In the previous appendix, the Mission Elements and their future implementation were described. The Mission Elements present the roles of the Forest Service now and in the future. In this appendix, we build on the foundation of the Chief's Ethic and Course to the Future, and the direction toward the future described in the Mission Elements, to derive future positions on strategic issues facing the Forest Service.
The Key Policy Topics described in this appendix represent the major strategic challenges faced by the Forest Service. They were selected to be national in scope and broad in their potential impacts. The topics were selected for their strategic importance by agency executives based on a broad array of input from agency employees and public groups. Some public outreach was specifically directed toward individuals and organizations that had not traditionally been involved in the RPA. The development of these issues was influenced by information from the RPA Assessment.
The key policy topics cover a wide array of natural resource management issues. Three of the policy topics--Ecosystem Health and Sustainability, Global Change and Old Growth--are interconnected, and describe an integrated approach to these topics through agency land management, research and domestic and foreign assistance efforts. These are the agency's main thrusts to protect and restore ecosystems. Conservation of Wood, Natural Resource Conservation Education, and Recreation Services deal with a strategic, integrated approach to management and prioritization of specific agency programs. Integrating People's Values and Integrating Science into Policy discuss the role of different types of information in agency decisionmaking in the future. Wildland/Urban Interface and Relations with American Indian Tribes and Alaska Natives both deal with relationships between the Forest Service and its partners. Resource Pricing attempts to develop a consistent framework for pricing traditional and emerging products and services. Roadless Areas and Softwood Sawtimber Availability describe agency efforts to resolve specific issues. Three of the topics are administrative in nature, and highlighting these is important because Alternative Financing, Budget Structure, and Accountability are key ways to improve agency performance as part of the public service ethic. Agency partners and cooperators have vital interests in accountability, efforts to provide additional financing, and development of a budget structure.
For each key policy topic, the background of the issue, and the current and future positions of the Forest Service are described. The foundation for the future positions are the Ethics and Course to the Future, and the Forest Service Mission. The Forest Service responses to the key policy topics provide guidance to future agency programs.
Increasing numbers of scientists, resource managers, and the public are concerned about the health and sustainability of forest and rangeland ecosystems. Healthy ecosystems are best able to provide products, services, values, and settings needed by people today, and for generations yet to come.
An important component of ecosystem health is biodiversity--the variety of life and its processes. There is increasing concern over significant losses of the variety of genes, species, ecosystems and landscapes, and possible detrimental effects of such losses on the environment and society. Biodiversity is composed of elements which vary at multiple geographic and biological scales and through time. To ensure ecosystem health, biodiversity must be maintained.
One highly visible aspect of biodiversity is protection of individual species. The Forest Service is often at the center of controversies regarding threatened and endangered species. Past management of public and private lands has led to declines in distribution and abundance of many plant, wildlife and fish species. Blending the needs of individual species, the overall ecosystem, and humans is urgently needed to effectively address threatened and endangered species and the possible permanent loss of biological diversity through extinctions, and resulting impacts on ecosystem health.
Forest Ecosystems: Some forest ecosystems in the United States are showing symptoms of declining health. The most prominent examples are in short several fire-adapted ecosystems, commonly represented by long-needle pine types. Areas of concern are the Blue Mountains of Oregon and Washington, the Sierras in California, the northern and middle Rockies, and the Southern mixed forests and Coastal Plains from Texas to Virginia. Declining health symptoms include increased vulnerability to disease, widespread attack by insects, greater incidence of severe, high-intensity wildfires, and consequent losses in biodiversity. Past timber harvest, fire control, and grazing practices are underlying contributing factors to declining forest health, but vulnerability is exacerbated by the effects of drought and pollution. Throughout the U.S., the spread of exotic species is having a major impact on the health of forest ecosystems, including plants, animals and fish.
Rangeland Ecosystems: Rangelands are found on about two-thirds of all National Forest System lands. The 1989 RPA Assessment identified the need for agency action to improve the health of rangeland ecosystems. Symptoms of declining rangeland health include soil loss, weedy plant invasions, endangered species, and diminishing biological diversity. Restoration efforts must consider drought events, temperature extremes, fires, grazing herbivores, and other dynamic forces instrumental in the health and long-term productivity of rangeland ecosystems.
Aquatic Ecosystems: Rivers, streams, lakes, and wetlands function as the vital "circulatory systems" of forests and rangelands. In this regard, their health is both affected by, and indicative of, the health of the ecosystems of which they are a part. There is growing concern for the health of aquatic systems themselves and for what they indicate about the health of upland environments. Symptoms and conditions of concern include declining water quality, condition of riparian communities, and declining populations of sensitive species which as salmon and steelhead in the Pacific Northwest.
The Forest Service promotes ecosystem health through a wide array of activities. Traditionally, agency efforts have been related to individual components of ecosystem health, for example, range condition, tree mortality, water quality or species endangerment, and have been subdivided by forest, rangeland and aquatic ecosystems. The Forest Service addresses ecosystem health by conducting research on the sciences and technologies needed to promote ecosystem health, applying these on National Forests and Grasslands, and transferring information on the science and technologies through domestic and international assistance programs.
National forests develop standards and guidelines so that ecosystem health is not impaired as a result of management actions. These standards and guidelines deal with activities such as mining, grazing, logging and road building in aquatic, rangeland and forest ecosystems.
The Forest Service promotes forest health through planning, prevention, suppression and fire control, environmental analysis, pesticides, development and use of forest protection technologies, forest health monitoring, efforts to restore forest health, through management of introduced forest pests, exclusion of exotic forest pests, international cooperation in forest health protection, and public involvement.
The primary focus of the current Forest Service approach to biodiversity is on the viability of individual species. The agency's efforts are directed to developing and implementing habitat management plans, especially for species categorized as endangered, threatened, or sensitive. Habitat management includes activities to protect and often to restore habitats. Major programs are conducted cooperatively with other agencies, both government and non-government and universities.
The Forest Service is conducting a proactive effort to limit the need for future threatened and endangered listings. The Sensitive Species program has identified more than 2300 potentially vulnerable species whose habitats have become scarce. The agency is evaluating ongoing and proposed projects and management actions to determine their effects on sensitive species and their associated habitats. The evaluations provide the basis for changes to project designs and management actions needed to mitigate adverse effects on ecosystems. The most relevant science is then used to fashion management standards and guidelines for Forest plans.
The Forest Service policies and approaches to Threatened, Endangered and Sensitive Species include (1) management of sensitive species habitat; (2) protection and maintenance of habitat for Threatened and Endangered species; (3) educational programs; and (4) interagency cooperation. The Chief's national action plan for Threatened and Endangered and Sensitive species addresses each of these and requires implementation, through regional plans, of specific recovery, conservation, mitigation, and education actions.
The Forest Service will promote maintenance and restoration of ecosystem health and sustainability in all agency activities. These include management of National Forests and Grasslands, state and private stewardship programs, research, and international assistance programs. To the extent possible, these activities will be conducted in partnership with other organizations and groups.
The Forest Service's primary goal is ecosystem health and sustainability. Other goals include:
1) Restoring ecosystems that are impaired with emphasis on riparian and aquatic ecosystems,
2) Improving monitoring, including the selection of indicators to address ecosystem health and biodiversity in an integrated manner,
3) Protecting and recovering threatened, endangered and sensitive species,
4) Increase international efforts to address biodiversity as well as domestic concerns related to use of non-native species,
5) On the National Forests, 90% of rangelands and riparian areas will be in satisfactory condition by the year 2005.
In the future, the agency's programs will focus on maintaining ecosystem health and sustainability, including protection, maintenance and restoration of biodiversity, through ecosystem management. Ecosystem management will also guide programs in other areas including cooperative efforts with other government agencies, private land owners, and international organizations.
The Forest Service will demonstrate the commitment to ecosystem health and sustainability through the following major actions:
Ecoregional Assessments: In partnership with other agencies and groups, the Forest Service will conduct these assessments to establish a base line measurement of composition, structure and function of the major forest, rangeland and aquatic ecosystems at the ecoregional level. The assessments will use current scientific information to identify current resource conditions, discuss the activities and processes that led to current conditions, and predict resource condition trends. They will cover all land ownerships and will require a broad base of understanding, acceptance and support both inside and outside government. The assessments will form the basis for future actions toward ecosystem health.
Indicators and Criteria for Ecosystem Health: In partnership with other agencies and groups, the Forest Service will develop definitions, indicators and criteria for ecosystem health and biodiversity. Definitions of ecosystem health will be based on the general definition of health as well-being, and incorporate concepts such as sustain-ability and resilience to stress. Efforts to develop indicators and criteria will use as their basis the Multiple Use Sustained Yield Act, the National Forest Management Act, the Endangered Species Act, the Clean Air Act, the Clean Water Act and others. Setting the criteria for what constitutes an improved, restored or protected ecosystem, and for maintenance and restoration of biodiversity will require scientific information and cooperation with partners through ongoing research, monitoring, evaluation, education, and accountability.
Riparian and Aquatic Ecosystems: The health of riparian and aquatic ecosystems serves as an indicator of the health of the entire watershed. In those areas where riparian and aquatic health is targeted for improvement, restoration will follow analysis of the existing watershed conditions at the watershed scale. Watershed analyses will be conducted to ensure that the assessment and proposed restoration activities are efficient and well integrated with all ecological and human values and functions. Among the factors considered in prioritization will be proposed development activities, importance to threatened and endangered species, risk to soil or water resources, probability of success of the restoration effort, and ownership patterns and the relative contribution of Forest Service actions to restoration. Riparian areas and aquatic ecosystems are the focus of improvement of fish habitat for endangered fish stocks. The Forest Service will enhance its program initiatives for aquatic and riparian areas.
The Forest Service will manage areas around streams, lakes, wetlands, and intermittent and ephemeral channels, with the primary management objective of maintaining or restoring ecological function of riparian areas, and with a secondary objective of promoting landscape connectivity. Management actions will only occur in areas where the agency has authority to do so. Where conflicts in uses occur, riparian health will be the primary consideration. Research and monitoring will give increased emphasis to the development and use of indicators of aquatic and riparian health.
Forest Service efforts will include working in partnership with other landowners to meet their objectives. In addition, science and technology developed to aid in riparian and wetland management and restoration will be the focus of technology transfer efforts developed for landowners.
Prescribed Fire: Fire is a fundamental ecological process in many forest and rangeland ecosystems throughout the U.S. The Forest Service will increase its use of pre-scribed fire to maintain and restore ecosystem health. The agency will strengthen its knowledge of fire ecology and its expertise in the use of prescribed fire in an effort to provide for the long-term health of fire-adapted ecosystems. The agency recognizes that where values at risk and escape potentials are high, prescribed fire may not be an appropriate treatment option at the present time. Prescribed fire is an important management tool, but smoke and potential damage and injury must be carefully man- aged. Therefore, research and technology development will focus on safety, risk mitigation, and, where feasible, the development of long-term strategies for the reintroduction of fire, including preparatory mechanical treatments. Through partnerships and educational efforts the agency will initiate a major effort to increase awareness of fire's beneficial role in ecosystem health. The Forest Service will work with other agencies to reduce regulatory barriers, such as air quality constraints in the Clean Air Act, to the use of needed levels of prescribed fire. The agency will compare the consequences of prescribed fire to catastrophic fire, in the short and long term, in making policy decisions.
Forest Insects and Disease: The Forest Service will apply land management practices that are based on current understanding of the roles of insects, pathogens and other agents of change in forest ecosystems. An ecological approach to management can reduce the frequency and severity of epidemics of native insects and disease over the long term and minimize the need for direct control action. Direct control actions are considered when insect or disease epidemics place human uses, values, products or services at risk. When epidemics occur, the Forest Service will assess the biological basis and need for action, analyze alternative treatments through the NEPA process, and ensure that control actions, if taken, are ecologically and economically sound. Cooperative forest health programs with states and other federal agencies, as well as international assistance programs, will take a similar approach. Priority will be given to research and development that provide the knowledge and technology to support this management policy.
Exotic Pests: Exotic species can be extremely disruptive to ecosystem health. These include plants, animals and microbes. When they damage ecosystem health or the ability to meet the needs of people, they are considered to be "pests" of forest, rangeland and aquatic ecosystems. The presence of exotic species (non-indigenous species) can have a significant negative impact on biodiversity. When exotic species threaten the diversity of native species, natural biological communities, or natural processes, the Forest Service will take action to mitigate adverse effects.
Unintentional Introductions: As global commerce and travel expand, the threat of exotic species invasions is also increasing. The Forest Service will cooperate with the Animal and Plant Health Inspection Service (APHIS) in their programs to exclude exotic pests. For example, the Forest Service will prepare risk assessments for proposed log importations to provide the necessary basis for APHIS regulatory action. The agency will work with APHIS to assess, develop, and implement strategies to prevent the introduction and spread of exotic species, and to harmonize quarantine measures with Canada and Mexico. Emphasis in research and development will be in support of this management policy.
Intentional Introductions: The Forest Service does not support the release into the wild of any species outside its natural range unless it has been tested and does not threaten the health or biodiversity of native ecosystems.
Established Species: When an exotic species that has become established in an area threatens ecosystem health, biodiversity, or human values, the Forest Service will assess the biological basis and need for action, analyze alternative treatments through the NEPA process, and ensure that control actions, if taken, are ecologically and economically sound. If warranted, the agency will conduct research, provide assistance to states where private lands are threatened by exotic forest pests, and participate in international programs to assist other countries.
Forest Health Monitoring: The Forest Service will continue to expand the Forest Health Monitoring program (FHM) until all 50 states are fully involved. FHM is a joint USDA Forest Service, US Environmental Protection Agency Environmental Monitoring and Assessment Program (EMAP), and cooperating state forestry and/or agriculture agencies program designed to monitor the health of forest ecosystems. The Forest Service will continue to work directly with the states and in coordination with EPA's EMAP and other federal partner agencies to collect science based, quality assured data at appropriate levels of detail and to report findings annually.
Ecosystem Management: The Forest Service will develop a model to support strategies for management of terrestrial and aquatic ecosystems. National Forests and Grasslands will be managed on an ecosystem basis and habitat needs of sensitive and threatened and endangered species will be considered when decisions are made. The Forest Service will use ecosystem management as a tool for maintaining species viability and for recovering threatened and endangered species. Viability of threatened and endangered and sensitive species will be maintained in a way that blends long-term needs for overall ecosystem health and the needs and values of people. Forest Service acquisitions near National Forest System land will give priority to tracts containing areas key to maintaining biodiversity, including threatened and endangered species.
Sensitive Species Program: The Forest Service will intensify its efforts to protect habitats for sensitive species. These programs will provide for early mitigation and to fewer species ultimately being listed, and will take advantage of the managerial decision space available before listing. The Forest Service will increase efforts with Federal and other agencies, Tribes, and other groups to develop collaborative priority setting and planning at the local, regional and national levels. The Forest Service will work with the U.S. Fish and Wildlife Service (USFWS) and will strive to broaden this partnership in early field cooperation, inter-agency conservation assessments, close collaboration of sensitive and pre-listing programs, merging conservation agreements into forest plans, and developing inter-agency public information products and technical and policy sessions. In addition to efforts and considerations related to threatened and endangered species, the Forest Service will continue to identify and protect habitats for sensitive species. The Forest Service will increase efforts with Federal and other agencies, Tribes, and non-governmental organizations to work collaboratively to set priorities and develop plans at the local, regional and national levels. The Forest Service acknowledges the importance of cooperating with the United States Fish and Wildlife Service in enhancing the agency's Threatened and Endangered Species program. The agency will continue to work with the Fish and Wildlife Service to broaden this partnership in early field cooperation, inter-agency conservation assessments, close collaboration of sensitive and pre-listing programs, merging conservation agreements into Forest Plans, and developing inter-agency public information products, and technical and policy sessions.
Role of Non-Federal Lands: The Forest Service will foster cooperation with private landowners to protect ecosystem health, biodiversity, and threatened and endangered species. The agency will consider entire habitat requirements for the multiple species found in an ecosystem, throughout the relevant federal and non-federal landbase, jointly in cooperation with owners and agencies. Through technical and financial assistance programs, the Forest Service will make available opportunities and incentives for owners of private land to protect critical habitat for threatened and endangered species, and to maintain or restore ecosystem health and biodiversity.
Research: Forest Service research will initially focus on indicators and elements of ecosystem health and biodiversity which are determined to be of critical importance. In addition, the Forest Service and its cooperators will generate the scientific information needed to conduct the other actions described here, e.g., protection and restoration of aquatic ecosystems, threatened and endangered species, role of fire and increasing public acceptance of prescribed fire.
International Programs: The Forest Service's international mission will reflect the agency's domestic policy of ecosystem management, which includes full consideration of ecosystem health, biodiversity, and threatened and endangered species. As the Forest Service becomes more active in international forestry and natural resource diplomacy, it will increasingly provide analytical and technical support for U.S. negotiations concerning international trade policy. Such involvement will help protect threatened and endangered species and biodiversity beyond U.S. borders. The agency will work cooperatively with international organizations and foreign governments to protect and maintain ecosystem health and biodiversity around the world. The Forest Service will also promote efforts to cooperate with countries where species migrate between the U.S. and other nations, ensuring that such species have ample and suitable habitat in each country as needed.
Public lands offer a variety of opportunities for resource use, such as hiking, camping, timber harvesting, minerals development, and use of communications sites. User fees can affect the amount of resource use, the degree of equity among users and non-users, the revenue returned to the U.S. Treasury, the economic health of local communities, the viability of related private enterprise, and the commitment of land and resources.
Public concern regarding resource pricing on federal lands has been increasing, especially as federal government revenue continues to fall short of spending. Some charges for use of resources, especially for livestock grazing and timber, have been the subject of widespread debate for years. The existence and amount of charges have become controversial as competition for the use of National Forest System lands has increased.
The Forest Service currently charges fees for timber removal, developed recreation site use, grazing permits, and other products and services. Fees charged by the agency vary, and are not currently based on any single pricing philosophy. There are inconsistencies in current laws, regulations, and policies that affect pricing of the goods and services available from National Forest System lands. Some fees are established by law, while others are set administratively by the agency. In spite of a long history of discussions, many research and administrative studies, and legislative efforts, contentious debate concerning resource use charges on National Forest System lands continues. As new products and services are desired from National Forest lands, the need for a consistent approach to pricing increases in importance. The Forest Service has consistently led efforts to gain authority for increasing grazing fees as well as for introducing fees for additional uses.
For goods and services for which fees are charged, the Forest Service will continue to work toward a system in which fees are based on the fair market value and the cost of production. The amounts of goods and services supplied will be limited to levels that are sustainable over the long term.
Unless otherwise directed by legislation, resource prices will reflect the fair market value or cost of resources. The Forest Service will continue to operate with a business-like approach where costs are recovered as completely as possible. If production costs exceed fair market value, the price will be set to recover production costs. The agency will strive to decrease production costs to the lowest possible level. However, the Forest Service will not infringe on the private sector by providing resources at discounted prices. When current laws prevent the Forest Service from charging fees at the higher of the two amounts, fair market value or cost, the agency will propose new legislation.
There will be two circumstances in which prices could be set lower than the price resulting from the general rule above. These situations occur when:
a. A sale at below fair market value or cost is the least cost way to achieve a specific resource objective. Examples of such objectives are providing habitat for threatened and endangered species or treating forest stands for insect infestation.
b. Specific social objectives warrant lowering prices below fair market value or total cost of production. As a government agency, the Forest Service has a mission to provide resources and uses to the American public. For example, gradual phasing-out of below cost timber sales will help mitigate adverse impacts to natural resource-dependent rural communities.
Forest Service policy towards resource pricing is fully consistent with direction from the Office of Management and Budget (OMB). The agency will implement Office of Management and Budget Circular A25, concerning user charges. Implementation will consist of three phases: 1) inventory of all goods and services offered to the public, 2) application of cost principles to these offerings, including determination of the existence of special benefits to groups other than the general public, and 3) application for exceptions for certain cases, subject to OMB approval.
The American people value the natural world in numerous, complex, and often conflicting ways. These values can be examined at several levels, ranging from individuals through communities to entire societies. In addition, values reflect a wide range of perspectives on the natural world including economic, aesthetic, cultural, amenity, moral, and spiritual facets. The Forest Service increasingly recognizes the need to understand and integrate these values into its culture, policy development, and decisionmaking. This need is mandated by law and is recognized in the agency's mission and guiding principles. The challenge facing the agency is how to integrate the full range of publics and their values into policy development and decisionmaking. Accomplishing this will require the agency to achieve a balance between differing values of its diverse publics in order to develop management strategies that provide for ecologically and socially sustainable natural resource management in the future.
The Forest Service began as an agency with the mission of conducting social forestry on land owned by the citizens of the U.S. The agency has a long tradition of incorporating social values into decisions, and currently responds to social values in many of it programs and actions. The agency's role in and responsibility for quality of life in rural, resource-dependent communities and its commitment to providing quality recreation are examples of ways the agency has attempted to incorporate social con-text into policy and decisionmaking. Other efforts include the social impact assessment aspects of NEPA and forest planning, research programs that seek to address inter-related ecological and social issues, a strong economics research program, and efforts to diversify the workforce to make it more reflective of the American public. Efforts are also underway to improve public involvement efforts.
The Forest Service will increase attention to broadening the range of people's values considered in management decisions, broadening the range of management decisions which incorporate people's values, and working directly with a broader range of people. These values will be blended with environmental values, and will be considered in decisions throughout the agency. In contrast to the current position, future efforts will be broader in scope, integrated across the agency, and will be key area of organizational emphasis. The Forest Service will again be known as the experts in social forestry.
In order to increase awareness of diverse values and needs, the Forest Service will work to create opportunities for open decision making. The agency will be committed to planning and decision making that is characterized by: a) sustained interactions with other agencies, groups, State and local governments, Indian Tribes, and the public; b) open sharing of information and opinions, and c) joint involvement in problem solving. The Forest Service will retain ultimate responsibility and accountability for making and implementing decisions.
Consistent with the Forest Service Mission to listen to people and respond to their diverse needs, the agency will employ innovative approaches to public involvement that strive to find common principles among the breadth of expressed values, and will strive to find mutually desired futures. Direct engagement with our publics, mutual education, and adjustment of management strategies in response to changing conditions will be emphasized.
Some specific actions can be taken to achieve better integration of human values into decisionmaking:
a. We will work with a broad spectrum of partners to promote awareness and sensitivity to the ways in which people's beliefs and values shape their preferences and choices.
b. We will incorporate new constituencies and work to strengthen our communities of interest, through direct engagement in a process of open decisionmaking.
c. We will implement the actions spelled out in the Forest Service Customer Service Plan (footnote) to engage, respond to, and serve customers and stakeholders.
d. We will share leadership with our employees by encouraging their participation in the policy development process. Our work force will represent diverse cultures and backgrounds, serving as an immediate way to bring multicultural values directly to bear on management decisions.
e. In making decisions throughout the Forest Service, we will consider information from social, as well as physical and biological, sciences. We will increase our ability to apply our knowledge of people's beliefs, attitudes, behaviors, needs and values--for example, by strengthening social impact assessments for NEPA analyses. We will draw on disciplines ranging from cultural and social anthropology to environmental ethics, history, economics, and law to augment what we learn from fields such as geology, wildlife biology, and botany.
f. Research on the changing social context will be emphasized to bring social research into better balance with physical and biological research. Working through partnerships with others, the Forest Service will focus research on how to better understand and use social values in decisionmaking.
The Forest Service deals with ecologically complex conservation issues. Efforts to resolve these issues have far-reaching economic, social, and political impacts. It is imperative that the Forest Service have access to high quality, applicable, and current technical and scientific information when making both program and policy decisions. Providing decisionmakers complete and timely technical information continues to be a priority issue. To effectively bring science to bear on program and policy decisions requires that the agency (1) anticipates issues; (2) clearly identifies the types of information needed; (3) acquires, analyzes, and synthesizes the appropriate information; and (4) ensures that all relevant information is considered in an objective and timely manner. Forest Service Research (FSR), as the world's largest forestry sciences institution, has a primary responsibility for developing and disseminating new knowledge and technologies. The agency also relies on the sophisticated technical skills associated with the National Forest System (NFS), State and Private Forestry (S&PF), International Forestry (IF), other Deputy areas, and other agencies and institutions.
The Forest Service is working to improve the integration of science into policy. Current efforts include the hiring of substantial numbers of people with advanced academic degrees to provide scientific expertise to managers at the district, forest and regional levels. In addition, much agency research is directed at providing useful information for policy decisions. At some levels, agency managers and their staffs are partners in setting research priorities.
The Forest Service is increasingly developing management plans using teams of scientific experts representing both the management and research branches of the agency. This procedure has ensured that current scientific information is incorporated into the planning process and that analyses and interpretations meet acceptable scientific standards. This approach is improving understanding of resource tradeoffs, conflicts among users, and technical considerations. "Management Recommendations for the Northern Goshawk in the Southwestern United States," and "The Conservation Strategy for the Northern Spotted Owl" are examples of technical assessments developed by joint science/management teams. These assessments have received wide scientific and public endorsement.
The Forest Service will seek to provide quality scientific information to external policy makers. Since most issues related to forests have social and political, in addition to biological and physical dimensions, the Forest Service is committed to bringing information from all the relevant sciences to the policy table. In making decisions within the agency, the Forest Service will seek out and consider quality, current scientific information. Both scientists and policy makers are critical to agency success in this arena. The Forest Service will ensure that the roles and responsibilities of scientists, resource specialists, and policy makers, including research administrators, are clearly understood and carried out throughout the policy-making process.
Policy makers will be actively and substantially involved in identifying new research and new technology needed to improve policy making. Each policy maker will be responsible for ensuring that scientific input relevant to the decision at hand is obtained. Research administrators will advocate appropriate consideration of scientific information. Research administrators will also actively participate in policy deliberations, helping to place the relevant scientific information into its proper context with other considerations.
Scientists, resource specialists, and policy makers will identify options. Scientists will then evaluate the consequences of pursuing those options, using information from all appropriate sciences (social, economic, physical, and biological). Scientists will be asked to technically evaluate the range of policy options. Scientists will share with managers the relative confidence associated with their estimates. For policy decisions, how the scientific information was used will be clearly articulated and documented by the policy makers.
To ensure that policy choices are made with quality scientific information, the Forest Service is committed to open scientific review of scientific documents and processes. The agency will increase its use of quality assurance in both research and monitoring. In addition, the agency will increase its capability to use risk assessment techniques to provide a methodology for interdisciplinary scientific support for policy decisions.
Conservation will play a critical role in helping meet people's needs for wood products, while helping reduce pressures on the forests of the U.S. and the world. Given increasing population and the increasing emphasis placed on a broader spectrum of resource values, conservation of wood resources must be a key ingredient in development of responsible natural resource policies. In addition, wood fiber products are a significant part of the municipal waste stream, ending up in landfills. Converting this material to useful products will not only help meet demands for products, but will reduce pressures on landfills. Given the pressures on our forests, it is imperative that we make the best use of our wood resources. This is consistent with the Forest Service conservation ethic described in the Mission. By way of this ethic, the Forest Service has committed to promote the environmentally sensitive harvest and use of products from the nation's forests. The essence of conservation is saving and extending our resources.
The Forest Service has a long history in conservation of wood primarily through improving the efficiency of wood use. Forest Service research has focused on providing new technology for improved wood processing, increased protection and durability, and extending the life of wood fiber through recycling. The Forest Service has provided technical assistance and information sharing on resource management and use to private and non-federal land owners and the public at large. In addition, the Forest Service has implemented the Federal Recycling Program agency-wide for collecting recyclable materials and helping to create demand for products made from recycled materials through procurement preference.
The Forest Service will advocate conservation of wood resources and manifest its commitment through an approach that is integrated across functional areas. The agency will continue to conduct research, develop new technologies, and provide technical assistance to help conserve resources by making the best use of each tree that is harvested. The Forest Service will work towards the reduction of municipal waste streams and will help make wood products more durable for home and office environments. The Forest Service will enhance and broaden its recycling efforts, work towards the development of new technologies and use of new products, pursue the purchasing of environmentally sound products as well as incorporating waste prevention and recycling in the daily operations of the agency.
The Forest Service will emphasize three areas of research and technology development in response to the need for conservation: improving the efficiency in harvesting and processing wood, increasing the duration of wood in use, and improving recycling.
Improved Recycling: The Forest Service will develop technologies to increase recycling of all sources of wood fiber, and will include technologies to produce composites with non-renewable materials, such as plastics. Research will focus on increasing the use of recycled products in residential construction. The agency will also increase the efficiency and waste handling requirements of its internal operations.
Increased Duration: The Forest Service will help protect and extend the useful life of wood products by developing and utilizing biological approaches for protection and preservation. Technologies and strategies to reuse wood products will receive additional attention. Increasing the life of wood products has the added benefit of storing more carbon. The Forest Service will not use or promote the use of environmentally harmful preservatives and finishes.
Improved Efficiency: The Forest Service will support conservation of wood resources through the development and use of technologies that increase the efficiency of harvesting and processing trees into useful products. Research will focus on engineering of new products that focus on efficient use of wood fiber. Emphasis will be placed on biologically based approaches where possible. This work will be in concert with management strategies that protect the health and productivity of our nation's forests.
The Forest Service will share new knowledge and technologies in a timely and effective manner with all users and will play a stronger role in providing assistance and encouraging acceptance of new products to a wide variety of wood using industries. The agency will work with private land owners in sharing new technologies for improving the utilization of trees. Incentive programs will encourage efficient use of resources. The agency will work toward the coordination with other governmental agencies regarding technology transfer and assistance. The Forest Service will increase assistance to small and medium sized businesses and industry to promote improved utilization and recycling in manufacturing, and strengthen markets and pro-mote standards for products derived from improved utilization and recycling. Where appropriate, the Forest Service will also work with rural and other communities in development of conservation and recycling opportunities.
The Forest Service will increasingly apply principles of wood fiber conservation in an integrated way throughout all program areas. Through the conservation education program, coupled with information offices on the National Forests, information on the importance of, and ways to demonstrate conservation will be disseminated. Agency-wide commitment will also be demonstrated by incorporation of conservation and recycling into all agency practices.
The infrastructure issue, particularly the amount of infrastructure required and the associated needs for maintenance and operation, has never been addressed across organizational levels and functional program areas within the Forest Service. Additionally, the agency has not planned for the disinvestment of infrastructure that is not needed to meet resource or administrative objectives.
Forest Service infrastructure is comprised of facilities and improvements which benefit people and protect and enhance resource conditions. Agency infrastructure provides for the sustainable use and protection of resources, access to and through the national forests, recreation, and research support. Infrastructure, such as roads, buildings, and campgrounds, forms the basic foundation for the agency's capability to accomplish its mandates.
Other examples of Forest Service infrastructure are owned and permitted buildings and utilities, roads, bridges, trails, dams, recreation sites, airfields and electronic sites. Structures, such as range fences and watering ponds, erosion-control mechanisms, and fish ladders enhance resource conditions and user opportunities. Infrastructure also includes landlines that are physically and legally identified; active, inactive, and abandoned mines; and oil and gas wells.
There are many consequences of insufficient or substandard infrastructure. Resource conditions suffer because of inadequate infrastructure, such as erosion resulting from poorly maintained roads and trails. Transportation system deterioration limits access and mobility, affecting the ability to deliver products and services to the public. A lack of infrastructure can permit encroachment and trespass, resulting in resource degradation. Inadequate maintenance of watershed structures and transportation facilities can cause silting which affects water quality. Failure to invest in new or renovated infrastructure may result in violations of laws and regulations relating to equal accessibility, which could limit public access and employee diversification. In some situations, insufficient infrastructure can result in failure to ensure the health and safety of the public and employees.
Forest Service infrastructure represents a multibillion dollar investment in tangible assets, whose condition has been declining for several decades. In many cases, assets have deteriorated to the extent that reconstruction or obliteration are the only options. In other cases, routine maintenance is far behind schedule, putting these assets at risk of loss as well. Recent and current funding for maintenance has been insufficient to maintain agency infrastructure and the tremendous investment it represents.
The Forest Service is currently developing an infrastructure data base. Accurate inventories of existing infrastructure, its location, condition, and value have been conducted for some categories, but inventories for some areas are poor or nonexistent. This data-base will accommodate the inventory of all major categories of infrastructure and include location, description, condition, and value. Existing inventories are being transferred into the infrastructure data base as different modules are developed.
Maintenance of facilities is presently prioritized locally, with maintenance allocations being made primarily on a historical basis coupled with region, area, and station re-quests. Present funding is inadequate for fully maintaining to the current standard, so the infrastructure is in some cases deteriorating to conditions that will require restoration or reconstruction. Capital improvements (reconstruction or construction) continue to be funded even though maintenance funding for their upkeep is not ensured, thus adding to the maintenance/restoration backlog.
To address infrastructure needs, the agency will use the "comprehensive infrastructure management" approach, which includes establishing and maintaining a complete inventory of all items in the infrastructure, with a description of condition and a listing of maintenance needs. Infrastructure planning will be integrated with other strategic and programmatic plans to set priorities for schedules of disinvestment, restoration, maintenance, and new investment. This proposed approach will enable the agency to focus limited funds on its highest priorities and eliminate facilities which serve less important functions or are no longer needed.
New installations or new construction will be limited on any unit and linked to progress in clearing maintenance backlogs. Thereafter, the rate of disinvestment, and the ability of the unit to provide maintenance at least through the expected life of the installation, will determine the rate of new additions to the infrastructure. However, in some specific situations new infrastructure will be built before disinvestment, restoration and maintenance of existing infrastructure are completed. This may occur when the Forest Service works with partners outside of the agency to support infrastructure requirements. Recreation user groups may help build and maintain recreation facilities (campgrounds, buildings, roads, trails); State and local fire departments may join with the Forest Service in building and maintaining fire related facilities; cooperators and commercial users would contribute to upkeep of the transportation facilities. These types of activities presently exist, but expanding these partnerships will receive increased emphasis.
Rapid urban expansion in and adjacent to forests and rangelands, or the "wildland/urban interface," poses a significant challenge to conventional government policies and services, as well as to other natural resource managers and urban planners. Population growth in wildland/urban interface areas increases risks of wildfires, as well as the associated risks to people, homes and businesses. The focus of traditional public land management, on protecting and maintaining natural resources, conflicts with or inadequately serves the expectations of people moving into the interface. Some residents expect urban service levels in a wildland area, including development of public and private services such as recreation and shopping. Ad-dressing these expectations presents challenges in many areas, including protection of water quality, wildlife, forest health, and the public health and safety.
In addition to its involvement in inter-agency programs aimed at fire protection, the Forest Service participates in community-based interface task forces which also address recreation, law enforcement and special uses. Other Forest Service programs and processes aim at accommodating the diverse needs of people adjacent to the National Forests and Grasslands.
Successful interface task forces exist in several small cities around the country. Originally organized in response to potentially dangerous fire problems, these task forces include representation from local resource managers, fire departments, city planning offices, insurance companies, tribal governments, homeowners associations, and recreational interest groups. Task force members encourage the development of alter-native solutions to issues the range of which has expanded from fire safety to Forest Service recreation practices and wildlife habitat management.
Current Forest Service direction is to emphasize improved communication and cooperation with adjacent landowners and land managers and with state and local governments to promote voluntary, mutually acceptable adjustments that make management of intermingled lands more complementary.
The Forest Service will take proactive and assertive actions to confront interface conflicts, develop workable solutions, and to minimize the potential for future problems. In doing do, the agency will continue to respect and be particularly sensitive to the rights and responsibilities of state and local governments and private landowners to make decisions about the use and management of state and private land. The Forest Service will work in partnership with all landowners to achieve shared goals. The agency will continue to emphasize mutual cooperation and improved communications and cooperation with adjacent landowners and land managers and with state and local governments.
The Forest Service also recognizes that societal needs are changing. Forest Service Research, in addition to National Forest System and State and Private Forestry, will investigate the nature of interface issues and explore solutions related to the approaches described below. Through the implementation of the techniques below, the agency will respond to the changing social character of the wildland/urban interface areas.
The Forest Service will seek to create cooperative forums for addressing wildland/urban interface topics, including the use of the following techniques:
Broader Joint Planning: Forest Service representatives would participate in community planning sessions and community planners will be invited to take part in forest planning in order to coordinate planning efforts.
Interface Compacts/MOU's: The Forest Service will pursue public/private collaborative compacts to inform, educate, and take action to address interface issues. These agreements will be tailored to the specific situations and objectives in individual communities, with explicit roles and responsibilities for the participating organizations.
Partnerships With Not-For-Profit Associations: Not-for-profit associations supported by private sector dollars from sources such as insurance companies and other interested corporations will be agency partners for activities in the interface. The Forest Service and its public agency partners will create the centralized project management structure and provide direction for the associations' activities. The Forest Service and other public agency employees will provide educational and informational tools to assist the not-for-profit association partners.
Public interest in environmental issues has grown and led to rising demand for information and education regarding natural resource conservation. People of all ages, from school children to senior citizens, have shown a desire to learn more about the natural world, ranging from the small ecosystems near their home to global climate issues. Also, since much of the interest in environmental issues centers on public lands, education regarding natural resource management in these areas has received much attention. The opportunities to provide natural resource conservation education and the related challenges have multiplied, as the size and diversity of the nation's population have grown.
The Forest Service has helped people learn about natural resources for many years and pursues a variety of natural resource conservation education efforts. Agency employees routinely give visitors to national forests insights into the ecology and management of these areas. Smokey Bear and Woodsy Owl are known internationally. The agency provides the public with conservation information and interpretive programs dealing with subjects such as wildlife, recreation, water, wilderness and timber. Forest Service visitor centers are used year-round by the public, including school groups and educational organizations.
Through its work with partners, the Forest Service supports conservation education efforts which reach out beyond national forest boundaries. Partnerships with other federal, state, and local agencies, conservation organizations, private corporations and others help the Forest Service bring conservation education to a wide variety of people. The agency encourages innovative and promising conservation education efforts by other organizations through financial and technical assistance to specific projects.
The Forest Service will aggressively pursue a natural resource conservation education program which takes advantage of opportunities for cooperation with partners, including educational and environmental organizations, state and local agencies, Indian Tribes, and other collaborators. This pursuit will consist of two broad efforts. First, there will be continuing cooperation with partners in bringing basic environmental education that encourages life-long learning to a large spectrum of people, especially children. A key focus will be on urban areas and the linkage to the agency's mission in urban and community forestry. Second, the Forest Service will encourage more intensive resident experiences and study tours focused on learning about ecosystem management on national forests and surrounding lands. In all natural resource conservation education efforts, National Forest System, State and Private Forestry and Forest Service Research will work together in an integrated way to provide information and perspectives to participants. The agency will use investments and partnerships throughout the Forest Service to provide a comprehensive view of natural resources. Conservation education programs will be linked to existing efforts such as Minerals Showcase, Watchable Wildlife and Project Learning Tree.
Basic Environmental Education: The Forest Service will continue to work with its partners to give children from diverse backgrounds a foundation in ecology and natural resource conservation. Through blending "environmental literacy" with basic life skills training, children will gain knowledge useful in all aspects of their lives. The agency will give special emphasis to linking its mission in urban and community forestry with environmental education for community residents of all ages. Where possible, field trips to national forests will help residents identify the relationships between their community forestry activities and the broader ecosystems in the region.
Intensive Ecosystem Management Learning: This aspect of Forest Service environmental education will use national forests as a living classroom for learning about ecosystem management. Working with partners such as the National Forest Foundation, the Forest Service will sponsor children's camps on several national forests, providing a one- or two-week immersion course in the principles of ecosystem management. Cooperation with the Department of the Interior and state and private landowners will provide participants with a view of the ecosystem across ownerships. These experiences will help spark interest in natural resource careers and will contribute to an informed citizenry in the future. Working with partners in universities, conservation organizations and others, the agency will encourage similar programs for adults in the form of study tours.
According to the 1989 RPA Assessment and the 1993 Assessment Update, prices for softwood sawtimber will rise rapidly in the United States through 2010. RPA Assessment research suggests that increasing state and local regulation of non-industrial private landowners may limit their willingness to increase sawtimber outputs. The values and objectives of private landowners may be changing, adding further uncertainty about future sawtimber production from private lands.
Currently, certain products, particularly those used in construction, are made from softwood sawtimber. While substitutes exist and are available for some applications, limited supplies may contribute to higher prices for softwood sawtimber.
The Forest Service has three main approaches to increasing the availability of saw-timber. These include making softwood sawtimber available through timber sale pro-grams on National Forest System lands. Such programs have been decreasing due to increasing environmental concerns. The second agency approach is assistance to private landowners to help them achieve their stewardship objectives and to provide sawtimber from their land. Such assistance is in the form of technical assistance and incentives for tree planting and forest management. The third approach is research on technologies and processes to improve the utilization of softwoods, and to develop substitutes for softwood sawtimber. A specific example of this kind of research is work on engineered wood products, which involves making large products out of smaller and potentially more available material. Research has led to the development of processes and techniques to grow trees faster and process them more efficiently. Research has also formed the basis for development of product standards that have extended supplies and facilitated the development of new products. In addition, the agency has transferred information on technologies such as logging and mill efficiency to the private sector.
The Forest Service will focus on easing pressure on prices for softwood sawtimber by conservation and substitution of other materials. The agency continues to support international trade in forest products. Two approaches will be used: first, continuing ongoing efforts to encourage state and private landowners to provide sawtimber, and second, research, development, and transfer of technologies to produce alternatives to sawtimber sized material.
The Forest Service will continue current efforts to assist landowners to increase forest productivity and provide sawtimber within the overall context of land stewardship. The agency will provide financial and technical assistance through the Forest Stewardship Program to improve management and harvesting practices, and to increase utilization in an environmentally sensitive manner.
The Forest Service will expand its research to provide alternatives to softwood sawtimber sized material. Research will address:
1. Substitution of alternative fiber sources for those used in the past (smaller diameter trees, hardwoods, and other underutilized tree and shrub species).
2. Recycling of wood and wood composite materials, including paper.
3. Engineered wood and wood composites.
New research will focus on the following areas:
1. Social and behavioral aspects of demand reduction, the use of alternative wood sources, the spread of innovative technologies and market development.
2. Environmental and social effects of the substitution of non-wood materials for wood.
As the above research is completed, the Forest Service will encourage availability and use of new information and technologies on improved utilization and substitutes to businesses and landowners. Technical and marketing assistance will help entrepreneurs develop businesses to make substitute products, preferentially in rural areas. The agency will work through State Foresters to provide new information to landowners on markets for alternative material and technical assistance on management to provide such material.
The Forest Service will increase efforts to make material available for new products and markets from National Forest System lands. As markets develop for different types and sizes of woody material, the National Forest System will increase efforts to provide this material. Woody material removed will be surplus to what is needed for ecological purposes on a site, and will be determined through forest planning.
Throughout the Forest Service's history, the agency has recognized recreation as one of several important uses of federal lands. As the Forest Service strives to meet the public's demand for various forms of recreational settings and services, aging facilities and limited financial resources present challenges to the fulfillment of this objective. Some recreational areas no longer meet the standard of quality necessary for their intended use. As demand for certain kinds of recreational opportunities shift, new facilities must be constructed and maintained, while others are comparatively underused. In areas of increasing recreation, adequate facility maintenance, such as trail reconstruction, is crucial to environmental protection.
Some opportunities can be enjoyed by the public with only minimal management involvement, but most opportunities require a high degree of management to provide access for most of the public. The Forest Service currently provides more outdoor recreation opportunities than any other public or private institution. National forests provide more than 40 percent of all recreation use on Federal public lands. The Service provides a variety of recreational activities, such as backcountry hiking and camping, hunting, and fishing. The agency presently has sites which are more developed for those visitors whose interests center around recreational vehicle camping and boating. The Forest Service plays a key management and leadership role in continuing to supply outdoor recreation opportunities for the American public and for foreign visitors via the national forests. The Forest Service is currently working in collaboration with partners to help provide recreation opportunities to meet public demand.
The Forest Service response to shifting demands has been to further expand their Recreation Opportunities Spectrum (ROS) to increase the number of developed sites, and to expand the definition of highly developed sites by adding increased levels of experiences within these areas. Despite budget increases, the Forest Service currently has a backlog of maintenance needs for existing trails and facilities. The health of the public and their safety is a number one priority, but limited funding prevents an appropriate overall approach to addressing this issue. Crisis situations, such as poor quality drinking water and hazardous campground conditions, are priorities for funding.
Most recreational opportunities require a higher degree of management to help make them accessible to all people, increase the quality of recreational experiences, protect public health and safety, enhance overall customer satisfaction, and protect the resources for future generations. The Forest Service is committed to providing high quality recreation opportunities. The agency will focus on providing customers with a suitable setting for recreation while maintaining desired ecosystem condition.
High quality recreation opportunities will be offered across the full range of the recreation opportunity spectrum managed by the Forest Service. One portion of the spectrum (e.g., primitive) will not be emphasized over others. Though the agency will not offer some urban recreation opportunities, such as golf courses and theme parks, it will offer a range of developed opportunities up to and including sophisticated camping facilities. Interpretive services will be provided across the opportunity spectrum, especially at sites with significant heritage values. The Forest Service will provide specific attention to the integration of universal design in all developed recreation settings, to insure accessibility and enjoyment for a diversity of visitors reflecting age, ability, and culture. The agency will conduct research to assess the changing needs of society in the future.
Ecosystem condition will be a key factor influencing recreation management decisions. Monitoring of ecosystem condition will be a high priority. In cases where the condition has deteriorated to the point of impairing sustainability of the resource or the enjoyment of the recreation opportunity, specific remedies will be undertaken. Remedies might include resource restoration and/or use restrictions. Research will play a key role in providing the scientific underpinning for decisions on levels of acceptable resource change and to better understand impacts of forest uses.
Forest Service provision of recreation opportunities will be evaluated in the context of all public (federal, state, local) and private opportunities. Higher level planning will be initiated to analyze total recreation supply and demand for given market areas. This will require a much more collaborative effort on the part of all recreation suppliers and will involve careful listening to customers. Tourism will be a key consideration in deter-mining the appropriate balance of recreation opportunities provided. Such an approach will help ensure efficient and effective use of appropriated funds.
The Forest Service will strive to maximize the impact of appropriated funds through the use of partnerships. Private sector partners will play a major role in the operation and maintenance of existing developed facilities. In these more developed areas, Forest Service employees will manage contracts with private sector partners and regularly interact with the public through interpretation and visitor information efforts. In the less developed areas, the agency will also be involved in the more "hands on" activities, such as fee collection and routine maintenance.
The Forest Service also will continue to utilize partnerships in making investments necessary to improve existing facilities or develop new ones. In both cases, a limited number of partnerships investing in highly developed facilities will be pursued and carefully monitored. Special attention will be paid to ensure that Forest Service standards for providing recreational opportunities will be met. The Forest Service will expand to more private sector investment if it proves to be efficient and beneficial to improving recreation settings and serving the public.
The Forest Service will actively work to reduce the pool of deferred maintenance needs on national forest lands. The agency will bring some substandard facilities up to standard through the utilization of private sector investment money. Some recreation areas will be operated at a reduced service level and others will be closed due to poor conditions and inadequate maintenance funding. The remaining areas with deferred maintenance needs will be brought up to standard through investment of Forest Service appropriated money. Decisions about which areas will have reduced levels of service, which will be closed, or scheduled for investment, will be made in a comprehensive master planning process. The Forest Service will develop an investment rehabilitation strategy using appropriated funds to decrease this amount of deferred maintenance.
Specially designated areas (e.g., National Recreation Areas) are unique in the roles they play and will receive increased attention in the future. Research on these areas will increase understanding of their special attributes and the public's expectations for their management. Forest Service recreation policy will highlight these areas and identify the funding necessary for appropriate management.
American Indians and Alaska Natives are people with distinct cultures and traditional values. Although most live in the West, each state contains American Indian or Alaska Native populations. Twenty-eight percent live on reservations, many of which are adjacent to National Forest System lands.
American Indians and Alaska Natives have a special and unique legal and political relationship with the U.S. government, as defined by history, treaties, statutes, court decisions, and the U.S. Constitution. Tribal governments have considerable powers that are frequently separate and equal to those of state and local governments, particularly regarding civil and criminal jurisdiction over individuals and corporations.
The United States has entered into more than 600 treaties and agreements with American Indian Tribes and Alaska Natives which obligate the U.S. government to protect and maintain Native American lands, self government, resources, and traditional use areas. Treaties predate the establishment of forest reserves, and are considered law. Through treaty, some tribes have reserved rights upon present-day national forests and grasslands. Individual treaties specify the rights applying to named tribes on specific NFS lands. National Forest System lands contain many traditional, historic, and contemporary areas of use which are of critical importance to American Indians and Alaska Natives. Cultural practices, such as gathering plant resources, commonly occur on national forests.
The Congress also imposes trust responsibilities on government agencies through statutory enactments. Although the U.S. Department of the Interior's Bureau of Indian Affairs has the principle responsibility for carrying out trust responsibilities on tribal lands, all federal agencies have trust obligations when carrying out laws enacted for the protection or benefit of Indian people.
Tribes are increasingly asserting their government status and pursuing self-determination. The growing self-determination initiatives of tribes are resulting in increasing interactive relationships with national forests, where many tribes have reserved rights such as hunting, fishing, gathering, and placement of temporary structures. Tribes are also seeking participation in government-wide programs such as those offering technical and financial assistance for agriculture and natural resource management.
Tribes and individual Indian people are also asserting their interests in access and use of areas on National Forest System lands for cultural and religious practices, ceremonies, and for gathering medicinal and cultural materials. Tribes are asking that special and sacred areas be protected and preserved so that the integrity of the site allows for the continuance of traditional practices or activities.
The Forest Service Native American Policy (FSM 1563) outlines how the agency will pursue its activities in a manner that respects applicable treaty rights and fulfills trust responsibilities. The agency is in the process of implementing the American Indian Policy (FSM 1563). Although the policy outlines how the agency will pursue activities respecting applicable reserved treaty rights and fulfill trust responsibilities, maintaining a government to government relationship policy, is not efficiently or effectively implemented. Training is being provided, with some presently being conducted with Tribes. Consultation is occurring more and more with Indian Tribes. These actions are providing a better understanding, but effective policy implementation is yet ahead.
In working with American Indian Tribes, the Forest Service will respect each tribe as a sovereign government and will maintain a government-to-government relationship with each. Relationships with tribes will be developed in a manner which recognizes them as governments with their leaders as heads of state. The Forest Service will aggressively implement its Native American Policy and will uphold its responsibilities toward tribes in cooperation with other agencies of the U.S. government.
Treaties, and other statutory tribal rights, will be recognized and respected in Forest Service planning and policy making. Where treaty or statutory rights exist on National Forest System lands, the Forest Service will hold early and continuing consultations with tribes on a government-to-government basis regarding decisions affecting such rights. The agency will uphold its trust responsibilities by allowing the exercise of tribal rights on NFS lands for activities such as hunting, fishing, gathering, grazing, and construction of temporary structures. The agency will also work with tribes and tribal members to reach agreement on using NFS lands for cultural and spiritual practices. In the application of ecosystem management principles, the Forest Service will consider the interests, needs, perspectives, and activities of Indian Tribes as decisions are made.
Delivery of Forest Service programs will be fully consistent with the stated Native American Policy. The agency will recognize tribes' governmental status and Forest Service relationships with tribes will be direct. The delivery of research and technical assistance and of all Forest Service programs, including those of State and Private Forestry, will be made directly to tribes. The assistance by the Forest Service to tribal governments will be delivered with state foresters as key partners.
Despite the current attention to old-growth forests in the Pacific Northwest, old growth as an issue is growing in importance throughout the United States. The basic concern relates to the amount of old-growth forests that should be reserved or made available for timber harvest. Some publics contend that old-growth forests are a unique resource that have been overharvested and most, if not all, of those that remain should be pre-served. Others value these forests for their contribution to meet the nation's wood product needs and their importance in sustaining the economy of local communities and contend that enough old-growth forests have already been reserved in wilderness and other areas. Still other publics advocate that some additional reserves are needed, but that old-growth values can be provided through management that allows some timber harvest.
The agency manages old-growth forests to provide the many values and uses associated with these forests. The current management strategy blends protection and removals of old-growth forests, reflecting forest management goals and priorities. Where goals for providing old-growth values are of highest priority, old growth stands are protected. Prior to initiation of any proposal for old-growth removal, appropriate public involvement efforts are taken through the forest planning process. Where multiple resource goals, including preservation of old-growth forests, can be achieved, with measures such as extending final harvest age well beyond stand maturity, lands are included in the timber production base. In making these determinations, the extent and location of old-growth forests that are congressionally or administratively withdrawn from timber harvest, as well as those on adjacent ownerships, are considered. The Forest Service has developed ecologically based definitions of old growth. Forest Service research efforts are directed at understanding old-growth forest ecosystems and values.
The Forest Service will promote management and restoration of old-growth forests as one component of all forested ecosystems. Old-growth forests are a dynamic part of forest ecosystems and will be managed to provide values and uses such as biodiversity, aesthetics, fish and wildlife habitat, wood products, soil productivity and water quality. Management of current and future old-growth forests will be addressed in ecosystem assessments and analyses. Since all lands are considered in ecosystem management, the Forest Service will increase technical and financial assistance to encourage the maintenance of old-growth values on other federal, state and private lands.
On National Forest System lands, the Forest Service will establish old growth-forest management areas where maintenance and restoration of old-growth values are the primary management objectives. This will include no active management in some areas or management to promote old-growth forest conditions where they do not currently exist in such areas. Old-growth management areas will be distributed across all major forested ecological types on National Forest System lands. Old-growth reserves will be established through the land management planning process, and will be subject to review and change in status as conditions change over time.
The Forest Service will conduct research to explore the values associated with old growth and management techniques to maintain and restore old growth. Research will be expanded and designed to better understand the ecological and social values of old-growth forests. New management techniques will be developed and implemented through technology transfer and adaptive management.
Cooperative work with Forest Service Partners will be focused on mapping, evaluating, and monitoring trends in old-growth forests.
Human activities are changing the chemistry of the atmosphere at an accelerating rate. Pollutants, including greenhouse gases, are altering the Earth's climate. These changes result from fossil fuel burning, deforestation, livestock production, agricultural activities, and the widespread use and release of chemical compounds such as CFC's. The Intergovernmental Panel on Climate Change, a consortium of experts on climate change from 60 countries, was chartered by the United Nations to determine the likelihood of a future change in climate. Based on available information, they concluded that continued emission of greenhouse gases will enhance the natural greenhouse effect, resulting, on average, in additional warming of the Earth's surface.
Ecological, social, and economic forest values are at risk. Forest productivity may be altered by changes in temperature, precipitation, nutrient availability, and direct pollution effects. Changes in species composition and cover type may also occur. Insect and disease outbreaks are likely to increase. Water yield and streamflow timing may be altered. Soil, stream, and lake acidification has already occurred. Pollution, climate stress, and land use, changes will interact and alter the responses of forests and rangelands to naturally occurring stresses. Increasing pressure to use land, by the growing numbers of humans, may exacerbate these natural and human-caused stresses.
Forest Service research efforts are focused on the possible impacts of climatic changes and air pollution on forests and rangelands of the United States. The objective of this research is to provide the scientific basis needed to address effects of physical and chemical change on forests, rangelands, and related ecosystems. Additionally, the Forest Service is involved with the development of mitigation and adaptation strategies for forests and rangelands.
The Forest Service Global Change Research Program and the Forest Health Monitoring Program are cooperative efforts with other federal agencies, universities, and industry to study the impacts of global change. Current research objectives are to (1) provide an understanding of processes governing atmospheric effects on forests and rangelands; (2) determine effects of forest management on the atmosphere; (3) monitor long-term effects of atmospheric change on forest conditions; (4) monitor social and economic impacts of forest change; and (5) define management options based on research results.
The Forest Service will continue to increase understanding of potential causes and impacts of change on U.S. forests and rangelands through research. In addition, the Forest Service will use a two-pronged strategy to address global climate change: adaptation and mitigation.
I. Adaptation: The Forest Service will maintain the health and diversity of ecosystems, so that they retain their resilience in the face of potential change. These efforts are described under the Key Policy Topic Ecosystem Health and Sustainability.
Resilience of forest ecosystems is also a function of ecosystem health and biodiversity as described in the Key Policy Topic Ecosystem Health and Sustainability. Flexibility in Forest Service policies and actions to respond to future changes will be explicit considerations in future agency planning. Choices that leave more future options open will generally be preferred. Such actions will lessen the possibility of forest losses from global change and the increased atmospheric carbon from such losses.
II. Mitigation: The Forest Service will take actions to mitigate climate change through increasing carbon sequestration. Due to the scientific uncertainty regarding trade-offs among different carbon sequestration strategies, the Forest Service will conduct additional research on the effects of such tradeoffs and the efficacy of alternative carbon sequestration strategies. In addition, the agency will implement the following actions which provide benefits in carbon sequestration:
Community Forestry: Forests are often lost to development, whether for housing in rural and suburban areas or for other purposes. Strategies to maintain forest cover and large trees will be studied and tested, toward the desired result of increasing carbon sequestration.
Afforestation: One of the most effective ways to sequester carbon as to plant trees. The Forest Service will expand its efforts to work in cooperation with partners to establish trees on land where tree growing is biologically, socially, and economically appropriate.
Conservation and Recycling of Wood: The Forest Service will expand efforts to recycle, to use wood more efficiently, and to extend the life of products made from wood. These efforts will contribute to decreasing carbon emissions by reducing carbon loss from forest harvesting and by conserving energy. These efforts are described in the Key Policy Topic Conservation of Wood.
Ecosystem Management: The Forest Service will evaluate how different management practices affect carbon sequestration. Through research and demonstration, the agency will develop and apply those management methods that increase carbon storage within the constraints of maintaining ecosystem health and providing for people's uses and values. The Global Change Research and Forest Health Monitoring Programs will continue to provide the scientific basis needed to address effects of physical and chemical atmospheric change on forests and rangelands.
After three decades of controversy, debate over the future management of roadless areas continues. Attempts to resolve this issue began in 1967 with the first Roadless Area Review Evaluation (RARE I). These efforts continued in 1977 when RARE II was implemented to re-examine the roadless issue and to inventory lands not considered in RARE I. Roadless areas play a significant role in contributing to sustaining ecological systems and meeting a wide variety of society's needs. Activities which change an area's roadless character include timber harvest, mineral extraction and campground and ski area construction.
Congress has attempted to resolve this controversy through wilderness legislation. Wilderness legislation has been enacted for six states in the last three years. Statewide bills have been introduced for Montana and Idaho, but not enacted because of the intense level of controversy in these states. Congressional language to release non-wilderness roadless areas for other uses has been ineffective in solving the controversy. The controversy over management of roadless areas does not end with the passage of statewide wilderness legislation. The controversy commonly intensifies and shifts to the released areas. Few of the released roadless areas selected for development have become available due to questions of how these lands should be used.
The roadless area controversy has limited timber harvest to a smaller land base than was projected during the forest land and resource management planning process. Timber supplies are in effect being reduced when released roadless areas continue to be unavailable for management.
The current Forest Plans have proposed that a specified number of acres be recommended for wilderness out of the total number of inventoried roadless areas. Of the remaining roadless areas, a specified number will be managed under forest plans for roadless dispersed recreation, with availability for mineral development. In addition, some roadless acres are considered suitable to provide commercial timber. Since approval of forest plans, some acreage in the released roadless areas have been developed.
Ongoing controversy exists over the management of roadless areas as classified in the second Roadless Area Review and Evaluation (RARE II). Specific decisions on management of these lands will be made for each area as forest plans are revised.
The following guidelines will apply to forest plan revisions:
The Forest Service will incorporate the principles of ecosystem management into management of these lands. The Forest Service acknowledges the significant role of these areas in sustaining ecological systems and in meeting peoples' needs. The roles of these areas will be determined through decisions made in forest planning. Decisions will be based upon analyses conducted across landscapes that consider resource conditions and trends as a context for meeting demands for various experiences, values, products and services. Roadless areas will not necessarily remain roadless because various forms of access would be considered and addressed as part of ecosystem management goals. Vegetation management activities may occur in areas being managed to maintain their roadless character. Entry for management designed to maintain or enhance ecosystem health will be allowed.
The Forest Service will include those roadless areas where periodic timber sales are planned over time in the determination of the allowable sale quantity (ASQ). The contribution of these roadless areas to the ASQ shall be quantified and identified as a non-interchangeable component of the ASQ. If, for any reason, the actual timber sold from the roadless areas is less than what was planned, the amount of timber volume foregone shall not be assigned to and compensated for by the lands representing the other components of the ASQ. Conversely, any shortfall in timber volume sold in the other components of the ASQ shall not be assigned to and compensated for by the roadless areas.
The Forest Service will increase the proportion of areas being managed to maintain their roadless character.
The Vice President's Report of the National Performance Review identifies the opportunity for "Cutting Red Tape" by "Streamlining the Budget Process." The report says that the complexities and constraints associated with the Federal Government's bud-get process can be addressed through "...budget systems with fewer line items, more authority for managers to move money among line items, and freedom for agencies to keep some or all of what they save...". In the report, the Forest Service was used as an example of an agency with an overly complex structure. Similarly, there is concern within the agency that the program integration required to implement ecosystem management is seriously impeded by the detailed line item structure of the current budget.
The current budget structure has the advantage of providing a level of detail that has evolved in response to Congress and the public in dealing with specific programs and issues. There are, nevertheless, concerns within the agency about the current budget structure. The current budget structure is not effective in addressing the needs (1) for program integration consistent with ecosystem management principles, (2) to reduce administrative costs and increase budget flexibility, (3) to effectively compete for scarce funds, and (4) to more accurately portray agency goals, actions and results.
The Forest Service has proposed to reform its budget structure and related processes to better serve the public interests in both natural resources stewardship and efficient government. The proposed reforms respond to the needs previously cited and will provide appropriate information needed to evaluate budget proposals and agency performance.
The Forest Service proposal for addressing these concerns includes improvements to three elements of its current budget system:
Budget Structure: The Forest Service proposal for Fiscal Year 1995 will significantly reduce and reorient existing appropriations budget line items (BLIs) and expanded budget line items (EBLIs). This will increase agency flexibility in the allocation and expenditure of funds to implement ecosystem management and address integrated or multiple-resource program needs.
Reprogramming Authority: The Forest Service proposes to increase agency re-programming authority to 15 percent of the EBLI total from the current 10 percent or $250,000 limit, whichever is less, with Congressional approval. This will further increase flexibility within the proposed structure and empower agency managers to make needed adjustments in response to rapidly changing conditions.
Funding of Resource Support Activities: The Forest Service will use the "benefiting function" approach (i.e., receiving program pays) in budget requests, allocations and expenditures. This will ensure that all needed funding is available in the correct proportions for implementation of ecosystem management activities.
In response to concerns about accountability, the Forest Service will facilitate a 1-year transition from the old structure to the new one. As such, the Fiscal Year 1995 Budget will be presented in current structure while a special exhibit and the budget appendix will reflect the proposed structure with appropriate crosswalk guidance.
The Forest Service will improve its fiscal accountability through changes in how expenditures and accomplishments are tracked. The changes include development and future use of a system that accounts for all, rather than only selected, resource programs in a consistent manner, similar to the existing Timber Sale Program and Information Reporting System (spellS). As a pilot agency under the Government Performance Review Act (GPRA), the Forest Service will test a system using annual performance plans, establishing goals and measures, for evaluation of performance and results.
High levels of accountability by the Forest Service as an organization and by individual employees have played a key role in establishing the agency's reputation. However, the challenges of today's environment (e.g. multiple program opportunities, limited budgets and intense public scrutiny) make the accountability challenge particularly critical.
Accountability can be thought of as "doing what we agreed or were directed to do; as we agreed or are required to do it; monitoring and showing our results; and taking action to improve results."
The Forest Service is currently producing the quantity and quality of goods and services specified in Congressional appropriations language; personnel management is being carried out in accordance with process requirements from OPM; and individual employees perform their duties in an ethical manner.
Opinions vary on how well the Forest Service is doing on accountability. Chief and Staff have acknowledged the importance of maintaining and improving accountability in the Forest Service by conducting a strategic analysis of accountability, and placing heavy emphasis on accountability in the statement of the agency's Mission, Vision, and Guiding Principles.
The Forest Service addresses accountability inside the agency through many monitoring and evaluation systems. Various approaches are taken to accountability for money that is spent, and what it is spent on, as well as how well employees performed their duties. Most accounting systems involve reporting on accomplishments in particular functional areas such as timber management and human resource programs. Evaluations are often based on comparisons of accomplishments and near-term objectives. The employee performance appraisal system is the primary vehicle for ensuring accountability of individual employees. Supervisors hold employees accountable for performance consistent with performance elements and standards.
Externally, the Forest Service is held accountable by a number of sources including Congressional committees and their investigative entities, such as the General Accounting Office (GAO), the plethora of interest groups, the ever expanding number of partners with whom the agency works, the general public and the media.
Finally, the Forest Service works to address accountability lapses in cases where rules and regulations are broken. Ethics and conduct cases are particularly significant as the damage to agency accountability, credibility, and morale can often expand beyond the specific cases at hand. Current Forest Service direction is to provide training, cooperate fully with all investigations and to implement corrective actions.
Being completely answerable for all that the Forest Service does is being fully accountable. Toward this end the organization will elevate the importance of accountability in the consciousness of all employees. This will be done through an approach to accountability called "Successful Management of Work Agreements." This approach, is applicable to the broad range of individual employee and organizational accountability situations.
The work agreements involved in accountability situations take many forms.
They can be:
1. negotiable or non-negotiable;
2. between parties within the Forest Service or can involve parties outside the agency;
3. process oriented (e.g. financial regulations) or output oriented.
Successful Management of Work Agreements
The successful management of work agreements approach involves utilization of
two key components;
I. Seven Steps to Work Agreements:
1. Establish work agreements
2. Set priorities
3. Check progress
4. Define adjustments
5. Implement adjustments
6. Demonstrate and communicate results
7. Conduct performance feedback loops
II. Future Management Behaviors:
The agency must adopt an approach to encourage accountability by emphasizing:
| Shared Leadership for Accountability
| Attention to Human Resource and Work Environment for Accountability
| Focusing on the Customer for Accountability
| |
Together the Seven Steps and the Future Behaviors will help move the Forest Service toward a higher level of accountability.
Increasing competition for limited federal financial resources necessitates continual examination of viable new approaches to financing Forest Service programs. Throughout its history, the Forest Service has financed operations through various means including receipt collections, user fees, and general appropriations. As management of National Forest lands and other programs has expanded and public interest in forest management have grown, so have the complexity and constraints in the budget process.
Financing Forest Service programs is a case of allocating increasingly limited resources among competing demands. The competition for resources is as intense between programs within the Forest Service as it is among federal agencies. To achieve maximum efficiency in program delivery and meet public expectations, reexamination of current financing processes and examination of new approaches to financing programs and land management plan objectives are necessary.
The Forest Service relies largely on congressional appropriations to carry out its activities. Notable exceptions include the use of volunteers and in-kind contributions, especially in recreation wildlife and fish programs. The focus of these contributions is on local programs to maintain and build trails, construct facilities for the physically challenged, and to provide volunteer hosts at Forest Service campgrounds. Over the past decade, alternative funding sources and innovative partnerships have been developed to supplement federal funding sources and to accomplish work that would have been delayed or not accomplished at all. The Forest Service is at this time both exploring and pursuing authority for recreation fees, and the allowing of corporate contributions. Extensive volunteer efforts are presently invaluable, and development of existing and new partnerships will continue to be important. The private sector currently contributes extensive capital through a wide variety of activities such as ski areas, hydro-electric projects, and communications sites.
In this period of increasing competition for scarce Federal financial resources, no single financing source will be sufficient to meet all of the public expectations from the Forest Service. Within applicable legal authorities, the Forest Service will increase efforts to supplement congressional appropriations with funding from other sources. Due to anticipated budget constraints, and the need for flexibility during periods of change, the agency will consider a broad range of funding alternatives. The search for alternatives will focus on the following four sources: the National Forest Foundation, cooperative initiatives, return of revenues, and retention of cost savings.
The Forest Service will continue to strengthen partnerships and develop initiatives to advance the mission and objectives of the agency. Supplemental funds and work sup-port, through specific cooperative agreements, will expand efforts necessary to more effectively address all dimensions of our ecosystem management strategy. Examples of these partnerships include the National Forest Foundation, various associations, volunteer assistance, and other government agencies. Licensed patents resulting from Forest Service technology development will continue to generate income to support agency activities.
The Forest Service will seek additional authorities to retain a portion of revenues from goods and services. The agency will pursue appropriate legislative and administrative authority to expand the amount of existing revenues sources (e.g. recreation receipts) which are available for use in the agency. Similarly, the Forest Service will seek to expand revenues from promising non-traditional revenue sources, such as special forest products (e.g. morels, pine cones, etc.). Efforts to achieve return of revenue to the agency will focus on covering the total cost of providing services.
The Key Policy Topics describe the agency's response to strategic issues, based on the foundation of the Chief's Forest Service Ethics and Course to the Future, and the Mission Elements. The future positions are windows into certain aspects of agency programs. In Chapter III, these positions are described as part of the future of a wide range of agency programs.
Main Table of Contents.......................................................Appendix E-1