -226 -

Disaster Relief Appropriations (P.L. 117-43) d - - - - 117,500 - 235,000 - +117,500 -

Infrastructure Investment and Jobs Act (P.L. 

117-58) e - - - - 37,285 - 36,600 - -685 -

Total, Supplemental Obligations 16,525 14 33,464 15 173,933 8 276,868 2 +102,935 -6 

Total Obligations 483,891 2,043 187,655 110 341,081 8 436,618 2 95,537 -6 

Balances Available, EOY: 

Facilities 19,128 - 17,207 - 14,688 - 13,375 - -1,313 -

Roads 3,467 - 7,046 - 6,015 - 5,477 - -538 -

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 Continuing Budget Inc. or 

Actual FTE 2021 Actual FTE Resolution FTE Request FTE Inc. or Dec. Dec. 

Trails .................................................................... 

..................................................... 

...................................... 

.... 

.. 

.... 

................................................................. 

............................................................ 

.......................... 

....................................................... 

.............................................. 

................................................ 

...................................... 

............................................... 

1,996 - 1,589 - 1,357 - 1,236 - -121 -

Deferred Maintenance and Infrastructure 

Improvement 92 - 93 - - - - - - -

Legacy Roads and Trails 61 - 1,178 - - - - - - -

Capital Improvement and Maintenance, Other 3,383 - 2,512 - - - - - - -

Disaster Relief Appropriations (P.L. 115-123) a 25,159 - 14,572 - - - - - - -

Disaster Relief Appropriations (P.L. 116-20) b 31,404 - 28,023 - 23,673 - 18,737 - -4,936 -

Coronavirus Relief Appropriations (P.L. 116-

136) c 18,353 - 327 - - - - - - -

Disaster Relief Appropriations (P.L. 117-43) d .... - - - - 352,500 - 119,620 - -232,880 -

Infrastructure Investment and Jobs Act (P.L. 

117-58) e - - - - 2,055 - 4,047 - +1,992 -

Total Balance Available, EOY 103,043 - 72,547 - 400,288 - 162,492 - -237,796 -

Total Available 586,934 2,043 260,202 110 741,369 8 599,110 2 -142,259 -6 

Less: 

Total Transfers Out - - 264 - 30,600 - 30,600 - -

Recoveries, Other -8,375 - -17,051 - -17,051 - -17,051 - - -

Balance Available, SOY -96,759 - -103,044 - -72,547 - -400,288 - -327,741 -

Total Appropriations 481,800 2,043 140,371 110 682,371 8 212,371 2 -470,000 -6 

a P.L. 115-123 provided $91,600,000 for necessary expenses related to the consequences of Hurricanes Harvey, Irma, and Maria, and the calendar year 2017 fire season. 

b P.L. 116-20 provided $36,040,000 for necessary expenses related to the consequences of Hurricanes Florence and Michael, and the calendar year 2018 wildfires. 

c P.L. 116-136 provided $26,800,000 to prepare, prevent, and respond to coronavirus. Budget authority expired effective October 1, 2021. 

d P.L. 117-43 provided $710,000,000 for necessary expenses related to wildfires, hurricanes, and other natural disasters that occurred between calendar years 2019 through 2021. 

e P.L. 117-58 provided $72,000,000 in fiscal year 2022 and reserves $72,000,000 each year from fiscal years 2022 through 2026. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CAPITAL IMPROVEMENT AND MAINTENANCE PROJECTS OVER $1 MILLION SELECTED IN FY 2023 

The Forest Service has a structured National Asset Management Program (NAMP) that incorporates the 

Comprehensive Capital Improvement Plan (CCIP) process. The NAMP prioritizes investments in capital 

improvement and maintenance projects and helps reduce the Forest Service’s deferred maintenance backlog. These 

projects will address improvements, repairs and rehabilitation of mission critical buildings, recreation sites, 

transportation assets and the decommissioning of projects. All capital improvement and maintenance projects, 

whether they are funded through the Capital Improvement and Maintenance (CIM) appropriation or through the 

Great American Outdoors Act (GAOA) (P.L. 116-152), are included in the NAMP. 

Per Congressional directive in the FY 2018 Interior Appropriations report, the Forest Service is providing a list of 

planned national capital improvement and maintenance projects over $1 million. This list represents a long-term 

multi-year plan that addresses needed investments in facilities, recreation, transportation, and decommissioning 

based on the FY 2023 Budget request and using the NAMP prioritization process. This list includes projects that 

would be funded with Forest Service appropriations under the following budget line items: Facilities (CMFC), 

Forest Service Leases and Maintenance (FSLM), and Roads (CMRD); it does not include projects that would be 

funded by the National Parks and Public Lands Restoration Fund established by GAOA. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Table FS-33. FY 2023 - FY 2027 Capital Improvement and Maintenance Projects Over $1 Million Selected in FY 2023 

Project Type Project Name Forest Region or Unit State 

Congressional 

District FY 2023 a FY 2024 a FY 2025 a FY 2026 a FY 2027 a 

Total FY 

2023-FY 

2027 

Facility International Institute of 

Tropical Forestry Chemical 

Laboratory Replacement 

International 

Institute of 

Tropical 

Forestry 

Research and 

Development 

PR 1 $2,800,000 - - - - $2,800,000 

Facility Ash Creek Helispot Shasta Trinity Pacific Southwest CA 1 65,000 670,000 272,000 - - 1,007,000 

Facility Cadillac/Manistee Ranger 

Station-New Fire Facility 

and Fire Mod 

Decommission 

Huron Manistee Eastern MI 1 1,110,000 - - - - 1,110,000 

Facility Kenai Lake Work Center 

Water System Upgrade and 

Wastewater System 

Reconstruction 

Chugach Alaska AK 1 2,520,000 - - - - 2,520,000 

Facility Coronado Forest-wide Toilet 

Replacement 

Coronado Southwest AZ 1 and 3 - 1,680,960 - - - 1,680,960 

Facility Lake Sherwood Dam Repairs Monongahela Eastern WV 3 - - 477,405 1,273,080 - 1,750,485 

Total Facilities 6,495,000 2,350,960 749,405 1,273,080 - 10,868,445 

Transportation Long Pines Access and 

Boxelder Creek, Aquatic 

Organism Passage Deferred 

Maintenance 

Custer Gallatin Northern MT 1 47,000 526,000 455,000 - - 1,028,000 

Transportation Forest Road 164 

Reconstruction Vegetation 

Management 

Chequamegon 

Nicolet 

Eastern WI 7 - - 1,273,080 - - 1,273,080 

Total Transportation 47,000 526,000 1,728,080 - - 2,301,080 

Decommissioning Hoosier Hickey-Martin Dam 

Removal Aquatic Organism 

Passage 

Hoosier Eastern IN 9 1,000,000 - - - - 1,000,000 

Decommissioning Mark Twain Sterling Hollow 

Dam Decommissioning 

Mark Twain Eastern MO 8 2,000,000 - - - - 2,000,000 

Decommissioning Mirror Lake Highway Water 

System Decommissioning 

Wasatch Intermountain UT 2 - 1,900,000 - - - 1,900,000 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Total FY 

Congressional 2023-FY 

Project Type Project Name Forest Region or Unit State District FY 2023 a FY 2024 a FY 2025 a FY 2026 a FY 2027 a 2027 

Decommissioning Wayne Recreation Lewis 

Lake and Smith Hollow 

Lake Decommissioning 

Wayne Eastern OH 6 - - 1,200,000 - - 1,200,000 

Decommissioning Bear Springs Work Center 

Disposal 

Mt Hood Pacific Northwest OR 2 - - - 1,000,000 - 1,000,000 

Total Decommissioning 3,000,000 1,900,000 1,200,000 1,000,000 - 7,100,000 

Grand Total 9,542,000 4,776,960 3,677,485 2,273,080 - 20,269,525 

a Budget year funding represents funding needed for a unit to implement a specific portion of the project. This amount does not always equal the total project cost. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CLASSIFICATION BY OBJECTS 

Table FS-34. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

Personnel Compensation: 

Washington D.C.......................................................... 

.................................... 

.................................. 

......................................................... 

..................................... 

............ 

........................... 

.............................................. 

............................................. 

........................................... 

............. 

............................................ 

................................ 

.................... 

.......... 

...................... 

.......................... 

................................................................ 

................... 

................................................ 

................................................................... 

..................................................... 

............................ 

............................... 

................................................. 

.............................................................. 

................................................... 

........................................... 

.... 

......................... 

........................ 

....................................... 

$2,234 $29 - -

Personnel compensation, field 147,913 1,941 - -

11.0 Total personnel compensation 150,147 1,970 - -

12.0 Personal benefits 61,399 1,167 - -

13.0 Benefits for former personnel 227 - - -

Total, personnel compensation and benefits 211,773 3,137 - -

Other Objects: 

21.0 Travel and transportation of persons 3,634 225 $416 $522 

22.0 Transportation of things 2,459 1,241 2,294 2,882 

23.1 Rental payments to GSA 2,474 -5 - -

23.2 Rental payments to others 3,997 97 179 225 

23.3 Communications, utilities, and misc. charges 8,282 576 1,065 1,339 

24.0 Printing and reproduction 375 140 259 325 

25.1 Advisory and assistance services 68 34 63 79 

25.2 Other services from non-Federal sources 113,759 69,333 128,159 169,034 

25.3 Other goods and services from Federal sources 64,852 60,276 111,416 140,021 

25.4 Operation and maintenance of facilities 4,624 911 1,684 2,117 

25.5 Research and development contracts -16 4 7 9 

25.6 Medical care 26 46 85 107 

25.7 Operation and maintenance of equipment 2,622 1,107 2,046 2,571 

26.0 Supplies and materials 13,032 10,989 20,312 25,528 

31.0 Equipment 13,183 1,496 2,765 3,475 

32.0 Land and structures 17,666 20,766 38,385 48,239 

41.0 Grants, subsidies, and contributions 20,648 17,118 31,642 39,764 

42.0 Insurance claims and indemnities 425 159 294 369 

43.0 Interest and dividends 5 2 4 5 

92.0 Undistributed 3 3 6 7 

Total, other objects 272,118 184,518 341,081 436,618 

99.9 Total, new obligations 483,891 187,655 341,081 436,618 

DHS Building Security Payments (included in 25.3) 59 - - -

Position Data: 

Average Salary (dollars), ES Position $187,148 N/A N/A N/A 

Average Salary (dollars), GS Position $70,423 $50,214 $51,570 $52,962 

Average Grade, GS Position 9.2 6.8 7.0 7.2 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

Facilities 

Current Activities 

This program includes funding for costs associated with Capital Improvement Projects (CIP), recreation facilities 

and sites maintenance, and maintenance/repair of agency-owned dams. The program manages the largest number 

and widest range of accessible recreation facilities and sites in the country, including campgrounds, picnic areas, 

visitor centers, ski areas, trailheads, shooting ranges, and interpretive sites. Dams located on national forest lands 

provide the largest source of municipal water supply in the country, serving more than 60 million people in 3,400 

communities across 33 States. The program also manages capital improvements of infrastructure used for fire 

suppression and fuels management, including aircraft maintenance and operations facilities, air-tanker bases, 

smokejumper bases, helicopter bases and helipads, fire engine bays, fire training facilities, retardant facilities, fire 

cache warehouses, and fire lookouts. Additional capital improvements to infrastructure including administrative 

offices, research facilities, communication sites, warehouses, bunkhouses, employee housing, and fleet management 

and maintenance of buildings are also managed under this program. 

Specifically Addressed Areas 

In FY 2021, approximately $33.5 million was dedicated to the facility program overall. This included $27.5 million 

for capital improvements for infrastructure projects that deliver agency-wide benefits, approximately $5 million for 

recreation and dam maintenance projects, and approximately $1 million to decommission recreation and dam assets. 

Selected Examples of Recent Progress 

Safety Inspections of Communications Assets. Collaboration continues with the Federal Aviation Administration 

(FAA) on the five-year interagency agreement to perform structural safety inspections for all communication assets 

on National Forest System lands. This agreement helps improve compliance with Occupational Safety and Health 

Administration and American National Standards Institute requirements for periodic safety inspections. The agency 

owns and administers more than 1,700 communications assets used to facilitate law enforcement, wildland fire 

suppression, public safety, and routine forest management. In FY 2021, the FAA inspected 187 communication 

towers, 70 communication shelters, 53 lookout towers, 11 research towers, and 3 fire rappel towers, reducing risk 

and vulnerabilities to employees and the public. 

National Asset Management Program. The National Asset Management Program (NAMP), formerly known as the 

Comprehensive Capital Improvement Plan, continues to drive the prioritization of agency infrastructure investments. 

In FY 2021, the NAMP process was utilized to incorporate prioritization of Great American Outdoors Act (GAOA) 

deferred maintenance projects for a comprehensive approach to asset management. With this process, the Forest 

Service is able optimize investment decision-making using the same project data and metrics to evaluate projects. 

This approach includes identifying decommissioning projects, improving consistency and transparency in facilities 

asset management, and updating facilities data management processes to improve data quality and accuracy. 

Roads 

Current Activities 

The Roads program administers an extensive transportation network that is vital to the agency’s mission to sustain

the health, diversity, and productivity of national forest lands. Forest system roads and bridges provide access for 

many purposes, including timber harvesting, camping, hunting, fishing, hiking, mining, first responders in 

emergencies, and access for rural communities. This program is essential for the management, protection, public 

use, and enjoyment of 193 million acres of national forest lands, as well as meeting the agency’s timber target. 

Specifically Addressed Areas 

In FY 2021, the Forest Service continued its work in maintaining the quality of Forest Service roads, which provide 

safe and improved access to national forest lands while protecting water quality and natural resources. The agency 

also continued the removal of fish passage barriers where Forest Service roads, bridges, and trails may be 

contributing to water quality problems in streams and water bodies that support threatened, endangered, and 

sensitive species or community resources. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Selected Examples of Recent Progress 

Addressing the Road and Bridge Rehabilitation Backlog. In FY 2021, the Forest Service addressed the 

approximately $3.5 billion backlog of road and bridge rehabilitation and replacement needs by directing $10 million 

towards projects that improve access for agency activities and recreation opportunities. The agency continued to 

implement comprehensive bridge construction and inspection programs to improve bridge quality. These actions 

help to ensure public safety, adequate access, and resource protection. 

Modernizing Engineering Directives. The Forest Service continues to modernize engineering directives and update 

policies that support critical mission goals that reduce time on tasks, creating efficiencies and streamlining 

processes. For example, in FY 2021, the Forest Service updated and replaced the 1992 Cooperative Road 

Maintenance Agreement in collaboration with industrial timberland owners and cost-share cooperators. This 

modernized agreement defines maintenance responsibilities of roads covered by over 5,000 reciprocal easements 

exchanged between the Forest Service and its cooperators in all regions. The program also updated the Value 

Analysis thresholds in Forest Service Directives 1340 and 7720 to match OMB Circular A-131, removing 

unnecessary analysis and evaluation for projects below a certain threshold and providing consistency to the field for 

compliance. 

Trails 

Current Activities 

The Forest Service administers the largest system of trails in the country. Stretched end-to-end, National Forest 

System trails would circle the globe more than six times. These trails provide access to national forest lands, foster 

partnerships and volunteerism, and generate health and economic benefits to communities through outdoor 

recreation opportunities and recreation tourism. National Forest System trails also provide connectivity with other 

trails managed by local, State, Federal, and Tribal governments. 

Of the approximately 160,000 miles of trails managed by the Forest Service, 98,500 miles are non-motorized and 

61,500 miles are motorized. The Forest Service is the administrating agency for six congressionally designated 

National Scenic and Historic Trails (NSHTs) totaling 10,000 miles and is the managing agency for 16 additional 

NSHTs (details about NSHTs are in the National Scenic and Historic Trails Special Exhibit). The agency also 

manages more than 370 National Recreation Trails on National Forest System lands. 

Specifically Addressed Areas 

In FY 2021, this program continued to implement the agency’s National Strategy for a Sustainable Trail System and

the National Forest System Trails Stewardship Act (P.L. 114-245), both of which focus on increasing the 

engagement of partners and volunteers to help maintain and improve the condition of National Forest System trails. 

Sustainable trail systems are comprised of trails that are socially supported, economically viable, and support 

ecological resiliency. 

The trails program also continued to implement the 10-Year Trail Shared Stewardship Challenge that was launched 

in February 2020. As part of the Challenge, the program has been working to identify the baseline trails workforce 

needed to effectively support partner and volunteer engagement in trail maintenance work, and to develop tools and 

trainings to help support field staff and partners working in trails, professionalize the trail program, and 

institutionalize knowledge. 

The program has also been engaging in strategic partnerships to promote more diversity, equity, and inclusion in 

trail program delivery. For example, the agency is working with Next 100 Coalition, a coalition of organizations 

committed to the establishment of a just and inclusive system of the Nation’s parks and public lands, to identify

concrete actions for national recreation and trails programs to be more diverse, equitable, and inclusive. The Forest 

Service is also working with the Bureau of Land Management, National Park Service, Native Lands Digital, and the 

Partnership for the National Trails System to hire a Tribal intern to develop an interactive GIS map and other 

resources. This will help the Federal agencies that administer national trails and their nonprofit trail organization 

partners advance National Trails System knowledge of ancestral lands and increase partnerships and collaboration 

with indigenous communities along National Scenic and National Historic Trails. The Trail program also actively 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

sought out and successfully received Great American Outdoors Act (GAOA) funding to address deferred 

maintenance on trails in every region. All these actions will lead to improved access and improved public service. 

Selected Examples of Recent Progress 

Trail Maintenance and Improvements. In 2016, Congress passed the National Forest System Trails Stewardship Act, 

which directs the agency to establish priority areas for trail maintenance and to double the amount of volunteer 

hours for trail maintenance. In 2018, the agency selected 15 trail maintenance priority areas for increased trail 

maintenance accomplishments. In FY 2021, trails staff secured GAOA funding to further improve the condition of 

trails within these trail maintenance priority areas. For example, within the Bob Marshall Wilderness Complex 

Priority Area (MT), agency staff, working alongside numerous partner organizations that includes youth corps, 

began implementing a $5 million project to repair more than 3,000 miles of trails in this priority area over a fiveyear period. 

Work with Partners. Across the country, agency staff are working with partners to leverage funding, skills, and 

resources to improve the condition of trails and improve access. One example of this is a project to construct 42 new 

miles of National Forest System trails32 on the Pisgah National Forest near Old Fort, NC. This is a communitydriven project that involves a coalition of agency staff, a health trust, non-profit organizations, business owners, a 

community college, and others working together to develop a sustainable and connected trail system in the national 

forest lands surrounding Old Fort, NC. This coalition has received construction funds to build trails, as well as 

funding to expand services in Old Fort to support small business and equitable development. More than 110 local 

area jobs have been added in the past two years because of the existing trails and the promise of additional 

recreation use. The Pisgah National Forest and community of Old Fort, NC, have worked together to expand access 

by building trails that support the community, addressing town infrastructure and local business needs, while 

advancing environmental justice and investing in segments of communities that have been left behind. This project 

will accomplish all these things, while driving the creation of good-paying jobs and growing the local economy 

sustainably and equitably for decades to come. 

32 https://www.g5trailcollective.org/oldfort 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

LAND ACQUISITION 

LEAD-OFF TABULAR STATEMENT 

Table FS-35. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Annualized CR, 2022............................................................................................................... 

.......................................................................................................... 

.............................................................................................................. 

$814,000 

Change in Appropriation -

Budget Request, 2023 814,000 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 

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

LAND ACQUISITION 

[(CANCELLATION OF FUNDS)] 

[Of the unobligated balances from amounts made available for Land Acquisition and derived from the Land and 

Water Conservation Fund, $5,619,000 is hereby permanently cancelled from projects with cost savings or failed or 

partially failed projects: Provided, That no amounts may be cancelled from amounts that were designated by the 

Congress as an emergency requirement pursuant to the Concurrent Resolution on the Budget or the Balanced Budget 

and Emergency Deficit Control Act of 1985.] 

Change Description 

The change removes language cancelling unobligated Land Acquisition balances. 

ACQUISITION OF LANDS FOR NATIONAL FORESTS SPECIAL ACTS 

For acquisition of lands within the exterior boundaries of the Cache, Uinta, and Wasatch National Forests, Utah; the 

Toiyabe National Forest, Nevada; and the Angeles, San Bernardino, Sequoia, and Cleveland National Forests, 

California; and the Ozark-St. Francis and Ouachita National Forests, Arkansas; as authorized by law, $664,000, to 

be derived from forest receipts. 

ACQUISITION OF LANDS TO COMPLETE LAND EXCHANGES 

For acquisition of lands, such sums, to be derived from funds deposited by State, county, or municipal governments, 

public school districts, or other public school authorities, and for authorized expenditures from funds deposited by 

non-Federal parties pursuant to Land Sale and Exchange Acts, pursuant to the Act of December 4, 1967 (16 U.S.C. 

484a), to remain available through September 30, [2025]2026, (16 U.S.C. 516-617a, 555a; Public Law 96-586; 

Public Law 76-589, 76-591; and Public Law 78-310). 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-36. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE Inc. or Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Discretionary Appropriations: 

Land Acquisition................................................. $78,898 44 - 12 - - - - - -

Acquisition of Land for National Forest Special 

Acts .................................................................. 700 - $664 - $664 - $664 - - -

Acquisition of Lands to Complete Land 

Exchanges ........................................................ - - 1,480 - 150 - 150 - - -

Total, Discretionary Appropriations ................... 79,598 44 2,144 12 814 - 814 - - -

Mandatory Appropriations: 

Conveyance of Administrative Sites................... 4,392 2 1,232 1 1,232 1 1,232 1 - -

Site-Specific Lands Act ...................................... 3,986 - 1,818 - 1,818 - 1,818 - - -

Land Acquisition (Great American Outdoors 

Act) .................................................................. - - 123,885 24 123,885 24 123,885 24 - -

Total, Mandatory Appropriations ....................... 8,378 2 126,935 25 126,935 25 126,935 25 - -

Total Appropriations.............................................. 87,976 46 129,079 37 127,749 25 127,749 25 - -

Rescission .............................................................. -2,000 - -5,619 - -5,619 - - +$5,619 -

Sequestration ......................................................... -493 - -172 - -7,061 - - - +7,061 -

Recoveries, Other .................................................. 1,589 - 3,174 - 3,174 - 3,174 - - -

Balance Available, SOY ........................................ 111,378 - 144,636 - 203,814 - 173,773 - -30,041 -

Total Available ...................................................... 198,450 46 271,098 37 322,057 25 304,696 25 -17,361 -

Balance Available, EOY........................................ -144,636 - -203,814 - -173,773 - -139,853 - +33,920 -

Total Obligations ................................................... 53,733 46 66,651 37 148,284 25 164,843 25 +16,559 -

103 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Table FS-37. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE Inc. or Dec. 

FTE 

Inc. or 

Dec. 

Discretionary Obligations: 

Land Acquisition............................................... 

................................................... 

...................................................... 

.................... 

$49,850 44 $25,596 12 $56,829 - $70,009 - +$13,180 -

Acquisition of Land for National Forest 

Special Acts 548 - 594 - 1,319 - 1,625 - +306 -

Acquisition of Lands to Complete Land 

Exchanges - - 795 - 1,765 - 2,174 - +409 -

Total, Discretionary Obligations 50,398 44 26,985 12 59,913 - 73,808 - +13,895 -

Mandatory Obligations: 

Conveyance of Administrative Sites................. 

.................................... 

................................................................ 

.............................. 

................................................. 

................................................. 

............................................... 

1,428 2 1,278 1 542 1 542 1 - -

Site-Specific Lands Act 1,907 - 1,205 - 1,109 - 1,109 - - -

Land Acquisition (Great American Outdoors 

Act) - - 37,183 24 86,720 24 89,384 24 +2,664 -

Total, Mandatory Obligations 3,335 2 39,666 25 88,371 25 91,035 25 +2,664 -

Total Obligations 53,733 46 66,651 37 148,284 25 164,843 25 +16,559 -

Add back: 

Lapsing Balances 81 - 633 - - - - - - -

Balances Available, EOY: 

Land Acquisition 113,323 - 85,218 - 28,389 - 23,469 - -4,920 -

Acquisition of Land for National Forest 

Special Acts ................................................... 

...................................................... 

................. 

.................................... 

................................................................ 

............................ 

.................................................... 

1,006 - 443 - 356 - 294 - -62 -

Acquisition of Lands to Complete Land 

Exchanges 1,051 - 1,735 - 1,395 - 1,153 - -242 -

Conveyance of Administrative Sites 20,223 - 20,171 - 16,223 - 13,412 - -2,811 -

Site-Specific Lands Act 9,033 - 9,545 - 7,677 - 6,347 - -1,330 -

Land Acquisition (Great American Outdoors 

Act) - - 86,702 - 119,733 - 95,178 - -24,555 -

Total Balance Available, EOY 144,636 - 203,814 - 173,773 - 139,853 - -33,920 -

Total Available 198,450 46 271,098 37 322,057 25 304,696 25 -17,361 -

104 
 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or 

Actual FTE Actual FTE Resolution FTE Request FTE Inc. or Dec. Dec. 

Less: 

Rescission ......................................................... 

..................................................... 

.............................................. 

................................... 

............................................ 

2,000 - 5,619 - 5,619 - - - -5,619 -

Sequestration 493 - 172 - 7,061 - - - -7,061 -

Recoveries, Other -1,589 - -3,174 - -3,174 - -3,174 - - -

Balance Available, SOY -111,378 - -144,636 - -203,814 - -173,773 - +30,041 -

Total Appropriations 87,976 46 129,079 37 127,749 25 127,749 25 - -

105 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CLASSIFICATION BY OBJECTS 

Table FS-38. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

Personnel Compensation: 

Personnel compensation, field .................................... 

.................................. 

......................................................... 

............ 

$3,976 $3,705 $2,503 $2,571 

11.0 Total personnel compensation 3,976 3,705 2,503 2,571 

12.0 Personal benefits 1,536 1,481 1,001 1,028 

Total, personnel compensation and benefits 5,512 5,186 3,504 3,599 

Other Objects: 

21.0 Travel and transportation of persons........................... 

.............................................. 

............................................. 

........................................... 

............. 

................................

56 9 21 24 

22.0 Transportation of things 24 - - -

23.1 Rental payments to GSA 59 - - -

23.2 Rental payments to others 87 1 2 3 

23.3 Communications, utilities, and misc. charges 124 2 5 5 

24.0 Printing and reproduction ............ 

................................ 

.................... 

.......... 

...................... 

................... 

................................................ 

................................................................... 

..................................................... 

................................................. 

............................ 

............................... 

................................................... 

........................................... 

1 - - -

25.1 Advisory and assistance services 1 114 269 299 

25.2 Other services from non-Federal sources 1,472 1,611 3,795 4,226 

25.3 Other goods and services from Federal sources 609 118 278 310 

25.4 Operation and maintenance of facilities 5 110 259 289 

25.7 Operation and maintenance of equipment 16 70 165 184 

26.0 Supplies and materials 68 6 14 16 

31.0 Equipment 104 15 35 39 

32.0 Land and structures 45,421 58,983 138,934 154,732 

33.0 Investments and loans 173 - - -

41.0 Grants, subsidies, and contributions 1 422 994 1,107 

42.0 Insurance claims and indemnities - 4 9 10 

Total, other objects 48,221 61,465 144,780 161,244 

99.9 Total, new obligations 53,733 66,651 148,284 164,843 

DHS Building Security Payments (included in 25.3) .... 1 - - -

Position Data: 

Average Salary (dollars), ES Position......................... 

........................ 

....................................... 

$187,148 N/A N/A N/A 

Average Salary (dollars), GS Position $86,684 $87,100 $89,452 $91,867 

Average Grade, GS Position 11.3 11.5 11.8 12.1 

106 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

Land Acquisition 

Current Activities 

The Forest Service uses Federal land acquisition funding from the Land and Water Conservation Fund (LWCF) Act 

of 1965 to acquire land within or adjacent to the boundaries of national forests and within Wilderness Areas and to 

acquire inholdings. Land acquisitions improve recreational access and create efficiencies for priority stewardship 

activities such as hazardous fuels treatments and watershed protection. The LWCF appropriations also support land 

exchanges by funding cash equalization payments and needed staff. 

The LWCF Act was amended in August 2020, by the Great American Outdoors Act (GAOA) (P.L. 116-152) which 

provides up to $900 million in mandatory funding annually for all Federal land acquisition and State assistance 

programs across the Forest Service and the Department of the Interior. In FY 2021, the first year this mandatory 

funding became available, the Forest Service received $123,885,000 for Land Acquisition projects, including 35 

large projects specified in the FY 2021 Appropriations Bill. In FY 2021, the Forest Service formulated the FY 2022 

project lists in accordance with the GAOA and Administration guidance. Following LWCF requirements, the 

agency submitted a list of prioritized and ranked projects based on LWCF, agency, and Administration priorities. 

These included creating new and enhanced recreation access, funding projects with substantial local community 

support, and conserving critical watersheds. 

Specifically Addressed Areas 

Acquisitions completed in FY 2021 supported new and improved recreational access for a wide array of outdoor 

activities across all regions. In FY 2021, the program acquired 42,708 acres of which 39,045 acres (91 percent of all 

acres acquired) were acquired to provide access for recreation. Forest Service LWCF projects enhance recreational 

access to existing public lands; provide recreational access to newly acquired lands; protect critical watersheds that 

provide clean water and provide plants and animals with refuges from climate change; and fund locally supported 

lands projects. 

Selected Examples of Recent Progress 

Lolo Trails Project (MT). In FY 2021, the Forest Service completed the Lolo Trails project, permanently protecting 

14,800 acres of important fish and wildlife habitat and public recreation access to the Lewis & Clark National 

Historic Trail and the Nez Perce National Historic Trail. These lands are historically and culturally significant areas 

to both the Nez Perce Tribe and the Confederated Salish and Kootenai Tribes of the Flathead Nation. While 

providing permanent public access to extraordinary recreation, the move also precludes development west of the 

rapidly growing city of Missoula, Montana, and protects critical wildlife habitat and key landscape connectivity. 

Little Castle Lake and Heart Lake Trail Projects (CA). In FY 2021, the Forest Service completed the Little Castle 

Lake and Heart Lake Trail projects on the Shasta-Trinity National Forest. The project permanently protected 637 

acres - the largest remaining parcel of private land in the 12,000-acre Castle Crags Wilderness and the last remaining 

private land in a 100 square mile area of contiguous National Forest System lands. With this acquisition, the Forest 

Service can complete a large 30,000+ acre vegetation project to address fuel loads, restore watersheds, and plan for 

recreation use. The acquisition will also provide public access to Heart Lake, one of the most popular and beloved 

local visitor destinations for its sweeping view of Mt. Shasta across the valley and Castle Lake below. Once a hidden 

gem known only to locals, this unofficial trail and tiny lake have been featured in Sunset magazine, Via magazine, 

TripAdvisor, and the San Francisco Chronicle. Several hundred hikers a day use this newly acquired parcel to access 

this area. 

Acquisition of Lands for National Forests Special Acts 

Current Activities 

This program provides for the acquisition of lands to protect watersheds, minimize soil erosion, and rehabilitate 

specific national forests in Nevada, Utah, California, and Arkansas. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Specifically Addressed Areas 

Acquisitions under this program often provide large-scale benefits by keeping watershed and ecosystems intact, as 

well as providing additional land areas for public use. 

Selected Example of Recent Progress 

Ouachita National Forest, Hattabaugh Tract (AR). Special Acts funds were used to acquire this 120-acre parcel 

adjacent to the Poteau Mountain Wilderness Area. This acquisition provided additional recreational access to a part 

of the national forest that is heavily used by the public for dispersed recreational activities such as hunting, hiking 

and nature-watching. The acquisition also allows the Forest Service to help protect watersheds and prevent soil 

erosion. 

Acquisition of Lands to Complete Land Exchanges 

Current Activities 

This program provides for the acquisition of lands using funds collected from the exchange or sale of National 

Forest System lands between States, county or municipal governments, public school authorities, or other nonFederal parties. The Forest Service utilizes the authority granted in the Sisk Act (16 U.S.C. 484a), which allows 

certain parties to deposit cash in lieu of land to complete land exchanges. These funds are utilized by the Secretary 

of Agriculture to acquire non-Federal properties. 

Specifically Addressed Areas 

By connecting fragmented landscapes, the Forest Service can effectively promote the long-term health and 

sustainability of the Nation’s forests and grasslands through restoration and watershed protection activities, provide 

greater recreation access, and manage lands more effectively and efficiently. Fragmented landscapes, particularly 

along wildland-urban interfaces, increase wildfire risks that can cause economic and ecological losses and pose 

threats to people, property, and communities. Revenues received from the sale or exchange of agency land or 

structures are deposited into the Sisk Act Fund. 

Selected Examples of Recent Progress 

Iron Mountain Tripartite. In FY 2021, the Pacific Northwest Region utilized funds from the Hot Dog timber sale for 

a tripartite land exchange to acquire 420 acres on the Colville National Forest (WA) to enhance public access and 

recreation and eliminate the need to provide access to this private inholding. Per legislation, these funds are 

automatically made available to the Secretary of Agriculture for further National Forest System land acquisition. 

The remaining proceeds from the Hot Dog timber sale will be utilized in future projects. 

Conveyance of Administrative Sites 

The Administrative Site Conveyances Program allows the agency to convey unneeded administrative sites and retain 

the proceeds for building maintenance, rehabilitation, and construction. The program provides for the realignment of 

the agency’s facility portfolio by providing an incentive for local managers to liquidate obsolete or underutilized 

assets and reinvest in assets that best support the agency’s mission. This authority provides the opportunity to

efficiently address current and future needs, reduce annual lease costs, and reduce the deferred maintenance backlog. 

In addition to operational benefits, the program provides substantial economic and social benefits, including 

providing local communities with an additional tax base and opportunities for redevelopment to align with 

community plans and economic stimulus strategies. 

Forest Service Facility Realignment and Enhancement Act of 2005, (FSFREA), Title V of the Department of the 

Interior, Environment, and Related Agencies Appropriations Act, 2006 (P.L. 109-54) authorizes conveyance of 

unneeded administrative sites and retain the proceeds for building maintenance, rehabilitation, and construction 

provided certain criteria contained in Title V are met. 

Revenues received from the sale of land or structures are deposited into the Sisk Act Fund and are available without 

further appropriation. 

108 
 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Site Specific Lands Act 

This program enables the collection of receipts from the sale of National Forest System lands pursuant to special 

acts passed by Congress. The proceeds are used for specific improvements to lands and facilities within the same 

national forest or State. 

The legislated project may include work functions such as: notification, analysis, valuation, and realty case 

processing services; construction of new facilities; alteration of existing facilities to change their functions; and 

expansion of facilities to meet the needs of changing mission critical functions. Projects are identified annually 

through the legislative process. As a result, benefits and funds collected vary each year based on legislation. 

109 
Item Amount 

Annualized CR, 2022 $3,863,000 

Change in Appropriation -1,000,000 

Budget Request, 2023 2,863,000 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

OTHER APPROPRIATIONS 

LEAD-OFF TABULAR STATEMENT 

Table FS-39. Lead-Off Tabular Statement (In dollars) 

............................................................................................................... 

.......................................................................................................... 

.............................................................................................................. 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 

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

RANGE BETTERMENT FUND 

For necessary expenses of range rehabilitation, protection, and improvement, 50 percent of all moneys received 

during the prior fiscal year, as fees for grazing domestic livestock on lands in National Forests in the 16 Western 

States, pursuant to section 401(b)(1) of Public Law 94-579, to remain available through September 30, [2025]2026, 

of which not to exceed 6 percent shall be available for administrative expenses associated with on-the-ground range 

rehabilitation, protection, and improvements. 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

GIFTS, DONATIONS AND BEQUESTS FOR FOREST AND RANGELAND RESEARCH 

For expenses authorized by 16 U.S.C. 1643(b), $45,000, to remain available through September 30, [2025]2026, to 

be derived from the fund established pursuant to the above Act. 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

MANAGEMENT OF NATIONAL FOREST LANDS FOR SUBSISTENCE USES 

For necessary expenses of the Forest Service to manage Federal lands in Alaska for subsistence uses under title VIII 

of the Alaska National Interest Lands Conservation Act (16 U.S.C. 3111 et seq.), $1,099,000, to remain available 

through September 30, [2025]2026. 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

COMMUNICATIONS SITE ADMINISTRATION (INCLUDING TRANSFER OF FUNDS) 

Amounts collected in this fiscal year pursuant to section 8705(f)(2) of the Agriculture Improvement Act of 2018 

(Public Law 115-334), shall be deposited in the special account established by section 8705(f)(1) of such Act, shall 

be available to cover the costs described in subsection (c)(3) of such section of such Act, and shall remain available 

until expended: Provided, That such amounts shall be transferred to the "National Forest System" account. 

110 
 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

111 
 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-40. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE Inc. or Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Discretionary Appropriations: 

Range Betterment Fund ...................................... 

......................................... 

.............................................. 

.................. 

.............................................. 

....................................... 

......................................... 

.................................................. 

........................................ 

...................................................... 

........................................ 

................................................... 

$2,656 5 $2,741 3 $1,719 3 $1,719 3 - -

Gifts, Donations, and Bequest for Forest and 

Rangeland Research - - - - 45 - 45 - - -

Management of National Forest Lands for 

Subsistence Uses 2,500 12 1,099 1 1,099 1 1,099 1 - -

Communication Site Administration - - - - 1,000 - - - -$1,000 - (1) 

Total Appropriations 5,156 17 3,840 4 3,863 4 2,863 4 -1,000 -

Transfers Out: 

National Forest System - - - - -1,000 - - - +1,000 -

Total, Transfers Out - - - - -1,000 - - - +1,000 -

Recoveries, Other 60 - 83 - 83 - 83 - - -

Balance Available, SOY 2,587 - 2,525 - 2,733 - 2,095 - -638 -

Total Available 7,803 17 6,448 4 5,679 4 5,041 4 -638 -

Balance Available, EOY -2,525 - -2,733 - -2,095 - -1,860 - +235 -

Total Obligations 5,278 17 3,715 4 3,584 4 3,181 4 -403 -

Table FS-41. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE Inc. or Dec. 

FTE 

Inc. or 

Dec. 

Discretionary Obligations: 

Range Betterment Fund ................................... $2,838 5 $2,494 3 $2,406 3 $2,135 3 -$271 -

Gifts, Donations, and Bequest for Forest and 

Rangeland Research...................................... - - 3 - 3 - 3 - - -

Management of National Forest Lands for 

Subsistence Uses ........................................... 2,440 12 1,218 1 1,175 1 1,043 1 -132 -

112 
 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 

Continuing 

Resolution 

2023 FTE 

Item 2020 2021 Budget Inc. or 

Actual FTE Actual FTE FTE Request FTE Inc. or Dec. Dec. 

Total, Discretionary Obligations...................... 5,278 17 3,715 4 3,584 4 3,181 4 -403 -

Total Obligations ................................................ 5,278 17 3,715 4 3,584 4 3,181 4 -403 -

Balances Available, EOY: 

Range Betterment Fund ................................... 2,252 - 2,534 - 1,942 - 1,724 - -218 -

Gifts, Donations, and Bequest for Forest and 

Rangeland Research...................................... 116 - 113 - 87 - 77 - -10 -

Management of National Forest Lands for 

Subsistence Uses ........................................... 157 - 86 - 66 - 59 - -7 -

Total Balance Available, EOY......................... 2,525 - 2,733 - 2,095 - 1,860 - -235 -

Total Available ................................................... 7,803 17 6,448 4 5,679 4 5,041 4 -638 -

Less: 

Total Transfers Out.......................................... - - - - 5,000 - - - - -

Recoveries, Other............................................. -60 - -83 - -83 - -83 - - -

Balance Available, SOY .................................. -2,587 - -2,525 - -2,733 - -2,095 - +638 -

Total Appropriations........................................... 5,156 17 3,840 4 7,863 4 2,863 4 - -

113 
 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

JUSTIFICATIONS OF INCREASES AND DECREASES 

Communication Site Administration: A decrease of $1,000,000 from the FY 2022 annualized CR, 

which includes the following: 

a) The Agriculture Improvement Act of 2018 (2018 Farm Bill) (P.L. 115-334) requires the Forest Service to 

charge an annual programmatic administrative fee for communications use authorizations. The 2018 Farm Bill 

also authorizes the Forest Service to retain and spend the revenues to cover the costs of administering its 

communications site program. Funding provided by IIJA would enable some communication site administration 

work, to include deployment of wireless and fiber optic cable communications services, including broadband 

services to unserved and underserved rural communities. These capabilities benefit urban and rural 

communities, enable greater coordination in emergency response situations, and increase overall safety for 

visitors, agency staff, and first responders. 

114 
 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CLASSIFICATION BY OBJECTS 

Table FS-42. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

Personnel Compensation: 

Personnel compensation, field .................................... 

.................................. 

......................................................... 

............ 

........................... 

$1,277 $89 $89 $91 

11.0 Total personnel compensation 1,277 89 89 91 

12.0 Personal benefits 507 3 3 4 

Total, personnel compensation and benefits 1,784 92 92 95 

Other Objects: 

21.0 Travel and transportation of persons 63 7 7 6 

22.0 Transportation of things.............................................. 

............. 

............................................ 

.................... 

.......... 

...................... 

................... 

................................................ 

................................................................... 

..................................................... 

............................ 

................................................... 

........................................... 

7 4 4 3 

23.3 Communications, utilities, and misc. charges 9 1 1 1 

24.0 Printing and reproduction 2 - - -

25.2 Other services from non-Federal sources 593 915 882 779 

25.3 Other goods and services from Federal sources 496 513 494 437 

25.4 Operation and maintenance of facilities 4 - - -

25.7 Operation and maintenance of equipment 7 28 27 24 

26.0 Supplies and materials 2,000 1,925 1,855 1,639 

31.0 Equipment 54 56 54 48 

32.0 Land and structures 7 3 3 3 

41.0 Grants, subsidies, and contributions 252 171 165 146 

Total, other objects 3,494 3,623 3,492 3,086 

99.9 Total, new obligations 5,278 3,715 3,584 3,181 

Position Data: 

Average Salary (dollars), GS Position ........................ $72,081 $42,394 $43,539 $44,714 

Average Grade, GS Position ....................................... 9.0 5.4 5.5 5.7 

115 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

Other Appropriations include four programs: Range Betterment Fund; Gifts, Donations, and Bequests for Forest and 

Rangeland Research; Management of National Forest Lands for Subsistence Uses; and Communications Site 

Administration. 

Range Betterment Fund 

Current Activities 

This program receives one-half of grazing receipts collected on National Forest System lands within the 16 

contiguous Western States for range rehabilitation, protection, and improvements on National Forest System lands 

where receipts were collected. Program funds are utilized for projects within allotments, including, but not limited 

to, seeding and reseeding, fence construction, water development, weed and other plant removal and control, and 

wildlife habitat enhancement. 

Specifically Addressed Areas 

The program continues to manage vegetation within rangelands to foster healthy, resilient ecosystems by removing 

invasive plants, reducing fire risk, supporting fence maintenance, and protecting riparian and other sensitive areas. 

Selected Example of Recent Progress 

Rangeland Vegetation Improvement. In FY 2021, the Range Betterment Fund conducted over 50,000 acres of 

rangeland vegetation improvement work and treated over 2,000 acres of noxious weeds. Overall acres of rangeland 

vegetation improved is down from FY 2020 mainly due to a catastrophic wildfire year. Staffs were focused more on 

wildfire control efforts than performing rangeland improvement work. 

Gifts, Donations, and Bequests for Forest and Rangeland Research 

Gifts, Donations, and Bequests for Forest and Rangeland Research is a special account that holds gifts, donations, 

and bequests used to establish or operate any forest and rangeland research facility. The Forest Service continues to 

receive donations from individuals and businesses for research work units and other organizational sub-units to 

further their research and development programs. 

Management of National Forest Lands for Subsistence Use 

Current Activities 

Title VIII of the 1980 Alaska National Interest Lands Conservation Act (ANILCA) (16 U.S.C. 3101) authorizes 

rural Alaskan residents a subsistence priority to harvest fish and wildlife on Federal lands over sport and commercial 

uses. This program provides vital employment in remote rural areas, monitors fish and wildlife populations, and 

adjusts regulations to keep harvests sustainable, enforces regulations, and educates subsistence users. 

Specifically Addressed Areas 

The Forest Service continues to manage sustainable fish and wildlife populations on national forest lands in Alaska 

for the purposes of providing a reliable food supply to rural Alaskan communities. The Forest Service employs 

residents to further program goals while providing employment where opportunities are limited. 

Selected Examples of Recent Progress 

Fisheries Resource Monitoring Program. In FY 2021, Tongass National Forest staff oversaw eight Sockeye Salmon 

stock assessment projects and one eulachon monitoring project through the Fisheries Resource Monitoring Program 

(FRMP). Also, through the FRMP, the Tongass staff partnered with five Tribal groups and the Alaska Department 

of Fish and Game (ADF&G) and supported 16 local jobs with Tribal organizations in rural communities. 

Approximately $1.2 million in Forest Service funding was distributed across the Tongass and Chugach National 

Forests for subsistence projects in FY 2021. 

Surveys, Inventory and Monitoring. In combination, both the Tongass and Chugach National Forests participated in 

six moose and mountain goat population surveys and two deer surveys in FY 2021 that supported subsistence, a 

reduced number from previous years due to COVID-19. In addition, Tongass National Forest personnel participated 

116 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

in 10 wolf surveys and supported logistics for an additional 35 wolf surveys. Notably, the Chugach National Forest 

completed year six, the final year, of a black bear monitoring project in partnership with the ADF&G. The last bears 

were radio-collared in 2018 and data analysis will begin in fall 2021. These inventory and monitoring projects 

continue to be vital to effectively manage subsistence resources and uses while providing for conservation of 

harvested species. 

Communications Site Administration 

Current Activities 

The 2018 Farm Bill, as amended, required the Forest Service to issue regulations to streamline the process for 

evaluation applications for communications facilities on National Forest System lands and charge a programmatic 

administrative fee for communications use authorizations to cover the cost of the Forest Service’s communications

use program. This program supports the USDA Rural Development’s effort to increase broadband access to rural 

communities, the American Broadband Initiative, to increase private-sector investment in broadband networks on 

Federal lands, and the deployment of the nationwide wireless broadband network dedicated to public safety 

(FirstNet). Rural and urban communities depend on National Forest System lands for critical communications 

services, including emergency services, internet service, cellular communications, television, and radio. 

Specifically Addressed Areas 

The Forest Service continues to prioritize applications to locate or modify communications facilities on National 

Forest System lands to expand broadband deployment and other critical communications services and to improve 

customer service. The agency has implemented the provisions of the Agriculture Improvement Act of 2018 (P.L. 

115-334) (2018 Farm Bill) that provide for proponents and applicants to have a more predictable timeline for agency 

response to their proposals and applications. 

Selected Examples of Recent Progress 

Map Viewer Enhancement. In FY 2021, the Forest Service maintained the map viewer service to ensure quality data 

in depicting communications sites located on National Forest System lands. In addition, the Forest Service enhanced 

the map viewer by adding additional feature information related to available utility services (e.g., power or fiber 

optic cable) at each communications site. 

Applications Processed. The Forest Service is required by the MOBILE NOW Act (P.L. 115-141) to grant or deny 

an application for a communications use within 270 days. In FY 2021, the Forest Service approved 42 

communications use authorizations with an average processing time of 94 days. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

WILDLAND FIRE MANAGEMENT 

(Including Transfers of Funds) 

LEAD-OFF TABULAR STATEMENT 

Table FS-43. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Annualized CR, 2022............................................................................................................... 

.......................................................................................................... 

.............................................................................................................. 

$1,927,241,000 

Change in Appropriation +751,418,000 

Budget Request, 2023 2,678,659,000 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 

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

For necessary expenses for forest fire presuppression activities on National Forest System lands, for emergency 

wildland fire suppression on or adjacent to such lands or other lands under fire protection agreement, and for 

emergency rehabilitation of burned-over National Forest System lands and water, [$2,097,622,000]$2,678,659,000, 

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 any unobligated funds appropriated in a previous fiscal year for hazardous fuels 

management may be transferred to the "National Forest System" account: ]Provided further, That such funds shall 

be available to reimburse State and other cooperating entities for services provided in response to wildfire and other 

emergencies or disasters to the extent such reimbursements by the Forest Service for non-fire emergencies are fully 

repaid by the responsible emergency management agency: Provided further, That funds provided shall be available 

for support to Federal emergency response: Provided further, That the costs of implementing any cooperative 

agreement between the Federal Government and any non-Federal entity may be shared, as mutually agreed on by the 

affected parties: Provided further, That of the funds provided, $321,388,000 shall be for hazardous fuels 

management activities, of which not to exceed $15,000,000 may be used to make grants, using any authorities 

available to the Forest Service under the "State and Private Forestry" appropriation, for the purpose of creating 

incentives for increased use of biomass from National Forest System lands: Provided further, That funds made 

available in the previous proviso to implement the Community Forest Restoration Act, Public Law 106–393, 

title VI, shall be available for use on non-Federal lands in accordance with authorities made available to the Forest 

Service under the "State and Private Forestry" appropriation: Provided further, That of the funds provided under this 

heading, $20,000,000 may be used by the Secretary of Agriculture to enter into procurement contracts or 

cooperative agreements; to issue grants for hazardous fuels management activities; for training or monitoring 

associated with such hazardous fuels management activities on Federal land; or for training or monitoring associated 

with such hazardous fuels management activities on non-Federal land if the Secretary determines such activities 

benefit resources on Federal land: Provided further, That of the funds provided under this heading, $1,011,000,000 

shall be available for wildfire suppression operations, and is provided as the average costs of wildfire suppression 

operations to the meet the terms of a concurrent resolution on the budget[: Provided further, That of the funds 

provided, not less than $100,000,000 shall be for activities related to climate change, including wildfire risk 

management]. 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

Change Description 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

The first change adds language moving the Hazardous Fuels program from National Forest System to Wildland Fire 

Management. 

The second change removes specific language for climate change funding. 

WILDLAND FIRE MANAGEMENT 

[(Including Transfers of Funds)] 

[For an additional amount for "Wildland Fire Management", $696,200,000 to remain available until expended, for 

the Secretary of Agriculture, acting through the Chief of the Forest Service, to carry out activities for the 

Department of Agriculture as authorized in section 40803 of division D of this Act: Provided, That $552,200,000, to 

remain available until expended, shall be made available for fiscal year 2022, $36,000,000, to remain available until 

expended, shall be made available for fiscal year 2023, $36,000,000, to remain available until expended, shall be 

made available for fiscal year 2024, $36,000,000, to remain available until expended, shall be made available for 

fiscal year 2025, and $36,000,000, to remain available until expended, shall be made available for fiscal year 2026: 

Provided further, That funds appropriated under this heading in this Act may be transferred to the United States Fish 

and Wildlife Service and the National Marine Fisheries Service for the costs of carrying out their responsibilities 

under the Endangered Species Act of 1973 (16 U.S.C. 1531 et seq.) to consult and conference, as required by section 

7 of such Act, in connection with wildland fire management activities: Provided further, That amounts made 

available under this heading in this Act for each of fiscal years 2022 through 2026 may be transferred between 

accounts affected by the Forest Service budget restructure outlined in section 435 of division D of the Further 

Consolidated Appropriations Act, 2020 (Public Law 116- 94) to carry out the activities in support of this heading: 

Provided further, That amounts made available under this heading in this Act in each of fiscal years 2022 through 

2026, shall be available for salaries and expenses to carry out such purposes: Provided further, That one-half of one 

percent of the amounts made available under this heading in this Act in each of fiscal years 2022 through 2026 shall 

be transferred to the Office of Inspector General of the Department of Agriculture for oversight of funding provided 

to the Forest Service in this title in this Act: Provided further, That such amount is designated by the Congress as 

being for an emergency requirement pursuant to section 4112(a) of H. Con. Res. 71 (115th Congress), the 

concurrent resolution on the budget for fiscal year 2018, and to section 251(b) of the Balanced Budget and 

Emergency Deficit Control Act of 1985.] 

(Infrastructure Investments and Jobs Appropriations Act.) 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-44. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Discretionary Appropriations: 

Salaries and Expenses ............................................ 

.......................................................... 

............................................................ 

................................................... 

................... 

- - $764,241 8,529 $764,241 8,529 $1,154,271 11,782 +$390,030 +3,253 (1) 

Preparedness $1,339,620 9,244 152,000 596 152,000 - 192,000 - +40,000 - (2) 

Suppression 1,011,000 972 1,011,000 1,156 1,011,000 1,156 1,011,000 1,156 - -

Hazardous Fuels a - 3 - - - - 321,388 - +321,388 - (3) 

Total, Discretionary Appropriations 2,350,620 10,219 1,927,241 10,281 1,927,241 9,685 2,678,659 12,938 +751,418 +3,253 

Supplemental Appropriations: 

Coronavirus Relief Appropriations (P.L. 116-

136) b ...................................................................... 7,000 - - 2 - - - - - -

Infrastructure Investment and Jobs Act (P.L. 

117-58) c ................................................................. - - - - 552,200 400 36,000 400 -516,200 -

Total, Supplemental Appropriations ................... 7,000 - - 2 552,200 400 36,000 400 -516,200 -

Total Appropriations................................................. 2,357,620 10,219 1,927,241 10,283 2,479,441 10,085 2,714,659 13,338 +235,218 +3,253 

Transfers In: 

National Forest System .......................................... - - - - 46,900 - 27,640 - -19,260 -

Wildfire Suppression Operations Reserve Fund .... - - 2,770,000 - 1,770,000 - 1,770,000 - - -

Total, Transfers In............................................... - - 2,770,000 - 1,816,900 - 1,797,640 - -19,260 -

Transfers Out: 

Department of the Interior ........................................ 

............................. 

...................................... 

................................... 

............................................ 

.................................................... 

........................................... 

......................................................... 

........................................... 

...................................................... 

-48,835 - -1,982 - - - - - - -

Forest and Rangeland Research - - - - -7,000 - -3,490 - +3,510 -

Forest Service Operations - - -4,025 - -21,552 - -4,320 - +17,232 -

Office of Inspector General - - - - -2,761 - -180 - +2,581 -

Total, Transfers Out -48,835 - -6,007 - -31,313 - -7,990 - +23,323 -

Recoveries, Other 238,326 - 183,209 - 183,209 - 183,209 - - -

Balance Available, SOY 852,241 - 241,429 - 316,991 - 428,313 - +111,322 -

Total Available 3,399,352 10,219 5,115,872 10,283 4,765,228 10,085 5,115,831 13,338 +350,603 +3,253 

Balance Available, EOY -241,429 - -316,991 - -428,313 -438,719 -10,406 -

Total Obligations 3,157,923 10,219 4,798,881 10,283 4,336,915 10,085 4,677,112 13,338 +340,197 +3,253 

a The Hazardous Fuels program will be shifted from National Forest System to Wildland Fire Management beginning in fiscal year 2023. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

b P.L. 116-136 provided $7,000,000 to prepare, prevent, and respond to coronavirus. Budget authority expired effective October 1, 2021. 

c FY 2022 supplemental appropriations include disaster relief (P.L. 117-43) and advance appropriations in the Infrastructure Investment and Jobs Act (P.L. 117-58). FY 2023 

supplemental appropriations are entirely advance appropriations from the Infrastructure Investment and Jobs Act. See also the spend plans for advance appropriations on page 213. P.L. 

117-58 provided $552,200,000 in fiscal year 2022, and $36,000,000 to be available each year from fiscal years 2022 through 2026. 

Table FS-45. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 Budget 

Request FTE Inc. or Dec. 

FTE 

Inc. or 

Dec. 

Discretionary Obligations: 

Salaries and Expenses ..................................... 

................................................... 

..................................................... 

............................................ 

- - $757,132 8,529 $818,757 8,529 $1,151,397 11,782 +$332,640 +3,253 

Preparedness $1,118,180 9,244 287,749 596 311,169 - 196,461 - -114,708 -

Suppression 1,763,979 972 3,741,246 1,156 3,045,754 1,156 2,924,381 1,156 -121,373 -

Hazardous Fuels a 10,128 3 -83 - 5,322 - 292,463 - +287,141 -

National Fire Capacity .................................... 

......................................... 

............... 

.................. 

2,368 - 18 - - - - - - -

Rural Fire Capacity - - 95 - 713 - - - -713 -

Wildland Fire Management – Other 258,269 - 10,725 - - - - - - -

Total, Discretionary Obligations 3,152,924 10,219 4,796,882 10,281 4,181,715 9,685 4,564,702 12,938 +382,987 +3,253 

Supplemental Obligations: 

Coronavirus Relief Appropriations (P.L. 116-

136) b 

4,999 - 1,999 2 -

............................................................ - - - - -

Infrastructure Investment and Jobs Act (P.L. 

117-58) c 

- - -

....................................................... 155,200 400 112,410 400 -42,790 

Total, Supplemental Obligations.................. 4,999 - 1,999 2 155,200 400 112,410 400 -42,790 -

Total Obligations ............................................... 3,157,923 10,219 4,798,881 10,283 4,336,915 10,085 4,677,112 13,338 +340,197 +3,253 

Balances Available, EOY: 

Salaries and Expenses ..................................... 

................................................... 

..................................................... 

.............................................. 

.................................... 

......................................... 

............... 

............................................................ 

- - 7,109 - 1,362 - 3,377 - +2,015 -

Preparedness 141,968 - 23,287 - 4,461 - 11,061 - +6,600 -

Suppression 84,019 - 274,235 - 52,539 - 130,269 - +77,730 -

Hazardous Fuels 5,613 - 9,586 - 4,264 - 30,613 - +26,349 -

National Fire Capacity 1,472 - 2,637 - - - - - - -

Rural Fire Capacity 800 - 713 - - - - - - -

Wildland Fire Management – Other 5,556 - -618 - - - - - - -

Coronavirus Relief Appropriations (P.L. 116-

136) b 

2,001 - 42 - -

- - - - -

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 FTE 

Item 2020 2021 Continuing 2023 Budget Inc. or 

Actual FTE Actual FTE Resolution FTE Request FTE Inc. or Dec. Dec. 

Infrastructure Investment and Jobs Act (P.L. 

117-58) c 

- - - - -

....................................................... 

..................... 

.................................................. 

............................................ 

......................................... 

............................................ 

................................

.......................................... 

365,687 - 263,399 - -102,288 

Total Balance Available, EOY 241,429 - 316,991 - 428,313 - 438,719 - +10,406 -

Total Available 3,399,352 10,219 5,115,872 10,283 4,765,228 10,085 5,115,831 13,338 +350,603 +3,253 

Less: 

Total Transfers In - - -2,770,000 - -1,816,900 - -1,797,640 - 19,260 -

Total Transfers Out 48,835 - 6,007 - 31,313 - 7,990 - -23,323 -

Recoveries, Other -238,326 - -183,209 - -183,209 - -183,209 - - -

Balance Available, SOY . -852,241 - -241,429 - -316,991 - -428,313 - -111,322 -

Total Appropriations 2,357,620 10,219 1,927,241 10,283 2,479,441 10,085 2,714,659 13,338 +235,218 +3,253 

a The Hazardous Fuels program will be shifted from National Forest System to Wildland Fire Management beginning in fiscal year 2023. 

b P.L. 116-136 provided $7,000,000 to prepare, prevent, and respond to coronavirus. Budget authority expired effective October 1, 2021. 

c P.L. 117-58 provided $552,200,000 in fiscal year 2022, and $36,000,000 to be available each year from fiscal years 2022 through 2026. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

JUSTIFICATIONS OF INCREASES AND DECREASES 

Salaries and Expenses: An increase of $390,030,000 and 3,253 full-time equivalents (FTE) from the 

FY 2022 annualized CR, which includes the following: 

a) An increase of $21,381,000, which includes $15,192,000 for pay inflation and $6,189,000 for FERS for 2022 

Pay and FERS. This increase supports the pay increase which went into effect January 1, 2022, of a 2.7 percent 

Cost of Living pay increases for civilian employees, and a 1.1 percent increase to cover the expenses for the 

mandated increase of USDA’s contribution to FERS. 

b) An increase of $34,649,000 for 2023 Pay. This increase will support the annualization of the 2022 2.7 percent 

Cost of Living pay increase and the 2023 4.6 percent Cost of Living pay increase. This will support the 

President’s direction to pay all firefighters at least $15 per hour, and to support increases to base capacity levels, 

as well as permanent pay increases. Without this increase, the agency will have diminished capacity to support 

wildfire prevention, mitigation, education, and response operations. 

c) An increase of $334,000,000 will support a total of 11,782 FTEs in FY 2023. The agency estimates $10-$15 

million of this increase will ensure firefighters receive a minimum wage of $15 per hour. The remainder of the 

increase will fund an additional 3,253 FTEs from FY 2022 (firefighters and firefighting support personnel). 

This increased workforce capacity will enhance response to year-round fire activity and allow the agency to 

continue important investments that support the health, well-being, and resilience of the agency’s wildland 

firefighting force. The Forest Service received an additional increase for wildland fire salary and expenses from 

the Infrastructure Investment and Jobs Act (H.R. 3684), which provides an additional $96,000,000 annually for 

five years ($480,000,000 total). This funding will be used to support a long-term solution for a special salary 

rate to address the pay disparity with State, local, and private firefighting entities. 

Preparedness: An increase of $40,000,000 from the FY 2022 annualized CR, which includes the 

following: 

a) An increase of $40,000,000 to maintain a robust aviation program with up to 18 exclusive use airtankers, up to 

103 exclusive use helicopters, and further implementation of the Unmanned Aerial Support program to 

maximize the agency’s capacity to ensure safe, timely, and effective aerial response.

Hazardous Fuels: An increase of $141,000,000 from the FY 2022 annualized CR, which includes the 

following: 

a) An increase of $141,000,000 will support 3.8 million acres of hazardous fuel reduction treatment projects that 

focus on limiting the risk wildfires pose to communities and public lands and restoring fire adaptive 

ecosystems. Hazardous fuel removal is pivotal in mitigating the occurrence of catastrophic wildland fires and 

ensuring forests and watersheds are sustainable, healthy, and productive. About 63 million acres of the 193 

million acres (32 percent) of the National Forest System are at high or very high hazard for wildfires that would 

be difficult to contain. This additional funding will be used to treat three high priority areas (firesheds) to reduce 

risk to communities in a focused investment approach. 

This proposed increase will also significantly improve the ability to maintain landscapes the agency has already 

moved to a low risk, focus investments in areas of highest wildfire risk, and create fire adaptive ecosystems that 

are more resilient to the destructive impacts of wildfire due to climate change. 

The Hazardous Fuels program will move from the National Forest System account to the Wildland Fire 

Management account in FY 2023. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CLASSIFICATION BY OBJECTS 

Table FS-46. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Estimated 

Personnel Compensation: 

Washington D.C.......................................................... 

.................................... 

.................................. 

......................................................... 

..................................... 

............ 

$9,745 $11,540 $11,682 $14,968 

Personnel compensation, field 956,139 1,132,233 1,146,127 1,468,611 

11.0 Total personnel compensation 965,884 1,143,773 1,157,809 1,483,579 

12.0 Personal benefits 339,875 359,470 363,881 466,266 

13.0 Benefits for former personnel 38,378 18 18 23 

Total, personnel compensation and benefits 1,344,137 1,503,261 1,521,708 1,949,868 

Other Objects: 

21.0 Travel and transportation of persons........................... 

.............................................. 

............................................. 

........................................... 

............. 

............................................ 

................................ 

69,996 120,443 102,529 99,521 

22.0 Transportation of things 12,998 11,466 9,761 9,475 

23.1 Rental payments to GSA 12,939 327 280 271 

23.2 Rental payments to others 35,473 7,233 6,157 5,977 

23.3 Communications, utilities, and misc. charges 38,006 10,899 9,278 9,005 

24.0 Printing and reproduction 789 290 248 240 

25.1 Advisory and assistance services 186 -203 - -168 

25.2 Other services from non-Federal sources.................... 

.......... 

...................... 

.......................... 

................................................................ 

................... 

................................................ 

................................................................... 

..................................................... 

............................ 

............................... 

................................................. 

.............................................................. 

................................................... 

........................................... 

1,039,907 2,254,222 1,923,177 1,861,558 

25.3 Other goods and services from Federal sources 184,686 215,314 183,291 177,912 

25.4 Operation and maintenance of facilities 379 2,783 2,368 2,300 

25.5 Research and development contracts 6,998 - - -

25.6 Medical care 272 410 349 338 

25.7 Operation and maintenance of equipment 3,249 3,323 2,830 2,746 

26.0 Supplies and materials 156,357 213,727 181,940 176,601 

31.0 Equipment 19,006 9,595 8,168 7,928 

32.0 Land and structures 301 1,763 1,501 1,457 

41.0 Grants, subsidies, and contributions 231,677 443,215 382,639 371,411 

42.0 Insurance claims and indemnities 517 626 532 517 

43.0 Interest and dividends 21 130 110 108 

92.0 Undistributed 29 57 49 47 

Total, other objects 1,813,786 3,295,620 2,815,207 2,727,244 

99.9 Total, new obligations 3,157,923 4,798,881 4,336,915 4,677,112 

DHS Building Security Payments (included in 25.3) .... 258 16 18 19 

Position Data: 

Average Salary (dollars), ES Position......................... $185,230 $181,262 $186,156 $191,182 

Average Salary (dollars), GS Position ........................ $55,545 $51,829 $53,228 $54,666 

Average Grade, GS Position ....................................... 7.5 7.0 7.2 7.4 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

The interagency fire community faced another challenging fire year in FY 2021 as the Forest Service and partners 

continued to respond to wildfire incidents around the country during the COVID-19 pandemic. The Forest Service 

implemented several operational changes to better protect wildland firefighters from COVID-19. Many of these 

efforts were successful and will be continued to improve future response operations. This includes modifying how 

caterers, showers, contract crews, and aviation resources are contracted and delivered; leveraging a virtual 

environment to provide support to fire camps from around the country; utilizing unmanned aerial systems for 

improved fire reconnaissance and additional burnout capability; and leveraging real-time fire analytics to inform 

when and where resources can be safely and effectively utilized. 

In FY 2021, the Forest Service continued implementation of the John D. Dingell, Jr. Conservation, Management, 

and Recreation Act of 2019 with substantial progress in completing five resource tracking pilots at multiple Type 1 

or 2 (the most complex) incidents. Implementation of the Act continues in FY 2022, focusing on potential phased 

rollouts of various components of the Act, such as new technology to address hazard risk mapping, increasing the 

utilization of unmanned aerial systems, location tracking for wildland firefighters, risk management for firefighters 

and the public, and improved wildland fire decision support. In FY 2021, the agency was also able to complete two 

major information technology (IT) contracts that will support the Fire and Aviation Management Information 

Management program in FY 2022. The contracts provide flexibility to quickly shift IT resources as project demands 

are adjusted throughout the year. 

In FY 2021, the Forest Service continued reviewing and documenting a sample of large fires to examine multiple 

aspects in compliance with the requirements outlined in Division O of the Consolidated Appropriations Act, 2018 

(P.L. 115–141). These efforts include reviewing and documenting the effectiveness of risk management strategies, 

beneficial ecological impacts of fire on the landscape, firefighter exposure, fuel treatment effectiveness, cost drivers, 

efforts to modernize the wildland fire program, operational effectiveness, and overall lessons learned. These 

assessments will allow the agency to better understand the wildland fire system and the factors that influence the 

outcomes of fire management decisions. In FY 2021, the analysis from the sampled fires was used to inform preseason planning that influenced real-time wildland fire decision-making and reduced overall risk. The Forest Service 

will generate a report to Congress on the findings of these assessments at the end of any year in which all 

appropriated Suppression funds are exhausted. 

As directed in the Consolidated Appropriations Act, 2014, a detailed table of actual and proposed estimated funding 

for fire operations, including aviation resources, is listed below: 

Table FS-47. Wildland Fire Salary and Expenses, Preparedness and Suppression Costs (millions of dollars) 

Preparedness 2021 

Actual 

2022 

Estimate 

2023 

Budget 

Wildland Firefighter Salary and Expenses: a 

Firefighter Federal Fire Response b ............................................. $102 $113 $130 

Firefighter State Fire Response c ................................................. 11 12 15 

FEMA d ....................................................................................... 1 1 1 

Travel and Training c ................................................................... 31 34 52 

Non-Incident and Hazardous Fuel Operations f, g, h ..................... 546 604 947 

Subtotal, Wildland Firefighter Salary and Expenses................ 691 764 1,145 

Wildland Fire Preparedness Costs: i 

Firefighting Equipment, Operations, and Maintenance j ............. 508 132 172 

Aviation Contracts ...................................................................... 141 20 20 

Subtotal, Wildland Fire Preparedness Costs............................. 649 152 192 

Total, Wildland Fire Salary and Expenses and Preparedness 

Costs ........................................................................................... 1,340 916 1,337 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

a Firefighters and support staff salary and personnel costs include pay costs and Federal Employees Retirement System 

contributions. 

b Firefighters and support staff salary and personnel costs incurred from work on fires occurring on National Forest System 

lands or other Federal lands. 

c Firefighters and support staff salary and personnel costs incurred from work on fires occurring on State lands. 

d FEMA category under Preparedness includes employee and personnel costs for the first 8 hours (Base-8 hours) incurred when 

responding to FEMA-declared emergencies. e Travel and training costs to support Forest Service firefighters and support staff for Preparedness program activities. f All other firefighter and support staff salary and personnel costs incurred from Preparedness program activities not directly 

supporting an incident. This includes all Wildland Fire leadership and associated management staff, communications staff, 

aviation staff, budget staff, fire planners, off-season firefighter work, and all the planning and readiness reviews to prepare for 

the next incident. 

g All other firefighter and support staff salary and personnel costs incurred from the hazardous fuels program. h The 2020 actuals do not include the hazardous fuels program salary and personnel costs. The hazardous fuels salary and 

personnel costs were included within the Hazardous Fuels appropriation. The hazardous fuels salary and personnel costs are 

included in the 2021 and 2022 Wildland Fire salary and expense appropriation. 

i The Preparedness program covers fixed costs and ensures that fire management assets, such as large airtankers, helicopters, 

hot shot crews, and smoke jumpers are available to support initial attack response operations on National Forest System lands 

and other Federal, State, and private lands. 

j The 2020 actuals include the agency’s cost pool distribution and IT investments, $376 million. The 2021 and 2022 Wildland 

Fire Preparedness costs do not include the agency’s cost pools distribution or IT investments, which are now part of the Forest 

Service Operations appropriations. 

Suppression 2021 

Actual 

2022 

Estimate 

2023 

Budget 

Federal Fire Response a................................................................ 

.................................................................... 

....................................................................... 

...................................... 

........................................................................................ 

................................

.............................................................. 

................................................................... 

$528 $303 $303 

State Fire Response b 90 52 52 

Aviation Contracts 438 251 251 

Fire Support Contracts and Operations c 531 305 305 

FEMA d 1 2 2 

Burned Area Emergency Repair (BAER) e .. 5 3 3 

Administrative Support f 170 95 95 

Total Suppression g $1,763 $1,011 g $1,011 h 

a Forest Service fire management assets used to support Suppression program activities on National Forest System and other 

Federal lands. 

b Forest Service fire management assets used to support Suppression program activities on State lands. c Execution of contracts and other procurements for activities associated with the national suppression response. d FEMA reimbursement under Suppression includes firefighter and support staff overtime costs, hazard pay, travel, and other 

administrative costs during FEMA-declared emergencies. e Forest Service Burned Area Emergency Repair response across all lands. f All other costs to support Forest Service firefighters and staff during Suppression program activities. 

The Wildfire Suppression Funding and Forest Management Activities Act of the Consolidated Appropriations Act, 2018 (P.L. 

115–141) established funding levels for Suppression of $1.011 billion. Total Suppression funding requested in FY 2022 

($1.011 billion) includes pay costs, awards, and Federal Employees Retirement System contributions. g The Wildfire Suppression Funding and Forest Management Activities Act of the Consolidated Appropriations Act, 2018 (P.L. 

115–141) established funding levels for Suppression of $1.011 billion. Total Suppression funding requested in FY 2022 

($1.011 billion) includes pay costs, awards, and Federal Employees Retirement System contributions. h The Forest Service Suppression program ensures that fire management assets, such as large airtankers, helicopters, hot shot 

crews, and smoke jumpers are available to support extended attack and large fire support operations at fires on National Forest 

System lands and other Federal, State, and private lands, as necessary. 

126 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Table FS-48. Resource Summary FY 2020 to FY 2022 (aviation fleet and personnel) 

Resource 2021 

Actual 

2022 

Estimate 

2023 

Budget 

Engines a ............................................................................... 900 900 900 

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

Helicopters: 

Type 1 b .............................................................................. 

.............................................................................. 

.............................................................................. 

............................................. 

............................................................................. 

............... 

............................................................... 

.................................................................. 

...................................................... 

28 28 28 

Type 2 c 34 34 34 

Type 3 d 46 46 46 

Airtankers: 

Next Generation Airtankers e 13 18 18 

Scoopers 0 0 0 

Firefighters (FFTR) – Total is inclusive of categories below 10,000 

67 crews; 1,340 

11,300 

67 crews; 1,340 

11,650 

67 crews; 1,690 

Type I Interagency Hot Shot Crews (20-person) FFTR FFTR FFTR 

Other Firefighters 7,940 9,240 9,240 

Smoke Jumpers 320 320 320 

Prevention Technicians 400 400 400 a Refers to the suite of wheeled vehicles used to carry firefighters and water to the site of a fire. b Includes only agency owned/leased or exclusive use contracted assets. Type 1 are the heaviest class of helicopters. c Medium-sized helicopters. d Includes only helicopters whose primary purpose is wildland fire response. Type 3 are the lightest class of helicopters. 

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

Preparedness 

Current Activities 

Annually, there are more than 5,000 fires on National Forest System lands, and in FY 2021, Forest Service 

firefighters had an initial attack success rate33 of 96 percent. 

Specifically Addressed Areas 

The Preparedness program ensures that fire management assets, such as large airtankers, helicopters, hot shot crews, 

and smokejumpers, can support timely, risk-informed, and effective initial attack response operations on National 

Forest System lands and other Federal, State, and private lands. This program supports internal and external training 

and education, development and advancement of firefighting technology, and organizational learning. 

Selected Examples of Recent Progress 

Potential Operational Delineations (PODs). In FY 2021, the Forest Service continued to provide leadership and 

collaboration on the development of a common understanding of risks, management opportunities, and desired 

outcomes before a fire starts. PODs are a pre-planning framework to assist in real time decisions and identify 

opportunities for wildfire control lines. In FY 2021, more than 40 national forests developed PODs. 

Improvements in Aircraft Acquisition. The Forest Service Aviation Acquisition Strategy (Strategy) was 

implemented on January 1, 2021, and documents how the Aviation Program collectively plans, executes, and 

manages all aviation acquisitions required to meet agency goals, objectives, and performance measures. The 

Strategy established three levels of governance bodies with both national and regional representation to facilitate 

ongoing strategic planning and prioritization. Under this Strategy, aviation is viewed as a single program, which 

allows for significant cost and administration efficiencies, especially given limited aviation and contracting 

personnel resources. In addition, use of the Strategy’s acquisition phases and decision points ensures a strategic, 

33 Initial attack success rate is the percent of fires that were suppressed before reaching 300 acres in size. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

integrated, timely, and programmatic approach to aviation procurements using program management best practices, 

tools, and techniques. 

Suppression 

Current Activities 

The Suppression program is the primary funding source for wildland fire extended attack and large fire support 

operations. The Suppression program maintains the agency’s strong role of working with other Federal, State, 

Tribal, and local government partners to protect life and property against wildfire and other natural disasters. This 

program also protects forests and watersheds from the impacts of catastrophic fire, helping maintain clean water, 

wildlife and fish habitat, recreational opportunities, and forest products. 

Specifically Addressed Areas 

The FY 2021 fire season saw over 7.6 million acres burned in wildland fires, with over 4.1 million of those acres 

occurring on National Forest System lands. The agency continues to evolve how it applies analytical systems to the 

decisional framework to answer questions about how fire suppression resources are currently allocated, which 

suppression resources are effective, and whether current practices employed by incident managers are efficient. 

S.Con.Res.14 (“A concurrent resolution setting forth the congressional budget for the United States Government for 

fiscal year 2022 and setting forth the appropriate budgetary levels for fiscal years 2023 through 2031”) extended the 

Wildfire Suppression Funding and Forest Management Activities Act included in Division O of the Consolidated 

Appropriations Act, 2018 (P.L. 115–141), which amended the Balanced Budget and Emergency Deficit Control Act 

to authorize the appropriation of additional budget authority. In FY 2021 the Forest Service accessed the additional 

budget authority which allowed the agency to continue to cover the full cost of fire suppression operations. This 

additional authority is intended to eliminate the need for “fire transfers,” or the borrowing of funds from non-fire 

programs, to cover the full cost of fire suppression operations. The budgetary stability provided by the additional 

budget authority is being leveraged by the agency to more strategically approach programmatic and fiscal 

management of the fire program. 

In addition, the Forest Service continues to standardize local agreements for cooperative response to wildland fires. 

In FY 2021, the agency advanced to have over 45 standardized State-level agreements for cooperative response to 

wildland fires, developing and fielding new fire analytic tools and resources to inform tactical decision-making on 

fire incidents, and adopting modern spatial and data analytics technologies to provide real time information to 

incident commanders on complex incidents. The Forest Service is also seeking to establish appropriate cost-share 

agreements and pursue 100 percent cost recovery from Federal, State, and local entities to equitably balance these 

costs. 

Selected Examples of Recent Progress 

Risk Management Assistance. In FY 2021, the Forest Service’s Risk Management Assistance program continued to 

provide real time decision support for the largest and most challenging fires. The program provides analytical 

products and support for line officers’ use of analytics within their decision-making process on critical fire incidents. 

In FY 2021, line officers employed Risk Management Assistance on over 110 large fires, including the Dixie and 

Caldor fires in California. Risk Management Assessment programs and products are continuing to change the way 

the agency makes decisions to reduce wildfire risk to communities and the workforce. In FY 2021, the Forest 

Service developed a new suite of fire analytic tools to facilitate pre-season risk assessment and help local units 

identify effective suppression strategies during incidents. 

Burned Area Emergency Response. There are many emergencies that continue to affect the landscape and critical 

values after wildfires, including flooding, debris flows, increased erosion, and threat of non-native species invasion. 

The Forest Service Burned Area Emergency Response (BAER) program, funded under Suppression, provides 

the opportunity for assessment and mitigation of these post-fire risks on National Forest System lands for life, 

safety, property, and critical natural and cultural resources. BAER treatments are completed within the first year 

following the fire and may include installation of warning signs and gates, road and trail drainage improvements, 

control of non-native plants, and hazardous materials containment. In FY 2021, over 5.4 million acres received a 

burned area emergency assessment with $31.8 million allocated for treatments to protect life and safety, property, 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

and critical natural and cultural resources on National Forest System lands. There were over 300 separate fires 

assessed; funding was requested for 197 of those fires, while 105 did not need post-fire emergency action. 

Treatments included over 35,000 acres of invasive plant detection and response, about 2,500 miles of road drainage 

improvements, over 830 miles of trail work, protection of over 150 cultural sites, over 200 hazardous sites mitigated, 

and numerous hazard warning signs installed. Implementation completed in FY 2021 expended $29 million on 

actions for the 2019, 2020, and 2021 fire seasons. 

Hazardous Fuels 

Current Activities 

Much of the Nation’s forests and grasslands are stressed by the impacts of climate change, including extended 

drought, severe wildfires, and large outbreaks of insects and diseases. These stressors and disturbances impact 

forests, grasslands, and watersheds, and threaten rural communities, timber and other forest products, utility 

corridors, and more, causing millions of dollars in damage each year. Hazardous fuels treatments include any 

vegetation manipulation, removal, or modification of wildland fuels to reduce the likelihood of ignition, reduce 

potential fire intensity and rate of spread, lessen potential damage, or limit the spread of invasive species and 

diseases. These treatments promote the natural role of fire by reducing the likelihood of uncharacteristically intense 

wildland fire and increase the agency’s capabilities to protect life and property (including communities-at-risk and 

sensitive municipal watersheds), sensitive natural resources (including native plant communities and threatened and 

endangered species), and other socially important cultural resources. 

The Hazardous Fuels program treats acres to reduce the potential for uncharacteristic wildfire by prioritizing 

treatments in the vicinity of critical infrastructure and community source drinking water supplies. A trade-off 

analysis is conducted using scenario investment planning to distribute resources more efficiently to the highest 

priority areas. Working with community partners across boundaries allows the agency to leverage resources and 

work efficiently to reduce wildfire risk while creating resilient landscapes and encouraging fire-adapted 

communities. Hazardous fuels treatments also focus on fire-adapted ecosystems that require periodic fire to maintain 

forest health and resilience. 

Specifically Addressed Areas 

In FY 2021, the Forest Service accomplished approximately 3.7 million acres of hazardous fuels reduction on 

National Forest System lands and adjacent areas to mitigate wildfire risk, exceeding the national target of 3.5 million 

acres. Over 2 million of the treated acres were in high-risk wildland-urban interface (WUI) areas. The treated areas 

that were not in the WUI were identified as high priority for other important values at risk to wildfire, including 

protection of municipal watersheds; avoiding wildfire side-effects like poor air quality, loss of habitat, and area 

closures; and other objectives such as harvesting forest products and ecosystem restoration occurring outside WUI 

areas. More than one million treated acres were categorized as having a high to very high hazard of a large wildfire 

that would be difficult to contain. About 1.8 million acres or 49 percent of the total acres were treated with 

prescribed fire, one of the most cost-effective methods of treatment. This is the most acres the Forest Service has 

treated using prescribed fire, exceeding the previous record of 1.6 million acres. Five regions exceeded their regional 

target, three regions achieved at least 86 percent of their target, and one region met 76 percent of its target. The 

success of the program was primarily a result of favorable weather creating more opportunities for burning and a 

concerted effort to improve coordination among regions to mobilize resources to support seasonal burning. The 

Forest Service achieved this level of accomplishment while also managing a significant wildfire response workload, 

providing support to the national COVID-19 response, and overcoming challenges for performing work in a 

COVID-19 environment. The agency will continue to prioritize the use of authorities provided in Division O of the 

Consolidated Appropriations Act, 2018 (P.L. 115–141), and take the necessary steps to reach the goal of treating 3.8 

million acres of National Forest System lands and adjacent areas in FY 2023. The agency is using the analytic 

methodology of “firesheds” to help prioritize work in areas with the greatest exposure to communities and will be 

taking the necessary steps in FY 2023 to reach the goal of treating three firesheds to the desired condition where 

wildfire risk is mitigated. 

129 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Selected Examples of Recent Progress 

Wildfire Risk to Communities website. The Wildfire Risk to Communities (WRC) website was launched in April 

2020 and has been visited over 173,000 times, with over 134,000 views in FY 2021 alone. Since the initial launch, 

site improvements have been made, including: the ability to toggle between population areas and all-lands in all 

views; the ability for users to conduct analysis based on expanded population areas which represent a 45-minute or 

less commute to a Census Designated Place34; the ability to view the “risk comparison area” at the county, State, or 

national level; 15 total geographic information system (GIS) layers for download to help communities customize 

their fire risk analysis; and additional references to search partner programs to help communities reduce wildfire 

risk. Colorado State University led an independent review of the WRC website using customers from five Western 

States and developed a ‘tool kit” to help work with disfranchised communities. The release of version 2.0 of the 

website with updated base data (including new data for populations, vegetation, and vulnerable populations), 

additional capabilities including searchable tribal areas, and enhanced tools for communities to support their 

mitigation efforts, is planned for FY 2023. 

Smoke Management and Air Quality. As guided by the John D. Dingell Jr. Conservation, Management, and 

Recreation Act of 2019, the Interagency Wildland Fire Air Quality Response Program (IWFAQRP) deployed 111 

Air Resource Advisors (ARAs) to support wildfire response with smoke dispersion forecasting, public smoke impact 

information, and community messages. The IWFAQRP ARA cadre includes 21 partner agencies including the 

Environmental Protection Agency, Centers for Disease Control, National Weather Service, Department of the 

Interior, States, and contracted resources. ARAs are technical specialists trained to work on smoke issues from 

wildland fire and are deployed nationwide during large smoke events. Among the products the IWFAQRP provides 

are daily Smoke Outlooks that provides critical air quality impact information so the public can reduce their 

exposure and health risks associated with smoke. In FY 2021, the IWFAQRP maintained and utilized over 40 fine 

particulate air quality monitors, 30 low-cost air quality sensors, 220 carbon monoxide data loggers, and 13 Rad-57 

sensors to detect cumulative Carboxyhemoglobin in support of the public and wildfire Incident Management Teams. 

Fuels Treatments Modified Fire Behavior in FY 2021. During the FY 2021 fire season, numerous wildfires 

interacted with cross-boundary fuels reduction projects across all regions, with a significant number of occurrences 

in the Forest Service Pacific Northwest, Pacific Southwest, and Southwestern Regions. Assessments of the 

effectiveness of these treatments are ongoing, but initial observations indicate that in most cases, fuels treatments 

resulted in reduced fire behavior that provides strategic advantages to firefighters responding to these wildfires. In 

many cases, the occurrence of large, damaging wildfire was avoided entirely. One example occurred on June 24, 

2021, on the Ochoco National Forest near Redmond, Oregon, when a lightning fire ignited within a 2,000-acre 

prescribed burn area and was easily contained at three acres. In April 2021, the Holiday Mesa and Llano Loco fires 

on the Santa Fe National Forest in New Mexico were both easily contained at three and one acre, respectively, 

because the fuels treatments undertaken by the New Mexico State Forestry, New Mexico Department of Game and 

Fish, Rocky Mountain Elk Foundation, and the Forest Service/USDA Natural Resource Conservation Service Joint 

Chiefs’ program reduced the fire intensities. For larger wildfires, fuels treatments again played a vital role. One of 

the most notable instances was on the Caldor fire where hazardous fuels treatments were instrumental in providing 

firefighters with strategic options for the protection of Myers, California, and other communities in the vicinity of 

South Lake Tahoe. On the nearly one million-acre Dixie fire near Susanville, California, mechanical and prescribed 

fire treatments undertaken by the Lassen and Plumas National Forests, State agencies, and private landowners 

played a vital role in establishing fire control across many portions of this large fire. While the community of 

Greenville, California, suffered severe damage, fuel treatments aided firefighters in the protection of many other 

communities such as Quincy, Taylorsville, and Dixie Valley. 

34 Statistical geographic entities representing closely settled, unincorporated communities that are locally recognized and 

identified by name. 

130 
............................................................................................................... 

.......................................................................................................... 

.............................................................................................................. 

WILDFIRE SUPPRESSION OPERATIONS RESERVE FUND 

LEAD-OFF TABULAR STATEMENT 

Table FS-49. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Annualized CR, 2022 $2,040,000,000 

Change in Appropriation +170,000,000 

Budget Request, 2023 2,210,000,000 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

APPROPRIATIONS LANGUAGE (INCLUDING TRANSFERS OF FUNDS) 

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

In addition to the amounts provided under the heading “Department of Agriculture—Forest Service—Wildland Fire 

Management” for wildfire suppression operations, [$2,120,000,000]$2,210,000,000, to remain available until 

transferred, is additional new budget authority in excess of the average costs for wildfire suppression operations for 

purposes of a concurrent resolution on the budget: Provided, That such amounts may be transferred to and merged 

with amounts made available under the headings “Department of the Interior—Department-Wide Programs—

Wildland Fire Management” and “Department of Agriculture—Forest Service—Wildland Fire Management” for 

wildfire suppression operations in the fiscal year in which such amounts are transferred: Provided further, That 

amounts may be transferred to the “Wildland Fire Management” accounts in the Department of the Interior or the 

Department of Agriculture only upon the notification of the House and Senate Committees on Appropriations that 

all wildfire suppression operations funds appropriated under that heading in this and prior appropriations Acts to the 

agency to which the funds will be transferred will be obligated within 30 days: Provided further, That the transfer 

authority provided under this heading is in addition to any other transfer authority provided by law. 

Note: A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 

117-43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing 

resolution. 

131 
 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-50. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Discretionary Appropriations: 

Wildfire Suppression Operations Reserve 

Fund............................................................... 

........................................... 

.............................. 

...................................... 

............................................ 

.................................................... 

........................................... 

................................................ 

$1,950,000 - $2,040,000 - $2,040,000 - $2,210,000 - +$170,000 - (1) 

Total Appropriations 1,950,000 - 2,040,000 - 2,040,000 - 2,210,000 - +$170,000 -

Transfers Out: 

Wildland Fire Management - - -2,770,000 - -1,770,000 - -1,770,000 - - -

Total, Transfers Out - - -2,770,000 - -1,770,000 - -1,770,000 - - -

Bal. Available, SOY - - 1,950,000 - 1,220,000 - 1,490,000 - +270,000 -

Total Available 1,950,000 - 1,220,000 - 1,490,000 - 1,930,000 - +440,000 -

Bal. Available, EOY -1,950,000 - -1,220,000 - -1,490,000 - -1,930,000 - -440,000 -

Total Obligations - - - - - - - - - -

132 
 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

JUSTIFICATION OF INCREASES AND DECREASES 

a) An increase of $170,000,000. The Wildfire Suppression Operations Reserve Fund was established by the fire 

funding fix enacted in Division O of Public Law 115-141, the Stephen Sepp Wildfire Suppression Funding and 

Forest Management Activities Act. This fire funding fix also amended Section 102 of the Stephen Sepp of the 

Wildfire Suppression Funding and Forest Management Activities Act (division O of Public Law 115–141) to 

provide additional new budget authority for fiscal years 2020 through 2027. The overall amount increases by 

$100 million each year. The base level is defined as the average costs over ten years for wildfire suppression 

operations that was requested in the President’s FY 2015 Budget. This was determined to be $1.011 billion for 

the Forest Service and was appropriated beginning FY 2020 together with the first allocation of the new budget 

authority. 

133 
 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PERMANENT APPROPRIATIONS 

LEAD-OFF TABULAR STATEMENT 

Table FS-51. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Estimate, 2022.......................................................................................................................... 

.......................................................................................................... 

............................................................................................................. 

$506,528,000 

Change in Appropriation -

Budget Estimate, 2023 506,528,000 

134 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-52. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Mandatory Appropriations: 

National Parks and Public Land Legacy 

Restoration Fund .............................................. 

.................................................... 

.......................................... 

...................... 

................................... 

..................................... 

.......................... 

............................................................ 

................................

............... 

................... 

.. 

............................................ 

.......................... 

................................

......................... 

.......................... 

.................................................. 

.................................... 

........................... 

- - - 43 - 43 - 43 - -

Brush Disposal $8,104 67 $6,928 40 $6,928 40 $6,928 40 - -

Timber Salvage Sales 33,728 365 34,746 191 34,746 191 34,746 191 - -

Timber Sales Pipeline Restoration 2,754 24 4,977 28 4,977 28 4,977 28 - -

Forest Botanical Products 558 20 915 13 915 13 915 13 - -

Stewardship Contracting 32,336 - 29,276 31 29,276 31 29,276 31 - -

Recreation Fees, Forest Service 92,765 621 118,253 460 118,253 460 118,253 460 - -

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

Operation and Maintenance of Forest Service 

Quarters 9,841 27 10,266 18 10,266 18 10,266 18 - -

Roads and Trails for States . 15,887 - 13,189 - 16,000 - 16,000 - - -

Land Between the Lakes Management 4,836 10 6,468 12 6,468 12 6,468 12 - -

Midewin National Tallgrass Prairie Rental Fees. 576 - 669 1 794 1 794 1 - -

Quinault Special Management Area 1 - - - - - - - - -

Restoration of Forest Lands and Improvements 1,103 33 1,307 21 1,308 21 1,308 21 - -

Commercial Filming & Still Photography Land 

Use Fee Retention 455 3 608 4 608 4 608 4 - -

Organizational Camps Program 436 5 191 3 191 3 191 3 - -

Cost Recovery (Land Uses) . 693 6 679 3 679 3 679 3 - -

Licensee Program Smokey Bear 1,189 - 833 - 833 - 833 - - -

Licensee Program Woodsy Owl 25 - 20 - 20 - 20 - - -

Forest Service Go Green Program 

(Conservation) 72 - 47 - 47 - 47 - - -

Payments to States Funds 284,288 23 256,023 25 272,219 25 272,219 25 - -

Total, Mandatory Appropriations 491,647 1,204 487,395 893 506,528 893 506,528 893 - -

Offsetting Collections: 

135 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or Inc. or Chg 

Actual FTE Actual FTE Resolution FTE Request FTE Dec. Dec. Key 

Cost Recovery (Land Uses)................................. 

.................................. 

.............................................. 

................................... 

.................................................. 

................. 

.......................................................... 

................................................... 

........................................ 

....................................................... 

........................................ 

................................................... 

3,548 31 5,641 23 5,641 23 5,641 23 - -

Total, Offsetting Collections 3,548 31 5,641 23 5,641 23 5,641 23 - -

Total Appropriations 495,195 1,235 493,036 916 512,169 916 512,169 916 - -

Transfers In: 

Department of the Interior 733 - 285,464 - 285,000 - 285,000 - - -

Total, Transfers In 733 - 285,464 - 285,000 - 285,000 - - -

Deferral for Roads and Trails for States -15,887 - -13,189 -16,000 - - -

Sequestration -2,825 - -17,445 - -39,724 - -16,929 - +$22,795 -

Recoveries, Other 13,472 - 9,475 - 9,475 - 9,475 - - -

Balance Available, SOY 631,985 - 624,392 - 843,447 - 975,711 - +132,264 -

Total Available 1,122,673 1,235 1,381,733 916 1,594,367 916 1,765,426 916 +155,059 -

Balance Available, EOY -624,392 - -843,447 - -975,711 - -973,870 - +1,841 -

Total Obligations 498,271 1,235 538,286 916 618,656 916 791,556 916 +172,900 -

Table FS-53. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Mandatory Obligations: 

National Parks and Public Land Legacy Restoration 

Fund ...................................................................... 

......................................................... 

................................................................ 

............................................... 

........................... 

........................................ 

.......................................... 

............................... 

........ 

- - $115,267 43 $172,900 43 $345,800 43 +$172,900 -

Brush Disposal $10,691 67 6,994 40 6,994 40 6,994 40 - -

Hardwood Technology Transfer and Applied 

Research 61 - 15 - 15 - 15 - - -

Timber Salvage Sales 47,169 365 25,329 191 25,329 191 25,329 191 - -

Timber Sales Pipeline Restoration 3,961 24 3,863 28 3,863 28 3,863 28 - -

Forest Botanical Products 1,933 20 1,121 13 1,121 13 1,121 13 - -

Stewardship Contracting 20,719 - 21,087 31 21,087 31 21,087 31 - -

Recreation Fees, Forest Service 93,072 621 99,166 460 99,166 460 99,166 460 - -

Timber Purchaser Election Road Construction - - 248 - 248 - 248 - - -

136 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or Inc. or 

Actual FTE Actual FTE Resolution FTE Request FTE Dec. Dec. 

Operation and Maintenance of Forest Service 

Quarters................................................................. 

...................................... 

.................... 

...... 

........................ 

....... 

........................................................ 

............................... 

...................................... 

.............................. 

............................... 

... 

......................................... 

............................... 

...................................... 

................................. 

........................................................ 

..................................................... 

...................................................................... 

......................................................... 

................................................................ 

............................................... 

........................... 

8,724 27 8,291 18 8,291 18 8,291 18 - -

Roads and Trails for States 52 - - - - - - - - -

Land Between the Lakes Management 4,904 10 6,492 12 6,492 12 6,492 12 - -

Midewin National Tallgrass Prairie Rental Fees 789 - 716 1 716 1 716 1 - -

Quinault Special Management Area - - - - - - - - - -

Restoration of Forest Lands and Improvements 27,935 33 11,939 21 11,939 21 11,939 21 - -

Commercial Filming & Still Photography Land Use 

Fee Retention 568 3 465 4 465 4 465 4 - -

Organizational Camps Program 537 5 235 3 235 3 235 3 - -

Cost Recovery (Land Uses) 663 6 381 3 381 3 381 3 - -

Licensee Program Smokey Bear 660 - 663 - 663 - 663 - - -

Licensee Program Woodsy Owl 35 - 46 - 46 - 46 - - -

Forest Service Go Green Program (Conservation) 121 - 91 - 94 - 94 - - -

Payments to States Funds 270,321 23 232,420 25 253,291 25 253,291 25 - -

Total, Mandatory Obligations 492,915 1,204 534,829 893 613,336 893 786,236 893 +172,900 -

Offsetting Collections: 

Cost Recovery (Land Uses) 5,356 31 3,457 23 5,320 23 5,320 23 - -

Total, Offsetting Collections 5,356 31 3,457 23 5,320 23 5,320 23 - -

Total Obligations 498,271 1,235 538,286 916 618,656 916 791,556 916 +172,900 -

Add back: 

Lapsing Balances 10 - - - - - - - - -

Balances Available, EOY: 

National Parks and Public Land Legacy Restoration 

Fund - - 169,734 - 265,916 - 204,594 - -61,322 -

Brush Disposal 25,344 - 25,728 - 27,017 - 29,281 - +2,264 -

Hardwood Technology Transfer and Applied 

Research 81 - 66 - 70 - 76 - +6 -

Timber Salvage Sales 66,113 - 76,965 - 80,822 - 87,594 - +6,772 -

Timber Sales Pipeline Restoration 5,216 - 6,694 - 7,030 - 7,618 - +588 -

137 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or Inc. or 

Actual FTE Actual FTE Resolution FTE Request FTE Dec. Dec. 

Forest Botanical Products ........................................ 

.......................................... 

............................... 

........ 

................................................................. 

...................................... 

.................... 

...... 

........................ 

....... 

........................................................ 

............................... 

...................................... 

.............................. 

............................... 

... 

......................................... 

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............................................................ 

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................... 

............................................................ 

.................................................... 

.......................................... 

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2,104 - 2,031 - 2,134 - 2,313 - +179 -

Stewardship Contracting 46,110 - 53,246 - 55,913 - 60,600 - +4,687 -

Recreation Fees, Forest Service 111,667 - 130,803 - 137,355 - 148,866 - +11,511 -

Timber Purchaser Election Road Construction 32,858 - 34,619 - 36,354 - 39,400 - +3,046 -

Operation & Maintenance of Forest Service 

Quarters 27,436 - 29,442 - 30,917 - 33,509 - +2,592 -

Roads and Trails for States 1 - 1 - 1 - 1 - - -

Land Between the Lakes Management 4,983 - 5,002 - 5,253 - 5,693 - +440 -

Midewin National Tallgrass Prairie Rental Fees 3,717 - 3,681 - 3,867 - 4,191 - +324 -

Quinault Special Management Area 18 - 18 - 19 - 20 - +1 -

Restoration of Forest Lands and Improvements 204,677 - 198,499 - 208,442 - 225,912 - +17,470 -

Commercial Filming & Still Photography Land Use 

Fee Retention -2,217 - -2,216 - - - - - - -

Organizational Camps Program 5,651 - 5,894 - 6,188 - 6,707 - +519 -

Cost Recovery (Land Uses) 18,275 - 21,492 - 22,569 - 24,459 - +1,890 -

Licensee Program Smokey Bear 1,872 - 2,052 - 2,155 - 2,335 - +180 -

Licensee Program Woodsy Owl 113 - 87 - 92 - 99 - +7 -

Forest Service Go Green Program (Conservation) 517 - 472 - 496 - 537 - +41 -

Payments to States Funds 69,856 - 79,137 - 83,101 - 90,065 - +6,964 -

Total Balance Available, EOY 624,392 - 843,447 - 975,711 - 973,870 - -1,841 -

Total Available 1,122,673 1,235 1,381,733 916 1,594,367 916 1,765,426 916 +171,059 -

Less: 

Total Transfers In -733 - -285,464 - -285,000 - -285,000 - - -

Deferral for Roads and Trails for States 15,887 - 13,189 - 16,000 - - - - -

Sequestration 2,825 - 17,445 - 39,724 - 16,929 - -22,795 -

Recoveries, Other -13,472 - -9,475 - -9,475 - -9,475 - - -

Balance Available, SOY -631,985 - -624,392 - -843,447 - -975,711 - -132,264 -

Total Appropriations 495,195 1,235 493,036 916 512,169 916 512,169 916 +16,000 -

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CLASSIFICATION BY OBJECTS 

Table FS-54. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Budget 

Request 

Personnel Compensation: 

Washington D.C.......................................................... 

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................................ 

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................... 

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........................................... 

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........................ 

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$328 $258 $258 $265 

Personnel compensation, field 69,733 54,840 54,840 56,321 

11.0 Total personnel compensation 70,061 55,098 55,098 56,586 

12.0 Personal benefits 24,272 19,215 19,215 19,734 

Total, personnel compensation and benefits 94,333 74,313 74,313 76,320 

Other Objects: 

21.0 Travel and transportation of persons 1,984 1,607 1,885 2,477 

22.0 Transportation of things 474 620 727 955 

23.1 Rental payments to GSA 294 3 4 5 

23.2 Rental payments to others 2,469 17 20 26 

23.3 Communications, utilities, and misc. charges 1,037 808 948 1,245 

24.0 Printing and reproduction 543 600 704 925 

25.1 Advisory and assistance services 106 37 43 57 

25.2 Other services from non-Federal sources 79,746 143,523 168,384 221,247 

25.3 Other goods and services from Federal sources 11,148 21,553 25,287 33,225 

25.4 Operation and maintenance of facilities 338 529 621 815 

25.6 Medical care 10 7 8 11 

25.7 Operation and maintenance of equipment 774 1,081 1,268 1,666 

26.0 Supplies and materials 10,866 15,328 17,984 23,629 

31.0 Equipment 1,868 2,047 2,401 3,155 

32.0 Land and structures 438 3,803 4,461 5,862 

41.0 Grants, subsidies, and contributions 291,465 272,311 319,482 419,784 

42.0 Insurance claims and indemnities 343 86 101 132 

43.0 Interest and dividends 3 1 1 2 

92.0 Undistributed 32 12 14 18 

Total, other objects 403,938 463,973 544,343 715,236 

99.9 Total, new obligations 498,271 538,286 618,656 791,556 

DHS Building Security Payments (included in 25.3) .... 7 - - -

Position Data: 

Average Salary (dollars), ES Position $187,148 N/A N/A N/A 

Average Salary (dollars), GS Position $52,338 $51,929 $53,331 $54,771 

Average Grade, GS Position 7.2 7.1 7.3 7.5 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

National Parks and Public Land Legacy Restoration Fund 

The Great American Outdoors Act established the National Parks and Public Land Legacy Restoration Fund (Public 

Lands Restoration Fund) for FY 2021 through FY 2025 and directs the Treasury to deposit 50 percent of energy 

development revenues, up to $1.9 billion per fiscal year, from oil, gas, coal, or alternative/renewable energy 

development on Federal land. GAOA authorizes 85 percent of this fund to be available for the Department of 

Interior’s deferred maintenance, and 15 percent of this fund is available for Forest Service deferred maintenance 

projects, up to $285 million annually for five years. Additionally, the GAOA requires that over the term of the fund, 

not less than 65 percent of amounts allocated are for non-transportation projects. Projects approved under the Public 

Lands Restoration Fund will focus on reducing the deferred maintenance backlog, while at the same time improving 

access, enhancing forest conditions, and improving the quality of the visitor experience. 

In FY 2021, a total of 556 projects were approved by Congress to receive funding from the National Parks and 

Public Land Legacy Restoration Fund, totaling $285,000,000. At the conclusion of FY 2021, $9,671,643 of deferred 

maintenance had been addressed with Great American Outdoors Act funding. One of the projects completed in FY 

2021 was the Tepee Work Center on the Black Hills National Forest which addressed $196,000 of deferred 

maintenance. This project restored a 1930’s era Civilian Conservation Corps structure through a collaborative 

approach with HistoriCorps and Forest Service Job Corps Civilian Conservation Center students. The ability to 

maintain such a historically significant structure for current and future generations is a key component of the Great 

American Outdoors Act. 

The Forest Service FY 2023 National Parks and Public Land Legacy Restoration Fund project lists are included in 

the appendix to the FY 2023 Budget request. The Forest Service has developed these projects in accordance with 

GAOA requirements and Administration guidance. 

Brush Disposal 

This program provides for the disposal of unmerchantable brush and other debris resulting from timber 

purchaser operations on timber sale contracts, stewardship contracts, and permits not removed by the 

purchaser. Timber harvest activities create slash and other debris that, if left untreated, can increase the risk of 

fire, impair reforestation, and contribute to the growth in non-desirable insect populations. Brush disposal 

treatments can be mechanical (e.g., scattering, chipping, or crushing slash) or by prescribed burning. Timber 

sale operators can perform the required work, or they can request that the agency complete this work by 

depositing funds to cover these costs. Brush Disposal receipts originate from deposits for the estimated cost of 

disposing of brush and other debris resulting from timber harvest operations, should the purchaser elect not to 

perform the disposal work. As a result of the agency’s budget modernization efforts, National Program Support 

rates, which are funds that are used at the national office for related national level projects and program 

administration, were reduced for FY 2022, allowing more funds to be utilized on the ground in the sale area. 

Timber Salvage Sales 

This program facilitates the timely removal of timber damaged by fire, wind, insects, diseases, or other events 

to aid in maintaining healthy and resilient forests and ensuring community safety. Revenues collected from the 

sale of timber from dead and dying trees are used to prepare and administer future salvage timber sales, 

including obtaining Forest Service engineering support. These funds are immediately available to respond to 

timber salvage opportunities. As a result of the agency’s budget modernization efforts, National Program Support 

rates, funds that are used at the national office for related national level projects and program administration, were 

reduced for FY 2022, allowing more funds to be utilized on the ground for future salvage timber sales. 

The removal of dead or dying timber through timber sale contracts is a valuable tool to reduce the potential for 

catastrophic wildland fires and other hazards and help maximize the recovery of timber product value that 

would otherwise be lost. Through the collection of Knutson-Vandenberg Act funds, timber salvage sales can 

also provide for restoration of an affected area. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Timber Sales Pipeline Restoration 

This program provides an additional source of funds for restoring the timber sale pipeline35 and to address the 

backlog of recreation projects. This program contributes to several land and resource management objectives, 

including improving forest health, restoring wildlife habitat, and providing forest products to meet local and 

national needs. Additionally, this fund helps address health and safety issues related to recreation facilities and 

system trails, benefiting the public by addressing maintenance issues that may cause harm or detract from their 

outdoor experience. These activities are aligned with the agency’s integrated watershed improvement goals

and ensure that forests and grasslands are conserved, restored, and resilient. 

Seventy-five percent of net funds are used for the preparation of future non-salvage timber sales to restore the timber 

sales pipeline volume. This activity provides for National Environmental Policy Act (NEPA) analysis to meet longterm forest health and desired condition objectives, determination of the volume and value of the trees to be 

removed, and timber sale layout and design necessary for future timber sales. Expenditures may also include the 

necessary planning and design for the associated timber roads. 

The remaining 25 percent of net funds are expended on the maintenance backlog for recreation facility projects and 

system trails, including maintenance and improvement of recreation sites, system trails, bridges, and trailheads. 

Forest Botanical Products 

This program authorizes the sale and harvest of forest botanical products, provided such actions comply with 

environmental standards. Forest botanical products refers to any naturally occurring fungi, flowers, seeds, 

roots, bark, leaves, and other vegetation (or portion thereof) found on national forest lands. Fees collected are 

available to cover costs associated with granting, modifying, or administering permits for harvesting, including 

costs for environmental analyses. Work activities include inventory, analysis, and sustainability determinations 

for harvest levels, permit issuance and administration, and monitoring to facilitate the sale and harvest of forest 

botanical products. The objectives of this program are to maintain, enhance, or restore forest ecosystems to 

desired conditions, and to provide for the sale and harvest of forest botanical products in a sustainable manner 

that contributes to meeting the Nation’s demand for these products and services. 

Stewardship Contracting 

This program authorizes the Forest Service to apply the value of timber or other forest products from 

stewardship contracts as an offset against the costs, to accomplish additional land and resource management 

objectives. If the offset value exceeds the cost of the resource improvement treatments, those receipts are 

retained and deposited in the Stewardship Contracting fund and are available until expended for other 

authorized stewardship projects. Detailed information about the program’s recent accomplishments can be 

found in the Stewardship Contracting special exhibit. 

Recreation Fees, Forest Service (also referred to as the Federal Lands Recreation Enhancement 

Fund) 

Fees collected from users of recreation facilities are used to pay for on-the-ground operation, maintenance, and 

improvement of recreation sites and services to maintain and enhance recreation opportunities, visitor experiences, 

and related fish and wildlife habitat. (16 U.S.C. 6806 et seq.). Section 423 of Division G of the Consolidated 

Appropriations Act, 2021 (P.L. 116–260) extended FLREA through 2022. 

Recreation Fees, Forest Service Site Specific 

This fund collects approximately $100 million annually. Ninety-five percent of collections are used to administer 

recreation facilities and provide public use services. The remaining five percent is allocated to the regional offices to 

support strategic program oversight, financial management, and training; and to provide grants to forests for 

improvements and special projects. 

35 The multiyear, multistep process of administering timber sales, from identifying offerings through the sale of an area, is 

referred to as the timber pipeline. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Recreation Fees, Forest Service Agency Specific 

This program provides funding, in part, for the National Recreation Reservation Service – or recreation.gov – an 

interagency e-government initiative providing a reservation system for all recreation facilities on public lands that 

allow reservations. 

Recreation Fees, Forest Service Grey Towers National Historic Site Fees 

This program collects fees for admission and use of facilities on Grey Towers. Collections are used to administer 

Grey Towers; provide interpretive and education programs and projects that perpetuate the legacy of Gifford Pinchot 

for the general public and youth; offer public programs that foster stewardship of natural resources; and provide 

conservation leadership development programs to enhance the dialogues occurring within the natural resource 

community. 

Shasta-Trinity National Forest Marina Fees 

This program collects fees received from the marina project to fund the Shasta-Trinity National Recreation Area. 

Funds are used to meet critical health and safety standards, address portions of the maintenance backlog, provide for 

innovative projects (including high quality interpretive and environmental education programs), installation and 

maintenance of over 300 underwater obstacle markers and 100 safety-related floating directional signs, 

establishment and maintenance of the National Recreation Area Boating Safety Program, implementation and 

administration of the program’s Marina Standards, maintenance of a floating toilet program, and the construction of 

accessible facilities to provide greater access for persons with disabilities. The goal of these projects is to meet the 

National Recreation Area’s intent to showcase recreation opportunities in the agency.

Timber Purchaser Election Road Construction 

This program supports the construction and reconstruction of any permanent road or bridge as required under 

the terms and conditions of a timber sale contract. When a small business timber purchaser is awarded a 

contract, the purchaser may elect to pay the Forest Service to construct or reconstruct specified roads in the 

timber sale contract area to a standard necessary to harvest and remove timber and other forest products. The 

agency then uses the funds to contract for the required roadwork and administer the contract. This program 

benefits small timber contractors who might otherwise be unable to bid on Forest Service timber sales and 

provides for appropriate road improvements to prevent soil degradation, stream sedimentation, or other 

damages. 

Purchaser Election Vegetative Treatment. This program supports activities to improve forest health through 

vegetative treatments in timber stands at high risk of fire due to insect, disease, and drought; road work in 

support of vegetative treatments to support forest health objectives; and maintenance of infrastructure for the 

processing of woody fiber. 

Operation and Maintenance of Forest Service Quarters 

This program collects rental income from employees living in Forest Service owned or leased residences. Such 

rents and charges are deposited in a special Treasury fund and remain available for obligation for operation and 

maintenance of quarters until expended. 

Roads and Trails for States 

This program collects 10 percent of all National Forest Fund receipts, including fees and other types of revenue, to 

be used by the Forest Service without regard to the State in which the amounts were derived. Fees collected are used 

to repair or reconstruct roads, bridges, and trails on National Forest System lands. Funds are also utilized to correct 

road and trail deficiencies that adversely affect ecosystems. 

Beginning in FY 1999, and continuing in subsequent appropriation acts, the authority was expanded to allow the use 

of funds for improving forest health conditions and repairing or reconstructing roads and bridges on National Forest 

System lands in the wildland-urban interface where there is an abnormally high risk of fire. This program reduces 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

risk to human safety and public health and property, and enhances ecological functions, long-term forest 

productivity, and biological integrity. 

Beginning in FY 2008, appropriations acts have directed collections to be transferred to Treasury. 

Land Between the Lakes Management 

The Land Between the Lakes National Recreation Area (LBLNRA) provides public recreational opportunities; 

conserves fish and wildlife and their habitat; provides for a diversity of plants and animals; and offers 

opportunities for hunting, fishing, and environmental education. The LBLNRA hosts an average of almost 1.8 

million visits annually. 

Section 524 of the Land Between the Lakes Protection Act (P.L. 105-277) established a special fund known as 

the Land Between the Lakes Management Fund. All amounts received from charges, user fees, and natural 

resource use, including timber and agricultural receipts, are deposited into the fund. Funds are available for 

management of LBLNRA, including payment of salaries and expenses. 

Midewin National Tallgrass Prairie Rental Fees 

The Illinois Land Conservation Act of 1995 established Midewin National Tallgrass Prairie (MNTP) to be 

managed as part of the National Forest System. The Act authorized the Secretary of Agriculture to use rental 

fees (cited in the Act as MNP Rental Fee Account) from issued agricultural leases and special use 

authorizations. After appropriate payments to the State of Illinois and Will County, pursuant to the act of May 

23, 1908, and Section 13 of the act of March 1, 1911 (16 U.S.C. 500), rental fees receipts available may be 

used from amounts in the fund, until expended and without fiscal year limitation, to cover the cost to the 

United States used for prairie improvement work at the Midewin National Tallgrass Prairie. 

Midewin National Tallgrass Prairie Restoration 

The Illinois Land Conservation Act of 1995 established the Midewin National Tallgrass Prairie (MNTP) to be 

managed as part of the National Forest System. Receipts from user fees and salvage receipts (cited in the Act as 

Midewin National Tallgrass Prairie Fund), may be used from amounts in the fund, in such amounts as are provided 

in advance in appropriation acts. The fund can be used for restoration and administration of the Midewin Tallgrass 

Prairie; including construction of visitor center and education center; restoration of ecosystems; construction of 

recreational facilities; construction of trails; construction of administrative offices; the operation and maintenance of 

Midewin National Tallgrass Prairie; and receipts from inclusion in any cost recovery or any pilot program for the 

collection, use, and distribution of user fees. 

Quinault Special Management Area Fund 

This program provides 10 percent of the gross proceeds from the sale of forest products on the Quinault Special 

Management Area (QSMA) be available for administration of future timber sales. The remaining 90 percent of gross 

proceeds are divided each quarter, with 45 percent going to the State of Washington and 45 percent to the Quinault 

Tribe. The QSMA is approximately 5,400 acres and is managed by the Olympic National Forest for the Quinault 

Indian Nation. 

Restoration of Forest Lands and Improvements 

This authority protects the interests of the Forest Service in situations where work is to be done by a permittee 

or timber purchaser. This fund receives monies from 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 the result of a judgment, compromise, or settlement of any claim, involving present 

or potential damage to lands or improvements. Funds are available until expended to cover the costs of performing 

the required work. Any funds received in excess of the amount expended in performing the work shall be transferred 

to miscellaneous receipts. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Commercial Filming and Still Photography Land Use Fee Retention 

Fees retained by the Forest Service in this fund are used to manage and respond to film and photo use requests 

on National Forest System lands in an expedited manner. For example, forest units use these funds to assess 

popular film and photo locations in advance of requests, and to develop and post information on film and photo 

procedures specific to the unit. Regional and national units use these funds to provide management oversight, 

develop policy, and coordinate inter-regional or inter-forest film and photo requests prior to accepting a 

proposal as a formal application. 

Organizational Camp Program 

This program administers land use permits and collects fees from organizations to conduct camp sessions for 

young people or disabled persons. These fees are available until expended for program administration; 

performing oversight, inspection, and monitoring of existing special use authorizations to ensure compliance 

with terms and conditions; interpretive programs; environmental analysis and restoration activities; and similar 

purposes. The Forest Service administers approximately 300 permits for organizational camps. 

The fee system includes land use fees, facility use fees, and fees based on other revenue. Land use fees are based on 

a percentage of the agricultural land value, adjusted downward for services provided to disabled individuals and atrisk youth. The land use fee may be offset by work performed pursuant to Section 3 of the Federal Timber Contract 

Payment Modification Act (16 U.S.C. 539f). Facility use fees are assessed based on five percent of the facility’s

appraised value for Federally owned facilities. Fees based on other revenue are payments assessed based on five 

percent of the organizational camp’s revenue for revenue from activities other than providing youth services. 

Cost Recovery (Land Uses) 

This program collects receipts to recover administrative costs associated with applications and authorizations for use 

of National Forest System lands. Each year, the Forest Service processes thousands of applications for the use and 

occupancy and administers tens of thousands of authorizations for a wide variety of purposes, including energyrelated uses, broadband and communication facilities, and campground management. Processing and authorizing 

these uses are an important component of facilitating the development and transmission of affordable and reliable 

energy and communication services, supporting national security, supporting economic development, and promoting 

the public health and safety of populations within or in proximity to national forests and grasslands throughout the 

Nation. 

Work activities include evaluating land use applications for other than government uses; commercial and private 

requests to assure compliance with applicable laws, regulations, and land use plans; appraising the technical and 

financial capabilities of applicants to conduct activities on National Forest System lands; conducting appropriate 

environmental, social, and economic analyses on requests to use National Forest System land pursuant to the 

National Environmental Policy Act; developing special use authorizations with appropriate terms and conditions that 

ensure the protection of public health and safety, and resource protection measures; and performing oversight and 

inspection of certain authorization activities associated with construction/reconstruction activities. All 

determinations are subject to dispute, allowing the applicant or holder to question the validity of the estimated cost 

recovery fee in the initial determination. Disputes must provide a written rationale and evidence that the estimated 

fee is in error and suggest alternative fee estimations based in fact. Waivers of cost recovery fees are provided for 

local, State, or Federal governmental applicants, and for recreation use authorizations taking 50 hours or less to 

process. 

Cost Recovery Lands Major Projects 

The Forest Service designates projects proposing recreation and non-recreation (land) uses that require more than 50 

hours of agency time to process or monitor as major projects. Uses involving construction or reconstruction are also 

deemed to be major categories for which the agency collects all appropriate administrative costs. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Cost Recovery Lands Minor Projects 

All non-recreation (land) uses not subject to exemption or waiver that require 50 hours or less of agency time to 

process are designated as minor projects. A flat fee schedule, established in four different tiers, and subject to annual 

indexing, is used for these proposals. 

Smokey Bear Official Licensing Program 

The Smokey Bear Official Licensing Program supports national wildfire prevention initiatives, programs, 

educational materials, and products that help increase public awareness about the prevention of human-caused 

wildfires. The licensing program was established as part of the Cooperative Forest Fire Prevention (CFFP) Program 

under Public Law 82-359, as amended by PL 93-318. The CFFP is managed by the Forest Service in cooperation 

with the Advertising Council, Inc. (Ad Council) and the National Association of State Foresters (NASF). The Forest 

Service’s national wildfire prevention program is responsible for the overall management of the licensing program 

and manages a contract for the marketing and administration of the commercial licensing program. The royalties 

collected in the Smokey Bear official licensing program support the National Smokey Bear Awards program, 

national wildfire prevention programs and initiatives, and the licensing program contract. The Chief of the Forest 

Service has discretionary authority to use money from the royalties for special wildfire prevention projects, such as 

Smokey Bear birthday celebrations, attendance in national parades, and development of national wildfire education 

products as long as the messaging is solely regarding the prevention of human-caused wildfires. 

Licensee Program Woodsy Owl 

The Woodsy Owl program supports national initiatives, programs, and products to increase public awareness of 

activities and issues related to the improvement and maintenance of the environment. The Conservation Education 

program provides funding for developing Woodsy Owl activities, educational products, enhancing partnerships, and 

managing the licensing program. FY 2021 set the stage for the year-long celebration of Woodsy Owl’s 50th birthday, 

which included the development and distribution of activities that promoted Woodsy’s conservation messages 

through publications, distance learning programs, and two mobile app-based conservation missions. During FY 

2022, Woodsy Owl’s 50th birthday activities and programs will be finalized, and a new licensing contractor will be 

brought on to increase the number of licenses and streamline approval procedures. 

Forest Service Go Green Program (Conservation) 

The Forest Service prompted the implementation of the “Go Green” program on the national forests and grasslands

in FY 2009 to help meet the agency’s recycling and waste reduction goals. Go Green funds are collected not only 

from recycling simple items such as cans, but also from recycling abandoned vehicles and appliances, which makes 

this funding essential for land management. This funding enables field units to accomplish clean-up activities they 

might otherwise not be able to accomplish. 

Since FY 2009, the implementation of the authority to collect revenue resulting from waste prevention and recycling 

programs has increased significantly. The funding level in this program depends on the proceeds collected. As 

information on Go Green is more widely shared, funding levels are expected to increase. Every dollar collected 

under this authority offsets funding from other programs. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PAYMENTS TO STATES 

Payments to Minnesota Counties 

This authority derives from the Thye-Blatnik Act of June 22, 1948, as amended (16 U.S.C. 577g), Payment for 

Additional Lands Acquired in Northern Minnesota. This Act directed the Secretary of Agriculture to acquire resorts, 

cabins, and private lands within the Boundary Waters Canoe Area Wilderness. Permanent residents were prohibited 

after 1974. Additionally, payments in lieu-of-taxes were authorized for Cook, Lake, and St. Louis Counties for 

Federal wilderness land from any national forest receipts not otherwise appropriated. At the close of each fiscal year, 

the State of Minnesota is paid three-fourths of one percent of the appraised value of certain Superior National Forest 

lands in the counties of St. Louis, Cook, and Lake for distribution to those counties. The land value is reappraised 

every 10 years. New appraisals were last completed in 2008. A new appraisal is in process, but a final determination 

of value has not yet been made. A post-sequestration reduction payment for 2020 of over $5.8 million was 

transmitted to the State of Minnesota in May 2021 (the program has a one-year lag in timing of payments). 

Payments to Counties, Bankhead-Jones Farm Tenant Act 

This authority derives from Title III of the Bankhead-Jones Farm Tenant Act of July 22, 1937, as amended (7 U.S.C. 

1012). This Act pertains primarily to national grasslands and land utilization projects. Annual payments are 

authorized to counties that contain Forest Service lands acquired under the Bankhead-Jones Act. Twenty-five 

percent of the revenues received during the year from these lands, excluding receipts from the sale of land are paid 

to the counties in which such lands are located. The funds are restricted to uses that benefit public schools or roads. 

A post-sequestration reduction payment for 2020 of over $21 million was transmitted to eligible counties in June 

2021 (the program has a one-year lag in timing of payments). 

Secure Rural Schools and Community Self Determination Act Payments, Title I, II & III 

The National Forest Fund Payments to States is an account where all receipts are deposited that will be used for 

Title I and Title III payments, and Title II deposits, made under the Secure Rural Schools and Community Self 

Determination Act of 2000 (SRS Act). These funds, combined with a Payments to States U.S. Treasury transfer, are 

the source of funding for payments to States under the SRS Act, most recently reauthorized by the Infrastructure 

Investment and Jobs Act, (P.L. 117-58). 

Title I & III: 

The SRS Act directs that Title I funds be used to fund county schools and roads. Title III may be used on 

county projects, including 1) to carry out activities under the Firewise Communities program; 2) to reimburse 

the participating county for search and rescue and other emergency services, including firefighting and law 

enforcement patrols; 3) to cover training costs and equipment purchases directly related to the emergency 

services described above; 4) to develop and carry out community wildfire protection plans; and 5) for 

broadband access for schools. The Forest Service completed its FY 2020 payments to States in April 2021 (the 

program has a one-year lag in timing of payments). More information about payments can be found on the Forest 

Service Secure Rural Schools - Payments website36. 

Title II: 

The SRS Act provides choices to counties for funding resource improvement projects approved by Secure Rural 

Schools Resource Advisory Committees (RACs) on the national forest where the county is located. Any SRS Title II 

project funds not obligated by September 30, 2026, will be returned to the U.S. Treasury. 

Title II funds are used by the Forest Service to carry out projects in eligible counties to further resource objectives 

consistent with the purposes of the SRS Act on Federal land and on non-Federal land where projects would benefit 

the resources on Federal land. Title II funds are used for projects such as active forest management, road 

maintenance, trail maintenance, invasive weed control, and restoration of wildlife habitat, streams, and watersheds. 

36 https://www.fs.usda.gov/working-with-us/secure-rural-schools/payments 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

These projects provide local jobs and often provide opportunities to promote youth and volunteer engagement in our 

national forests and grasslands. 

Secure Rural Schools Resource Advisory Committees 

A Secure Rural Schools Resource Advisory Committee (RAC) provides recommendations to the Forest Service on 

the development and implementation of Title II projects on Federal lands. Each RAC consists of 15 stakeholders 

representing varied interests and areas of expertise who work collaboratively to improve working relationships 

among community members and national forest personnel. The Forest Service has 91 active SRS RACs. 

In FY 2021, 25 percent of the RACs did not have enough members to reach a quorum and conduct meetings. The 

Forest Service is taking steps to reduce timeframes for vetting requests, provide additional outreach resources and 

training to all SRS RAC points of contact, and additional one-on-one consultation to RACs as needed. The USDA 

filed a new charter for the RACs on October 15, 2021, and is working to recruit members for the RACs by taking 

advantage of Section 8702 of the Agriculture Improvement Act of 2018 (P.L. 115-334), also known as the 2018 

Farm Bill, which modified the requirements for RACs to reach a quorum by lowering the members required to reach 

a quorum to not fewer than nine through a RAC Composition Waiver. 

In addition, the 2018 Farm Bill Regional Pilot Program in Montana and Arizona successfully filled 12 vacant RAC 

positions in Montana and three of four vacant RAC positions in Arizona through appointment by Regional Foresters. 

Secure Rural Schools Act Return to Treasury Option 

When the county allocation election is not locked in or the default election does not apply, Section 102(d) of the 

SRS Act (16 U.S.C. 7112(d)) requires any eligible county that elected to receive a share of the State formula 

payment, and the share is greater than $100,000, to elect to allocate 15 to 20 percent of its share among titles II and 

III of the SRS Act. An eligible county may also opt to return the percentage share, in whole or part, to the U.S. 

Treasury under sections 102(d)(1)(B)(iii) or 102(d)(1)(C)(iii) of the SRS Act (16 U.S.C. 7112(d)(1)(B)(iii), (C)(iii)). 

In the FY 2020 receipt year (2021 payment year), such funds returned to the U.S. Treasury totaled $107,305. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

TRUST FUNDS 

LEAD-OFF TABULAR STATEMENT 

Table FS-55. Lead-Off Tabular Statement (In dollars) 

Item Amount 

Estimate, 2022.......................................................................................................................... 

.......................................................................................................... 

............................................................................................................. 

$236,466,000 

Change in Appropriation -

Budget Estimate, 2023 236,466,000 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PROJECT STATEMENTS 

Table FS-56. Appropriations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Chg 

Key 

Mandatory Appropriations: 

Cooperative Work - Knutson-Vandenberg .......... $60,788 368 $74,008 269 $74,008 270 $74,008 270 - - 

Cooperative Work – Other................................... 

..................................... 

................... 

...................... 

................................... 

............................. 

............................................... 

.......................................................... 

.................................................. 

......................................... 

....................................................... 

......................................... 

.................................................... 

9,984 66 12,330 43 12,330 43 12,330 43 - - 

Reforestation Trust Fund 30,000 125 30,000 56 150,000 125 150,000 125 - - 

Land Between the Lakes Trust Fund 128 - 128 - 128 - 128 - - - 

Total, Mandatory Appropriations 100,900 559 116,466 368 236,466 438 236,466 438 - -

Offsetting Collections: 

Cooperative Work – Other 25,118 120 24,934 106 24,934 106 24,934 106 - -

Total, Offsetting Collections 25,118 120 24,934 106 24,934 106 24,934 106 - -

Total Appropriations 126,018 679 141,400 474 261,400 544 261,400 544 - -

Sequestration 1,163 - -559 - -42 - -285 - -$243 -

Recoveries, Other 3,542 - 4,101 - 4,101 - 4,101 - - -

Balance Available, SOY 338,733 - 309,375 - 330,676 - 301,047 - -29,629 -

Total Available 469,456 679 454,317 474 596,135 544 566,263 544 -29,872 -

Balance Available, EOY -309,375 - -330,676 - -301,047 - -286,600 - +14,447 -

Total Obligations 160,081 679 123,641 474 295,088 544 279,663 544 -15,425 -

Table FS-57. Obligations Details Project Statement (thousands of dollars, FTEs) 

Item 2020 

Actual FTE 

2021 

Actual FTE 

2022 

Continuing 

Resolution FTE 

2023 

Budget 

Request FTE 

Inc. or 

Dec. 

FTE 

Inc. or 

Dec. 

Mandatory Obligations: 

Cooperative Work - Knutson-Vandenberg ............... 

........................................ 

.......................................... 

........................ 

$84,395 368 $58,995 269 $98,961 270 $89,746 270 -$9,215 -

Cooperative Work – Other 19,851 66 13,788 43 31,640 43 25,439 43 -6,201 -

Reforestation Trust Fund 31,138 125 28,102 56 139,500 125 139,500 125 - -

Land Between the Lakes Trust Fund 24 - 117 - 97 - 88 - -9 -

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2022 2023 FTE 

Item 2020 2021 Continuing Budget Inc. or Inc. or 

Actual FTE Actual FTE Resolution FTE Request FTE Dec. Dec. 

Total, Mandatory Obligations ................................ 

........................................ 

.............................. 

......................................................... 

............... 

........................................ 

.......................................... 

........................ 

............................... 

............................................................ 

............................................................. 

...................................................... 

........................................... 

.................................................... 

135,408 559 101,002 368 270,198 438 254,773 438 -15,425 -

Offsetting Collections: 

Cooperative Work – Other 24,673 120 22,639 106 24,890 106 24,890 106 - -

Subtotal Offsetting Collections 24,673 120 22,639 106 24,890 106 24,890 106 - -

Total Obligations 160,081 679 123,641 474 295,088 544 279,663 544 -15,425 -

Balances Available, EOY: 

Cooperative Work – Knutson-Vandenberg 191,846 - 208,871 - 175,530 - 161,124 - -14,406 -

Cooperative Work – Other 103,759 - 105,311 - 91,581 - 84,065 - -7,516 -

Reforestation Trust Fund 7,763 - 10,461 - 28,661 - 36,569 - +7,908 -

Land Between the Lakes Trust Fund 6,007 - 6,033 - 5,275 - 4,842 - -433 -

Total Balance Available, EOY 309,375 - 330,676 - 301,047 - 286,600 - -14,447 -

Total Available 469,456 679 454,317 474 596,135 544 566,263 544 -29,872 -

Less: 

Sequestration -1,163 - 559 - 42 - 285 - 243 -

Recoveries, Other -3,542 - -4,101 - -4,101 - -4,101 - - -

Balance Available, SOY -338,733 - -309,375 - -330,676 - -301,047 - 29,629 -

Total Appropriations 126,018 679 141,400 474 261,400 544 261,400 544 - -

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CLASSIFICATION BY OBJECTS 

Table FS-58. Classification by Objects (thousands of dollars) 

Item 

No. Item 2020 

Actual 

2021 

Actual 

2022 

Continuing 

Resolution 

2023 

Budget 

Request 

Personnel Compensation: 

Washington D.C.......................................................... 

................................

................................

......................................................... 

............ 

$382 $257 $295 $295 

Personnel compensation, field .... 44,718 30,153 34,606 34,606 

11.0 Total personnel compensation .. 45,100 30,410 34,901 34,901 

12.0 Personal benefits 16,303 10,377 11,909 11,909 

Total, personnel compensation and benefits 61,403 40,787 46,810 46,810 

Other Objects: 

21.0 Travel and transportation of persons........................... 872 540 1,621 1,518 

22.0 Transportation of things.............................................. 507 216 648 607 

23.1 Rental payments to GSA............................................. 506 9 27 25 

23.2 Rental payments to others........................................... 748 6 18 17 

23.3 Communications, utilities, and misc. charges ............. 1,281 264 792 742 

24.0 Printing and reproduction............................................ 

................................ 

.................... 

36 6 18 17 

25.1 Advisory and assistance services 11 8 24 22 

25.2 Other services from non-Federal sources 59,926 49,125 147,048 138,061 

25.3 Other goods and services from Federal sources.......... 9,462 4,879 14,643 13,712 

25.4 Operation and maintenance of facilities...................... 

.......................... 

................................................................ 

30 271 813 762 

25.5 Research and development contracts 108 5 15 14 

25.6 Medical care 2 3 9 8 

25.7 Operation and maintenance of equipment................... 465 279 837 784 

26.0 Supplies and materials ................................................ 10,630 12,035 36,121 33,823 

31.0 Equipment................................................................... 

..................................................... 

............................ 

............................... 

................................................. 

1,044 1,217 3,653 3,420 

32.0 Land and structures 1,269 418 1,255 1,175 

41.0 Grants, subsidies, and contributions 11,769 13,573 40,736 38,146 

42.0 Insurance claims and indemnities 9 - - -

43.0 Interest and dividends 3 - - -

Total, other objects................................................... 98,678 82,854 248,278 232,853 

99.9 Total, new obligations........................................... 160,081 123,641 295,088 279,663 

DHS Building Security Payments (included in 25.3) .... 12 - - -

Position Data: 

Average Salary (dollars), ES Position......................... 

........................ 

....................................... 

$187,148 N/A N/A N/A 

Average Salary (dollars), GS Position $59,966 $56,834 $58,369 $59,944 

Average Grade, GS Position 8.3 8.0 8.2 8.4 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STATUS OF PROGRAMS 

Cooperative Work – Knutson-Vandenberg (K-V) 

This program uses funds derived from timber sale revenues to perform improvements within the timber sale 

area. Planned resource project work is documented in the sale area improvement plans as determined by the 

project environmental analysis. The program priority for K-V funds is reforestation of harvested areas; 

however, funds may also be used to perform timber stand improvement and protection, and for the 

improvement of other resource values, including wildlife, soil, watershed, range, and recreation. National 

Program Support rates, which are funds that are used at the national office for related national level projects and 

program administration, were reduced for FY 2022 as a result of Budget Modernization to allow more funds to be 

utilized on the ground in the sale area. 

Knutson-Vandenberg Regional Work 

The Department of the Interior, Environment, and Related Agencies Appropriations Act, 2006 (P.L. 109-54) 

expanded the authority to allow for the expenditure of unused funds not needed to accomplish work on the 

timber sale area, on another area “...within the Forest Service region in which the timber sale occurred.” 

Unused collections are generated when actual costs are less than planned costs. This authority is used to 

accomplish watershed restoration; wildlife habitat improvement; control of insects, disease, and noxious 

weeds; community protection activities; and the maintenance of forest roads. The work can be performed using 

contracts, forest product sales, and cooperative agreements. If forest product sales are used to accomplish these 

objectives, K-V Regional Work program funds may be utilized for timber sale planning, preparation, 

administration, engineering support, and landline location. 

Cooperative Work – Other 

This fund is used to collect deposits received from partners and cooperators for protecting and improving 

resources of the National Forest System as authorized by cooperative agreements. The deposits are for a wide 

variety of activities that benefit and support programs in Forest and Rangeland Research on National Forest 

System lands and for other agency activities. 

Cooperative deposits are received from a vast assortment of local, regional, and national organizations and 

individuals; State and other public agencies; industrial associations; and other private sources. The deposits are 

made under a variety of cooperative instruments that specify the mutual benefits of the work. Cooperative 

deposits leverage appropriated funds to increase effectiveness and complement the objectives of Forest Service 

appropriated resource management programs and cooperative research projects. These programs and projects 

may involve any aspect of forestry and vary widely in scope and duration. 

Cooperative road maintenance deposits can be made by commercial users of the National Forest Road System 

in lieu of actually performing their commensurate share of road maintenance. These deposits are used in 

conjunction with the other road maintenance appropriations to provide maintenance of National Forest 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. 

Cooperative Work, Agreement Based 

This is a direct project-to-customer relationship, typically involving long-term liability on the part of the Forest 

Service to perform work for the contributor. An example of this work is a special use permit with collection 

provisions under the Granger-Thye Offset where the Forest Service has a liability to perform work for the permit 

holder specially tied to the permit. These agreements are typically accompanied by a collection agreement. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Cooperative Work, Non-Agreement Based 

These deposits occur when the terms of the authorizing instrument, such as a permit or sale contract, allow for 

deposits from multiple contributors to be pooled and expended for the intended purpose. Most of these pooled 

collections are not subject to refunds in accordance with the provisions of the respective authorizing instrument. 

Land Between the Lakes Trust Fund 

The Land Between the Lakes Protection Act (Act) (P.L. 105-277) transferred administrative jurisdiction of the 

Land Between the Lakes National Recreation Area (LBLNRA) from the Tennessee Valley Authority to the 

Secretary of Agriculture to be managed as a unit of the National Forest System. Section 531 of the Act 

established a special interest-bearing fund known as the Land Between the Lakes Trust Fund to be available 

for public education, grants, and internships related to recreation, conservation, and multiple-use land 

management, as well as regional promotion in cooperation with development districts, chambers of commerce, 

and State and local governments. 

In accordance with the terms described in the Act, beginning on September 30, 2000, the Tennessee Valley 

Authority began depositing $1 million annually into the fund for five consecutive years for a total of $5 

million. The Forest Service has allowed the fund balance to grow, and the LBLNRA began using the interest 

for activities outlined in the Act, which includes providing additional funding to further assist in the promotion 

and support of the successful school grant program for regional promotion and environmental education. 

Reforestation Trust Fund 

This fund receives budgetary resources from monthly transfers overseen by the U.S. Treasury of tariff 

collections on imported wood products. Historically, such deposits could not exceed $30 million in a fiscal 

year. The Infrastructure Investment and Jobs Act (P.L. 117-58) removed the $30 million annual cap. Funds are 

used to reduce the backlog in reforestation and timber stand improvement work. Reforestation activities 

include site preparation for planting or seeding of the appropriate tree species, site preparation to encourage 

natural regeneration, and certification of acres naturally regenerated without the need for site preparation. In 

addition, as part of the reforestation activity, various treatments are applied to improve initial seedling survival 

rates. Benefits of reforestation include regeneration of forest vegetation on areas impacted by wildfire, floods, 

and hurricanes; increased carbon sequestration capacity; establishment of resilient forest vegetation; and 

improved habitat diversity for many wildlife species. 

Timber stand improvement activities include release treatments37; pre-commercial thinning to regulate stand 

density, composition, and structure; pruning treatments that reduce ladder fuels, reduce the effects of 

pathogens (such as white pine blister rust), and improve future wood product quality; and fertilization 

treatments to maintain and improve soil productivity and enhance rapid stand development to improve carbon 

storage capacity. Benefits of timber stand improvement include improved forest health and productivity; 

hazardous fuel reductions; improved forest resilience to the impacts of drought, insects and disease; and 

diversified wildlife habitat. In addition, timber stand improvement generates woody biomass that is available 

to meet renewable energy needs. 

37 Release treatments are used to eliminate competing vegetation in young stands which are starting to become established. 

Release treatments can be mechanical, chemical, or prescribed burning. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

LEGISLATIVE PROPOSALS 

INTEREST-BEARING ACCOUNT 

The Forest Service’s FY 2023 Budget request includes a legislative proposal that would allow the Forest Service to 

establish an interest-bearing Treasury account for funds received in settlements and other legal actions. Although the 

Forest Service has the authority to invest certain funds in interest-bearing accounts, the agency does not have the 

authority to retain interest earned on settlement funds. A USDA Office of Inspector General audit (OIG Audit 

08601-0011-41) recommended that the Forest Service request authority to establish an interest-bearing Treasury 

account for funds received in settlements and other legal actions. 

Statutory Authority: 16 U.S.C. 579c. Availability of funds received from forfeitures, judgments, compromises, or 

settlements. 

Rationale: Funding received from settlements can be in the multi-million-dollar range. Due to the length of a 

project lifespan (sometimes decades) and analysis needs, the Forest Service often needs to use appropriated funds to 

make up the difference between the collection amount and the costs of the work in the future. Interest bearing 

accounts would help lower the amount of appropriated funds needed. 

In addition, settlements for future costs are typically paid at a net present value amount; therefore, without 

investment authority, the value of the settlement diminishes over time. Many settlements require annual mitigation 

costs for 30-100 years. 

Budget Impact: 

Interest Bearing Accounts proposal (thousands of dollars) 

Item 2023 2024 2025 2026 2027 

Discretionary Budget Authority............ $349 $349 $349 $349 $349 

Discretionary Outlays ........................... 349 349 349 349 349 

Assumptions: 

• Balances in current settlement accounts, proposed for legislation, total to approximately $205 million. 

Using the Treasury Bill interest rate of 0.17 percent, each year’s interest was calculated, and then the

average, $349,000, was used as an estimate for interest which might be expected to accrue annually. 

• Once legislation is enacted, each account should be managed as a separate special account, and thus 

calculated separately, without aggregating the total investment return. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

ADMINISTRATIVE PROVISIONS 

(INCLUDING TRANSFERS OF FUNDS) 

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

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

lease, operation, maintenance, and acquisition of aircraft to maintain the operable fleet for use in Forest Service 

wildland fire programs and other Forest Service programs; notwithstanding other provisions of law, existing aircraft 

being replaced may be sold, with proceeds derived or trade-in value used to offset the purchase price for the 

replacement aircraft; (2) services pursuant to 7 U.S.C. 2225, and not to exceed $100,000 for employment under 5 

U.S.C. 3109; (3) purchase, erection, and alteration of buildings and other public improvements (7 U.S.C. 2250); (4) 

acquisition of land, waters, and interests therein pursuant to 7 U.S.C. 428a; (5) [for ]expenses pursuant to the 

Volunteers in the National Forest Act of 1972 (16 U.S.C. 558a, 558d, and 558a note); (6) the cost of uniforms as 

authorized by 5 U.S.C. 5901–5902; and (7) for debt collection contracts in accordance with 31 U.S.C. 3718(c). 

Funds made available to the Forest Service in this Act may be transferred between accounts affected by the Forest 

Service budget restructure outlined in section 435 of division D of the Further Consolidated Appropriations Act, 

2020 (Public Law 116–94): Provided, That any transfer of funds pursuant to this paragraph shall not increase or 

decrease the funds appropriated to any account in this fiscal year by more than ten percent: Provided further, That 

such transfer authority is in addition to any other transfer authority provided by law. 

Any appropriations or funds available to the Forest Service may be transferred to the Wildland Fire Management 

appropriation for forest firefighting, emergency rehabilitation of burned-over or damaged lands or waters under its 

jurisdiction, and fire preparedness due to severe burning conditions upon the Secretary of Agriculture's notification 

of the House and Senate Committees on Appropriations that all fire suppression funds appropriated under the 

heading "Wildland Fire Management" will be obligated within 30 days: Provided, That all funds used pursuant to 

this paragraph must be replenished by a supplemental appropriation which must be requested as promptly as 

possible. 

Not more than $50,000,000 of funds appropriated to the Forest Service shall be available for expenditure or transfer 

to the Department of the Interior for wildland fire management, hazardous fuels management, and State fire 

assistance when such transfers would facilitate and expedite wildland fire management programs and projects. 

Notwithstanding any other provision of this Act, the Forest Service may transfer unobligated balances of 

discretionary funds appropriated to the Forest Service by this Act to or within the [National Forest System]Wildland 

Fire Management Account[, or reprogram funds to be used] for [the purposes of ]hazardous fuels management and 

urgent rehabilitation of burned-over National Forest System lands and water: Provided, That such transferred funds 

shall remain available through September 30, [2025]2026: Provided further, That none of the funds transferred 

pursuant to this paragraph shall be available for obligation without written notification to the Committees on 

Appropriations of both Houses of Congress. 

Funds appropriated to the Forest Service shall be available for assistance to or through the Agency for International 

Development in connection with forest and rangeland research, technical information, and assistance in foreign 

countries, and shall be available to support forestry and related natural resource activities outside the United States 

and its territories and possessions, including technical assistance, education and training, and cooperation with U.S. 

government, private sector, and international organizations. The Forest Service, acting for the International Program, 

may sign direct funding agreements with foreign governments and institutions as well as other domestic agencies 

(including the U.S. Agency for International Development, the Department of State, and the Millennium Challenge 

Corporation), U.S. private sector firms, institutions and organizations to provide technical assistance and training 

programs overseas on forestry and rangeland management. 

Funds appropriated to the Forest Service shall be available for expenditure or transfer to the Department of the 

Interior, Bureau of Land Management, for removal, preparation, and adoption of excess wild horses and burros from 

Forest System lands, and for the performance of cadastral surveys to designate the boundaries of such lands. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

None of the funds made available to the Forest Service in this Act or any other Act with respect to any fiscal year 

shall be subject to transfer under the provisions of section 702(b) of the Department of Agriculture Organic Act of 

1944 (7 U.S.C. 2257), section 442 of Public Law 106–224 (7 U.S.C. 7772), or section 10417(b) of Public Law 107–

171 (7 U.S.C. 8316(b)). 

Not more than $82,000,000 of funds available to the Forest Service shall be transferred to the Working Capital Fund 

of the Department of Agriculture and not more than $14,500,000 of funds available to the Forest Service shall be 

transferred to the Department of Agriculture for Department Reimbursable Programs, commonly referred to as 

Greenbook charges. Nothing in this paragraph shall prohibit or limit the use of reimbursable agreements requested 

by the Forest Service in order to obtain information technology services, including telecommunications and system 

modifications or enhancements, from the Working Capital Fund of the Department of Agriculture. 

Of the funds available to the Forest Service, up to $5,000,000 shall be available for priority projects within the scope 

of the approved budget, which shall be carried out by the Youth Conservation Corps and shall be carried out under 

the authority of the Public Lands Corps Act of 1993 (16 U.S.C. 1721 et seq.). 

Of the funds available to the Forest Service, $4,000 is available to the Chief of the Forest Service for official 

reception and representation expenses. 

Pursuant to sections 405(b) and 410(b) of Public Law 101–593, of the funds available to the Forest Service, up to 

$3,000,000 may be advanced in a lump sum to the National Forest Foundation to aid conservation partnership 

projects in support of the Forest Service mission, without regard to when the Foundation incurs expenses, for 

projects on or benefitting National Forest System lands or related to Forest Service programs: Provided, That of the 

Federal funds made available to the Foundation, no more than $300,000 shall be available for administrative 

expenses: Provided further, That the Foundation shall obtain, by the end of the period of Federal financial 

assistance, private contributions to match funds made available by the Forest Service on at least a one-for-one basis: 

Provided further, That the Foundation may transfer Federal funds to a Federal or a non-Federal recipient for a 

project at the same rate that the recipient has obtained the non-Federal matching funds. 

Pursuant to section 2(b)(2) of Public Law 98–244, up to $3,000,000 of the funds available to the Forest Service may 

be advanced to the National Fish and Wildlife Foundation in a lump sum to aid cost-share conservation projects, 

without regard to when expenses are incurred, on or benefitting National Forest System lands or related to Forest 

Service programs: Provided, That such funds shall be matched on at least a one-for-one basis by the Foundation or 

its sub-recipients: Provided further, That the Foundation may transfer Federal funds to a Federal or non-Federal 

recipient for a project at the same rate that the recipient has obtained the non-Federal matching funds. 

Funds appropriated to the Forest Service shall be available for interactions with and providing technical assistance to 

rural communities and natural resource-based businesses for sustainable rural development purposes. 

Funds appropriated to the Forest Service shall be available for payments to counties within the Columbia River 

Gorge National Scenic Area, pursuant to section 14(c)(1) and (2), and section 16(a)(2) of Public Law 99–663. 

Any funds appropriated to the Forest Service may be used to meet the non-Federal share requirement in section 

502(c) of the Older Americans Act of 1965 (42 U.S.C. 3056(c)(2)). 

Notwithstanding any other provision of law, of any appropriations or funds available to the Forest Service, not to 

exceed $500,000 may be used to reimburse the Office of the General Counsel (OGC), Department of Agriculture, 

for travel and related expenses incurred as a result of OGC assistance or participation requested by the Forest 

Service at meetings, training sessions, management reviews, land purchase negotiations, and similar matters 

unrelated to civil litigation. Future budget justifications for both the Forest Service and the Department of 

Agriculture should clearly display the sums previously transferred and the sums requested for transfer. 

An eligible individual who is employed in any project funded under title V of the Older Americans Act of 1965 (42 

U.S.C. 3056 et seq.) and administered by the Forest Service shall be considered to be a Federal employee for 

purposes of chapter 171 of title 28, United States Code. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Funds appropriated to the Forest Service shall be available to pay, from a single account, the base salary and 

expenses of employees who carry out functions funded by other accounts for Enterprise Program, Geospatial 

Technology and Applications Center, remnant Natural Resource Manager, Job Corps, and National Technology and 

Development Program. 

Change Description 

The first change, fifth paragraph, adds transfer authority to the Wildland Fire Management account for the purpose 

of hazardous fuels management. 

The second change, twentieth paragraph, provides necessary authority to Job Corps staffs that provide services 

across appropriations accounts to continue to effectively operate in the new budget structure. This language is 

required because of the Forest Service budget structure change enacted in fiscal year 2021. 

ADMINISTRATIVE PROVISION—FOREST SERVICE 

[Not later than 90 days after the date of enactment of this Act, the Secretary of Agriculture, acting through the Chief 

of the Forest Service, shall submit to the House and Senate Committees on Appropriations a detailed spend plan for 

the funds provided to the Forest Service in this title in this Act for fiscal year 2022, and for each fiscal year through 

2026, as part of the annual budget submission of the President under section 1105(a) of title 31, United States Code, 

the Secretary shall submit a detailed spend plan for the funds provided to the Forest Service in this title in this Act 

for that fiscal year.] 

(Infrastructure Investments and Jobs Appropriations Act.) 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

GENERAL PROVISIONS 

(Including Transfers of Funds) 

RESTRICTION ON USE OF FUNDS 

SEC. 401. 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. 

OBLIGATION OF APPROPRIATIONS 

SEC. 402. No part of any appropriation contained in this Act shall remain available for obligation beyond the 

current fiscal year unless expressly so provided herein. 

DISCLOSURE OF ADMINISTRATIVE EXPENSES 

SEC. 403. The amount and basis of estimated overhead charges, deductions, reserves or holdbacks, including 

working capital fund[ and cost pool charges], from programs, projects, activities and subactivities to support 

government-wide, departmental, agency, or bureau administrative functions or headquarters, regional, or central 

operations shall be presented in annual budget justifications to the Committees on Appropriations of the House and 

the Senate. Changes to such estimates shall be presented to the Committees on Appropriations for approval. 

MINING APPLICATIONS 

SEC. 404. (a) LIMITATION OF FUNDS.—None of the funds appropriated or otherwise made available pursuant to 

this Act shall be obligated or expended to accept or process applications for a patent for any mining or mill site 

claim located under the general mining laws. 

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

concerned (1) a patent application was filed with the Secretary on or before September 30, 1994; and (2) all 

requirements established under sections 2325 and 2326 of the Revised Statutes (30 U.S.C. 29 and 30) for vein or 

lode claims, sections 2329, 2330, 2331, and 2333 of the Revised Statutes (30 U.S.C. 35, 36, and 37) for placer 

claims, and section 2337 of the Revised Statutes (30 U.S.C. 42) for mill site claims, as the case may be, were fully 

complied with by the applicant by that date. 

(c) REPORT.—On September 30, [2023]2024, the Secretary of the Interior shall file with the House and Senate 

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

and Natural Resources of the Senate a report on actions taken by the Department under the plan submitted pursuant 

to section 314(c) of the Department of the Interior and Related Agencies Appropriations Act, 1997 (Public Law 

104–208). 

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

upon the request of a patent applicant, the Secretary of the Interior shall allow the applicant to fund a qualified thirdparty contractor to be selected by the Director of the Bureau of Land Management to conduct a mineral examination 

of the mining claims or mill sites contained in a patent application as set forth in subsection (b). The Bureau of Land 

Management shall have the sole responsibility to choose and pay the third-party contractor in accordance with the 

standard procedures employed by the Bureau of Land Management in the retention of third-party contractors. 

CONTRACT SUPPORT COSTS, PRIOR YEAR LIMITATION 

SEC. 405. Sections 405 and 406 of division F of the Consolidated and Further Continuing Appropriations Act, 2015 

(Public Law 113–235) shall continue in effect in fiscal years [2022]2023 and [2023]2024. 

CONTRACT SUPPORT COSTS, FISCAL YEAR 2023 AND 2024 LIMITATION 

SEC. 406. Amounts provided by this Act for fiscal years [2022]2023 and [2023]2024 under the headings[ 

"Department of Health and Human Services, Indian Health Service,] Contract Support Costs" [and "Department of 

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

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

compacts, or annual funding agreements for each such fiscal year [with the Bureau of Indian Affairs, Bureau of 

Indian Education, and the Indian Health Service]: Provided, That such amounts provided by this Act are not 

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

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settlements or judgments awarding contract support costs for prior years: Provided further, That notwithstanding any 

other provision of law, funds appropriated under the [heading]headings [Department of Health and Human Services, 

Indian Health Service, ]”Contract Support Costs” in this or prior Acts shall remain available for disbursement until 

any claims relating to such amounts and submitted under chapter 71 of title 41, United States Code, are resolved. 

FOREST MANAGEMENT PLANS 

SEC. 407. The Secretary of Agriculture shall not be considered to be in violation of subparagraph 6(f)(5)(A) of the 

Forest and Rangeland Renewable Resources Planning Act of 1974 (16 U.S.C. 1604(f)(5)(A)) solely because more 

than 15 years have passed without revision of the plan for a unit of the National Forest System. Nothing in this 

section exempts the Secretary from any other requirement of the Forest and Rangeland Renewable Resources 

Planning Act (16 U.S.C. 1600 et seq.) or any other law: Provided, That if the Secretary is not acting expeditiously 

and in good faith, within the funding available, to revise a plan for a unit of the National Forest System, this section 

shall be void with respect to such plan and a court of proper jurisdiction may order completion of the plan on an 

accelerated basis. 

PROHIBITION WITHIN NATIONAL MONUMENTS 

SEC. 408. No funds provided in this Act may be expended to conduct preleasing, leasing and related activities under 

either the Mineral Leasing Act (30 U.S.C. 181 et seq.) or the Outer Continental Shelf Lands Act (43 U.S.C. 1331 et 

seq.) within the boundaries of a National Monument established pursuant to the Act of June 8, 1906 (16 U.S.C. 431 

et seq.) as such boundary existed on January 20, 2001, except where such activities are allowed under the 

Presidential proclamation establishing such monument. 

LIMITATION ON TAKINGS 

SEC. 409. Unless otherwise provided herein, no funds appropriated in this Act for the acquisition of lands or 

interests in lands may be expended for the filing of declarations of taking or complaints in condemnation without 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 assistance to the State of Florida to acquire lands for Everglades restoration purposes. 

PROHIBITION ON NO-BID CONTRACTS 

Sec. 410. None of the funds appropriated or otherwise made available by this Act to executive branch agencies may 

be used to enter into any Federal contract unless such contract is entered into in accordance with the requirements of 

Chapter 33 of Title 41, United States Code, or Chapter 137 of Title 10, United States Code, and the Federal 

Acquisition Regulations, unless—

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

including formula grants for States, or Federally recognized Indian tribes; 

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

93-638, 25 U.S.C. 450 et seq.) or by any other Federal laws that specifically authorize a contract within an 

Indian Tribe as defined in Section 4(E) of that Act (25 U.S.C. 450b(e)); or 

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

POSTING OF REPORTS 

SEC. 411. (a) Any agency receiving funds made available in this Act, shall, subject to subsections (b) and (c), post 

on the public website of that agency any report required to be submitted by the Congress in this or any other Act, 

upon the determination by the head of the agency that it shall serve the national interest. 

(b) Subsection (a) shall not apply to a report if—

(1) the public posting of the report compromises national security; or 

(2) the report contains proprietary information. 

(c) The head of the agency posting such report shall do so only after such report has been made available to the 

requesting Committee or Committees of Congress for no less than 45 days. 

NATIONAL ENDOWMENT FOR THE ARTS GRANT GUIDELINES 

SEC. 412. Of the funds provided to the National Endowment for the Arts—

(1) The Chairperson shall only award a grant to an individual if such grant is awarded to such individual for a 

literature fellowship, National Heritage Fellowship, or American Jazz Masters Fellowship. 

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(2) The Chairperson shall establish procedures to ensure that no funding provided through a grant, except a grant 

made to a State or local arts agency, or regional group, may be used to make a grant to any other organization or 

individual to conduct activity independent of the direct grant recipient. Nothing in this subsection shall prohibit 

payments made in exchange for goods and services. 

(3) No grant shall be used for seasonal support to a group, unless the application is specific to the contents of the 

season, including identified programs or projects. 

NATIONAL ENDOWMENT FOR THE ARTS PROGRAM PRIORITIES 

SEC. 413. (a) In providing services or awarding financial assistance under the National Foundation on the Arts and 

the Humanities Act of 1965 from funds appropriated under this Act, the Chairperson of the National Endowment for 

the Arts shall ensure that priority is given to providing services or awarding financial assistance for projects, 

productions, workshops, or programs that serve underserved populations. 

(b) In this section: 

(1) The term "underserved population" means a population of individuals, including urban minorities, who have 

historically been outside the purview of arts and humanities programs due to factors such as a high incidence of 

income below the poverty line or to geographic isolation. 

(2) The term "poverty line" means the poverty line (as defined by the Office of Management and Budget, and 

revised annually in accordance with section 673(2) of the Community Services Block Grant Act (42 U.S.C. 

9902(2))) applicable to a family of the size involved. 

(c) In providing services and awarding financial assistance under the National Foundation on the Arts and 

Humanities Act of 1965 with funds appropriated by this Act, the Chairperson of the National Endowment for the 

Arts shall ensure that priority is given to providing services or awarding financial assistance for projects, 

productions, workshops, or programs that will encourage public knowledge, education, understanding, and 

appreciation of the arts. 

(d) With funds appropriated by this Act to carry out section 5 of the National Foundation on the Arts and 

Humanities Act of 1965—

(1) the Chairperson shall establish a grant category for projects, productions, workshops, or programs that are of 

national impact or availability or are able to tour several States; 

(2) the Chairperson shall not make grants exceeding 15 percent, in the aggregate, of such funds to any single State, 

excluding grants made under the authority of paragraph (1); 

(3) the Chairperson shall report to the Congress annually and by State, on grants awarded by the Chairperson in each 

grant category under section 5 of such Act; and 

(4) the Chairperson shall encourage the use of grants to improve and support community-based music performance 

and education. 

STATUS OF BALANCES OF APPROPRIATIONS 

SEC. 414. The Department of the Interior, the Environmental Protection Agency, the Forest Service, and the Indian 

Health Service shall provide the Committees on Appropriations of the House of Representatives and Senate 

quarterly reports on the status of balances of appropriations, including all uncommitted, committed, and unobligated 

funds in each program and activity within 60 days of enactment of this Act. 

EXTENSION OF GRAZING PERMITS 

SEC. 415. The terms and conditions of section 325 of Public Law 108–108 (117 Stat. 1307), regarding grazing 

permits issued by the Forest Service on any lands not subject to administration under section 402 of the Federal 

Lands Policy and Management Act (43 U.S.C. 1752), shall remain in effect for fiscal year [2022]2023. 

FUNDING PROHIBITION 

SEC. 416. (a) None of the funds made available in this Act may be used to maintain or establish a computer network 

unless such network is designed to block access to pornography websites. 

(b) Nothing in subsection (a) shall limit the use of funds necessary for any Federal, State, tribal, or local law 

enforcement agency or any other entity carrying out criminal investigations, prosecution, or adjudication activities. 

HUMANE TRANSFER AND TREATMENT OF ANIMALS 

SEC. 417. (a) Notwithstanding any other provision of law, the Secretary of the Interior, with respect to land 

administered by the Bureau of Land Management, or the Secretary of Agriculture, with respect to land administered 

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by the Forest Service (referred to in this section as the ‘‘Secretary concerned’’), may transfer excess wild horses and 

burros that have been removed from land administered by the Secretary concerned to other Federal, State, and local 

government agencies for use as work animals. 

(b) The Secretary concerned may make a transfer under subsection (a) immediately on the request of a Federal, 

State, or local government agency. 

(c) An excess wild horse or burro transferred under subsection (a) shall lose status as a wild free-roaming horse or 

burro (as defined in section 2 of Public Law 92–195 (commonly known as the ‘‘Wild Free-Roaming Horses and 

Burros Act’’) (16 U.S.C. 1332)).

(d) A Federal, State, or local government agency receiving an excess wild horse or burro pursuant to subsection (a) 

shall not—

(1) destroy the horse or burro in a manner that results in the destruction of the horse or burro into a commercial 

product; 

(2) sell or otherwise transfer the horse or burro in a manner that results in the destruction of the horse or burro for 

processing into a commercial product; or 

(3) euthanize the horse or burro, except on the recommendation of a licensed veterinarian in a case of severe injury, 

illness, or advanced age. 

(e) Amounts appropriated by this Act shall not be available for—

(1) the destruction of any healthy, unadopted, and wild horse or burro under the jurisdiction of the Secretary 

concerned (including a contractor); or 

(2) the sale of a wild horse or burro that results in the destruction of the wild horse or burro for processing into a 

commercial product. 

FOREST SERVICE FACILITY REALIGNMENT AND ENHANCEMENT AUTHORIZATION 

EXTENSION 

SEC. 418. Section 503(f) of Public Law 109–54 (16 U.S.C. 580d note) shall be applied by substituting “September 

30, [2022]2023” for “September 30, 2019”.

[USE OF AMERICAN IRON AND STEEL] 

[SEC. 419. (a) 

(1) None of the funds made available by a State water pollution control revolving fund as authorized by section 1452 

of the Safe Drinking Water Act (42 U.S.C. 300j–12) shall be used for a project for the construction, alteration, 

maintenance, or repair of a public water system or treatment works unless all of the iron and steel products used in 

the project are produced in the United States. 

(2) In this section, the term "iron and steel" products means the following products made primarily of iron or steel: 

lined or unlined pipes and fittings, manhole covers and other municipal castings, hydrants, tanks, flanges, pipe 

clamps and restraints, valves, structural steel, reinforced precast concrete, and construction materials. 

(b) Subsection (a) shall not apply in any case or category of cases in which the Administrator of the Environmental 

Protection Agency (in this section referred to as the "Administrator") finds that—

(1) applying subsection (a) would be inconsistent with the public interest; 

(2) iron and steel products are not produced in the United States in sufficient and reasonably available quantities and 

of a satisfactory quality; or 

(3) inclusion of iron and steel products produced in the United States will increase the cost of the overall project by 

more than 25 percent. 

(c) If the Administrator receives a request for a waiver under this section, the Administrator shall make available to 

the public on an informal basis a copy of the request and information available to the Administrator concerning the 

request, and shall allow for informal public input on the request for at least 15 days prior to making a finding based 

on the request. The Administrator shall make the request and accompanying information available by electronic 

means, including on the official public Internet Web site of the Environmental Protection Agency. 

(d) This section shall be applied in a manner consistent with United States obligations under international 

agreements. 

(e) The Administrator may retain up to 0.25 percent of the funds appropriated in this Act for the Clean and Drinking 

Water State Revolving Funds for carrying out the provisions described in subsection (a)(1) for management and 

oversight of the requirements of this section.] 

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LOCAL COOPERATOR TRAINING AGREEMENTS AND TRANSFERS OF EXCESS EQUIPMENT 

AND SUPPLIES FOR WILDFIRES 

SEC. [420]419. The Secretary of the Interior is authorized to enter into grants and cooperative agreements with 

volunteer fire departments, rural fire departments, rangeland fire protection associations, and similar organizations 

to provide for wildland fire training and equipment, including supplies and communication devices. Notwithstanding 

121(c) of title 40, United States Code, or section 521 of title 40, United States Code, the Secretary is further 

authorized to transfer title to excess Department of the Interior firefighting equipment no longer needed to carry out 

the functions of the Department's wildland fire management program to such organizations. 

RECREATION FEE 

SEC. [421]420. Section 810 of the Federal Lands Recreation Enhancement Act (16 U.S.C. 6809) shall be applied by 

substituting “October 1, [2023]2024” for “September 30, 2019”.

LOCAL CONTRACTORS 

SEC. [422]421. Section 412 of Division E of Public Law 112–74 shall be applied by substituting “fiscal year

[2022]2023” for “fiscal year 2019”, and by inserting before the last proviso: “Provided further, That all laborers and 

mechanics employed by contractors and subcontractors on projects funded directly by or assisted in whole or in part 

by and through the Federal Government pursuant to this section shall be paid wages at rates not less than those 

prevailing on projects of a character similar in the locality as determined by the Secretary of Labor in accordance 

with subchapter IV of chapter 31 of title 40, United States Code: Provided further, That the materials used by the 

contractor of subcontractor are substantially manufactured, mined, and produced in the United States in accordance 

with chapter 83 of title 41, United States Code (commonly known as the Buy American Act). That Provided further, 

that for each skilled craft employed on any applicable construction project under this section, demonstrate an ability 

to use and commit to use individuals enrolled in a registered apprenticeship program, which such individuals shall, 

to the greatest extent practicable, constitute not less than 20 percent of the individuals working on such project: 

Provided further, That all contractors and subcontractors of the eligible entity receiving grant funds shall not require 

mandatory arbitration for any dispute involving a worker engaged in a service for the contractor or subcontractor 

under this section: Provided further, That for construction projects where the total cost to the Federal Government is 

$25,000,000 or more, contractors or subcontractors, to the greatest extent practicable, be a party to a project labor 

agreement or require contractors and subcontractors to consent to a project labor agreement: Provided further, That 

any contractor or subcontractor awarded contracts, grants, or cooperative agreements under this section must have 

an explicit neutrality policy on any issue involving the organization of employees of the contractor or subcontractor, 

and all contractors and subcontractors, for purposes of collective bargaining:". 

SHASTA-TRINITY MARINA FEE AUTHORITY 

SEC. [423]422. Section 422 of division F of Public Law 110-161(121 Stat. 1844), as amended, shall be applied by 

substituting “fiscal year [2022]2023” for “fiscal year 2019”.

INTERPRETIVE ASSOCIATION AUTHORITY 

SEC. [424]423. Section 426 of division G of Public Law 113-76 (16 U.S.C. 565a-1 note) shall be applied by 

substituting “September 30, [2022]2023” for “September 30, 2019”.

PUERTO RICO SCHOOLING 

SEC. [425]424. The authority provided by the 19th unnumbered paragraph under heading “Administrative 

Provisions, Forest Service” in title III of Public Law 109-54, as amended, shall be applied by substituting “fiscal 

year [2022]2023” for “fiscal year 2019”.

FOREST BOTANICAL PRODUCTS FEE COLLECTION AUTHORIZATION EXTENSION 

SEC. [426]425. Section 339 of the Department of the Interior and Related Agencies Appropriations Act, 2000 (as 

enacted into law by Public Law 106–113; 16 U.S.C. 528 note), as amended by section 335(6) of Public Law 108–

108 and section 432 of Public Law 113– 76, shall be applied by substituting “fiscal year [2022]2023” for “fiscal 

year 2019”.

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CHACO CANYON 

 

 

 

 

 

SEC. [427]426. None of the funds made available by this Act may be used to accept a nomination for oil and gas 

leasing under 43 CFR 3120.3 et seq, or to offer for oil and gas leasing, any Federal lands within the withdrawal area 

identified on the map of the Chaco Culture National Historical Park prepared by the Bureau of Land Management 

and dated April 2, 2019[, prior to the completion of the cultural resources investigation identified in the explanatory 

statement described in section 4 (in the matter preceding division A of the Consolidated Appropriations Act, 2021 

(Public Law 116–260)]. 

TRIBAL LEASES 

 

 

 

SEC. [428]427. Notwithstanding any other provision of law, in the case of any lease under section 105(l) of the 

Indian Self-Determination and Education Assistance Act (25 U.S.C. 5324(l)), the initial lease term shall commence 

no earlier than the date of receipt of the lease proposal. 

FOREST ECOSYSTEM HEALTH AND RECOVERY FUND 

 

 

 

SEC. [429]428. The authority provided under the heading "Forest Ecosystem Health and Recovery Fund" in title I of 

Public Law 111–88, as amended by section 117 of division F of Public Law 113–235, shall be applied by 

substituting "fiscal year [2022]2023" for "fiscal year 2020" each place it appears. 

TIMBER SALE REQUIREMENTS 

 

 

 

 

 

 

 

 

SEC. [430]429. No timber sale in Alaska’s Region 10 shall be advertised if the indicated rate is deficit (defined as 

the value of the timber is not sufficient to cover all logging and stumpage costs and provide a normal profit and risk 

allowance under the Forest Service’s appraisal process) when appraised using a residual value appraisal. The 

western red cedar timber from those sales which is surplus to the needs of the domestic processors in Alaska, shall 

be made available to domestic processors in the contiguous 48 United States at prevailing domestic prices. All 

additional western red cedar 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. 

TRANSFER AUTHORITY TO FEDERAL HIGHWAY ADMINISTRATION FOR THE NATIONAL 

PARKS AND PUBLIC LAND LEGACY RESTORATION FUND 

 

 

 

SEC. [431]430. Funds provided by this Act or any other Act that are subject to the allocations in 54 U.S.C. 

200402(e)(1) may be further allocated or reallocated to the Federal Highway Administration for transportation 

projects of the covered agencies defined in 54 U.S.C. 200401(2). 

WILD AND SCENIC RIVERS COMPREHENSIVE RIVER MANAGEMENT PLANS 

 

 

 

 

SEC. [432]431. The Secretary of Agriculture shall not be considered to be in violation of section 3(d)(1) of the Wild 

and Scenic Rivers Act (16 U.S.C. 1274(d)(1)) for not completing a comprehensive river management plan within 3 

full fiscal years after the date of designation, except the comprehensive river management plan must be completed 

or appropriately updated not later than the completion of the next applicable forest plan revision. 

FACILITIES RENOVATION FOR URBAN INDIAN ORGANIZATIONS TO THE EXTENT 

AUTHORIZED FOR OTHER GOVERNMENT CONTRACTORS 

 

 

 

 

 

 

 

 

SEC. [433]432. The Secretary of Health and Human Services may authorize an urban Indian organization (as 

defined in section 4 of the Indian Health Care Improvement Act (25 U.S.C. 1603) that is awarded a grant or contract 

under title V of that Act (25 U.S.C. 1651 et seq.) to use funds provided in such grant or contract for minor 

renovations to facilities or construction or expansion of facilities, including leased facilities, to assist the urban 

Indian organization in meeting or maintaining standards issued by Federal or State governments or by accreditation 

organizations. 

TIMBER EXPORT 

SEC. [434]433. The Secretary of Agriculture shall not be required to issue regulations under section 495 of the 

Forest Resources Conservation and Shortage Relief Act of 1997 (16 U.S.C. 620f) for the fiscal year ending 

September 30, 2023. 

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ROAD CONSTRUCTION 

SEC. 434. Section 8206(a) of the Agriculture Act of 2014 (16 U.S.C. 2113a(a)(4)(B)(i)) is amended by inserting "or 

Bureau of Land Management managed" after "National Forest System". 

Change Description 

The first change removes the reference to cost pools. 

The second change extends the mining provision to 2024. 

The third change extends the contract support costs provision to 2023. 

The fourth change extends the grazing permit authority (P.L.108–108 (117 Stat. 1307)) to 2023. 

The fifth change extends authority for the Forest Service Facility Realignment and Enhancement Act (P.L.109–54 

(16 U.S.C. 580d note)) to 2023. 

The sixth change extends authority for the Federal Lands Recreation Enhancement Act (16 U.S.C. 6809) to 2024. 

The seventh change extends the authority for local contractors. 

The eighth change extends the Shasta-Trinity authority (P.L. 110-161(121 Stat. 1844), as amended) to 2023. 

The ninth change extends the Interpretive Association Authority (P.L.113-76 (16 U.S.C. 565a-1 note)) to 2023. 

The tenth change extends the Puerto Rico Schools authority (P.L.109-54, as amended) to 2023. 

The eleventh change extends the Forest Botanical Products authority (P.L. 106–113; 16 U.S.C. 528 note, as 

amended) to 2023. 

The twelfth change extends the Forest Ecosystem Health and Recovery Fund (P.L. 111-88, as amended) to 2023. 

The thirteenth change would provide legislative relief from the Forest Resources Conservation and Shortage Relief 

Act of 1997. 

The fourteenth change amends section 8206(a) of the Agriculture Act of 2014 to include the Bureau of Land 

Management. 

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AGENCY-WIDE PERFORMANCE AND EVALUATION 

INTRODUCTION 

The purpose of the Summary of Performance and Evaluation section is to provide an update on Performance and 

Evidence and Evaluation efforts, facilitating compliance with the Government Performance Results Modernization 

Act (GPRMA) and the Evidence Act of 2018, as well as departmental Key Performance Indicators (KPI). 

Specifically, the Office of Budget and Program Analysis (OBPA) leads the Department in Performance, Evaluation, 

Evidence, and Risk Management and chairs the Performance, Evaluation, Evidence Committee (PEEC) and the 

Enterprise Risk Management (ERM) committees. The Forest Service is a member of both the PEEC and ERM 

committees which are comprised of individuals from different Mission Areas and backgrounds throughout USDA, 

as well as key evaluation partners, the USDA Chief Data Officer and Statistical Officer. These different perspectives 

and expertise facilitate buy-in across the Department, augment technical expertise, and create a greater diversity of 

perspectives. Partnership with the Chief Data Officer and Statistical Officer provide greater insight and advisement 

on data access, data quality and statistical methods. 

The Forest Service was established February 1, 1905, within the Department of Agriculture. The agency has a 

unique mission to sustain healthy, diverse, and productive forests and grasslands for present and future generations. 

The Forest Service is composed of the following major program areas: Business Operations, National Forest 

Systems, State and Private Forestry, which includes wildfire management, Research and Development, and 

International Programs. Within the Forest Service, the Office of Strategic Planning, Budget, and Accountability 

spearheads its efforts in Strategic Planning, Performance and Evidence and Evaluation. The Office of the Chief 

Financial Officer leads Enterprise Risk Management. These offices work directly with OBPA and senior leadership 

and actively engage with both internal and external stakeholders. 

ALIGNMENT TO USDA 2022 – 2026 STRATEGIC PLAN 

The Forest Service contributes to Goals 1, 3, and 5 of the Department’s Strategic Goals in the current FY 2022 –

2026 USDA Strategic Plan through fact-based, data-driven, and customer-focused decisions. Departmental KPIs are 

performance metrics aligned with the Strategic Objectives laid out in the USDA’s Strategic Plan and are monitored

and evaluated during the Quarterly Strategic Reviews, the Bi-Annual Strategic Review with OMB, and included 

within the Annual Performance Plan and Report published by OBPA., and is responsible for achieving and 

measuring results with respect to the following USDA Strategic Goal and Objectives: 

Strategic Goal 1: Combat Climate Change to Support America’s Working Lands, Natural Resources, and

Communities 

Objective 1.1: Use Climate-Smart Management and Sound Science to Enhance the Health and Productivity of 

Agricultural Lands 

Objective 1.2: Lead Efforts to Adapt to the Consequences of Climate Change in Agriculture and Forestry 

Objective 1.3: Restore, Protect, and Conserve Watersheds to Ensure Clean, Abundant, and Continuous Provision of 

Water Resources Strategic Goal 3: Foster an Equitable and Competitive Global Marketplace for All Agricultural 

Producers 

Objective 3.2: Expand Markets for Emerging Technologies, Sustainable Products, and Novel Products 

Strategic Goal 6: Attract, Inspire, and Retain an Engaged and Motivated Workforce that's Proud to Represent USDA 

Objective 6.3: Develop a Customer-Centric, Inclusive, and High-Performing Workforce and Equip Employees to 

Provide Exceptional Service Delivery to Customers (Internal and External) 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

SUMMARY OF PERFORMANCE 

A more detailed report of the performance plan is located at the Forest Service performance website38. The 

following tables summarize the Forest Service’s contributions to the Departmental Key Performance Indicators 

(KPIs). 

Table FS-59. KPI -Terrestrial Condition Assessment Target 

Strategic Objective 1.1 2022 2023 

Terrestrial Condition Assessment Results - -

1.1.4 Percent of National Forest System (NFS) landscape ecosystems 

improved, maintained, or recovering due to management actions, 

Terrestrial Condition Assessment (TCA) 

Target 35 38 

Expected Performance Progress Towards the Achievement of Strategic Objectives: 

Strategic Objective 1.1: Increase the Sustainability of Our Forest, Crop and Livestock Systems by Deploying 

Climate and Environmentally Smart Management of Working Lands and Waterways. 

• Terrestrial Condition Assessment (TCA): Management activities can contribute to the health and integrity of 

landscape ecosystems and the TCA KPI does so by providing a yearly measure of ecological outcomes. 

Performance measured by this KPI improves with the implementation and completion of effective management 

activities of sufficient size and distribution concentrated on targeted landscape ecosystems defined by the TCA. 

o In FY 2023, forest and range management activities will improve landscape sustainability by restoring 

natural, well-adapted plant communities, and improving soil conditions in the face of drought. 

Optimum performance and outcomes will require comprehensive strategic and tactical planning as well 

as enhanced on-the-ground capacity. 

Table FS-60. KPI – Forest Legacy Program 

Strategic Objective 1.3 2022 2023 

Forest Legacy Program Results - -

1.3.1 Number of private forest acres protected through the Forest 

Legacy Program Target a 69,000 Baseline 

64,000 

a This is a new KPI in FY 2022. 

Table FS-61. KPI – Wildfire Risk Reduction 

Strategic Objective 1.3 2022 2023 

Wildfire Risk Reduction Results - -

1.3.2 Number of high priority areas where treatments have occurred to 

reduce wildfire risk to communities (number of firesheds, annually) a Target 3 3 

a Fireshed is a term similar to watershed. It refers to a geographic region with a similar risk of wildfire to adjacent communities. 

Reducing hazardous fuels within parts of the fireshed may reduce the overall risk to the adjacent community. 

38 https://www.usda.gov/our-agency/about-usda/performance 

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Table FS-62. KPI – Hazardous Fuels Reduction 

Strategic Objective 1.3 2022 2023 

Hazardous Fuels Reduction Results - -

1.3.3 Annual acreage treated to reduce or maintain fuel conditions on 

NFS and non-Federal lands (million acres, annually) Target 3.7 3.8 

Table FS-63. KPI – Final Acreage Treatment 

Strategic Objective 1.3 2022 2023 

Final Acreage Treatment Results - -

1.3.4 Annual acreage of NFS lands where final treatment effectively 

mitigates wildfire risk (million acres, annually) Target 1.4 1.6 

Table FS-64. KPI – Timber Volume 

Strategic Objective 1.3 2022 2023 

Timber Volume Results - -

1.3.5 Timber volume sold (billion board feet) Target 3.4 3.4 

Expected Performance Progress Towards the Achievement of Strategic Objectives: 

Strategic Objective 1.3: Lead Efforts to Mitigate Climate Change and Adapt to Drought, and Extreme Weather in 

Agriculture and Forestry Addressing Vulnerabilities such as the Risk of Catastrophic Wildfire 

• Forest Legacy Program: This KPI measures the number of private acres protected through the Forest Legacy 

Program, which contributes to mitigating and building resilience to climate change. 

o In FY 2023, the agency projects that the Forest Legacy Program will permanently conserve 64,000 

acres of environmentally important forests. 

o To address the effects of climate change, the Forest Legacy Program prioritizes projects for funding 

that contain attributes such as landscape connectivity, forest health, soil productivity, water resources, 

and wildlife habitat that mitigate and build resilience to climate change. 

• Wildfire Risk Reduction: This KPI measures the number of firesheds (high priority areas) that have been 

treated to a level that reduces the wildfire risk to communities. This planned accomplishment reflects 

tremendous effort since most landscapes require multiple treatments over several years to reduce the wildfire 

risk to communities. 

o In FY 2023, the Forest Service plans to treat three firesheds to a level that will reduce the wildfire risk 

to communities. It will use the spatial data from the final acreage treatment measure (KPI 1.3.4 above), 

which identifies when a landscape receives the final treatment, in a series of planned treatments, to 

identify which priority firesheds are treated and the total number of acres treated. The agency will 

demonstrate that it is treating within identified high priority firesheds. 

• Hazardous Fuels Reduction: This KPI measures the annual acreage treated to reduce hazardous fuels or 

maintain the desired condition of the fuels on NFS and non-Federal lands, which reduces the risk of catastrophic 

wildfire and may assist in the mitigation of climate change. 

o In FY 2023, the Forest Service will treat 3.8 million acres of hazardous fuels on federal lands and 

across boundaries on state lands. This target is at the upper range of the agency’s capacity to complete, 

and future increases in pace and scale will need to see a marked increase in both discretionary funding 

and staffing. 

o Forest Service scientists continue to conduct research and to refine science-based decision support 

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tools to inform choices about hazardous fuel treatment locations that will maximize wildfire risk 

reduction. 

• Final Acreage Treatment: This KPI measures the annual acreage of NFS lands where a final treatment, in a 

series of planned treatments, has taken place and effectively mitigated hazardous fuels on NFS lands and which 

reduce the risk of catastrophic wildfire and may mitigate the effects of climate change. 

o In FY 2023, the Forest Service plans to complete final hazardous fuels treatments on 1.6 million acres. 

This planned accomplishment reflects tremendous effort since most landscapes require multiple 

treatments to reach the desired condition where catastrophic wildfire risk is reduced. 

o This target is at the upper range of the agency’s capacity to complete and future increases in pace and 

scale will need to see a marked increase in both discretionary funding and staffing. 

• Timber Volume: This KPI measures annual Timber volume sold (billion board feet) addressing vulnerabilities 

such as the Risk of Catastrophic Wildfire through integration with hazardous fuels mitigation. 

o In FY 2023, the Forest Service plans to align the 3.4 billion board feet target to each Forest’s capability

at the local level to better deliver the timber output. Increased funding in FY 2023 will drive more 

integration with the hazardous fuels program, allowing the agency to manage the treatment of forest 

resources better. New investments in forest management funded through the Infrastructure Investment 

and Jobs Act (Public Law 117-58) will also allow for planning and preparing new timber sales, 

stewardship contracts, and good neighbor authority agreements through FY 2023 and FY 2024. The 

agency expects to increase timber volume output because of these investments, with additional 

increases in volume in FY 2025 and FY 2026. 

o The agency will continue to follow COVID-19 protocols to ensure partner/contractor and employee 

safety while allowing continued timber sale preparation. The agency also continues efforts to identify 

reasons for and solutions to issues around timber sales receiving no bids. 

Table FS-65. KPI – Watershed Restoration 

Strategic Objective 1.4 2022 2023 

Watershed Restoration Results - -

1.4.5 Number of watersheds moved to improved condition class or 

sustained in Condition Class 1 Target 15 16 

Expected Performance Progress Towards the Achievement of Strategic Objectives: 

Strategic Objective 1.4: Restore, Protect, and Conserve Watersheds in Forests, Agricultural and Other Working 

Lands to Ensure Clean, Abundant, and Continuous Provision of Water Resources 

• Watershed Restoration: This KPI measures the number of watersheds moved to improved condition class 

or sustained in Condition Class 1 which contributes to clean, abundant, and continuous provision of water 

resources. 

o In FY 2023, Forest Service units plan to complete essential Watershed Restoration Action Plans 

(WRAPS) projects to move 16 watersheds to an improved condition or maintain them in Condition 

Class 1. The agency plans to use a mix of funding to complete essential projects outlined in the 

Watershed Condition Framework (WCF) WRAPs so that by FY 2026, 100 additional, and 54 percent 

overall, of National Forest System watersheds will have been moved to Condition Class 1. 

o Units will accomplish this important work using base-level funding and appropriate markups. 

Increased funding will enable the agency to plan and implement additional essential projects resulting 

in an increased number of watersheds rated as “Functioning Properly”.

Table FS-66. KPI – National Forest Customer Satisfaction 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Strategic Objective 6.3 2022 2023 

National Forest Customer Satisfaction Results - -

6.3.2 Percent of customers satisfied with recreation facilities, services, 

and settings in National Forest Target 95 98 

Expected Performance Progress Towards the Achievement of Strategic Objectives: 

Strategic Objective 6.3: Develop a Customer-Centric, Inclusive, and High-Performing Workforce and Equip 

Employees to Provide Exceptional Service Delivery to Customers (Internal and External) 

• National Forest Customer Satisfaction: In FY 2023, Forest Service units plan to increase the percentage 

of customers satisfied with recreation facilities, services, and settings in National Forest to 98% which 

indicates exceptional service delivery to customers. 

o The agency plans to improve service and reduce barriers to access for all users of the national 

forests and grasslands. They plan to emphasize additional and better-trained on-the-ground 

staffing who interact directly with customers and who work through partnership agreements to 

enhance customer service and program delivery efforts. 

o Investments in customer service through such platforms as Recreation.gov will make Forest 

Service facilities easier to find and will facilitate trip planning that will match recreation user and 

visitor needs to appropriate resources. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

SPECIAL EXHIBITS 

BIOMASS AND WOOD INNOVATIONS 

Table FS-67. Forest Service Funding for Wood Products, Wood Energy, and the Wood Education 

and ResourceCenter (thousands of dollars) 

Activity 2021 

Actual 

2022 

Estimate 

2023 

Estimate 

Wood Innovations Program: 

Geographically Target Wood Utilization a ......................................... 

.................................................................. 

........ 

............................................. 

.................................................................... 

............................................................. 

........................... 

......................................................... 

.............................................. 

$1,480 $1,215 $2,000 

Wood Innovation Grants a 7,765 8,450 10,000 

Other Market Development (Wood Products/Wood Energy) a, b 3,209 5,335 5,500 

Subtotal, Wood Innovations Program 12,454 15,000 17,500 

Other Programs: 

Bio-economy Research c 8,353 9,185 9,185 

Community Wood Energy a, d 2,000 10,000 12,500 

Wood Education and Resource Center (WERC) e, f 2,000 2,000 2,000 

Subtotal, Biomass Production 12,353 21,185 23,685 

Total, Biomass and Wood Innovations 24,807 36,185 41,185 

a Funded program is Hazardous Fuels. 

b Includes market development project grants with WoodWorks, U.S. Endowment, and other strategic partners. 

c Funded program is Forest and Rangeland Research. 

d Community Wood Energy grant program was funded in FY 2021 at $2.0 million and in FY 2022 at $5 million, 

using non-Wood Innovations Program funding. 

e A mix of program funds (Forest Health Management, Hazardous Fuels, National Fire Capacity, Urban and 

Community Forestry, and Working Forest Lands) provided to the Wood Education and Resource Center to address 

hardwood industry issues related to the 35-State eastern hardwood region and to develop markets for underutilized 

hardwoods and softwoods in the region. 

f Congressional direction for FY 2021 Wood Education and Resource Center (WERC) was $2 million. 

FY 2023 

The Forest Service’s emphasis on innovative uses for wood and wood fiber materials focuses on developing new 

products and markets for small and medium-sized trees, underutilized and low-value forestry residuals, and 

industrial wood residues. Research and Development (R&D), and State and Private Forestry (SPF) Wood 

Innovations are leading this work using appropriate authorities. 

The work planned for FY 2023 is structured around forest bioeconomy research in R&D and the SPF Wood 

Innovations Program. Wood and biomass extraction are not specifically funded at the national level; however, it is a 

factor in the agency’s national strategy for improving forest conditions and utilizing material removed during forest 

management and restoration. The following describes the work to be accomplished in FY 2023. 

Biomass Production 

In FY 2023, the National Forest System will continue to make material available for wood and biomass markets 

(wood energy and wood products) as a by-product of restoration work. 

In FY 2021, the agency sold over 1.9 million green tons of biomass (fresh cut woody material at a “green” moisture 

content of half water and half woody material) to various wood energy and wood products markets. The National 

Forest System will continue to work with the SPF Wood Innovations Program and R&D to grow markets and 

infrastructure for biomass production and utilization across the country. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Bioeconomy Research 

The Forest Service continues to work with academic and industrial partners in basic and developmental research to 

find high-value markets for forest biomass. In cellulose nanomaterials, researchers continue to investigate 

applications in transient electronics, packaging, oil drilling, coatings, light-weight automobile materials, sunscreen, 

and manufacturing technology of cellulose nanomaterials. Forest Service lignin research is still in the early stages; 

scientists are investigating UV absorbing, antimicrobial, and antioxidation properties of lignin to develop new 

markets for this by-product of pulping wood. Lignin is currently used as inhouse fuel, and new markets for lignin 

may generate new revenue for pulp mills. In biotechnology research, scientists are investigating production of highvalue materials from biomass with microorganisms, such as nanofibers, sugars, pharmaceuticals, and high-value 

chemicals. Forest Service scientists are also investigating the development of carbon-based materials from forest 

biomass and the application of emerging technologies for biomass utilization. To accelerate commercialization of 

cellulose nanomaterials from forest biomass, the Forest Service works with P3Nano, a public private partnership 

with the U.S. Endowment for Forestry and Communities, to fund developmental research in cellulose nanomaterials. 

The Forest Service is actively participating in international standards development in the International Organization 

for Standardization (commonly known as ISO), the Technical Association of the Pulp and Paper Industry (TAPPI), 

and American Society for Testing Materials (ASTM) International in areas of cellulose nanomaterials, pulp and 

paper, lignin, and sustainability. The Forest Service continues to participate in the National Nanotechnology 

Initiative (NNI), the Bioeconomy Initiative, and actively participates in the Subcommittees on Nanoscale Science, 

Engineering, and Technology (NSET), and Advanced Manufacturing (SAM) of the White House National Science 

and Technology Council (NSTC). Participation in Federal government initiatives allows the Forest Service to 

leverage cross-department resources, advertise research to non-traditional markets, and be part of Federal 

government efforts to advance national issues, such as ensuring U.S. global leadership in science, U.S. 

competitiveness in the global market, and national security. 

Wood Innovations Program 

The Forest Service established the Wood Innovations Program in 2014 to strategically expand development of wood 

products and renewable wood energy markets that support forest management and deliver economic and 

environmental benefits to communities. This work informs business decisions by providing technical assistance, 

funding, and high-quality data. Annual Wood Innovation Grants (as codified in the Agriculture Improvement Act of 

2018 (2018 Farm Bill) (P.L. 115-334) fund diverse projects for public and private entities across the country. The 

maximum for each grant is generally $250,000 with a required 100 percent match of the requested Federal funds. 

The funding level requested in FY 2023 for the Wood Innovations Program is $15 million. 

A second competitive funding program, the Community Wood Energy and Wood Innovation funding opportunity 

(referred to as Community Wood), was available in FY 2021. The intent of this program is to install thermally led 

community wood energy systems or to build new or expand existing innovative wood products facilities; $2 million 

was awarded in FY 2021. This program is authorized under the 2018 Farm Bill to be funded at up to $25 million per 

fiscal year through FY 2023. The funding level requested for FY 2023 is $10 million. 

Through the Wood Innovations Program, 24 States have established Statewide Wood Energy Teams to expand 

wood energy markets. Seventeen States and Puerto Rico have established Statewide Wood Utilization Teams to 

expand traditional and innovative wood products markets. These teams have been extremely effective in identifying 

successful opportunities in the highest priority areas of each State. This funding has leveraged substantial private 

investment, created local jobs, supported forest health priorities, and improved local economies. For the Statewide 

Energy and Utilization teams, Federal funds are often matched at well beyond the 50 percent match level required 

prior to 2020 and the 100 percent match level required in 2021. Projects have supported private investment in new 

manufacturing capacity and wood energy systems. These teams include several State partners, university extensions, 

and industry representatives, all focused on growing existing and bringing new wood product and energy 

opportunities to States. 

The agency continues to expand the use of wood in the commercial, institutional, and multi-family building sector. 

Engineered wood products such as cross-laminated timber (CLT) for these mid- to high-rise buildings are opening 

extensive new markets that are offsetting forest restoration and hazardous fuels removal costs. In addition to Wood 

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Innovation Grants supporting the development of this sector, the Forest Service provides funding to WoodWorks, an 

organization that has been instrumental and highly effective in helping architects, engineers, and developers 

understand how to take advantage of this significant opportunity. As of September 30, 2021, 1,241 mass timber 

buildings have been built or are under construction in the United States. However, market research shows that up to 

17,000 buildings could be built annually using this construction material. The opportunity to use mass timber to 

meet net zero carbon goals is substantial if the use of this material can be accelerated. 

The agency assists and collaborates with key cellulosic biofuels stakeholders in government and the private sector. 

The cellulosic biofuels sector has potential to expand significantly over the next five years, which would generate 

long-term demand for low value forest residues, small trees, and excess industrial wood residues from forest 

products manufacturing. 

Wood Education and Resource Center 

The Wood Education and Resource Center (WERC) in Princeton, West Virginia was founded through the Omnibus 

Consolidated and Emergency Supplemental Appropriations Act, 1999 (P.L. 105-277). The WERC focuses on 

primary and secondary wood processing, woody biomass utilization using multidisciplinary approaches, efficient 

utilization of urban tree removals, and partnerships to solve forest products-related issues. 

The WERC programs maintain and improve wood industry productivity and competitiveness in a sustainable 

manner within the 35 States of the Eastern hardwood regions. Viable wood products markets enable sustainable 

forest management on private, State, Tribal, and Federal lands. WERC also supports the National Wood Energy 

Technical Assistance team, a highly effective program that collaborates with local communities and public and 

private sector entities to help them generate renewable energy from forests. In FY 2021, WERC supported the 

analysis and feasibility study for 70 projects that considered the conversion from natural gas or propane systems to 

wood energy. This work was done to support thermal wood energy and combined heat and power systems in every 

Forest Service region. Additionally, WERC funded eight wood markets and wood energy projects that will support 

wood utilization in the Eastern region. 

The WERC is supporting the West Virginia Forest Products Cooperative through a Special Use Permit agreement 

that allows the Cooperative to use the WERC Rough Mill facility as a site for their training and manufacturing 

efforts. This supports the WERC strategy to encourage local economic development opportunities in the hardwood 

region. 

Past Performance 

The Forest Service has a long history of success in encouraging the expansion of wood products and wood energy 

markets and continues to support this expansion. Selected accomplishments include the following: 

• In FY 2021, the Forest Service conducted a formal Community Wood competitive funding program. The 

agency funded six shovel-ready projects for $2.1 million (2.0 million from Community Wood Competitive 

Grants and $100,000 from Other Market Development Grants) that leveraged $6.6 million of non-Federal 

investments in six States. These projects are characterized as follows: located at municipal government, 

sawmill, paper manufacturing, rendering, and furniture manufacturing facilities; use locally sourced biomass 

or wood residues to generate renewable energy or manufacture innovative wood products, support forest 

management, and have a significant impact on the local economy; and create demand for low value woody 

biomass for over 20 years, including areas of high wildfire risk and near National Forest System lands. 

• In FY 2021, the Forest Service awarded approximately $9.1 million to fund 44 Wood Innovation Grants 

($7.765 million from Wood Innovations Competitive Grants and $1.335 million from Other Market 

Development Grants) to expand wood products and wood energy markets to support the management of 

National Forest System lands and other lands with significant forest restoration needs, especially those in dire 

need of hazardous fuels reduction. This funding supports traditional wood utilization projects, promotes using 

wood as a construction material in commercial buildings, and expands wood energy markets. Federal funds 

were matched by partners at more than $17.1 million. 

• Activities implemented through the Wood Innovations Program have resulted in significant growth of the 

mass timber industry. As of September 30, 2021, there are over 576 mass timber buildings constructed in the 

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U.S., 665 in design or under construction, 10 operational mass timber manufacturing plants, and additional 

plants announced or in planning. Key partnerships with private and public organizations havefacilitated this 

growth. 

• In FY 2021, the WERC hosted workshops and webinars for entrepreneurs and businesses interested in forest 

products and wood energy, provided wood energy technical assistance to more than 70 facility owners 

interested in the use of wood energy, and administered key portions of the national Wood Innovations and 

Community Wood Grant programs. The WERC National Wood Energy Technical Assistance Team 

collaborated with the Biomass Thermal Energy Council in the development of a study entitled “Life Cycle 

Analysis of Renewable Fuel Standard Implementation for Thermal Pathways for Wood Pellets and Chips” to

facilitate increased use of wood as a low carbon replacement for fossil fuels, in collaboration with the States 

of Vermont, Maryland, and Wisconsin. 

• In FY 2021, the agency produced over 1.9 million green tons of biomass from National Forest System lands 

for use in bioenergy production. 

• In FY 2021, P3Nano, in partnership with the Forest Service, awarded ten projects totaling $2.4 million to 

further cellulose nanomaterials research with potential for industrial applications. Some highlighted areas of 

the awards included replacing carbon black in tires, frost protection of tree fruits, and making oil drilling 

cleaner. 

• In FY 2021, Forest Service scientists continued to develop a continuous production process to produce 

cellulose nanofibril sheets. This process can produce continuous cellulose nanofibril films with existing 

equipment at industrially relevant speeds. 

• Using nanotechnology principals, a team of academic and Forest Service scientists have successfully 

demonstrated the concepts of a stronger wood, a transparent wood, and a super insulation wood. To 

commercialize these technologies, the team plans to establish pilot-scale research at the Forest Service’s

Forest Products Laboratory. 

• Scientists in the biomass to pharmaceutical project have published in the journal Applied Biochemistry and 

Biotechnology the development of a low-cost pillow reactor for the first step of the four-step process to 

produce 3-HBL (Hydroxybutyrolactone) and glycolic acid from biomass. The team has also made progress in 

developing analytical methods, improving catalysts, and increasing yield in other steps of the process. 

• R&D experts participated in the development of the 2021 National Nanotechnology Initiative (NNI) 

Strategic Plan, the Advanced Manufacturing strategic plan, and the government-wide Sustainable Aviation 

Fuel Challenge. 

• Forest Service experts are leading the revision of the ISO standard cellulose nanomaterials terms and a study 

to identify strategic areas for cellulose nanomaterials international standards development for the pulp and 

paper industry. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CARBON ACCOUNTING 

Background 

This exhibit responds to a Congressional Directive from House Report 117-83: 

The Committee recognizes our National Forests as an essential asset in reducing carbon emissions and in 

the fight against climate change. Healthy forests provide an important carbon sink, and the Committee 

recognizes the Forest Service’s efforts to factor carbon accounting into its land management decisions. The 

Committee directs the Forest Service to submit a yearly estimate of carbon accounting on Forest Service 

lands broken down by region in its annual budget materials. The Committee expects the increases given to 

numerous programs throughout the Forest Service to combat wildfires, invasive species and diseases, 

rehabilitate burned areas, among others, will help contribute to an increased amount of carbon stored in our 

National Forests. 

Overview 

For nearly a century, the Forest Inventory and Analysis (FIA) Program has measured millions of trees, on hundreds 

of thousands of plots in a statistical nationwide framework, providing the information needed to assess one of 

America's greatest resources—its forests. The collection and development of scientifically credible FIA data, tools, 

and analyses over decades, integrated with remote sensing products, provide critical status and trend information to 

resource managers, policy makers, investors, and the public. This annual resource inventory covers both public and 

private forest lands – all ownerships – across the United States. FIA reports on status and trends in forest area and 

location; land cover and land use change; species, size, and health of trees; total tree growth, mortality, and removals 

by harvest; wood production and utilization rates by various products; forest land ownership; and forest carbon 

stocks. 

Given the complexities associated with estimating carbon in forest ecosystems, FIA measures more than just live 

trees. Dead trees, downed dead wood, forest floor, and soils have been added to the FIA program over the past 

decades to fully monitor U.S. forest carbon. This work is critical to meeting reporting guidelines under international 

agreements and is done collaboratively with other agencies, such as the Natural Resources Conservation Service’s

National Resources Inventory. The Forest Service reports annually on the U.S. forest and harvested wood products 

greenhouse gas emissions and removals to the United Nation’s Framework Convention on Climate Change via the 

U.S. Environmental Protection Agency. 

In coordination with a host of critical partners who leverage Federal resources (such as States), field inventory data 

are collected every year in all 50 States, and periodically in territories and former island protectorates. The goal is to 

publicly release fully processed data within two years of collection. Remote sensing products are used throughout 

the surveys, from pre-field processes to post-stratification, to increase precision and calculate estimates. Such a 

collection of annual monitoring data across a robust suite of forest health metrics (e.g., tree mortality and soil health) 

and forest carbon estimates provides decision makers and policymakers with evidence to support forest investments. 

The data helps enable the evaluation of tradeoffs between maximizing forest carbon storage and increasing the 

resilience of U.S. forests to expected global change (e.g., increasing droughts). Recognizing how the future of U.S. 

forests are entwined with communities and economies, FIA also conducts the nationwide Timber Product Output 

and National Woodland Owners Surveys, which produce data that support a robust and inclusive national 

assessment of forest carbon and associated resource decisions. 

Carbon Accounting on Forested National Forest System Lands 

The tables below display the Forest Service’s assessment of current carbon stock by forest areas and carbon stock by 

regions. Table FS-68 contains the current carbon stock and forest land acreage, and Table FS-69 provides net carbon 

change estimates for forest lands on National Forests System lands by region. The estimates are based on Forest 

Inventory and Analysis (FIA) data used in the most recent Inventory of U.S. Greenhouse Gas Emissions and Sinks: 

1990-201939 published in April 2021 using the methodology described in the Population Estimation User’s Guide 

39 https://www.epa.gov/ghgemissions/inventory-us-greenhouse-gas-emissions-and-sinks-1990-2019 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

and Resource Update.

40, 41 Forest carbon estimates are derived by estimating the carbon content of forest biomass by 

various pools (e.g., live trees or soils) in a year all within the statistical framework employed by the FIA program. 

Change in stocks is calculated by subtracting the estimates between respective years. Programmatic synergies are 

achieved because the same FIA datasets used to estimate forest carbon are used by USDA and a host of Federal, 

State, and private entities for assessing a myriad of additional forest attributes such as wildlife habitat, effects of 

insects and disease, or old-growth prevalence across all U.S. forests. 

In addition to sequestering carbon in live tree biomass via the growth of forests, carbon sequestration also continues 

in harvested wood, which has been less than 1 million metric tons of carbon per year for wood harvested from all 

National Forests.

42 Some treatment activities will increase carbon in the landscape, such as restoring burned areas. 

Other activities such as hazardous fuels treatments to reduce fire risk will reduce carbon in forested landscapes, but 

that carbon may be stored in wood products or used as a substitute for energy from fossil fuels. Forest carbon is 

dynamic over time, and healthy forests may contain small or large amounts of carbon stocks change, or flux. 

Vigorously growing young stands may contain less carbon stocks than stands containing many large dead trees, 

while sequestering carbon from the atmosphere at higher rates. In summary, the collection and distribution of FIA’s

forest data empowers the evaluation of the many intricacies associated with forest carbon dynamics beyond the 

purview of this summary. 

Table FS-68. Carbon stocks (million metric tons carbon) and forested national forest area (million acres) on National 

Forest System (NFS) lands by Region a 

Region 

NFS lands 

forested 

area 

(million 

acres) 

Carbon stock (million metric tons) in forest pool 

Aboveground live 

biomass 

Belowground live 

biomass Dead wood Forest floor Soil carbon Total 

01-Northern 22.32 479.8 100.8 207.1 146.0 1,055.5 1,989.2 

02-Rocky Mountain 13.18 217.9 44.8 99.6 72.3 568.3 1,002.9 

03-Southwestern 11.21 141.0 28.7 40.2 35.9 420.2 665.9 

04-Intermountain 18.24 241.6 49.3 119.0 77.8 838.8 1,326.5 

05-Pacific Southwest 14.15 509.1 105.0 125.7 84.8 655.0 1,479.6 

06-Pacific Northwest 22.21 946.0 198.4 264.2 141.8 1,056.0 2,606.4 

08-Southern 13.12 423.6 83.0 46.7 49.7 439.2 1,042.2 

09-Eastern 11.71 292.1 56.9 40.1 58.4 511.8 959.3 

10-Alaskab 2.88 107.1 22.5 32.2 42.3 134.6 338.7 

Total 129.02 3,358.2 689.4 974.8 709.0 5,679.4 11,410.7 

a Data is representative of inventory years 2009 to 2019, the most recent data available for national reporting. b Some National Forest wilderness areas are not included currently due to limited access. 

40 Pugh, SA et al. 2018. The Forest Inventory and Analysis Database: Population Estimation User Guide (Edition: November 2018). USDA 

Forest Service. 166 p. [Online]. Available at web address: http://www.fia.fs.fed.us/library/database-documentation/. [Accessed 27 October 2021] 41 Domke et al. 2021. Greenhouse Gas Emissions and Removals From Forest Land, Woodlands, and Urban Trees in the United States, 1990–

2019. Resource Update FS–307. Madison, WI: USDA Forest Service, Northern Research Station. 5 p. [plus 2 appendixes]. 

https://doi.org/10.2737/FS-RU-307. [Accessed 4 November 2021] 42 Heath, LS et al. 2011. Carbon stocks on forestland of the United States, with emphasis on USDA Forest Service ownership. Ecosphere 2(1): 

art6 doi:10.1890/ES10-00126.1. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Table FS-69. Net carbon stock change (million metric tons carbon/year) on forested NFS lands by Regiona 

Region 

Average annual net carbon stock change (million metrics tons/year) in forest poolb 

Aboveground live 

biomass 

Belowground live 

biomass Dead wood Forest floor Soil carbon Total 

01-Northern 3.1 0.7 -3.3 0.3 -0.4 0.4 

02-Rocky Mountain 4.4 0.9 -1 0.9 3.1 8.3 

03-Southwestern 1.6 0.3 -0.4 0.1 0 1.6 

04-Intermountain 3.5 0.8 -1.4 0.6 2.9 6.4 

05-Pacific Southwest -0.2 -0.1 -1.9 0 0.1 -2.1 

06-Pacific Northwest -5.2 -1.1 -1.3 -0.1 0 -7.7 

08-Southern -5.6 -1.1 -0.4 0 0 -7.1 

09-Eastern -2 -0.4 -0.7 -0.1 -0.1 -3.3 

10-Alaska -0.2 0 -0.3 -1.1 2.7 1.1 

Total -0.6 0 -10.7 0.6 8.3 -2.4 

a Because FIA’s annual measurement approach is based on measured data from the nationwide Forest Inventory and Analysis 

program where a portion of all plots are measured in any given year, the change estimates span 5-to-10-year intervals. 

b Negative carbon changes indicate carbon is increasing in the forest carbon pool. 

The majority (6.075 million metric tons) of combined carbon stocks on NFS lands are in Regions 01(Northern), 03 

(Pacific Southwest), and 06 (Pacific Northwest). The bulk of the increase of net carbon stock change (-18.1 million 

metric tons per year) occurs in Regions 06 (Pacific Northwest), 08 (Southern), and 09 (Eastern). Currently, there is a 

substantial transfer of live biomass carbon to the dead wood pool on National Forest System lands due to recent 

catastrophic events from fire, insect and disease, and storm damage, resulting in high tree mortality, which remains 

on in place. FIA’s measurement of forest carbon across time and diversity of pools suggests complex tradeoffs

between increasing the resilience of forest ecosystems to expected future change within the context of maximizing 

forest carbon. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

CRITERIA FOR ALLOCATING FUNDING FOR RECREATION ACCESS 

Background 

This exhibit responds to a Congressional Directive from Senate Report 116-123: 

The Committee believes increasing access to our public lands is important and provides funding to all four 

land management agencies—the Bureau of Land Management (BLM), National Park Service (NPS), Forest 

Service, and the Fish and Wildlife Service—to complete projects that enhance access to public lands for 

hunting, fishing, and other recreational activities. The Committee expects recreational access projects to be 

selected based on their role in meeting key recreation needs, and the agencies should work with their 

respective regions, State offices, and/or management units to identify all potential projects. Further, the 

agencies are again directed to include in future budget justifications an explanation of the process and criteria 

used for allocating funds for recreational access in the previous year. 

Overview 

Land Acquisition funds are used to secure access to public lands for recreational purposes. Funds are used to meet 

public recreation access needs, such as preserving large, intact areas for recreation, by working with landowners to 

secure rights-of-way, easements, or fee simple land acquisitions that provide or improve public access to existing 

public lands. 

Congress appropriated $17 million in FY 2021 for priority recreational access projects. In FY 2021, the Forest 

Service acquired 39,045 acres of land that provided or improved public access. Also in FY 2021, under the Great 

American Outdoors Act (GAOA) (P.L. 116-152), land acquisition funding through the Land and Water 

Conservation Fund (LWCF) became mandatory.43 

FY 2023 Criteria 

The Forest Service prioritizes land acquisitions that have the broad support of stakeholders, local officials, and 

others at the local level to mitigate barriers to public access and attract more visitors to recreate in a safe, accessible 

environment. Congress requires the Forest Service to “annually develop a priority list for projects that, through 

acquisition of land (or an interest in land), secure recreational public access to Federal land under the jurisdiction of 

the applicable Secretary for hunting, fishing, recreational shooting, or other outdoor recreational purposes” (54 

U.S.C. 200306(c)). 

The agency evaluates proposed recreational access tracts for LWCF funding based on the following criteria: 

• How does the acquisition solve a specific access problem or overcome a barrier to access? 

• What is the size and configuration of the tract relative to the National Forest System lands around it? 

• How much of the tract borders existing National Forest System or other publicly accessible lands? 

• What types of recreational access would the land provide? Hunting, fishing, hiking, or other? 

• Has the public indicated that more or improved access is needed in this area? 

• What is the level of local support for the acquisition? 

Selected Example of Recent Progress 

In FY 2021, 1,418 acres of land became available for public enjoyment and habitat preservation in the southern 

Elkhorn Mountains in the Beaverhead-Deerlodge National Forest and the Helena-Lewis and Clark National Forest. 

Acquiring this property will improve and enhance public access to 4,000 acres of National Forest lands that were 

previously inaccessible. The Elkhorn Mountains are a highly desirable area for trophy elk hunting. 

The Forest Service partnered with the Rocky Mountain Elk Foundation, Montana Fish & Wildlife Conservation 

Trust, and Montana’s Outdoor Legacy Foundation to acquire the property. The land will provide year-round and 

winter habitat for elk, as well as habitat for deer, bears, wolves, moose, mountain lions, ferruginous hawks, and a 

43 FY 2021 mandatory funding for Forest Legacy Program was $94,255,000. Mandatory funding for Land Acquisition was $123,885,000. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

variety of grassland birds. The east fork of Dry Creek, Turman Creek, Sand Creek, and Dahlman Gulch also flow 

through the property, contributing to valuable riparian areas. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

ENVIRONMENTAL EDUCATION 

Background 

This exhibit addresses requirements from House report 117-83: 

The Committee recognizes the importance of environmental education and nature-based learning as a 

means of building healthy communities and neighborhoods, particularly in urban settings and economically 

disadvantaged communities. The Committee urges Department of the Interior agencies (including the 

National Park Service, United States Fish and Wildlife Service, United States Geological Service and the 

Bureau of Land Management), EPA, and the Forest Service to continue to develop partnerships with 

environmental educational organizations that increase access to outdoor focused learning year-round in 

under resourced urban communities, including those organizations that target programming to children and 

K–12 schools. The Committee expects these agencies to delineate, in fiscal year 2023 budget justifications, 

efforts undertaken to support environmental education in urban settings and to partner with non-profit 

organizations that contribute to the underlying mission of these agencies. 

Overview 

Forest Service environmental education efforts help people of all ages understand and appreciate natural and cultural 

resources and how to conserve those resources for future generations. Successful management of the Nation’s

forests and grasslands requires the general public, through environmental education, to make informed decisions for 

the conservation of natural and cultural resources. Forest Service technical expertise and environmental education 

guides individuals, communities (including urban), organizations, and agencies to expand learning, understanding, 

and action for these resources. 

Environmental Education Efforts 

The Forest Service provides expertise in science, land management, and outdoor experiences as the foundation for 

environmental literacy through a variety of venues. The Forest Service delivers environmental education through a 

comprehensive network of agency employees and private and public partnerships and engages an average of 11.5 

million individuals of all ages annually (pre-COVID-19 pandemic). Audiences include educators, local community 

leaders, youth, forest visitors, homeowners, and private landowners. 

The Forest Service environmental education efforts rely heavily on a wide variety of partnerships with Federal, 

State, and local agencies, Tribal Governments, and non-governmental organizations that leverage expertise and 

resources to expand program reach, including to urban areas. Forest Service environmental education efforts do not 

receive dedicated appropriations and do not have a budget line item. 

Environmental Education National Reach and Partnerships 

In FY 2020, the Forest Service worked with approximately 1,200 partners nationwide to deliver over 2,000 events 

that reached 14.3 million individuals, including urban audiences. Events include field trips, summer camps, campfire 

programs, fishing days, wilderness exploration, career explorations, and professional development workshops. The 

Forest Service invested over $5 million in these programs, and partners contributed over $20 million. In FYs 2020 

and 2021, environmental education efforts were impacted by COVID-19, with many educational opportunities 

shifting to online and digital environments. FY 2021 also focused on safely re-engaging in-person audiences. 

Environmental Education Programming Highlights 

Table FS-70. Forest Service Spending and Partner Contribution for Urban Environmental Education Programs in 

FY 2021. 

.................................................................................................................. 

.................................................................................................................................... 

...................................................................................................................... 

179 

Funding Source 2021 Actual 

State and Private Forestry a $1,262,500 

Partner Match 15,620,000 

National Forest System b 1,042,267 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Funding Source 2021 Actual 

Partner Match.................................................................................................................................... 743,608 

Forest and Rangeland Research c ......................................................................................................... 

.................................................................................................................................... 

298,192 

Partner Match 342,240 

Total, Forest Service Spending on Urban Environmental Education Programs d ....................... 2,602,959 

Total, Partner Match for Urban Environmental Education Programs ............................................... 

..................................................... 

16,705,848 

Total, Forest Service Spending on Environmental Education e 5,314,504 

Total, Partner Match for Environmental Education .......................................................................... 20,778,600 

a Funded nine Urban Environmental Education Projects. 

b Funded 260 Urban Environmental Education Projects. 

c Funded 14 Urban Environmental Education Projects. 

d Funded a total of 283 Urban Environmental Education Projects. 

e Funded a total of 2,051 Environmental Education Projects. 

Woodsy Owl Conservation Corps 

The Forest Service, collaborating with Corazon Latino, educates and motivates youth to take proactive action for the 

environment. These opportunities include leadership, community outreach and engagement, water conservation, 

wildfire prevention, and climate education. Participating communities utilize Woodsy Owl to engage families, 

schools, faith-based organizations, grassroots organizations, and other groups that have been historically 

underrepresented in the outdoors and in conservation-related decision-making processes. This program developed 

out of the activities of the Houston Green Ambassadors, which began in 2015, and currently engages 150 students at 

Bryant Middle School in Salt Lake City, Utah, 600 students at Munde Verde Public Charter School in Washington, 

D.C., and 200 students in Juan Ponce de Leon High School in Puerto Rico in environmental education activities and 

taking action to improve their local environment. The program was expanded in FY 2021 to reach a total of 11 

communities in 8 States and territories including Arizona, Arkansas, Michigan, New Jersey, Puerto Rico, Utah, 

District of Columbia, and West Virginia. Each additional project site costs the Forest Service an average of $10,000. 

Urban Connections Program 

Since 2000, the Urban Connections program has provided nature based educational programming to diverse and 

underserved communities that connect urban residents to local green spaces and national forests. Diversity, equity, 

and inclusion are at the core of the Urban Connections program, which currently collaborates with local partners in 

Boston, MA; Detroit, MI; Milwaukee, WI; Minneapolis/St. Paul, MN; and St. Louis, MO. The Urban Connections 

program averages engagement with over 700,000 individuals of all ages annually. The audience demographics 

include Black (66 percent), Latino (20 percent), White (8 percent), Asian (5 percent), Native (0.4 percent), Middle 

Eastern (0.3 percent). Each additional project site costs the Forest Service an average of $100,000. 

The Canoemobile program in Minneapolis/St. Paul, funded through the Urban Connections program, is an example 

program that engages urban audiences about the importance of waterways and is implemented in collaboration with 

local partners, such as Wilderness Inquiry. Through Canoemobile, students engage in a “floating classroom” to learn

about science, history, geography, and culture. The Forest Service provides expertise on a variety of topics including 

the role forests play in damping flood impacts, climate change, and soil exploration. This program reached 575 

urban youth in FY 2021. 

Latinas in Action (California) 

Since 2017, Chico State Enterprise, the nonprofit arm of the California State University, Chico campus, and the 

Forest Service have delivered Latinas in Action, engaging five female college students to deliver environmental 

education programs to 1,000 4th and 5th grade students in Spanish and English annually around environmental 

issues. The college students also explore natural resource career paths, with many pursuing employment with 

Federal land management agencies. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Every Kid Outdoors 

Every Kid Outdoors (EKO) is a multi-agency Federal public lands youth initiative to get all 4th graders and their 

families to experience the country’s natural treasures, rich history, and vibrant culture. In FY 2021, the Forest 

Service and partners reached nearly 100,000 individuals through these activities. As an example, partners in the 

State of Washington include National Park Service (NPS), Washington Trails Association, Discover Your 

Northwest, Washington Conservation Corps, MobilizeGreen, Libraries of Stevens County, North Central 

Washington Libraries, Pend Oreille County Library District, and many schools across the state. In FY 2021, 

programs on two national forests reached over 1,300 youth from both urban and underserved rural communities in 

the State of Washington, with youth learning about topics such as wildlife biology, winter ecology, forest 

management, fuels on the landscape, and watersheds. Historically, each additional project location costs $30,000. 

Urban Forestry (Ohio) 

In 2021, the Ohio Division of Forestry collaborated with the Ohio Chapter of the International Society of 

Arboriculture, the Ohio Independent Arborist Association, Ohio State University Extension, and other partners to 

conduct various environmental educational programs, trainings, and workshops within Ohio urban communities for 

adult audiences. This included virtual Tree Commission Academy classes, a soil science and reconstruction seminar, 

and a series of field trips highlighting examples of good management, innovative technologies, and new ways to 

address challenges in the urban environment, tree planting, tree identification, and risk assessment workshops. The 

programs, trainings, and workshops reached over 700 citizens in Ohio and provided over 800 hours of outreach and 

education, thereby supporting the maintenance and growth of urban forests for the benefit of diverse residents across 

the State. 

Greening STEM: Growing Green Youth Leaders in the Waiawa Watershed (Hawaii) 

Greening STEM projects engage underserved youth by integrating student-directed investigations of local 

environmental issues affecting local public lands into the school curriculum. In FY 2020, the Forest Service 

collaborated with the National Environmental Education Foundation, the Hawai’i Department of Land and Natural 

Resources, local non-profits, and Pearl City High School to develop a model program that offered students hands-on 

exploration of the impacts of urban design, deforestation, indigenous land management systems, and community 

engagement on their local Waiawa Watershed. This project involved 23 secondary students in conducting dataanalysis and completion of community engagement mini-projects. Each Greening STEM project costs an average of 

$20,000. 

Nature Explorer Outdoor Classrooms 

The Forest Service collaborates with Dimensions Foundation to develop Nature Explorer Outdoor Classrooms at 

pre-school and elementary schools, with a specific focus on serving diverse communities. These outdoor classrooms 

provide dynamic, nature-based play and learning spaces in areas otherwise lacking safe outdoor public spaces. 

School educators also receive training on how to integrate outdoor classroom use into their instruction. In Los 

Angeles, the LA Unified School District has committed to building Nature Explorer Outdoor Classrooms at all 88 

early childhood centers, with 10 already completed that reach 1,000 youth annually. Each new certified outdoor 

classroom costs approximately $50,000 to $100,000. 

Diverse Voices in Green Jobs Guide 

Environmental education serves as a mechanism to integrate natural resources career pathways information into 

educational settings, thereby addressing the need to increase interest and diversity in green careers. The Forest 

Service is currently working with Project Learning Tree/Sustainable Forestry Initiative to develop a Diverse Voices 

in Green Jobs Guide that will profile leaders from underrepresented groups in the forest and natural resources 

sectors, including Forest Service staff, and is scheduled for release in 2022. The guide will help youth gain the 

understanding of what is required to pursue similar careers and see themselves in these fields. Past implementation 

efforts, such as for the Burning Issues Fire Curriculum, to provide training and resources have cost $500,000 to 

reach 5,000 educators and guidance counselors, who reach at least 50,000 youth. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

EQUAL ACCESS TO JUSTICE ACT 

Overview 

The EAJA, enacted in 1980, authorizes the payment of attorney fees and court costs to parties that prevail against 

the government in legal proceedings. The Forest Service has kept detailed records on EAJA payments and other 

attorney since fiscal year 2009. 

Background 

This exhibit addresses the directive included in House Report 112-151 that accompanied the Department of Interior, 

Environment, and Related Agencies Appropriations Act, 2012 (Public Law 112-74), where: 

The Committee directs the Department of the Interior, the EPA, and the Forest Service to provide to the 

House and Senate Committees on Appropriations and make publicly available, no later than 60 days after 

enactment of this Act, and with each agency’s annual budget submission thereafter, the following

information: detailed reports on the amount of program funds used; the names of the fee recipients; the 

names of the Federal judges; the disposition of the applications (including any appeals of action taken on 

the applications); and the hourly rates of attorneys and expert witnesses stated in the applications that was 

awarded, for all EAJA fee payments awarded as a result of litigation against any of the Department of 

Interior bureaus, the EPA, or the Forest Service, or their respective employees. The report shall also include 

the information listed above for litigation relating to the Endangered Species Act and the amounts, outside 

of EAJA awards, paid in settlement for all litigation, regardless of the statute litigated. 

Table FS-71. FY 2021 EAJA Fee Payments 

Docket/Court Case Name Plaintiff Judge(s) 

Date 

Obligated Program Amount 

18-1144 

United States Court 

of Appeals for the 

Fourth Circuit 

Cowpasture River 

Preservation 

Association v. 

United States 

Forest Service 

Southern 

Environmental 

Law Center 

Gregory, Roger L.; 

Thacker, 

Stephanie D.; and 

Wynn, James A. 

11/18/2020 Land Use 

Authorization 

and Access 

$124,500 

1:20-cv-00172-

DCN 

United States 

District Court 

District of Idaho 

Western Watersheds 

Project v. United 

States Forest 

Service 

Advocates for the 

West 

Nye, David C. 12/14/2020 Hazardous Fuels 12,989 

19-cv-01449-PAB 

United States 

District Courts 

Tenth Circuit 

District of 

Colorado 

Wilderness Watch 

v. Ferebee 

Southwest Water 

and Property Law 

Brimmer, Philip A. 01/11/2021 Organizational 

Services 

505 

1:17-cv-02519-

LTB-GPG 

United States 

District Court for 

the District of 

Colorado 

Citizens for a 

Healthy 

Community v. 

United States 

Bureau of Land 

Management 

Western 

Environmental 

Law Center 

Babcock, Lewis T.; 

Gallagher, Gordon 

P. 

01/11/2021 Minerals and 

Geology 

Management 

24,000 

19-35665-3:18-cv01645-MO United 

States Court of 

Appeals for the 

Ninth Circuit 

Bark v. United 

States Forest 

Service 

Bark, Cascadia 

Wildlands; 

Oregon Wild 

Mosman, Michael 

W.; Graber, Susan 

P.; Berzon, 

Marsha S.; and 

Higginson, 

Stephen A. 

02/19/2021 Hazardous Fuels 312,730 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Docket/Court Case Name Plaintiff Judge(s) 

Date 

Obligated Program Amount 

2:17-cv-1091-SU 

United States 

District Court 

for the District of 

Oregon Pendleton 

Division 

Central Oregon 

Land Watch v. 

Forson 

Crag Law Center Sullivan, Patricia 02/19/2021 Trails 216,119 

1:17-cv-03025-PAB 

United States 

District Court for 

the District of 

Colorado Tenth 

Circuit 

High Country 

Conservation v. 

United States 

Forest Service 

Earthjustice Briscoe; Kelly; 

Lucero, William 

R.; and Brimmer, 

Philip A. 

03/04/2021 Minerals and 

Geology 

Management 

147,631 

20-cv-0019-DLC 

United States 

District Court for 

the District of 

Montana Missoula 

Division 

Friends of the 

Bitterroot v. 

Leanne Marten 

Ackland Law Firm Christensen, Dana 

L. 

04/15/2021 Land Management 

Planning, 

Assessment, and 

Monitoring 

40,000 

9:19-cv-00047-DLC 

United States 

District Court for 

the District of 

Montana Missoula 

Division 

Helena Hunters and 

Anglers 

Association v. 

Marten 

Western 

Environmental 

Law Center 

Christensen, Dana 

L. 

04/15/2021 Hazardous Fuels 199,000 

19-17479 3:19-cv06643-EMC 

United States Court 

of Appeals for the 

Ninth Circuit 

Environmental 

Protection 

Information 

Center v. Ann 

Carlson 

Environmental 

Protection 

Information 

Center 

Fletcher, William 

A.; Lee, Kenneth 

K.; Settle, 

Benjamin H.; and 

Chen, Edward M. 

04/23/2021 Hazardous Fuels; 

Land 

Management 

Planning, 

Assessment, and 

Monitoring 

191,000 

1:19-cv-00006-SLG 

United States 

District Court for 

the District of 

Alaska 

Southeast Alaska 

Conservation 

Council et al v. 

United States 

Forest Service 

Earthjustice; 

Southeast Alaska 

Conservation 

Council 

Gleason, Sharon L. 04/23/2021 Forest Products 210,000 

19-cv-00481-MO 

United States 

District Court for 

the District of 

Oregon 

Portland Division 

Cascade Forest 

Conservancy v. 

United States 

Forest Service 

Earthrise Law 

Center 

Hernández, Marco 

A.; Mosman, 

Michael W. 

04/23/2021 Minerals and 

Geology 

Management 

25,000 

1:19-cv-00445-

BLW 

United States 

District Court for 

the District of 

Idaho Southern 

Division 

Alliance for Wild 

Rockies v. United 

States Forest 

Service 

Bricklin & Newman 

LLC 

Winmill, Lynn B. 06/04/2021 Organizational 

Services 

68,000 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Docket/Court Case Name Plaintiff Judge(s) 

Date 

Obligated Program Amount 

4:20-cv-00481-

MW- MAF 

United States 

District Court 

Northern District 

of Florida 

Tallahassee 

Division 

Friends of the 

Florida Trail Inc 

v. Thomas 

Friends of the 

Florida Trail 

Walker, Mark E; 

Fitzpatrick, 

Martin A. 

06/10/2021 Land Management 

Planning, 

Assessment, and 

Monitoring 

12,101 

2:19-cv-00077-

RWS 

United States 

District Court 

Northern District 

of Georgia 

Gainesville 

Division 

Georgia Forest 

Watch v. United 

States Forest 

Service 

Southern 

Environmental 

Law Center 

Story, Richard W. 09/30/2021 Grazing 

Management 

30,000 

Total Payments 1,613,576 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

NATIONAL SCENIC AND HISTORIC TRAILS 

Background 

This exhibit addresses requirements contained in House Report 111-180, which directed: 

The Committee recommendation retains previous base funding for maintenance, construction, and operation 

of the network of national scenic and historic trails but encourages additional funding for required work of the 

newly authorized national trails. Future budget justifications should continue to provide specific trail 

operation, maintenance and construction funding and accomplishment data for the national scenic and historic 

trails. The Forest Service should provide full time administrators and prepare the required comprehensive 

management plans for the newly authorized national trails. 

Overview 

The Forest Service has designated trail administrators for six National Scenic and Historic Trails (NS&HT) –

Arizona, Continental Divide, Florida, Nez Perce (Nee Mee Poo), Pacific Crest, and Pacific Northwest – and 

manages portions of 15 additional NS&HTs on National Forest System lands, in cooperation with the Department of 

the Interior, State and county governments, and private partners. Funding for administration and management of 

these trails is included within the Capital Improvement and Maintenance Trails appropriation. Land acquisition for 

trails is primarily funded through the Land and Water Conservation Fund. 

In FY 2021, trail maintenance and volunteer engagement increased to be more comparable to what occurred prior to 

the COVID-19 pandemic. However, several catastrophic wildfires in California and Oregon impaired management 

efforts of several NS&HTs. As a result, NS&HT tasks largely focused on providing safety information to trail users 

and coordinating with stakeholders to assess COVID-19 risk and develop safety protocols to accomplish field work 

to the extent possible. 

Arizona National Scenic Trail 

The 800-mile Arizona National Scenic Trail (AZT) showcases Arizona’s diverse landscapes, offering unparalleled

backcountry experiences in settings ranging from Sonoran Desert to alpine forests. The AZT connects deserts, 

mountains, canyons, wilderness, history, cultures, and communities. Eighty five percent of the AZT is on Federal 

land that includes the Grand Canyon National Park and three other National Park Service (NPS) units, four National 

Forests, and two Bureau of Land Management (BLM) field offices. Partners include the Arizona Trail Association 

and numerous local trail clubs, Federal agencies, State and localgovernments, Tribes, and youth corps. 

In FY 2021, 1,630 volunteers contributed 18,753 hours of work in support of the AZT. Volunteers installed 12 

super gates, six raised cattleguards, two log fences, five trailhead kiosks, and improvements were made to three 

trailheads and two natural water sources. Interpretive signs were developed and installed at nine locations. Youth 

corps and volunteers maintained 112 miles of trail, and volunteers repaired or replaced signs along 90 miles of trail. 

The program constructed eighteen miles of singletrack tread to remove sections of the AZT from paved and dirt 

roads. In addition, the program analyzed 51 miles of new trail alignment to remove more of the AZT from roads and 

to improve sustainability. This analysis will support the National Environmental Policy Act (NEPA) process in FY 

2022. A total of eight Trail Skills Institute courses were offered, providing in-depth hands-on training for more than 

100 volunteers. Eight Trail Skills Videos were produced and made publicly available. 

The AZT continues to be threatened by uncharacteristic wildfires. In FY 2021, wildfires and forest closures due to 

high risk of fires forced temporary closures of half of the AZT. Two major wildfires burned 16 miles of the AZT. In 

FY 2021, 13 miles were maintained using emergency stabilization measures due to the Bush Fire of 2020; however, 

unstable watershed conditions continue to cause damage to parts of the AZT. 

Continental Divide National Scenic Trail 

The 3,100-mile Continental Divide National Scenic Trail (CDT) runs along the spine of the Rocky Mountains from 

Mexico to Canada. It connects 20 national forests, three national parks, one national monument, 13 BLM field 

offices, and several historic sites. About 95 percent of the trail is located on public lands; however, many trail 

segments are currently co-located along open roads or motorized trails. Easements are lacking across numerous 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

parcels of private and State land and are needed to secure a continuous route for permanent public use. In FY 2021, 

work continued on optimal location reviews for four major “gap” areas along the CDT.

Partners include the Continental Divide Trail Coalition, Montana Wilderness Association, Colorado Trail 

Foundation, Volunteers for Outdoor Colorado, Montana Conservation Corps, Rocky Mountain Youth Corps, 

Southwest Conservation Corps, Conservation Legacy, American Conservation Experience, Backcountry Horsemen 

and numerous other Federal, State, and local nongovernmental organizations. 

In FY 2021, 90 percent of the CDT allocation went to field units and partners for 31 trail maintenance, 

reconstruction, and relocation projects. In addition, trail-wide partner organizations such as the Continental Divide 

Trail Coalition and local partner organizations led a number of volunteer projects that engaged people in trail 

maintenance and construction. The entire CDT on National Forest System land (approximately 2,200 miles) is a 

Secretarially-designated priority area for trail maintenance under the 2016 Trails Stewardship Act. Because of this 

designation, several forests were awarded Great American Outdoors Act funding to address deferred maintenance on 

the CDT and other trails. 

New trail constructed in FY 2021 included: 

• The Nacimiento Mine connector trail, which preserves public access to the new CDT section on the Santa Fe 

National Forest. This access was threatened by tenuous private land access. The connector will also provide 

access to future day use recreation for locals and visitors along New Mexico State Road 126 (NM126) Scenic 

Byway. 

• Relocation of 5.5 miles the CDT off roads near Togwotee Pass, Wyoming on the Shoshone National Forest. 

• New trail of 3.8 miles from the Burton Park Trailhead to the forest boundary to provide a non-motorized 

route on the Beaverhead-Deerlodge National Forest. 

• New trail construction to relocate the trail from approximately 1.25 miles of road that is moderately used by 

local motorized recreationists on the Gila National Forest. 

Florida National Scenic Trail 

The Florida National Scenic Trail (FNST) consists of a 1,500-mile planning corridor stretching from Big Cypress 

National Preserve in the Everglades National Park to Gulf Islands National Seashore in the panhandle of Florida. 

Currently, 1,127 miles of certified FNST exist, with roughly 400 miles of gaps in the trail. Partners include the 

Florida Trail Association, Framing Our Community, National Park Service (NPS), the U.S. Fish and Wildlife 

Service, Florida Forest Service, Florida State Parks, and other agencies and organizations. 

In FY 2021, COVID-19 limited volunteer hours, and work continues to rebuild trail in prior-year storm damaged 

areas. Despite volunteer hour setbacks, FNST-volunteers maintained 90 percent of the trail, contributing 12,094 

hours. The Forest Service, together with Florida Trail Coalition partners, continue to carry out the goals of the 

Florida National Scenic Trail Five-Year Strategic Plan.

44 

Nez Perce National Historic Trail 

In 1986, Congress acknowledged the significance of the Nez Perce Conflict of 1877 by establishing the 1,170-mile 

Nez Perce National Historic Trail (NPNHT). With the cooperation of the State Highway Department and County 

Commissioners in the States of Oregon, Washington, Idaho, Wyoming, and Montana, over 2,991 miles of roads are 

designated as the NPNHT Auto Tour Route. The NPNHT includes a designated corridor encompassing 4,161 miles 

of roads, trails and routes. The route roughly parallels the course travelled by the five Nez Perce bands during their 

historic 1877 odyssey and offers opportunities for off-highway vehicles, biking, and snowmobile use. The NPNHT 

has 79 historic sites and seven high potential route segments which have historic tread from 1877 or were prehistoric 

travel routes. The NPNHT is currently revising its Comprehensive Plan for trail administration and management. 

44 https://www.fs.usda.gov/Internet/FSE_DOCUMENTS/fseprd601682.pdf 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Partners include the Nez Perce Trail Foundation, Nez Perce Appaloosa Horse Club, the Idaho Chapter of the Lewis 

and Clark Trail Heritage Foundation, the Wallowa Homeland Interpretive Center, the Josephy Center for Art and 

Culture, the Bitter Root Cultural Heritage Trust, Friends of the Southern Nez Perce Trail, and the Montana Natural 

History Center, plus Federal agencies and Tribes. 

In FY 2021, COVID-19 and fires hindered trail maintenance efforts compared to previous years. NPNHT 

accomplishmentsfor the fiscal year include: 

• Eighteen miles of trail maintained by the Nez Perce Tribe in central Idaho. 

• Five miles of trail were cleared of downed trees on the Beaverhead-Deerlodge National Forest due to beetlekill 

and reoccurring windstorms. 

• Fourteen miles of trail were maintained on the Wallowa-Whitman National Forest; and 

• Thirty-one miles of trail were maintained on the Nez Perce-Clearwater National Forests. 

The NPNHT hosted two virtual students to enhance information and maps on the public-facing website. The 

students also developed a short film titled, “Creative Hearts & Minds of Nez Perce”45 for YouTube, and installed 

two new interpretive panels at Sacajawea Rest Park in Darby, MT and Ravalli County Museum in Hamilton, MT. 

Our partners assisted with Wreaths Across America honoring 1877 Nez Perce and military soldiers. A permanent 

display was unveiled at the Alvin Josephy for Arts & Culture in Joseph, OR as part of a week-long event which 

included three tribal artists displaying and speaking of their creations, language experts, and presentations. The Nez 

Perce Tribe acquired 148 acres of land in Joseph, OR where Chief Joseph and General Howard met in 1877. 

Pacific Crest National Scenic Trail 

The 2,650-mile Pacific Crest National Scenic Trail (PCT) follows the crest of the Sierra Nevada and Cascade 

Mountain ranges from Mexico to Canada through California, Oregon, and Washington. The PCT crosses 25 national 

forests, seven BLM field offices, six NPS units, five national monuments, and 48 designated wilderness areas. More 

than one-half of the PCT is contained in designated wilderness, and the trail crosses 16 Wild and Scenic Rivers. 

Partners include the Pacific Crest Trail Association (PCTA), American Conservation Experience (ACE), Student 

Conservation Experience (SCA), Washington Trails Association, Pacific Northwest Trail Association, Northwest 

Youth Corps, Tahoe Rim Trail Association, Sierra Buttes Trail Stewardship, California Conservation Corps, 

Washington Conservation Corps, Oregon Equestrian Trails, Backcountry Horsemen of California, Oregon, 

Washington, and many other organizations. 

FY 2021 was a year of change & opportunity for the PCT program; a new Administrator was hired in July, the first 

of the Great American Outdoors Act (GAOA) funds were awarded to support the Trail, and a Foundation Document 

was drafted. The first GAOA project to support PCT deferred trail maintenance was awarded at $4.2 million, and 

agreements with the PCTA, SCA, and ACE were executed to leverage partnerships & corps crews to complete the 

trail work for the next four years. Project staffing was approved to support the administration of the GAOA project. 

The Foundation Document acts as a guiding document that aggregates the legislative history, legal and policy 

requirements, special mandates, and administrative commitments, and the Comprehensive Management Plan. It 

documents the nature and purposes of the Pacific Crest National Scenic Trail and what makes it significant, and it 

identifies the fundamental resources and values. The development of the Foundation Document was a collaborative 

effort between partners, government agencies, and local tribes. 

This year was a success in overcoming continued challenges with COVID-19, increased visitor use on public lands, 

and new and on-going impacts from catastrophic fires and fire restoration efforts. The PCTA and other trail partners 

coordinated with each management unit to assess and mitigate COVID-19 risks to allow for volunteers & corps 

crews to complete planned trail assessments, construction, and maintenance work. The volunteer Trailhead Host 

programs on the Cleveland & Inyo National Forests resumed in the FY 2021 season, which resulted in increased 

public contacts and education in areas with high recreation use. Long distance permit issuance resumed with 

continued emphasis on trail user safety during COVID-19. To continue better understanding visitor use 

management, academic research is being funded in more locations along the Trail. The PCTA and other trail 

45 https://youtu.be/yH5qeKyXZGw 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

partners provided fire closure information, damage assessment and facilitated repairs to the Trail as it was impacted 

by the fires and subsequent suppression efforts. 

In FY 2021, two significant multiyear projects were continued as priority work. These were the Sky River relocation 

in Southern California and work in the Glacier Peak Wilderness of the Okanogan-Wenatchee National Forest. 

Resource management planning efforts included providing national trail input on two Forest Plans, five over-thesnow travel plans, California High Speed Rail, and several proposed energy projects. A comprehensive database was 

finalized that cataloged all easements for the entire Trail. The collaborative management with California State Parks 

continued to address motorized conflict and to ensure timely resolution of issues. The PCT program also continues 

to collaborate with wilderness managers in the southern Sierra for the sixth year on visitor use management concerns 

along the John Muir Trail 170-mile overlap with the PCT. 

Pacific Northwest National Scenic Trail 

The Pacific Northwest National Scenic Trail (PNNST) begins at the Continental Divide in Glacier National Park in 

Montana and travels 1,200 miles through Montana, Idaho, and Washington before reaching the Pacific Ocean. The 

trail’s complex land ownership includes three national parks, seven national forests, six Washington State parks, and 

other lands. Partners include the Pacific Northwest Trail Association (PNTA), various Back Country Horsemen 

chapters from across the trail, Washington Trails Association, University of Montana, and other organizations. 

Despite ongoing challenges associated with the COVID-19 pandemic, along with wildfires that burned on and near 

the PNNST, PNTA was able to grow its Performance Trail Crew program in FY 2021. Leveraging Great American 

Outdoors Act funding, PNTA brought on additional Performance Trail Crews in eastern and western Washington as 

well as two highly skilled Technical Advisors to assist crew leaders with complex projects. While volunteer hours 

remained below pre-pandemic levels, volunteers made valuable contributions, often working alongside Performance 

Trail Crews in remote backcountry areas. In FY 2021, PNTA debuted a new online volunteer events calendar, 

making it easier for potential volunteers to learn about and register for volunteer service opportunities. 

The highlight of FY 2021 was the long-awaited restoration of the Bogachiel section of the PNNST through Olympic 

National Park and Olympic National Forest. Due to poor conditions, agency trail crews had previously had difficulty 

reaching this remote section (partially located in the Daniel J. Evans Wilderness) and it went unmaintained for a 

decade. The dynamics of the temperate rainforest setting were evident in the number and size of trees that had fallen 

across the trail and places where its tread had been undercut or washed out by floods. In FY 2021, volunteers and 

PNTA Performance Trail Crews contributed 3,336 hours to restore more than 23 miles of trail. This section can once 

again provide access for hikers and equestrians to enjoy the scenic Bogachiel river valley and serve as a crucial 

connection for continuous travel on the PNNST from the Olympic Mountains to the Pacific Coast. This 

accomplishment was the culmination of a multi-year collaborative effort by the Forest Service, National Park 

Service, PNTA, Back Country Horsemen, and Washington Trails Association, 

Other notable accomplishments in FY 2021 include the realignment and construction of several sections of the 

PNNST in eastern and central Washington to eliminate five miles of road walking and improve the trail experience 

between Republic and Oroville. In the fire impacted Pasayten Wilderness, crews cleared fallen logs from across the 

trail, repaired tread, built 500 feet of new tread, and marked an improved route from Goodenough Peak to Horseshoe 

Basin. In western Washington, 25 volunteer sawyers cleared 84 trees that had fallen across the trail near Baker Lake. 

Along Swift Creek in the Mt. Baker Wilderness, crews performed logout, replaced three puncheons46, and built 50 

feet of new tread. 

Through a partnership with the Forest Service, a team of researchers from the University of Montana collected the 

fifth year of trail use monitoring data for sites along the PNNST in Montana and expanded monitoring to include 

three new sites in Idaho. The team also completed a multi-year effort to analyze existing geospatial data from the 

Forest Service and U.S. Fish and Wildlife Service, as well as GPS data collected for PNNST thru-hikers, identifying 

locations along the PNNST in the area of the Cabinet-Yaak Grizzly Bear Recovery Zone and eastern Selkirk Grizzly 

46 A puncheon is a wooden walkway used to cross areas with frequently saturated soils, small streams, or boulder fields. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Bear Recovery Zone in Montana and Idaho where there may be greater potential for human-grizzly bear 

interactions. Results were reported back to the federal agencies as well as interested stakeholders. 

The Forest Service made progress in recruiting volunteers to serve on the PNNST advisory council and in preparing 

the trail-wide comprehensive plan for the PNNST. The plan will be completed by December 31, 2023. The Forest 

Service continued to implement the Memorandum of Understanding (MOU) with the Kootenai Tribe of Idaho 

(KTOI). The KTOI is a Federally recognized Indian Tribal Government and is part of the Ktunaxa Nation that has 

inhabited Ktunaxa Territory since time immemorial. The KTOI possesses Treaty-reserved hunting, fishing, and 

gathering rights and exercises cultural and religious practices on National Forest System lands, including lands 

encompassing the PNNST. The MOU outlines roles and timeframes for regular communication and coordination 

between the Forest Service and KTOI, as well as two levels of Government-to-Government consultation regarding 

the PNNST. Implementation of the MOU fosters awareness and understanding of issues that concern the KTOI and 

provides opportunities for the parties to mutually identify possible solutions. 

Other National Scenic and Historic Trails 

The Forest Service coordinates management with other Federal public land agencies for an additional 15 NS&HTs 

totaling more than 6,700 miles. These trails include Appalachian, 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. 

Table FS-72. Funding for National Scenic and Historic Trails (thousands of dollars) 

Name 2021 

Trails 

Funding 

2021 

Salaries 

and 

Expenses 

2021 

Total 

2022 

Trails 

Funding 

2022 

Salaries 

and 

Expenses 

2022 

Total 

2023 

Trails 

Funding 

2023 

Salaries 

and 

Expenses 

2023 

Total 

Arizona $289 $223 $512 $445 $135 $580 $377 $135 $512 

Continental Divide 1,446 200 1,646 2,399 350 2,749 1,340 350 1,690 

Florida 1,079 238 1,317 1,753 247 2,000 1,070 247 1,317 

Nez Perce 50 258 308 635 190 825 430 190 620 

Pacific Crest 1,571 275 1,846 2,409 350 2,759 1,496 350 1,846 

Pacific Northwest 575 280 855 945 155 1,100 700 155 855 

All others 1,079 - 1,079 1,487 - 1,487 1,079 - 1,079 

Total 6,089 1,474 7,563 10,073 1,427 11,500 6,492 1,427 7,919 

Table FS-73. FY 2021 National Scenic and Historic Trails Accomplishments and Partner Contributions 

Name Volunteer 

Hours 

Volunteer Inkind 

Contributions 

Non-Cash 

Contributions 

Miles of Trail 

Maintained 

Miles of Trail 

Improved/ 

Constructed 

Acres 

Acquired 

Major 

Structures 

Constructed 

Arizona 18,753 $535,210 $135,119 126 30 - 6 

Continental Divide 30,228 862,707 - 1,750 27 - 5 

Florida 12,094 345,162 13,000 1,008 1 - 1 

Nez Perce 28,735 820,096 250,880 68 6 148 8 

Pacific Crest 52,051 1,485,536 70,729 1,245 9 - 1 

Pacific Northwest 5,804 165,646 124,570 377 7 - -

Total 147,665 4,214,357 594,298 4,574 80 148 21 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

OFFICE OF GENERAL COUNSEL REIMBURSEMENT 

Background 

This special exhibit is required by P.L. 110-161, page 121, Administrative Provisions, which directed: 

Notwithstanding any other provision of law, any appropriations or funds available to the Forest Service not 

to exceed $500,000 may be used to reimburse the Office of the General Counsel (OGC), Department of 

Agriculture, for travel and related expenses incurred as a result of OGC assistance or participation 

requested by the Forest Service at meetings, training sessions, management reviews, land purchase 

negotiations and similar non-litigation related matters. Future budget justifications for both the Forest 

Service and the Department of Agriculture should clearly display the sums previously transferred and the 

requested funding transfers. 

Overview 

The USDA Office of General Counsel bills the Forest Service quarterly for non-litigation travel and related costs. 

The table below reflects billings received to date. 

Table FS-74. Office of General Counsel Reimbursement FY 2020 through FY 2023 (dollars in thousands) 

FY 2020 Actual 

Reimbursement 

FY 2021 Planned 

Reimbursementa 

FY 2022 Planned 

Reimbursement 

FY 2023 Planned 

Reimbursement 

$93 - $5,000 $5,000 

a No costs incurred in FY 2021 due to the COVID-19 pandemic. 

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................................................................... 

....................................................... 

............................................................ 

........................................................... 

..................................................... 

..................................................... 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

PRESCRIBED FIRE 

Background 

This exhibit addresses the requirement from 2022 Senate report 117-000: 

The Service is directed to report in the annual budget submission on prescribed fire activities by region for 

the previous fiscal year. 

Overview 

Hazardous fuels treatments are the intentional removal or manipulation of flammable vegetation to reduce the spread 

or intensity of wildfires and includes the use of prescribed fire and other techniques such as mechanical thinning. A 

prescribed fire is a fire intentionally lit by forest managers to achieve desirable outcomes such as reducing wildfire 

risk to communities by removing excessive vegetation, improving wildlife habitat, recycling soil nutrients, and 

removal of dead or decadent47 vegetation to promote new plant growth. Prescribed fires are carefully planned and 

implemented to provide for a safe and controllable fire, while achieving the desired effects. Additional information 

about the Forest Service’s use of prescribed fire is available online.

48 

FY 2021 

In FY 2021, the Forest Service conducted the highest level of prescribed fire activity ever recorded; over 1.8 million 

acres of National Forest System lands were treated with prescribed fire, exceeding the 10-year average of 1.4 million 

acres and previous record of 1.6 million acres of prescribed fire. FY 2021 success can be attributed to favorable 

weather creating more opportunities for burning, and a coordinated, intentional, and national approach to mobilizing 

the agency’s workforce to take advantage of the favorable conditions for prescribed fire. In FY 2021, prescribed fire 

accounted for roughly half (49 percent) of all hazardous fuels accomplishments. The Regional breakout of FY 2021 

hazardous fuels and prescribed fire accomplishments are shown in Table FS-75. 

Successful prescribed fires require specific weather conditions, such as temperature, humidity, and wind. The 

Southern Region performs the most prescribed burns because it is generally snow-free throughout the year with 

intermittent drying between rain events, which offers many opportunities throughout the year to conduct prescribed 

fire. Because of the warm and moist conditions in the southeast, vegetation grows much faster and needs treatment 

about every three years to maintain fuels at a desirable level and avoid build-up. Alaskan forests, on the other hand, 

are mostly rainforests, thus even when snow-free, they receive over 100 inches per year in many places and the need 

or opportunity to conduct prescribed fire in the Alaska Region is less than other regions. The recent rise in spruce 

beetle activity causing the death of black spruce trees in and around the Chugach National Forest in Alaska may 

increase the need for fuels treatment and prescribed fire to mitigate wildfire risk to communities in future years. 

Table FS-75. Forest Service Hazardous Fuels Acres Accomplished in FY 2021. 

Region 

FY 2021 

Hazardous Fuels 

Accomplishments 

– All Methods 

(acres) 

FY 2021 

Prescribed Fire 

Accomplishments 

(acres)a 

FY 2021 

Hazardous Fuels 

Work 

Accomplished by 

Prescribed Fire 

(%) 

01 – Northern 90,684 24,062 27%

02 – Rocky Mountain 197,536 42,584 22%

03 – Southwestern 223,866 174,210 78%

04 – Intermountain 212,316 33,378 16%

05 – Pacific Southwest 179,866 45,501 25%

06 – Pacific Northwest 271,503 94,067 35%

08 – Southern 1,595,492 1,287,175 81%

47 A plant with a high proportion of dead to live biomass. 48 https://www.fs.usda.gov/managing-land/prescribed-fire 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

FY 2021 

FY 2021 Hazardous Fuels 

Hazardous Fuels FY 2021 Work 

Region Accomplishments Prescribed Fire Accomplished by 

– All Methods Accomplishments Prescribed Fire 

(acres) (acres)a (%) 

09 – Eastern...................................................................... 254,623 109,182 43% 

10 – Alaska ...................................................................... 2,035 53 3% 

Beneficial Wildfireb ......................................................... 642,867 - 0% 

Total, Hazardous Fuels Acres Accomplished .............. 3,670,788 1,810,212 49% 

a Data from Forest Service Activity Tracking System (FACTS) on 11/29/21; does not include brush disposal (burning debris from 

logging operations). 

b Acres of accomplishment resulting from naturally occurring wildfires. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

STEWARDSHIP CONTRACTING 

Background 

This exhibit addresses requirements of the Healthy Forests Restoration Act of 2003 (as amended, 16 U.S.C 6591c): 

The Forest Service shall report annually to the Committee on Agriculture, Nutrition, and Forestry of the 

Senate and the Committee on Agriculture of the House of Representatives on: 1) the status of development, 

execution, and administration of contracts under subsection (b); 2) the specific accomplishments that have 

resulted; and 3) the role of local communities in development of agreements or contract plans. 

Overview 

Stewardship contracts and agreements manage natural resources through implementation of ecosystem restoration 

projects. Stewardship contracts support new and emerging markets by using forest products removed through 

restoration activities, including woody biomass for energy and sustaining traditional markets. Stewardship 

contracting helps the Forest Service achieve land and resource management goals while promoting closer publicprivate working relationships by using the value of timber or other forest products to offset the cost of restoration 

activities. Stewardship contracting selection criteria include capability, use of local workforce, creation of jobs, and 

price. The intent is to create green jobs, promote a diverse forest products industry, and support sustainable 

communities and the forest contractor infrastructure needed to perform critical restoration work. 

If the offset value of timber or other forest products from stewardship sales exceeds the value of resource 

improvement treatments, those receipts are retained and deposited in the Stewardship Contracting Fund and are 

available, until expended, for other authorized stewardship projects. Stewardship contracts are awarded on a bestvalue basis and may be used for: 

• Maintaining or decommissioning roads and trails to restore or maintain water quality; 

• Improving soil productivity, habitat for wildlife and fisheries, or other resources; 

• Prescribed fires to improve the composition, structure, condition, and health of timber stands or wildlife 

habitat; 

• Removing vegetation or other activities to promote healthy forests, reduce fire hazards, or achieve other 

land management objectives; 

• Restoring and maintaining watersheds; and 

• Controlling noxious and invasive weeds and reestablishing native vegetation. 

The Consolidated Appropriations Act, 2018 (P.L. 115-141) amended the stewardship authority to increase 

agreements and contracts from 10 to 20 years in locations meeting certain conditions. The Act also allows the cost 

of cancellation ceilings to be allocated in economically viable stages, relieving the forest unit of a large obligation in 

a single (first) year. The agency has operationalized the 20-year stewardship contracting authority by extending the 

current executed agreements beyond 10 years and by entering into new 20-year stewardship agreements. Currently, 

the Forest Service has 19 agreements over 10 years in length. Some work and project development in other regions 

were also delayed due to the COVID-19 pandemic, while other regions continue to evaluate the use of this authority. 

The Washington Office is in the process of updating the stewardship directives to include guidance on the 

implementation of these new authorities. 

In FY 2021, the Forest Service continued to inform stakeholders about stewardship contracting through brochures, 

local field trips, and training opportunities. These efforts ensure a common understanding of stewardship contracting 

and facilitates its use in attaining land management goals while meeting local and rural community needs. To 

improve agency understanding and use of this authority, the Forest Service contracted to expand the national 

stewardship contracting and agreements training. In FY 2021, stewardship contracting training courses were 

conducted in a virtual platform to capitalize on the COVID-19 virtual environment. The Forest Service also 

developed a new, smaller structured stewardship agreement training focused on partner understanding and technical 

training. This training will give partners a better understanding of the processes and procedures used within the 

agency for the reporting and accounting of project accomplishments. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Specific Accomplishments 

Table FS-76 displays accomplishments between FY 2018 and FY 2021. In many cases, multiple land management 

objectives are met through a single treatment activity. For example, a hazardous fuels reduction treatment can also 

improve wildlife habitat. These accomplishments not only result in ecosystem benefits, but also in forest products 

for manufacturing and energy production and the creation of jobs contributing to sustainable communities. 

Table FS-76. Actual Stewardship Contracting Accomplishments (FY 2018 to FY 2021) 

Measure 2018 2019 2020 2021 

Acres of forest vegetation established................................................................... 

..................................................................... 

......................................... 

..................................................... 

........................................................ 

............................................................................ 

........................................... 

.............................. 

................................................................................................................. 

... 

......................................................................................... 

........................................................................................................ 

.................................................................... 

...................................................... 

3,591 3,624 4,678 2,715 

Acres of forest vegetation improved 24,938 33,269 21,759 12,692 

Acres of noxious weeds and invasive plant treatments 3,879 5,977 9,103 4,951 

Acres of wildlife habitat restored or improved 33,693 49,042 79,009 83,625 

Miles of stream habitat restored or enhanced 110 118 38 130 

Miles of roads decommissioned 14 2 12 -

Volume of timber sold (million board feet (MMBF)) 754 859 888 670 

Green tons of biomass made available for energy production 229,958 276,236 161,379 87,271 

Acres of hazardous fuels treated to reduce the risk of catastrophic fires (nonWUI) 31,695 49,574 46,360 52,573 

Acres of wildland-urban interface (WUI) high-priority hazardous fuels treated 163,332 83,784 34,984 245,468 

Stewardship contracts and agreements contributing to watersheds in fully 

functioning condition 5 2 - 1 

Table FS-77 shows the acres awarded, number of contracts or agreements awarded, and volume awarded from FY 

2018 to FY 2021. The number of contracts or agreements awarded includes those where forest products are 

exchanged for service activities as well as those where excess stewardship contracting funds are used for activities 

without the exchange of forest products. 

Table FS-77. Acres Awarded, Number of Contract or Agreements Awarded, and Volume Awarded 

Measure 2018 2019 2020 2021 

Acres Awarded 161,947 129,710 70,930 165,448 

Number of Contracts and Agreements 266 150 156 141 

Volume Awarded (thousand board feet (MBF)) 793,374 859,060 888,000 670,399 

Local Communities 

Collaboration with local communities, from development through implementation and monitoring, is a key 

component of successful stewardship contracting and provides a sense of community ownership in the project, a 

better understanding by communities of natural resource issues, and increased public support. Collaboration also 

allows the Forest Service to tailor stewardship offerings that address local issues, needs, and capabilities. In FY 

2021, the agency issued its new policy manual on stewardship contracting and agreements. This new manual will lay 

the foundation for the successful implementation of the stewardship authorities. The corresponding handbook 

guiding the implementation is under development. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

UNLIQUIDATED OBLIGATIONS 

Background 

This exhibit is included to provide a display of Forest Service unliquidated obligation (ULO) balances. 

Overview 

Unliquidated obligations are defined as the balance remaining from orders placed, contract and other binding 

agreements awarded, or services rendered after making any payments or processing de-obligations. The following 

table contains the status of Forest Service unliquidated obligation balances in prior fiscal years for appropriated 

funds (regular and emergency) as of September 30, 2021. 

Table FS-78. Forest Service Status of ULO Balances in Prior Fiscal Years as of September 30, 2021 (thousands of 

dollars) 

Item FY 2018 

and Prior FY 2019 FY 2020 FY 2021 Total 

Forest Service Operations: 

Salaries and Expenses ................................................. 

.............................. 

.............................................. 

............................................... 

.............................. 

................................................. 

.................................. 

..................................... 

....................................................... 

........................................................ 

............................................................ 

..................... 

......................................................... 

..................... 

................................................. 

....................................... 

.................................................. 

........................................... 

................................................. 

............................................... 

...... 

.................................. 

........... 

........................................... 

................................... 

.............................. 

......................................................... 

- - - $39,425 $39,425 

Facilities Maintenance and Leases - - - 38,909 38,909 

Information Technology - - $7,009 143,952 150,961 

Organizational Services - - - 51,465 51,465 

Total, Forest Service Operations - - 7,009 273,751 280,760 

Forest and Rangeland Research: 

Salaries and Expenses - - - 11,032 11,032 

Forest and Rangeland Research $7,563 $13,201 35,839 30,551 87,154 

Forest Inventory and Analysis 568 1,915 10,399 14,960 27,842 

National Fire Plan 182 - - - 182 

Joint Fire Science 300 1,718 2,539 3,000 7,557 

Forest Products 66 - - - 66 

Forest and Rangeland Research – Other 319 393 829 - 1,541 

Disaster Funding - 426 2,014 - 2,440 

Total, Forest and Rangeland Research 8,998 17,653 51,620 59,543 137,814 

State and Private Forestry: 

Salaries and Expenses - - - 2,782 2,782 

Landscape Scale Restoration 9,848 9,514 11,807 12,982 44,151 

FHM - Federal Lands 3,249 3,566 8,048 8,699 23,562 

FHM - Cooperative Lands 7,530 8,937 19,976 26,905 63,348 

Working Forest Lands 4,235 5,133 8,437 10,270 28,075 

Forest Legacy Program 38,091 42,535 37,377 - 118,003 

Community Forest and Open Space Conservation 327 1,478 1,677 3,964 7,446 

Urban and Community Forestry 6,736 9,813 17,521 31,209 65,279 

International Programs and Trade Compliance 1,739 1,087 3,980 11,933 18,739 

State Fire Capacity Grants 20,365 37,284 56,469 71,821 185,939 

Volunteer Fire Capacity Grants 1,481 4,947 11,899 19,000 37,327 

State and Private Forestry – Other 2,336 1,744 1,147 - 5,227 

Disaster Funding 1,972 6,477 - - 8,449 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

FY 2018 Item and Prior FY 2019 FY 2020 FY 2021 Total 

Total, State and Private Forestry .............................. 97,909 132,515 178,338 199,565 608,327 

National Forest System: 

Salaries and Expenses ................................................. - - - 80,311 80,311 

Integrated Resource Restoration Pilot......................... 4,587 - - - 4,587 

Collaborative Forest Landscape Restoration............... 4,644 2,464 7,441 9,212 23,761 

Land Management Planning, Assessment and 

Monitoring................................................................ 2,952 5,112 14,851 11,879 34,794 

Hazardous Fuels.......................................................... 28,288 41,400 84,373 128,973 283,034 

Recreation, Heritage, and Wilderness ......................... 5,408 5,271 14,960 14,048 39,687 

Wildlife and Fisheries Habitat Management............... 2,816 3,646 7,052 11,392 24,906 

Grazing Management .................................................. 745 812 2,317 1,934 5,808 

Forest Products............................................................ 9,229 8,881 15,075 13,743 46,928 

Vegetation and Watershed Management.................... 

4,585 7,395 18,329 19,654 49,963 

Minerals and Geology Management ........................... 2,716 2,730 5,346 8,456 19,248 

Land Use Authorization and Access ........................... 1,105 1,972 3,174 3,419 9,670 

Law Enforcement Operations...................................... 1,348 1,428 4,339 5,367 12,482 

National Forest System – Other .................................. 3,785 4,360 9,202 - 17,347 

Disaster Funding ......................................................... 3,583 5,352 9,560 - 18,495 

Total, National Forest System .................................. 75,791 90,823 196,019 308,388 671,021 

Capital Improvement and Maintenance: 

Facilities ...................................................................... 7,381 10,903 31,460 36,252 85,996 

Roads........................................................................... 3,863 5,292 18,185 32,670 60,010 

Trails ........................................................................... 3,254 2,184 4,675 8,425 18,538 

Deferred Maintenance and Infrastructure 

Improvement ............................................................ 507 - - - 507 

Legacy Roads and Trails............................................. 775 - - - 775 

Capital Improvement and Maintenance, Other ........... 910 795 1,679 - 3,384 

Disaster Funding ......................................................... 11,008 2,995 15,486 - 29,489 

Total, Capital Improvement and Maintenance ......... 27,698 22,169 71,485 77,347 198,699 

Land Acquisition: 

Land Acquisition......................................................... 3,788 2,129 2,595 - 8,512 

Acquisition of Land for National Forest Special Acts 66 149 - 450 665 

Acquisition of Lands to Complete Land Exchanges ... 86 - - - 86 

Total, Land Acquisition............................................ 3,940 2,278 2,595 450 9,263 

Other Appropriations: 

Range Betterment Fund............................................... 121 182 225 93 621 

Management of National Forest Lands for 

Subsistence Uses ...................................................... 45 267 304 804 1,420 

Total, Other Appropriations ..................................... 166 449 529 897 2,041 

Wildland Fire Management: 

Salaries and Expenses ................................................. - - 0 54,947 54,947 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

FY 2018 Item and Prior FY 2019 FY 2020 FY 2021 Total 

Preparedness................................................................ 

................................................................. 

.......................................................... 

................................................ 

..................................................... 

............................ 

......................................................... 

........................... 

.................................................... 

40,405 16,823 49,062 24,188 130,478 

Suppression 12,957 1,092 16,807 589,916 620,772 

Hazardous Fuels 26,407 - - - 26,407 

National Fire Capacity 14,014 - - - 14,014 

Rural Fire Capacity 923 - - - 923 

Wildland Fire Management – Other 2,410 3,450 5,440 367 11,667 

Disaster Funding - - 1,878 - 1,878 

Total, Wildland Fire Management 97,116 21,365 73,187 669,418 861,086 

Total, Forest Service 311,618 287,252 573,773 1,315,608 2,769,011 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

USDA WORKING CAPITAL FUND, DEPARTMENTAL SHARED COST PROGRAMS, AND E-GOVERNMENT 

Background 

This exhibit is included to provide a four-year summary of USDA Working Capital Fund (WCF) and USDA Shared 

Cost Programs actual and estimated fees to the Forest Service for centralized services, as well as actual and 

estimated charges to the Forest Service that contribute to E-Government initiatives. 

USDA Working Capital Fund 

Overview 

The USDA WCF (7 U.S.C. 2235) provides services that the Secretary, with the approval of the Director of the 

Office of Management and Budget, determines are performed more effectively as central services rather than as 

separate services within USDA agencies. The USDA WCF is used to finance services to USDA and non-USDA49 

agencies on a centralized, fee-for-service basis. The USDA WCF does not receive appropriated funds; all costs are 

reimbursed in full. The USDA WCF finances activity centers under five functional categories: Administration, 

Communications, Financial Management, Information Technology, and Correspondence Management. 

Pursuant to the terms contained in general provisions in annual appropriations to USDA, agency administrators must 

authorize billings to their agency for these services. Therefore, the Chief of the Forest Service (or a duly appointed 

representative) must sign an agreement at the beginning of the fiscal year authorizing billing for services provided 

and supply the appropriate accounting data. 

The Forest Service acts as one of the overseers in the review of cost estimates for the National Finance Center 

through its participation in the WCF Executive Committee, a body comprised of representatives from various USDA 

agencies. The Executive Committee is charged with making budget recommendations and advising the 

Department’s Chief Financial Officer as to the financial effectiveness of the WCF. The Forest Service works with 

the Department’s Chief Financial Officer to review activities included in the Greenbook/Shared Cost Programs and

the basis for any costs attributed to the Forest Service. 

Table FS-79. Forest Service actual and estimated fees made to the USDA WCF between FY 2020 and FY 2023 

(thousands of dollars) 

Item 2020 

Actual 

2021 

Actual 

2022 

Estimated 

2023 

Estimated 

Administration: 

Materiel Management Service Center.................................... $928 $780 $792 $798 

Mail and Reproduction Services ............................................ 820 628 574 573 

Integrated Procurement Systems ............................................ 8,235 8,611 8,637 8,583 

Human Resources Enterprise System Management............... 1,154 1,126 1,064 1,097 

Procurement Operations Division .......................................... 126 123 79 84 

Subtotal, Administrative Services ....................................... 11,263 11,268 11,146 11,135 

Communications: 

Creative Media and Broadcast Center.................................... 496 229 449 556 

Financial Management: 

National Finance Center......................................................... 8,116 8,456 8,550 8,655 

Financial Shared Services ...................................................... 47,085 45,840 45,636 47,493 

Internal Control Support Services .......................................... 489 394 382 281 

Subtotal, Finance and Management .................................... 55,690 54,690 54,568 56,429 

Information Technology: 

Digital Infrastructure Services Center.................................... 41,791 37,918 35,206 34,799 

49 Services to non-USDA agencies help reduce USDA’s share of fixed costs for WCF-supported services. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

2020 2021 2022 2023 

Actual Actual Estimated Estimated Item 

Department Administration Information Technology Office. - 1,214 12 12 

Client Experience Center ....................................................... 23,159 50,796 55,530 55,633 

Enterprise Network Services.................................................. 16,940 15,069 16,292 15,243 

Subtotal, Information Technology....................................... 81,890 104,997 107,040 105,687 

Correspondence Management: 

Office of the Executive Secretariat ........................................ 509 318 401 401 

Total, Working Capital Fund................................................. 149,848 171,502 173,604 174,208 

USDA WCF Centralized Services 

Administration 

USDA WCF Administration activities are managed under the Assistant Secretary for Administration and includes 

the following: 

Materiel Management Service Center provides on-demand forms and publications acquisition, management, 

warehousing, and distribution; excess personal property accountability, reuse, sales, and disposal; and office and 

general supply acquisition, receipt and shipment of parcels, warehousing, and sales. 

Mail and Reproduction Services is responsible for managing and directing centralized printing and copier systems; 

mailing list systems; packagei delivery and chauffeur services; and staff support systems related to financial 

management, program analysis, and administration. 

Integrated Procurement Systems provides modernized and integrated Department-wide procurement automation 

tools and systems. 

Human Resources Enterprise System Management provides modernized, cost-effective, and standardized 

Department-wide human resource solutions that support the strategic management of human capital. 

Procurement Operations Division provides a variety of contracting support services to USDA agencies. 

Communications 

USDA WCF Communications includes the Creative Media and Broadcast Center, which provides creative design, 

radio and video production studios, and multimedia development and maintenance to USDA agencies. 

Financial Management 

USDA WCF Financial Management is managed by USDAs Office of the Chief Financial Officer and includes the 

following: 

National Finance Center processes payroll for Federal employees and provides payroll-related data management and 

reconciliation for Office of Personnel Management government programs mostly related to employee health benefits 

and insurance. 

Financial Shared Services administers financial management applications to USDA agencies and is responsible for 

providing accounting services, administrative payments processing and disbursement certification, 

intragovernmental payment and collection reconciliation, Treasury fund balances, and Treasury reporting 

Internal Control Support Services provides services to USDA agencies related to internal control compliance efforts, 

such as annual financial reporting, efficiencies to administrative and financial processes, and information 

technology. 

Financial Management Support Services administers financial management, including fiscal reporting and budget 

execution, to USDA WCF activity centers and staff offices. 

199 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Information Technology 

USDA WCF Information Technology is managed by USDAs Office of the Chief Information Officer and includes 

the following: 

Digital Infrastructure Services Center provides hosting services, workforce development services, program 

management and software engineering, and telecommunications management for USDA agencies and non-USDA 

customers. 

Department Administration Information Technology Office provides centrally managed information technology 

solutions to USDA administrative and staff offices that adhere to functionality, accessibility, and compliance 

requirements of governing bodies and end-users. 

Client Experience Center provides Department-wide fee-for-service activities related to information technology 

operations, security, and technical support services. 

Enterprise Network Services provides Department-wide management, support, and compliance related to 

telecommunications services. 

Correspondence Management 

USDA WCF Correspondence Management includes the Office of the Executive Secretariat, which manages the 

official correspondence and records of the Office of the Secretary, provides departmental records management, 

establishes departmental directives, and assists the Office of the Secretary with special projects. 

Departmental Shared Cost Programs 

Overview 

Shared cost agreements may be entered into under the authority of 7 U.S.C. 2263. This language authorizes the 

USDA to transfer funds from USDA agencies to pay for department-wide initiatives that benefit multiple USDA 

agencies. Forest Service shared cost transfers between FY 2020 and FY 2021, and estimated transfers between FY 

2022 and FY 2023, are detailed in Table FS-79 below. 

Table FS-80. Forest Service transfers to USDA shared cost programs for FY 2020 through FY 2023 

(thousands of dollars) 

2020 

Actual 

2021 

Actual 

2022 

Estimated 

2023 

Estimated Item 

Advisory Committee Liaison Services...................................... 

................................................... 

........................................................................... 

............................... 

................................

....................................................................... 

.......................... 

................................................. 

............................................ 

....................................................................... 

.......................................................................... 

................................................................... 

....................................................................... 

............................... 

................. 

$189 $267 $302 $302 

Agency Partnership Outreach 2,312 2,071 2,330 2,330 

Honor Awards 3 2 3 3 

Human Resources Self-Service Dashboard 181 - - -

Intertribal Technical Assistance Network . 962 1,022 1,079 1,079 

Medical Services 24 126 143 143 

National Capital Region Interpreting Services - 75 60 75 

Office of Customer Experience 1,729 2,901 2,763 2,763 

Personnel and Document Security 520 640 670 670 

Physical Security 1,764 1,287 1,339 1,364 

Security Detail 1,394 1,385 1,432 1,444 

Security Operations 1,758 1,944 1,941 1,941 

TARGET Center 342 356 419 421 

USDA Enterprise Data Analytics Services 2,442 1,631 1,406 1,406 

Total, Department-Wide Shared Cost Programs 13,620 13,707 13,887 13,941 

200 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Shared Cost Programs 

Advisory Committee Liaison Services is managed by the USDAs Office of the Secretary and provides guidance and 

direction to USDA agencies on Advisory Committees and Boards. Costs to support this function and 

screening/selection of members are reimbursed from agencies to the Office of the Secretary. 

Agency Partnership Outreach is managed by the USDAs Office of Partnerships and Public Engagement and 

supports multiple USDA partnership and outreach activities that benefit rural and underserved communities. 

Honor Awards are sponsored by USDA’s Secretary and are USDA’s most prestigious honor, with a 70-year history 

of recognizing the Department’s greatest accomplishments.

Human Resources Self-Service Dashboard served50 as a single sign-on portal for multiple USDA human resources 

systems; and included an interface for calculating retirement benefits for USDA employees. 

Intertribal Technical Assistance Network provides technical assistance and program access – in coordination with 

the Department of the Interior and Bureau of Indian Affairs – to American Indian and Alaskan Native tribal 

governments. 

Medical Services provides preventative health measures (flu shots, health screening, nutritional principles, and 

fitness awareness) for USDA employees and contractors in the National Capital Region. 

Office of Customer Experience is a Department-wide program targeted toward increasing efficiencies in customerfacing processes; simplifying the public’s access to USDA programs; and developing and improving practices that 

contribute to increased USDA employee accessibility, responsiveness, professionalism, and expertise to the public. 

Personnel and Document Security51 is responsible for the protection of classified national security information by 

providing security clearance, training, policies, and guidance for USDA personnel. 

Physical Security includes physical security, identity, credentialing, and access management. 

Security Detail provides funding for the Secretary of Agriculture. 

Security Operations provides Continuity of Operations Planning (COOP), training, and reenactment exercises to 

ensure USDA agencies can continue to provide critical essential functions during emergency situations. 

Technology and Accessible Resources Give Employment Today (TARGET) Center provides services related to 

improving the accessibility and experience of individuals with disabilities. 

USDA Enterprise Data Analytics Services provides access to data-driven, fact-based, customer-focused information 

that supports several administrative areas, including finance, human resources, information technology, 

procurement, property, fleet operations, and homeland security. 

USDA E-Government (E-Gov) 

Overview 

The E-Government Act of 2002 (Public Law 107-347), signed into law December 17, 2002, established the Office 

of Electronic Government within the Office of Management and Budget; established a Chief Information Officers 

50 Starting in FY 2021, the Human Resources Self-Service Dashboard no longer receives Departmental Shared Cost Program 

funding. 

51 The Personnel Security and Classified National Security Information programs were consolidated into the Personnel and 

Document Security program in FY 2018. 

201 
 

 

 

 

 

 

 

 

 

 

 

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...............................

...................................................

..............................................................................

.........................................................

.......................................

......................................

.........................................................................

............... 

........... 

... 

... 

... 

... 

... 

... 

... 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Council52; established an E-Government Fund53; and included provisions requiring the use of “Internet-based 

information technology to enhance citizen access to Government information and services, and for other purposes.”

Table FS-81. Forest Service contributions to E-Gov initiatives for FY 2020 through FY 2023 (thousands of 

dollars) 

Item 2020 

Actual 

2021 

Actual 

2022 

Estimated 

2023 

Estimated 

Budget Formulation and Execution Line of Business $30 $39 $37 $37 

E-Rulemaking 9 36 51 53 

Financial Management Line of Business 100 87 85 85 

Geospatial Line of Business 12 12 12 12 

Grants.gov 5 8 11 13 

Hiring Assessment Tool - - 72 72 

Human Resources Line of Business 90 92 90 90 

Integrated Acquisition Environment 573 623 193 193 

Total, E-Gov 819 897 551 555 

USDA E-Gov Initiatives 

USDA E-Gov initiatives, managed by the USDAs Office of the Chief Information Officer, provide efficient, costeffective electronic services and resources to USDA customers, partners, and personnel. 

Budget Formulation and Execution Line of Business (LoB) collaborates with partner agencies on best practices for 

Federal budgeting (budget formulation, budget execution, and workforce planning). 

E-Rulemaking is managed by the General Services Administration under the Program Management Office and is 

responsible for maintaining the Regulations.gov54 web site; a resource that provides regulatory materials to the 

public and promotes participation in the legislative process. 

Financial Management LoB provides financial management standards, requirements, tools, and services in support 

of USDAs financial activities. 

Geospatial LoB provides geospatial-related services, applications, data, hardware, and software to agencies and 

partners to achieve mission goals. 

Grants.gov manages the Grants.gov55 web site; a resource that publishes grant opportunities and application 

packages and provides forms and resources for applying for grants. 

Hiring Assessment Tool provides resources designed to recruit and acquire talent to the Federal governments using 

various strategies. 

Human Resource Management LoB is responsible for managing employee human resource information. 

Integrated Acquisition Environment offers services related to the Federal acquisition process and manages several 

acquisition systems. 

52 The Chief Information Officers Council is responsible for “improving agency practices related to the design, acquisition,

development, modernization, use, operation, sharing, and performance of Federal Government information resources” (Public

Law 107-347 § 3603(d)). 53 The E-Government Fund is administered by the General Services Administration and is used to fund initiatives and lines of 

business that utilize the Internet and other electronic methods for delivering information and resources electronically to the 

public. 54 https://www.regulations.gov/ 55 https://www.grants.gov/ 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

APPENDICES 

NATIONAL PARKS AND PUBLIC LAND LEGACY RESTORATION FUND 

The Great American Outdoors Act (GAOA) (P.L. 116-152), enacted in 2020, allows the Forest Service to repair and 

upgrade vital infrastructure and facilities in the national forests and grasslands through the National Parks and Public 

Land Legacy Restoration Fund. 

In FY 2023, the Forest Service proposes $285 million for the National Parks and Public Land Legacy Restoration 

Fund. These levels are subject to a 5.7 percent sequestration rate, and this is reflected in the tables below. The FY 

2022 sequestration pop-up (payback), once returned, will act as the FY 2023 contingency fund. The Forest Service 

has developed the projects in accordance with GAOA requirements and Administration guidance. The full project 

information, including the project descriptions, will be transmitted to Congress concurrently with the FY 2023 

Budget request. This project list may differ from that provided in an enacted appropriations bill. 

Table FS-82. Fiscal Year 2023 National Parks and Public Lands Restoration Fund – Proposed Projects 

Item 

No. Region Unit Project Title State 

Congressional 

District Asset Type 

Funding 

Request 

1 R&D Research and 

Development 

Stations 

Research and 

Development 

Deferred 

Maintenance 

AK, CA, 

CO, 

GA, 

MN, 

MT, 

NC, 

PR, 

UT, 

WA, 

WI 

AK-At Large, 

CA-32, CO02, GA-10, 

MN-04, MTAt Large, NC11, PR-At 

Large, UT-01, 

WA-10, WI02, WI-07 

Admin Facility, 

Research Facility, 

Water/Wastewate 

r System 

$12,686,500 

2 01 BeaverheadDeerlodge National 

Forest 

Beaverhead-Deerlodge 

National Forest 

Deferred 

Maintenance 

MT MT-At Large Recreation Site, 

Road, Trail, 

Wastewater 

System 

1,441,000 

3 01 Bitterroot National 

Forest 

Bitterroot National 

Forest Deferred 

Maintenance 

ID, MT ID-01, MT-At 

Large 

Road, Recreation 

Site, Water 

System 

1,105,000 

4 01 Custer Gallatin 

National Forest 

Custer Gallatin 

National Forest 

Deferred 

Maintenance 

MT MT-At Large Road, Road Bridge, 

Trail, Admin 

Facility, 

Recreation Site 

4,030,300 

5 01 Dakota Prairie 

Grasslands 

Dakota Prairie 

Grasslands Deferred 

Maintenance 

ND, SD ND-At Large, 

SD-At Large 

Road, Trail, 

Recreation Site 374,000 

6 01 Flathead National 

Forest 

Flathead National 

Forest Deferred 

Maintenance 

MT MT-At Large Road, Trail, Road 

Bridge, Trail 

Bridge, 

Water/Wastewate 

r System, 

Recreation Site 

2,208,800 

7 01 Helena-Lewis and 

Clark National 

Forest 

Helena-Lewis and 

Clark National Forest 

Deferred 

Maintenance 

MT MT-At Large Road, Trail, Trail 

Bridge, 

Recreation Site 

5,020,000 

203 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 

No. Region Unit Project Title State 

Congressional 

District Asset Type 

Funding 

Request 

8 01 Idaho Panhandle 

National Forest 

Idaho Panhandle 

National Forests 

Deferred 

Maintenance 

ID ID-01 Trail, Trail Bridge, 

Trail Tunnel 6,369,000 

9 01 Kootenai National 

Forest 

Kootenai National 

Forest Deferred 

Maintenance 

MT MT-At Large Recreation Site, 

Trail, 

Water/Wastewate 

r System, Road 

1,784,000 

10 01 Lolo National Forest Lolo National Forest 

Deferred 

Maintenance 

MT MT-At Large Road, Road Bridge, 

Recreation Site, 

Water System, 

Tunnel, Trail, 

Trail Bridge 

2,255,000 

11 01 Nez Perce-Clearwater 

National Forests 

Nez Perce-Clearwater 

National Forests 

Deferred 

Maintenance 

ID ID-01 Trail, Trail Bridge, 

Recreation Site, 

Road 

4,215,100 

12 02 Arapaho and 

Roosevelt National 

Forests and Pawnee 

National Grassland 

Arapaho and Roosevelt 

National Forests and 

Pawnee National 

Grassland Deferred 

Maintenance 

CO CO-02, CO-04 Road, Trail, Trail 

Bridge, 

Recreation Site, 

Water System 

4,764,300 

13 02 Bighorn National 

Forest 

Bighorn National 

Forest Deferred 

Maintenance 

WY WY-At Large Road, Trail, Road 

Bridge, 

Recreation Site, 

Water System 

2,832,100 

14 02 Black Hills National 

Forest 

Black Hills National 

Forest Deferred 

Maintenance 

SD SD-At Large Dam, Road, Road 

Bridge, 

Recreation Site, 

Water/Wastewate 

r System 

3,981,400 

15 02 Grand Mesa, 

Uncompahgre, and 

Gunnison National 

Forests 

Grand Mesa, 

Uncompahgre, and 

Gunnison National 

Forest Deferred 

Maintenance 

CO CO-03 Trail, Road, 

Recreation Site, 

Trail Bridge 

3,825,800 

16 02 Medicine Bow-Routt 

National Forest 

Medicine Bow-Routt 

National Forest 

Deferred 

Maintenance 

CO CO-02, CO-03, 

WY-At Large 

Recreation Site, 

Road 572,500 

17 02 Pike-San Isabel 

National Forests 

and Cimarron and 

Comanche National 

Grasslands 

Pike-San Isabel 

National Forests and 

Cimarron and 

Comanche National 

Grasslands 

CO CO-02, CO-03, 

CO-05 

Trail, Recreation 

Site, Water 

System 

867,000 

18 02 Rio Grande National 

Forest 

Rio Grande National 

Forest Deferred 

Maintenance 

CO CO-03 Recreation Site, 

Water System, 

Admin Facility 

313,000 

19 02 Shoshone National 

Forest 

Shoshone First Forest 

and Facility 

Maintenance 

WY WY-At Large Recreation Site 

334,000 

204 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 

No. Region Unit Project Title State 

Congressional 

District Asset Type 

Funding 

Request 

20 02 White River National 

Forest 

White River National 

Forest Deferred 

Maintenance 

CO CO-02, CO-03 Recreation Site, 

Admin Facility, 

Trail, Trail 

Bridge, 

Water/Wastewate 

r System 

6,792,000 

21 03 Apache-Sitgreaves 

National Forests 

Forest-Wide Developed 

Recreation Site 

Renovation 

AZ AZ-01 Recreation Site 

650,000 

22 03 Carson National 

Forest 

Carson National Forest 

Deferred 

Maintenance 

NM NM-03 Road, Dam, Trail, 

Recreation Site, 

Wastewater 

System 

3,087,100 

23 03 Cibola National 

Forest 

Sandia Crest Recreation 

Complex Design and 

Construction 

NM NM-01 Recreation Site, 

Road 1,601,500 

24 03 Coconino National 

Forest 

Coconino National 

Forest Deferred 

Maintenance 

AZ AZ-01 Recreation Site, 

Trail 870,000 

25 03 Coronado National 

Forest 

Coronado National 

Forest Deferred 

Maintenance 

AZ AZ-01, AZ-02, 

AZ-03 

Road, Road Bridge, 

Trail, Recreation 

Site 

2,473,000 

26 03 Gila National Forest Gila National Forest 

Deferred 

Maintenance 

NM NM-02 Road, Road Bridge, 

Recreation Site, 

Trail, Trail Bridge 

5,640,000 

27 03 Kaibab National 

Forest 

Road 307 and Road 310 

Improvements and 

Parking Lot 

Reconstruction 

AZ AZ-01 Road 

578,000 

28 03 Lincoln National 

Forest 

Cedar Creek Trail 

Access Capital 

Improvement 

NM NM-02 Recreation Site, 

Trail, Trail Bridge 175,000 

29 03 Prescott National 

Forest 

Trails Deferred 

Maintenance 

AZ AZ-04 Trail 

225,000 

30 03 Santa Fe National 

Forest 

Santa Fe National 

Forest Deferred 

Maintenance 

NM NM-03 Road, Trail, 

Recreation Site, 

Water/Wastewate 

r System 

8,193,000 

31 03 Southwestern Region Arizona National 

Scenic Trail (AZT) 

Deferred 

Maintenance 

AZ AZ-01, AZ-02, 

AZ-03, AZ-04 

Trail, Recreation 

Site 360,000 

32 03 Tonto National Forest Retrofitting Four 

Composting toilets to 

Vault toilets 

AZ AZ-01 Recreation Site, 

Water/Wastewate 

r System 

130,000 

33 04 Ashley National 

Forest 

Ashley National Forest 

Deferred 

Maintenance 

UT, WY UT-01, WY-At 

Large 

Recreation Site, 

Road, Admin 

Facility, 

Water/Wastewate 

r System 

1,743,000 

34 04 Boise National Forest Boise National Forest 

Deferred 

Maintenance 

ID ID-01, ID-02 Recreation Site, 

Road, Water 

System 

1,659,000 

205 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 

No. Region Unit Project Title State 

Congressional 

District Asset Type 

Funding 

Request 

35 04 Bridger-Teton 

National Forest 

Bridger-Teton National 

Forest Deferred 

Maintenance 

WY WY-At Large Recreation Site, 

Road 788,000 

36 04 Caribou-Targhee 

National Forest 

Caribou-Targhee 

National Forest 

Deferred 

Maintenance 

ID, WY ID-02, WY-At 

Large 

Recreation Site, 

Trail, Trail 

Bridge, Water 

System 

2,082,000 

37 04 Dixie National Forest Duck Creek 

Campground 

Deferred 

Maintenance 

Reduction 

UT UT-02 Facility-Recreation, 

Recreation Site, 

Road, Trail, 

Water System, 

Wastewater 

System 

1,578,500 

38 04 Fishlake National 

Forest 

Fishlake National 

Forest Deferred 

Maintenance 

UT UT-02 Road, Recreation 

Site, Trail, 

Wastewater 

System 

4,171,200 

39 04 Humboldt-Toiyabe 

National Forest 

Humboldt-Toiyabe 

National Forest 

Deferred 

Maintenance 

CA, NV CA-01, CA-04, 

CA-08, NV02, NV-03 

Road, Trail, Trail 

Bridge 1,515,000 

40 04 Manti-La Sal 

National Forest 

Manti-La Sal National 

Forest Deferred 

Maintenance 

UT UT-03 Road, Trail, 

Recreation Site, 

Road Bridge, 

Water System 

1,123,700 

41 04 Payette National 

Forest 

Payette National Forest 

Deferred 

Maintenance 

ID ID-01 Road, Trail, 

Recreation Site, 

Admin Facility, 

Water/Wastewate 

r System 

1,174,000 

42 04 Salmon-Challis 

National Forest 

Salmon-Challis 

National Forest 

Deferred 

Maintenance 

ID ID-02 Road, Trail, Trail 

Bridge 1,169,300 

43 04 Sawtooth National 

Forest 

Sawtooth National 

Forest Deferred 

Maintenance 

ID ID-02 Road Bridge, Trail, 

Trail Bridge, 

Recreation Site, 

Fire Facility 

708,800 

44 04 Uinta-Wasatch-Cache 

National Forest 

Uinta-Wasatch-Cache 

National Forest 

Deferred 

Maintenance 

UT UT-03 Recreation Site, 

Road, Trail, 

Water/Wastewate 

r System 

4,841,800 

45 05 Angeles National 

Forest 

Angeles National 

Forest Deferred 

Maintenance 

CA CA-25, CA-26, 

CA-27 

Recreation Site, 

Trail, Road, 

Admin Facility, 

Fire Facility, 

Water/Wastewate 

r System 

1,750,000 

46 05 Eldorado National 

Forest 

Eldorado National 

Forest Deferred 

Maintenance 

CA CA-04 Road, Recreation 

Site, Nursery 

System 

3,570,000 

206 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 

No. Region Unit Project Title State 

Congressional 

District Asset Type 

Funding 

Request 

47 05 Inyo National Forest Inyo National Forest 

Deferred 

Maintenance 

CA CA-04, CA-08, 

CA-23 

Road, Recreation 

Site, Trail, Trail 

Bridge, 

Water/Wastewate 

r System 

13,840,30 

0 

48 05 Klamath National 

Forest, Six Rivers 

National Forest 

Northern California 

Wilderness Trails 

Priority Area 

Maintenance 

CA CA-02 Trail, Trail Bridge 

169,000 

49 05 Lake Tahoe Basin 

Management Unit 

Bayview Parking Lot 

Upgrades 

CA CA-02 Facility -

Recreation 400,000 

50 05 Lassen National 

Forest 

Recreation Deferred 

Maintenance 

CA CA-01 Recreation Site 

555,600 

51 05 Mendocino National 

Forest 

Critical Forest-Wide 

Roof Replacement 

CA CA-01, CA-02 Facility, Recreation 

Site 122,000 

52 05 Modoc National 

Forest 

Blue Lake Recreation 

Improvements 

CA CA-01 Road, Facility -

Recreation, 

Recreation Site, 

Trail 

2,550,000 

53 05 Plumas National 

Forest 

Plumas Fire Detection 

and Rec Lookout DM 

Upgrades 

CA CA-01 Facility, Facility -

Fire, FacilityRecreation, 

Wastewater 

System 

531,000 

54 05 San Bernardino 

National Forest 

Recreation Sites Water 

System 

Improvements 

CA CA-08, CA-36 Water System 

101,000 

55 05 Sierra National Forest Sierra National Forest 

Deferred 

Maintenance 

CA CA-04 Road, Road Bridge, 

Recreation Site 8,619,300 

56 05 Tahoe National 

Forest 

Tahoe Public Service 

Center and Hotshot 

Facilities 

Modernization 

CA CA-01 Facility 

1,400,000 

57 06 Columbia River 

Gorge National 

Scenic Area 

Columbia River Gorge 

National Scenic Area 

Deferred 

Maintenance 

WA WA-03, WA-04 Road, Road Bridge, 

Recreation Site, 

Trail 

565,000 

58 06 Colville National 

Forest 

Colville National Forest 

Deferred 

Maintenance 

WA WA-05 Recreation Site, 

Trail, Trail 

Bridge, 

Water/Wastewate 

r System 

1,705,000 

59 06 Deschutes National 

Forest 

Forest-Wide Trail 

Bridge 

Reconstruction 

OR OR-02 Trail Bridge 

130,000 

60 06 Fremont-Winema 

National Forest 

Oregon Timber Trail 

Access Improvements 

Recreation 

OR OR-02 Trail, Recreation 

Site 150,000 

61 06 Gifford Pinchot 

National Forest 

Gifford Pinchot 

National Forest 

Deferred 

Maintenance 

WA WA-03 Recreation Site, 

Road, Trail, Trail 

Bridge 

2,775,000 

207 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 

No. Region Unit Project Title State 

Congressional 

District Asset Type 

Funding 

Request 

62 06 Mt. BakerSnoqualmie 

National Forest 

Mt. Baker-Snoqualmie 

National Forest 

Deferred 

Maintenance 

WA WA-01, WA-08 Road, Road Bridge, 

Dam, Trail, Trail 

Bridge, 

Recreation Site, 

Admin Facility 

4,836,700 

63 06 Mt. Hood National 

Forest 

Timberline Lodge 

Boiler System 

Replacement 

OR OR-03 Facility, Recreation 

Site 7,000,000 

64 06 Ochoco National 

Forest 

Ochoco National Forest 

Deferred 

Maintenance 

OR OR-02 Road 

3,425,500 

65 06 Okanogan-Wenatchee 

National Forest 

Okanogan-Wenatchee 

National Forest 

Deferred 

Maintenance 

WA WA-08 Road, Recreation 

Site, Trail 1,810,000 

66 06 Pacific Northwest 

Region 

Pacific Northwest 

Region-Wide 

Deferred 

Maintenance 

OR, WA OR-01, OR-02, 

OR-03, OR04, OR-05, 

WA-01, WA03, WA-04, 

WA-05, WA06, WA-08 

Trail, Recreation 

Site 1,300,000 

67 06 Rogue River-Siskiyou 

National Forest 

Quosatana 

Campground Septic 

Replacements 

OR OR-04 Wastewater System 

175,000 

68 06 Siuslaw National 

Forest 

Visitor Center and Roof 

Replacements 

OR OR-04, OR-05 Facility, Recreation 

Site 400,000 

69 06 Umpqua National 

Forest 

Umpqua National 

Forest Deferred 

Maintenance 

OR OR-04 Road, Trail 

2,310,000 

70 06 Wallowa-Whitman 

National Forest 

Wallowa-Whitman 

National Forest 

Deferred 

Maintenance 

OR OR-02 Road 

1,800,000 

71 06 Willamette National 

Forest 

Willamette National 

Forest Deferred 

Maintenance 

OR OR-04 Road, Recreation 

Site, Trail, Trail 

Bridge, Water 

System 

1,670,000 

72 08 Cherokee National 

Forest 

Cherokee National 

Forest Deferred 

Maintenance 

TN TN-01, TN-03 Recreation Site, 

Road, Road 

Bridge, Dam, 

Water/Wastewate 

r System, Trail, 

Trail Bridge 

9,595,700 

73 08 Francis MarionSumter National 

Forests 

Palmetto Trail Enoree 

Passage 

Rehabilitation 

SC SC-05 Trail, Trail Bridge, 

Trail Bridge 70,000 

74 08 George Washington 

and Jefferson 

National Forests 

George WashingtonJefferson National 

Forest Deferred 

Maintenance 

VA VA-05, VA-06, 

VA-09 

Recreation Site, 

Road, Trail, Road 

Bridge, Trail 

Bridge, 

Water/Wastewate 

r System 

3,936,700 

208 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 

No. Region Unit Project Title State 

Congressional 

District Asset Type 

Funding 

Request 

75 08 National Forests in 

Alabama 

National Forests in 

Alabama Deferred 

Maintenance 

AL AL-03, AL-04, 

AL-07 

Dam, Recreation 

Site, Water 

System, Road, 

Road Bridge, 

Trail Bridge 

2,379,500 

76 08 National Forests in 

Florida 

National Forests in 

Florida Deferred 

Maintenance 

FL FL-03, FL-05, 

FL-11 

Recreation Site, 

Admin Facility 2,070,000 

77 08 National Forests in 

Mississippi 

Turkey Fork Recreation 

Area Boat Launch 

Resurfacing 

MS MS-04 Recreation Site 

450,000 

78 08 National Forests in 

North Carolina 

National Forests in 

North Carolina 

Deferred 

Maintenance 

NC NC-11 Recreation Site, 

Road, Trail, 

Water System 

3,781,300 

79 08 Ouachita National 

Forest 

Shady Lake Recreation 

Site Day Use 

Renovation 

AR AR-04 Facility, Recreation 

Site 1,300,000 

80 08 Ozark-St. Francis 

National Forests 

Ozark-St Francis 

National Forest 

Deferred 

Maintenance 

AR AR-01, AR-04 Dam, Wastewater 

System, 

Recreation Site 

6,868,000 

81 09 Allegheny National 

Forest 

Allegheny National 

Forest Deferred 

Maintenance 

PA PA-15 Recreation Site, 

Road, Trail 6,849,300 

82 09 ChequamegonNicolet National 

Forest 

Chequamegon-Nicolet 

National Forest 

Deferred 

Maintenance 

WI WI-07, WI-08 Road, Recreation 

Site, Trail, 

Water/Wastewate 

r System 

1,603,000 

83 09 Chippewa National 

Forest 

Chippewa National 

Forest Deferred 

Maintenance 

MN MN-08 Recreation Site, 

Road 638,700 

84 09 Green Mountain and 

Finger Lakes 

National Forests 

Green Mountain and 

Finger Lakes 

National Forest 

Deferred 

Maintenance 

NY, VT NY-23, VT-At 

Large 

Recreation Site, 

Trail, Trail 

Bridge, Road, 

Road Bridge 

661,200 

85 09 Hiawatha National 

Forest 

Hiawatha National 

Forest Deferred 

Maintenance 

MI MI-01 Recreation Site, 

Trail Bridge 990,900 

86 09 Hoosier National 

Forest 

Hoosier National Forest 

Deferred 

Maintenance 

IN IN-08, IN-09 Recreation Site 

866,000 

87 09 Huron-Manistee 

National Forests 

Huron-Manistee 

National Forest 

Deferred 

Maintenance 

MI MI-01, MI-02, 

MI-04, MI-05 

Water/Wastewater 

System, 

Recreation Site, 

Trail, Trail 

Bridge, Road, 

Road Bridge 

2,075,000 

88 09 Mark Twain National 

Forest 

Mark Twain National 

Forest Deferred 

Maintenance 

MO MO-03, MO-04, 

MO-07, MO08 

Trail, Recreation 

Site 1,650,200 

209 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Item 

No. Region Unit Project Title State 

Congressional 

District Asset Type 

Funding 

Request 

89 09 Monongahela 

National Forest 

Monongahela National 

Forest Deferred 

Maintenance 

WV WV-03 Road, Road Bridge, 

Trail 1,092,000 

90 09 Ottawa National 

Forest 

Ottawa National Forest 

Deferred 

Maintenance 

MI MI-01 Recreation Site, 

Road 1,115,000 

91 09 Shawnee National 

Forest 

Shawnee National 

Forest Deferred 

Maintenance 

IL IL-15 Recreation Site, 

Road 2,500,000 

92 09 Superior National 

Forest 

Superior National 

Forest Deferred 

Maintenance 

MN MN-08 Admin Facility, 

Fire Facility, 

Road, Trail, Trail 

Bridge 

2,420,000 

93 09 Wayne National 

Forest 

Wayne National Forest 

Deferred 

Maintenance 

OH OH-06, OH-15 Dam, Trail Bridge 

855,300 

94 09 White Mountain 

National Forest 

White Mountain 

National Forest 

Deferred 

Maintenance 

NH NH-01; NH-02 Recreation Site, 

Trail, Road 

Bridge 

967,900 

95 10 Chugach National 

Forest 

Chugach National 

Forest Deferred 

Maintenance 

AK AK-At Large Trail, Trail Bridge, 

Recreation Site 2,085,000 

96 10 Tongass National 

Forest 

Tongass National 

Forest Deferred 

Maintenance 

AK AK-At Large Trail, Trail Bridge, 

Road, Road 

Bridge, 

Recreation Site, 

Facility 

14,398,00 

0 

Total, Project Funds 247,186,800 

Mission Support Funds 21,568,200 

5.7% sequestration 16,245,000 

Total, National Parks and Public Lands Legacy Restoration Fund 285,000,000 

210 
 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

LAND AND WATER CONSERVATION FUND 

Fiscal Year 2023 Land and Water Conservation Fund Proposed Acquisition Lists 

The Great American Outdoors Act (GAOA) (P.L. 116-152), enacted in 2020, permanently funds the Land and 

Water Conservation Fund (LWCF), investing in conservation and recreation opportunities in public and private 

lands. 

In FY 2023, the Forest Service is requesting $123.9 million for Federal Land Acquisition projects and program 

administration and $94.3 million for Forest Legacy projects and program administration. These levels are subject to 

a 5.7 percent sequestration rate, and this is reflected in the tables below. The Forest Service has developed the 

projects in accordance with GAOA requirements and Administration guidance. The full project sheets will be 

transmitted to Congress concurrently with the FY 2023 Budget request. These project lists may differ from those 

provided in an enacted appropriations bill. 

Table FS-83. Fiscal Year 2023 National Forest System Land Acquisition Program – Proposed Projects 

Priority 

Order Forest State Funding Request 

1 Chugach National Forest AK $4,000,000 

2 Okanogan-Wenatchee National Forest WA 6,500,000 

3 National Forests in North Carolina NC 3,700,000 

4 Lolo National Forest MT 9,000,000 

5 Chattahoochee-Oconee National Forests GA 8,050,000 

6 Umatilla National Forest OR 10,000,000 

7 Rio Grande National Forest CO 8,000,000 

8 Beaverhead-Deerlodge National Forest MT 3,000,000 

9 Prescott National Forest AZ 9,500,000 

10 Green Mountain and Finger Lakes National Forests VT 2,300,000 

11 Francis Marion and Sumter National Forests SC 5,000,000 

12 Tahoe National Forest CA 9,750,000 

13 Custer Gallatin National Forest MT 2,000,000 

14 El Yunque National Forest PR 2,387,500 

15 Pike and San Isabel National Forests CO 3,400,000 

Total, Project Funds 86,587,500 

5.7% Sequestration 7,061,446 

Acquisition Contingencies -

Recreation Access 10,486,054 

Acquisition Management 14,000,000 

Critical Inholdings 5,500,000 

Cash Equalization 250,000 

Total Funding 123,885,000 

16 Cherokee National Forest TN 8,900,000 

17 Ottawa National Forest MI 4,700,000 

18 National Forests in Alabama AL 3,666,000 

19 Rio Grande National Forest CO 1,200,000 

20 Ouachita National Forest AR 10,400,000 

211 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

21 San Juan National Forest CO 3,200,000 

22 San Bernardino National Forest CA 10,000,000 

23 Uinta-Wasatch-Cache National Forest UT 9,902,726 

24 Gila National Forest NM 3,325,000 

25 Bridger-Teton National Forest WY 16,500,000 

Total, Supplemental Project List 71,793,726 

Supplemental Acquisition Management Funds 7,000,000 

Total with Supplemental Project List $202,678,726 

Table FS-84. Fiscal Year 2023 Forest Legacy Program – Proposed Projects 

Rank State Project Name Funding Level 

1 MT Upper Thompson Connectivity Project $6,000,000 

2 WI Pelican River Forest Project $15,000,000 

3 ID International Selkirk Loop Conservation Project $7,000,000 

4 FL Wolfe Creek Forest Project $9,155,000 

5 ME South Bog Stream & Beaver Mountain Project $3,665,000 

6 HI Kaneohe Pali Project $1,800,000 

7 VT Miles Mountain Project $6,970,000 

8 CA Trinity Timberlands Project $3,000,000 

9 GA Suwannee River Headwaters Forest Project $1,860,000 

10 VA Southern Shenandoah Borderlands Project $7,095,000 

11 WA Kittitas Working Forest Project $5,700,000 

12 MS Wolf River Forest Conservation Project $7,000,000 

13 AR Hot Springs Forest Project $1,345,000 

14 SC Southern Coastal Biodiversity Project $3,975,000 

15 HI Maunawili Valley Project $1,345,000 

Administrative Funds $7,972,465 

5.7% Sequestration $5,372,535 

Subtotal Project Funds $80,910,000 

Total Funding $94,255,000 

HI Maunawili Valley Project-remainder $3,605,000 

16 AZ Cochise Stronghold Woodlands Project $1,740,000 

17 CO Higher Ground Headwaters Project $3,000,000 

18 MS Pearl River Conservation Corridor Project $535,000 

19 OR Minam River Phase 2 $9,755,000 

20 MA Nashua-Squannacook-Nissitissit Wild & Scenic River Project $9,915,000 

21 UT Coldwater Project $10,545,000 

22a WA Mt. Adams Forest $8,032,500 

Subtotal Supplemental Project List $47,127,500 

Total with Supplemental Project List $141,382,500 a WA Mt. Adams Forest FY 2023 request is $8,032,500. The total cost of the project is $8,250,000. 

212 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

FY 2023 SPEND PLAN FOR INFRASTRUCTURE INVESTMENT AND JOBS ACT, 2022 – PUBLIC LAW 117- 58 

Forest and Rangeland Research 

Overview of BIL Funding 

The Infrastructure Investment and Jobs Act (BIL), 2022 (P.L. 117-58) provides the Forest Service an additional 

amount for Forest and Rangeland Research of $10,000,000. Of this total, $2 million is appropriated in each year 

from FY 2022 through FY 2026. Each year’s appropriation has a four-year period of availability. Funds are to carry 

out activities of the Joint Fire Science Program, as authorized in section 40803 of Division D of the Act. 

The biggest challenge to implementation in the short-term is a shortage of contracting, grants, and agreements staff. 

There are no long-term challenges to note. 

FY 2023 funds will be obligated to an interagency agreement with Bureau of Land Management within 90 days of 

apportionment. BIL funding will be awarded to Joint Fire Science Program (JFSP) projects following the established 

annual JFSP timeline for the solicitation, submission, and selection of projects. 

The FY2023 Spending Plan for the BIL Forest and Rangeland Research programs are summarized below. 

Forest and Rangeland Research – Joint Fire Science Program - $2 million in FY 2023 

Summary: $2 million will be made available to competitively fund research and development projects to advance 

fire science and science applications under the Joint Fire Science Program and through an interagency agreement 

with the Department of Interior, Bureau of Land Management. 

Table FS-85. Joint Fire Science Program FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations

2023 Q4 

Obligations

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds - $2 - $2 - - $2 - $2 

Total ............... - 2 - 2 - - 2 - 2 

213 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

State and Private Forestry 

Overview of BIL Funding 

The Bipartisan Infrastructure Law (BIL) 2022 (P.L. 117-58) provides the Forest Service an additional amount for 

State and Private Forestry of $1,526,800,000. Of this total, $305,360,000 is appropriated in each year from FY 2022 

through FY 2026. Each year’s appropriation has a four-year period of availability. Funds are to carry out wildfire 

risk reduction and ecosystem restoration activities for the Department of Agriculture as authorized in section 40803 

and 40804 of division D of the Act, for grants to at-risk communities for wildfire mitigation activities, State Fire 

Assistance, and Volunteer Fire Assistance. 

The biggest challenges to implementation in the short-term are shortages of grants and agreements staff. Another 

challenge to implementation is the ability to increase and expand partnerships through the many authorities provided 

to the Agency. Working in a shared leadership stance with partners is critical to the Agency’s ability to accomplish

the expectations of the act as well as the desired need to expand the shared stewardship of our public lands. 

FY 2023 Projected Accomplishments: 

• Increase in at-risk community resilience 

• Increase in ability for States to implement priorities in their State Forest Action Plans. 

• Increase in capacity for communities and Tribes to prepare for and respond to wildland fire 

• Increase in capacity for States to meet revegetation goals following wildland fires 

• Increase in number of communities with up-to-date Community Wildfire Protection Plans 

• Increase in opportunities for small businesses and private landowners to harvest timber 

• Increase in the operational capacity in support of the Agency’s mission through human resource

management, procurement and contracting, grants and agreements, budget formulation and execution, and 

critical investments in technology 

For BIL line-item funds that will be competed, in whole or in part, announcements will be posted to grants.gov and 

follow the USDA protocol. 

The FY 2023 Spending Plan for the BIL State and Private Forestry programs are summarized below. 

State and Private Forestry – Unallocated – $83.76 million in FY 2023 

Summary: $83.76 million will be made available primarily for making grants to States, Tribes and communities to 

carry out the purposes of Sections 40803 and 40804 of the Act and to help States carry out the priorities in their 

State Forest Action Plans. 

Table FS-86. Unallocated FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds $10.83 $66.65 $10.83 $15.8 $35.17 $15.68 $77.6 - $77.6 

S&E a .............. 0.9 2.62 0.88 0.88 0.88 0.88 3.52 - 3.52 

Research 

Transfer........ - 4.02 - - - - 4.02 - 4.02 

FS Ops 

Transfer b ..... - 10.05 - - - - 10.05 - 10.05 

OIG Transfer... - 0.42 - - - - 0.42 - 0.42 

Total ............... 11.73 83.76 11.71 16.68 36.05 16.68 95.61 - 95.49 

a Salary, Expense, and Administration limited to 3% of appropriated funding. 

b FS Ops Transfer is for general program support. 

The authorized activities receiving BIL funding within the program: 

• Provide financial assistance to fuelwood banks 

214 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

• Establish a new rental program for States and Tribes for portable skidder bridges, bridgemats, or other 

temporary water crossing structures, to minimize stream bed disturbance. 

• Invasive species detection, prevention, and eradication on Federal and non-Federal lands. 

• Implement the National Seed Strategy for Rehabilitation and Restoration 

• Carrying out priorities in each States’ Forest Action Plan

State and Private Forestry – Community Wildfire Defense Grants - $200 million in FY 2023 

Summary: $200 million will be made available for Community Wildfire Defense Grants authorized until Section 

40803(c)(12) of Division D of the Act, for at-risk communities to develop Community Wildfire Protection Plans 

(CWPPs) and for carrying out fuels treatment projects established in CWPPs. 

Table FS-87. Community Wildfire Defense Grants FY 2023 estimated spend plan (dollars in millions). 

Total 

Planned 

Obligations 

/Transfers 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Estimated 

EOY 

Balance Total 

Program Funds - $168.55 - - $168.55 - $168.55 - $168.55 

S&E a ............... $1 5.97 $1.74 $1.74 1.74 $1.74 6.97 - 6.97 

FS Ops 

Transfer b ..... - 24.48 - - - - 24.48 - 24.48 

OIG Transfer... - 1 - - - - 1 - 1 

Total ............... 1 200 1.74 1.74 170.29 1.74 201 - 201 

a Salary, Expense, and Administration limited to 3% of appropriated funding. 

b FS Ops Transfer is for general program support. 

The authorized activities receiving BIL funding within the program: 

• Award community wildfire defense grants to at-risk communities to develop Community Wildfire 

Protection Plans (CWPPs) 

• Carrying out fuels treatment projects in CWPPs. 

State and Private Forestry – State Fire Assistance – $17.6 million in FY 2023 

Summary: $17.6 million will be made available for State Fire Assistance 

Table FS-88. State Fire Assistance FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds - $14.88 - - $14.88 - $14.88 - $14.88 

S&E a ............... - 0.53 $0.13 $0.13 0.13 $0.13 0.53 - 0.53 

FS Ops 

Transfer b ..... - 2.11 - - - - 2.11 - 2.11 

OIG Transfer... - 0.09 - - - - 0.09 - 0.09 

Total ............... - 17.6 0.13 0.13 15.01 0.13 17.6 - 17.6 

a Salary, Expense, and Administration limited to 3% of appropriated funding. 

b FS Ops Transfer is for general program support. 

State and Private Forestry – Volunteer Fire Assistance – $4 million in FY 2023 

Summary: $4 million will be made available for Volunteer Fire Assistance. 

215 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Table FS-89. Volunteer Fire Assistance FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds - $3.98 - - - $3.22 $3.22 $0.76 $3.98 

OIG Transfer... - 0.02 - - - - 0.02 - 0.02 

Total ............... - 4 - - - 3.22 3.24 0.76 4 

National Forest System 

Overview of BIL Funding 

The Infrastructure Investment and Jobs Act (BIL), 2022 (P.L. 117-58) provides the Forest Service an additional 

amount for National Forest System of $2,854,000,000. Of this total, $535,540,000 is appropriated in each year FY 

2022 to FY 2026. These funds remain available until expended. Funds are to carry out wildfire risk reduction and 

ecosystem restoration activities for the Department of Agriculture as authorized in section 40803 and 40804 of 

division D of the Act, hazardous fuels reduction, and burned area recovery. 

The biggest challenges to implementation in the short-term are shortages of acquisition and procurement staff, grants 

and agreements staff, and national forest system program staff responsible for the implementation of the activities 

outlined in the Infrastructure Investment and Jobs Act. 

Another challenge to implementation is the ability to increase and expand partnerships through the many authorities 

provided to the Agency. Match requirements create a huge challenge for many partners, inhibiting their ability to 

participate in the opportunities that BIL provides. Working in a shared leadership stance with partners is critical to 

the Agency’s ability to accomplish the expectations of the act as well as the desired need to expand the shared 

stewardship of our public lands. 

FY 2023 Accomplishments 

• Increased pace and scale for ecosystem restoration producing desired outcomes such as community 

protection, forest and grassland restoration, watershed restoration, mine remediation, and wildlife habitat 

improvement on National Forest system lands. Funding will provide the capacity for planning, 

collaboration, project design and implementation. 

• Increased community resilience through hazardous fuels projects and related activities such as the 

development and improvement of control locations (fuel breaks). 

• Increased contracts and agreements with partners, states, and tribes to perform ecosystem restoration 

activities on National Forest system lands providing jobs to local communities. 

• Increased ability to provide recreation experiences that match visitation demands. 

• Increased ability to operate, repair, reconstruct, and construct recreation cabins and repair or reconstruct 

historic buildings. 

• Creation of incentives for increased use of biomass. 

• Implementation of FY 2023 projects to permanently plug and remediate orphaned wells, reporting results as 

outlined in the Act. 

• Continued participation in the process of identifying and permanently plugging and remediating orphaned 

wells through the transfer of funds from the Department of Interior as outlined in the Act. 

• Continued focus on the successful management and operations of the established civilian climate corps, 

creating and providing jobs for young people, providing the Agency the necessary skills, experiences, and 

resources necessary to conserve and restore public lands and waters, bolster community resilience, increase 

reforestation, increase carbon sequestration, protect biodiversity, improve recreation, and address climate 

change. 

• Increased operational capacity in support of the Agency’s mission to include human resource management, 

procurement and contracting, grants and agreements, budget formulation and execution and critical 

investments in technology. 

216 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Funds will primarily be distributed via contract awards or through agreements with States, Tribes, and partners. 

Contract opportunities or procurement notices are announced through the Contract Opportunities website at 

SAM.gov56. Agreements utilizing authorities such as Good Neighbor Authority, Tribal Forest Projection Act, 

Stewardship Authority, etc. do not require funding announcements. 

The FY 2023 Spending Plan for the BIL National Forest System programs are summarized below. 

National Forest System –$382 million in FY 2023 

Summary: $382 million will be made available for Natural Resource related Infrastructure and Ecosystem 

Restoration Management Activities as authorized in section 40803 and 40804 of division D of the Act. 

Table FS-90. National Forest System FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds $6.71 $238.68 $44.73 $74.05 $88.4 $38.22 $245.39 - $245.39 

NFS S&E ........ - 46.94 11.74 11.74 11.74 11.72 46.94 - 46.94 

WFM S&E a .... - 9.39 - - - - 9.39 - 9.39 

Research 

Transfer........ - 39.24 - - - - 39.24 - 39.24 

FS Ops 

Transfer b ..... - 45.84 - - - - 45.84 - 45.84 

OIG Transfer... - 1.91 - - - - 1.91 - 1.91 

Total ............... 6.71 382 56.47 85.79 100.14 49.94 388.71 - 388.71 

a WFM S&E will be transferred to the Wildland Fire Management appropriation to reflect operations under the new budget 

structure. 

b FS Ops Transfer is for general program support. 

The authorized activities receiving BIL funding within the program: 

• Collaboration and collaboration-based activities including facilitation, certification of collaboratives, and 

planning and implementing projects under the CFLRP program 

• Thinning to include mechanical thinning, timber harvesting, and precommercial thinning 

• Planning and conducting prescribed fires and related activities 

• Developing or improving potential control locations, to include installing fuel breaks 

• Contracting or employing labor crews to modify and remove flammable vegetation 

• Restore the ecological health on Federal lands through the use of contracts, including Stewardship contracts 

or agreements. 

• Good Neighbor agreements with States and Tribes for restoration projects on federal land 

• Financial assistance to facilities that purchase and process byproducts from ecosystem restoration projects 

• Restoration, preparation, or adaptation of recreation sites on Federal land, including tribal forest land or 

rangeland experiencing increased visitation beyond carrying capacity. 

• Operation, repair, reconstruction, and construction of public use recreation cabins on National Forest 

System land. 

• Repair or reconstruction of historic buildings. 

• Restoration of native vegetation and environmental hazard mitigation on federal and non-federal mined 

lands. 

• Establish and implement a national revegetation effort on Federal and non-federal land. 

56 https://sam.gov/content/opportunities 

217 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

• Establish a collaborative-based, landscape-scale restoration program to restore water quality or fish passage 

on Federal land in coordination with DOI 

National Forest Systems - Hazardous Fuels Management – $102.8 million in FY 2023 

Summary: $102.8 million will be made available for Hazardous Fuels Management Activities. 

Table FS-91. Hazardous Fuels Management FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds $15 $73.95 $57.19 $14.06 $13.59 $4.11 $88.95 - $88.95 

WFM S&E a .... - 16 - - - - 16 - 16 

FS Ops 

Transfer b ..... - 12.34 - - - - 12.34 - 12.34 

OIG Transfer... - 0.51 - - - - 0.51 - 0.51 

Total ............... 15 102.80 57.19 14.06 13.59 4.11 117.80 - 117.80 

a WFM S&E will be transferred to the Wildland Fire Management appropriation to reflect operations under the new budget 

structure. 

b FS Ops Transfer is for general program support. 

The authorized activities receiving BIL funding within the program: 

• Planning and conducting hazardous fuels projects and related activities 

• Creating incentives for increased use of biomass to include the Community Wood Energy Program and the 

Wood Innovation Grants program 

• Hazardous fuels funding for Tribal Forest Protection Act (TFPA) projects 

National Forest System – Burned Area Recovery – $45 million in FY 2023 

Summary: $45 million will be made available for Burned Area Recovery. 

Table FS-92. Burned Area Recovery FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds - $22.27 $3.07 $7.55 $8.58 $3.07 $22.27 - $22.27 

NFS S&E ........ - 11.25 2.81 2.81 2.81 2.81 11.25 - 11.25 

WFM S&E a .... - 2.25 - - - - 2.25 - 2.25 

Research 

Transfer........ - 3.6 - - - - 3.6 - 3.6 

FS Ops 

Transfer b ..... - 5.4 - - - - 5.4 - 5.4 

OIG Transfer... - 0.23 - - - - 0.23 - 0.23 

Total ............... - 45 5.88 10.36 11.39 5.88 45 - 45 

a WFM S&E will be transferred to the Wildland Fire Management appropriation to reflect operations under the new budget 

structure. 

b FS Ops Transfer is for general program support. 

Note: Agency will seek to use authorities provided in the Act to transfer the Burned Area Recovery funds to the Wildland Fire 

Management appropriation to match how the Department of the Interior is managing their funds. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Capital Improvement and Maintenance 

Overview of BIL Funding 

The Infrastructure Investment and Jobs Act (BIL), 2022 (P.L. 117-58) provides the Forest Service an additional 

amount for Capital Improvement and Maintenance of $360,000,000. Of this total, $72 million is appropriated in 

each year from FY 2022 through FY 2026. Each year’s appropriation has a four-year period of availability. Funds 

are to carry out activities of the Legacy Road and Trails Remediation Program, for the construction of temporary 

roads or reconstruction and maintenance of roads to facilitate projects that reduce wildfire risk, and for the removal 

of non-hydropower federal dams. 

The biggest challenge to implementation in the short-term is a shortage of contracting, and engineering staff 

responsible for the implementation of the activities outlined in the Infrastructure Investment and Jobs Act. Another 

challenge to implementation is the ability to increase and expand partnerships through the many authorities provided 

to the Agency. Match requirements create a huge challenge for many partners, inhibiting their ability to participate 

in the opportunities that BIL provides. Working in a shared leadership stance with partners is critical to the 

Agency’s ability to accomplish the expectations of the act as well as the desired need to expand the shared 

stewardship of our public lands. 

Funds will primarily be distributed via contract awards. Contract opportunities or procurement notices are 

announced through the Contract Opportunities website at SAM.gov57. 

FY 2023 Accomplishments 

• Increased ability to restore fish passages, decommission roads, prepare roads for long-term storage, relocate 

roads and convert roads to trails on National Forest System lands. 

• Increased ability to construct temporary roads, reconstruct and maintain roads to facilitate forest restoration 

and management projects in support of the wildfire risk reduction. 

• Increased operational capacity in support of the Agency’s mission to include human resource management, 

procurement and contracting, grants and agreements, budget formulation and execution and critical 

investments in technology. 

The FY 2023 Spending Plan for the BIL Capital Improvement and Maintenance programs are summarized below. 

Capital Improvement & Maintenance – cons and Trails – $50 million in FY 2023 

Summary: $50 million will be made available to carry out activities of the Legacy Road and Trail Remediation 

Program as amended by section 40801 of division D of the Act. 

Table FS-93. Legacy Roads and Trails FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds $1.5 $28.75 $5.51 $9.03 $11.7 $4.01 $30.25 - $30.25 

NFS S&E a ...... - 15 - - - - 15 - 15 

FS Ops 

Transfer b ..... - 6 - - - - 6 - 6 

OIG Transfer... - 0.25 - - - - 0.25 - 0.25 

Total ............... 1.5 50 5.51 9.03 11.7 4.01 51.5 - 51.5 

a NFS S&E will be transferred to the National Forest System appropriation to reflect operations under the new budget structure. 

b FS Ops Transfer is for general program support. 

Capital Improvement & Maintenance – Roads – $20 million in FY 2023 

57 https://sam.gov/content/opportunities 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

Summary: $20 million will be made available for the construction of temporary roads or reconstruction and 

maintenance of roads to facilitate forest restoration and management projects that reduce wildfire risk. 

Table FS-94. Roads FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds $0.5 $11.5 $2.09 $3.65 $4.65 $1.61 $12 - $12 

NFS S&E a ...... - 6 - - - - 6 - 6 

FS Ops 

Transfer b ..... - 2.4 - - - - 2.4 - 2.4 

OIG Transfer... - 0.1 - - - - 0.1 - 0.1 

Total ............... 0.5 20 2.09 3.65 4.65 1.61 20.5 - 20.5 

a NFS S&E will be transferred to the National Forest System appropriation to reflect operations under the new budget structure. 

b FS Ops Transfer is for general program support. 

Capital Improvement & Maintenance – Dams – $2 million in FY 2023 

Summary: $2 million will be made available for the removal of non-hydropower Federal dams and dam removal 

technical assistance 

Table FS-95. Dams FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds $0.06 $1.15 $0.22 $0.39 $0.44 $0.16 $1.21 - $1.21 

NFS S&E a ...... - 0.6 - - - - 0.6 - 0.6 

FS Ops 

Transfer b ..... - 0.24 - - - - 0.24 - 0.24 

OIG Transfer... - 0.01 - - - - 0.01 - 0.01 

Total ............... 0.06 2 0.22 0.39 0.44 0.16 2.06 - 2.06 

a NFS S&E will be transferred to the National Forest System appropriation to reflect operations under the new budget structure. 

b FS Ops Transfer is for general program support. 

Wildland Fire Management 

Overview of BIL Funding 

The Infrastructure Investment and Jobs Act (BIL), 2022 (P.L. 117-58) provides the Forest Service an additional 

amount for Wildland Fire Management of $696,200,000. Of this total, $552,200,000 was appropriated in FY 2022 

and $36,000,000 is appropriated in FY 2023 through FY 2026. These funds remain available until expended. Funds 

are to carry out wildfire risk reduction activities for the Department of Agriculture as authorized in section 40803 of 

division D of the Act. The Department of the Interior (DOI) received complementary appropriations for wildland 

fire management, and the two agencies are collaborating on and coordinating implementation. 

The FY 2023 Spend Plan for the BIL Wildland Fire Management programs are summarized below. Note that the 

Spend Plan follows BIL’s Division J (appropriations).

Wildland Fire Management - Salaries and Expense - $480 million in FY 2023 

Summary: $480 million will be made available to implement Section 40803(d) of Division D, including conversion 

of seasonal Wildland Firefighters to full-time, permanent, year-round Federal employees and increasing the base 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

salaries of Federal wildland firefighters located within a specified geographic area in which it is difficult to recruit 

or retain Federal wildland firefighters. 

Table FS-96. Salaries and Expenses FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

S&E a .............. $357.6 - $55 $55 $70 $70 $250 $107.6 $357.6 

Total ............... 357.6 - 55 55 70 70 250 107.6 357.6 

a One-time appropriation that will be obligated over approximately 2.5 years. 

There are two short-term challenges to implementation: (1) ensuring consistency with the Department of Interior, 

and (2) coordinating with the Office of Personnel Management to determine eligibility for the pay increase. There 

are also two long-term challenges to implementation: (1) reconciling the increased base pay policy with a potential 

new pay scale associated with the new distinct Wildland Firefighter occupational series, and (2) creating a 

workforce management plan that ensures a sustainable and effective workforce of wildland firefighters. The agency 

will also continue to expand existing capabilities to address and mitigate the significant mental health challenges and 

line-of-duty environmental hazards faced by our wildland firefighter workforce. 

FY 2023 Projected Spend Plan Accomplishments 

• Continuation of initiative started in FY 2021 to ensure equitable pay for firefighters 

• Coordination with DOI and OPM to implement the new distinct occupational series and pay scale for 

firefighters that recognizes their specialized training and hazardous work they perform 

• Improvement in wildland firefighter workforce morale and retention through compensation and workforce 

management reform, including investment in mental and physical health programs 

• Increase in ability to recruit and retain wildland firefighters in certain geographic areas determined jointly 

with OPM 

Wildland Fire Management – Wildfire Risk Reduction - $36 million in FY 2023 

Summary: $36 million will be made available to implement the wildfire risk reduction activities authorized in 

40803(c) of Division D. 

Table FS-97. Wildfire Risk Reduction FY 2023 estimated spend plan (dollars in millions). 

Item 2022 

Carryover 

2023 

Appropriations 2023 Q1 

Obligations 

2023 Q2 

Obligations 

2023 Q3 

Obligations 

2023 Q4 

Obligations 

Total 

Planned 

Obligations 

/Transfers 

Estimated 

EOY 

Balance Total 

Program Funds $8.09 $27.51 $6.42 $16.31 $11.38 $1.49 $35.6 - $35.6 

S&E................. - 0.5 0.13 0.13 0.13 0.11 0.52 - 0.5 

Research 

Transfer........ - 3.49 - - - - 3.49 - 3.49 

FS Ops 

Transfer a ...... - 4.32 - - - - 4.32 - 4.32 

OIG Transfer... - 0.18 - - - - 0.18 - 0.18 

Total ............... 8.09 36 6.55 16.44 11.51 1.62 44.11 - 44.09 

a FS Ops Transfer is for general program support. 

Note: Additional fire related funding, Hazardous Fuels ($102.8 million) and Burned Area Rehabilitation ($45 million), are 

appropriated under the National Forest System. The Forest Service continues to engage with Congress to realign all Hazardous 

Fuels under WFM. 

The authorized activities receiving BIL funding within the program: 

• Establish and operate a Reverse 911 telecommunication system 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

• Fire response workshops 

• Post-fire restoration activities. 

The biggest challenge to implementation in the short-term is a shortage of contracting, grants, and agreements staff. 

The challenge in the long-term is creating and sustaining Information Technology systems that can fully support 

these new capabilities into our operational decision-making process. 

FY 2023 Projected Spend Plan Accomplishments 

• Improve the effectiveness of wildland fire suppression response by refining and socializing the use of 

emerging technology 

• Increase in the ability to pre-plan and align with suppression response partners before a fire comes, and 

increase the effective and efficient use of firefighting resources as a result 

• Increased capacity and resources for post-fire landscape restoration activities 

Timeline for Implementation – FY 2023 and Later Years 

Currently, the Forest Service is beginning implementation planning for all aspects of the law through coordination 

with our partners, including DOI and OPM, as noted above. Key efforts to date have included establishing 

interagency wildland firefighter workforce working groups and contracting for a workforce assessment (see below 

for more information). 

The law establishes several deadlines that will serve as milestones for implementation, including the following: 

• Beginning October 1, 2021 (no deadline for completion set in the law): Forest Service and DOI will: 

o Seek to convert not fewer than 1,000 seasonal wildland firefighting positions to permanent yearround positions that are full-time and reduce hazardous fuels on Federal land not fewer than 800 

hours per year (each position); and 

o Increase the salary of wildland firefighters by an amount equal to the lesser of $20,000 or 

50 percent of base salary if the DOI and USDA Secretaries and the OPM Director determine that a 

position is in a geographic area where it is difficult to recruit or retain Federal wildland 

firefighters. 

• Mid-December 2021: USDA, DOI, and DHS (through the FEMA Administrator) jointly established a 

Wildland Fire Mitigation and Management Commission to (1) study and make recommendations on 

preventing, mitigating, suppressing, and managing wildland fires, and (2) rehabilitate land devastated by 

wildfires. Commission members are to be appointed by January 15, 2022 (60 days post-enactment), and 

the Commission will issue a report within one year of the first Commission meeting. 

• March 14, 2022 (120 days post-enactment): Forest Service and DOI will establish a five-year monitoring, 

maintenance, and treatment plan. 

• May 13, 2022 (180 days post-enactment): Forest Service and DOI will develop a distinct wildland 

firefighter job series, in coordination with OPM. 

• Annually December 31, 2022-2026: Forest Service and DOI will submit a report to Congress on the 

number of acres of land on which projects carried out using the BIL’s treatment funds improved the Fire

Regime Condition Class of the land. 

• October 1, 2022: Forest Service and DOI will develop and adhere to recommendations for mitigation 

strategies for wildland firefighters to minimize exposure to line-of-duty environmental hazards; and to 

recognize and address mental health needs, including post-traumatic stress disorder care. 

• November 15, 2026: Forest Service and DOI will publish a long-term, outcome-based monitoring, 

maintenance, and treatment strategy. 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

DEPARTMENT OF THE INTERIOR AND DEPARTMENT OF AGRICULTURE FOREST SERVICE WILDLAND 

FIRE WORKFORCE FRAMEWORK, MARCH 2022 

Introduction 

This report responds to Public Law 117-43, Division A, Title VII, Sec. 1701 (g): Not later than 45 days after the 

date of enactment of this Act, the Secretary of the Interior and Secretary of Agriculture shall jointly provide to the 

Committees on Appropriations of the House of Representatives and the Senate, the Senate Committee on 

Agriculture Nutrition and Forestry, the House of Representatives Committee on Agriculture, the Senate Committee 

on Energy and Natural Resources, the House of Representatives Committee on Natural Resources, Senate 

Committee on Homeland Security and Governmental Affairs, and the House of Representatives Committee on 

Oversight and Reform, a framework to modernize the wildland firefighting workforce beginning in fiscal year 2022. 

The majority of the Federal government’s wildfire response apparatus is located within the Department of 

Agriculture (USDA) Forest Service (FS) and the Department of the Interior (DOI). DOI’s Wildland Fire

Management program comprises the Office of Wildland Fire (OWF) and four bureaus: (1) the Bureau of Indian 

Affairs (BIA), (2) the Bureau of Land Management (BLM), (3) the U.S. Fish and Wildlife Service (FWS), 

and (4) the National Park Service (NPS). 

Wildland fire is generally a natural and essential component of a healthy ecosystem, but it can be destructive and 

costly in unhealthy ecosystems. The average wildfire has become larger58, costlier59, and more complex, and 

wildfire “season” has grown to be almost year-round. Wildfire itself contributes to climate change through the 

release of carbon emissions into the atmosphere.60 

Climate change has led to severe drought conditions across the western United States that have contributed to more 

frequent and severe wildfires. For example, in the United States, based on a 10-year average for 2011-2021, more 

than 62,000 wildfires burn 7.5 million acres61 every year. In 2021, 58,985 wildfires burned over 7.1 million acres 

of land; this is in line with the average number of wildfires that burned over the past 10 years and about 95 percent 

of the average number of acres burned. At the height of last year’s fire season, every geographic area was 

experiencing large wildfires for extended periods. This was illustrated by how early the Nation reached 

Preparedness Level (PL) 4—June 22, 2021— and the highest PL of 5 on July 14, 2021, as well as how long the 

Nation stayed at either PL 4 or PL 5—99 days—which is a record for the highest number of consecutive days at 

either PL 4 or 5. 

To manage an effective wildland fire program, it is critical to take a proactive and cooperative approach that 

mitigates the negative effects of wildfires while actively managing the use of fire to achieve resource management 

goals. However, the wildland fire workforce framework from earlier decades must be revised to more 

effectively meet these objectives and manage current conditions. This requires a workforce that is fairly 

compensated, available year-round to respond to wildland fire, cared for both physically and mentally, and has all 

the necessary tools to accomplish their mission safely, effectively, and efficiently. 

Strategic Direction 

Human capital is the DOI and FS wildland fire organizations’ greatest investment. To ensure this investment 

accomplishes the increasingly challenging and complex mission of managing wildland fire on DOI and FS lands, we 

must focus on: 

1. Ensuring that compensation and benefits reflect the true value of the work that is performed 

2. Ensuring an organizational culture that promotes a sustainable work-life balance 

58 https://www.nifc.gov/sites/default/files/document-media/TotalFires.pdf 59 https://www.nifc.gov/fire-information/statistics/suppression-costs 60 Source: https://www.csl.noaa.gov/factsheets/csdWildfiresFIREX.pdf 61National Interagency Coordination Center Wildland Fire Summary and Statistics Annual Report, 2021 

(https://www.predictiveservices.nifc.gov/intelligence/2021_statssumm/annual_report_2021.pdf), page 12 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

3. Establishing programs that enable employees to properly manage their health, wellbeing and resilience 

4. Providing the resources that are needed to develop and support training, education 

and opportunities that ensure critical emergency response, business acumen and land management 

competencies 

5. Ensuring that work is accurately described, and that a distinct occupational series reflects the true 

competencies and certifications that are needed to perform the work 

6. Developing a robust recruitment strategy to provide a relevant and diverse candidate pool 

7. Providing clear career paths from hiring to retirement. 

Strategic Workforce Framework 

Phase 1 - Beginning in Fiscal Year (FY) 2022, DOI and the USDA FS have individually contracted for Wildland 

Fire Workforce Assessments. These assessments will: 

• Gather and review background documents including staffing patterns, pay and compensation, organizational 

charts, position descriptions and performance plans, budget plans, relevant reports, and other documents. 

• Analyze workforce demographics across organizational, occupational, geographic, diversity and other 

dimensions. 

• Identify key Departmental, agency staff, and labor representatives for interviews, as appropriate, to gather 

background information on prior studies or recommendations on how to recruit and retain wildland 

firefighters. 

• Conduct interviews and other fact-finding methods. 

• Analyze all data and information collected through research, interviews, and other sources to determine valid 

staffing needs for current and future workforce. 

• Draft and finalize an Assessment Summary, highlighting baseline data on the current workforce in various 

dimensions including geographic location, pay and compensation, financial and nonfinancial incentives, 

diversity, occupational series and grade, and other factors that also focus on future workforce capacity needs. 

Phase 2 – Complete the workforce analysis and draft the Departments’ wildland fire workforce plans. 

Phase 3 – Departments will conduct an evaluation of the effectiveness of wildland fire management recruitment 

strategy. Results of the evaluation will be disseminated to Departmental leadership and will be used to support 

recommendations that improve recruitment strategies and identify areas where efficiencies may be gained. Finalize 

the DOI and USDA FS Departmental Strategic Wildland Fire Workforce Plans. 

Phase 4 – Continual monitoring, evaluation, and revision as necessary to incorporate changes and identify best 

practices, as the Departmental Strategic Workforce Plans for fire will be dynamic. Monitor, evaluate, and revise the 

workforce action plans. Identify best practices. 

Workforce Reform Short Term Goals 

1. Wildland Firefighter Compensation and Benefits: Evaluate the need for a market-based, special salary rate 

for wildland firefighters as well as exploring other compensation changes, like an increased base pay for leave 

and hazard pay for prescribed fire. This will be done in tandem with the increase in base pay that was directed 

in the Bipartisan Infrastructure Law (BIL). 

a. Note: There is a need to develop, in partnership with the Office of Personnel Management, a new 

distinct wildland firefighter occupational series that adequately describes the duties performed by 

these positions. 

2. Conversion to a More Permanent Workforce: As directed by the BIL, convert temporary wildland fire 

response positions to permanent, full-time positions available for fire response activities year-round. DOI and 

USDA FS began conversions with funding received in FY 2021 and will continue workforce transformation 

efforts through the BIL funding and FY 2022 and FY 2023 budget requests. 

3. Increase Firefighter Capacity: Consistent with DOI’s and USDA FS’ FY 2022 and FY 2023 budget requests, 

and to meet the demands of nearly year-round wildfire activity, the workforce assessment in Phase 1 and the 

workforce analysis in Phase 2 will inform decisions to increase investment in core fighting capacity including 

hotshots, analysts, logistics (cache and dispatch), and base firefighters (engines, equipment operators, 

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2023 USDA EXPLANATORY NOTES – FOREST SERVICE 

etc.). There would also be associated investment in the support of these individuals including equipment, 

vehicles, facilities, and agency administrative support functions. We will also be implementing robust 

succession planning to ensure these individuals would fill much-needed Incident Management Team capacity. 

4. Health, Well Being and Resilience: Wildland firefighters work in an arduous, stressful environment that is 

physically and mentally taxing. They spend months away from family and friends, endure death and serious 

injury among their community, and face very real hazards every time they are deployed. The BIL requires the 

establishment of a program to recognize and address mental health needs and develop recommendations for 

mitigation strategies for wildland firefighters to minimize exposure due to environmental hazards. The FY 

2023 Forest Service departmental budget requests, and funding within the Bipartisan Infrastructure Law, further 

seek to address significant discrepancies within both the “hard” and “soft” infrastructure that supports the minds

and bodies of our wildland firefighters when not on incident, to include mental health programs that take aim at 

the challenges faced by arduous and dangerous work on the fire line; and investing in the professional 

development and growth of our wildland firefighters now and for a post-firefighting career. 

Workforce Reform Long Term Goals 

1. Administrative Program Support for Wildland Fire Operations: The wildland fire system does not 

function autonomously. It is through the support and effort of many aspects of the USDA FS and DOI that our 

national wildland fire response operations are successful each year, including contracting, incident finance, and 

human resources. Assessment and analysis of core capacity needs could require additional investment in these 

critical administrative support functions. 

2. Modernization of Wildland Fire Information Technology: The information technology systems, 

infrastructure, and tools that support our modern wildland fire response are falling behind what is currently 

available and being widely utilized by our partners and cooperators. It is necessary to invest in cutting-edge 

technologies such as hazardous fuels/risk mapping, satellite early detection systems, and unmanned 

aerial systems to provide our modern wildland firefighting workforce with the tools they need to maximize their 

effectiveness during response. 

3. Critical Response Infrastructure: There are critical components of the wildland fire system that 

are absolutely necessary for a safe and effective fire response operation: dependable vehicles and fire engines, 

and hand-held radios. The investments in these system components have not kept pace with an increasing 

operational tempo, resulting in fewer vehicles that are shared among more responders. In addition, the 

interagency radio systems that provide essential and life-saving communications on the fireline are outdated and 

require significant annual maintenance. DOI and FS will coordinate to right-size the Federal wildland 

firefighting fleet and to invest in a modern radio platform for our firefighters. 

4. Wildland Firefighting Facility Improvement and Maintenance: The wildland fire cache 

system that manages and distributes critical supplies to fire camps around the country, often in very remote 

areas, needs an overhaul. The cache facilities are often too small, underequipped, or understaffed—putting 

significant strain on the backbone of the wildland fire logistical support component of the system. The fire 

caches are not the only support facilities in need of support. There are also engine bays, helipads, airtanker 

hangars, and smokejumper facilities that need repairs or upgrades to meet the demands of our modern fire 

response equipment. 

225