Forestry Assistance Programs

The U.S. Department of Agriculture (USDA) has numerous programs to support management of
state and private forests. These programs are under the jurisdiction of the Agriculture Committees
and are often examined in the periodic legislation to reauthorize agricultural programs, commonly
known as farm bills. The 2008 farm bill (P.L. 110-246) included a forestry title with numerous
provisions, and forestry activities were included in several other titles, as well. Congress might
oversee the implementation as well as the funding of these programs.
Forestry-specific assistance programs (as opposed to agriculture conservation programs that
include forestry activities) are all administered by the USDA Forest Service (FS), with permanent
authorization of funding as needed. Some programs provide technical assistance—information,
advice, and aid on specific projects. Other programs provide financial assistance, typically
through grants (with or without matching contributions from recipients) or cost-sharing (with
varying levels of contributions from recipients). Many programs provide both.
Most of the programs provide assistance to the states. The state agencies can use the assistance on
state forestlands or to assist local governments or private landowners. How the states use the
funds is largely at the discretion of the states, within the authorizations of each program; however,
the 2008 farm bill added national priorities for state assistance and state-wide assessments and
strategies to focus state efforts on achieving the national priorities. Funds are appropriated for
planning and implementing forestry and related land management practices—site preparation for
reforestation, tree planting, thinning, pruning, fertilizing, prescribed burning, restoring
watersheds, improving wildlife habitats, and other activities. Other programs provide support for
protecting forestlands from wildfires, insects and diseases, and from clearing forests for nonforest
uses (such as growing crops or building houses). Two programs are designed specifically to assist
landowners to recover or restore forests following catastrophic events, such as wildfires.
Additional programs provide economic assistance for communities in or near federal forests
whose economies have traditionally relied on forests and forest resources. In addition,
International Forestry is often included as a forestry assistance program, because it provides
technical forestry help and because it has often been funded out of FS appropriations for forestry
assistance programs.
Finally, states are authorized to request consolidated payments, for flexibility in program
administration, and several coordinating or advisory groups exist to coordinate programs or for
specific purposes under one or more programs.
Funding for the forest management assistance programs—forest stewardship and urban and
community forestry—have fluctuated over the past five years. Forest protection programs—forest
health (for insect and disease identification and control), fire assistance, and forest legacy (for
easements to prevent forest clearing)—grew substantially in 2001, and have remained at
relatively high levels. Forest recovery programs have not been funded in recent years. Funding
for economic assistance programs has declined after peaking in FY2001.

Overvi ew ....................................................................................................................... .................. 1
Assistance for Forest Management Practices..................................................................................4
Forest Stewardship....................................................................................................................5
Purposes ....................................................................................................................... ....... 5
Activities ............................................................................................................................. 5
Eligibility ............................................................................................................................ 6
Authorization and Appropriations.......................................................................................6
Rural Forestry Assistance..........................................................................................................7
Purposes ....................................................................................................................... ....... 7
Activities ............................................................................................................................. 7
Eligibility ............................................................................................................................ 7
Authorization and Appropriations.......................................................................................7
Financial, Technical, and Related Assistance to States.............................................................7
Purpose........................................................................................................................ ........ 7
Activities ............................................................................................................................. 7
Eligibility ............................................................................................................................ 8
Authorization and Appropriations.......................................................................................8
Urban and Community Forestry Assistance..............................................................................8
Purposes ....................................................................................................................... ....... 8
Activities ............................................................................................................................. 9
Eligibility ............................................................................................................................ 9
Authorization and Appropriations.......................................................................................9
Assistance for Forest Protection....................................................................................................10
Forest Health Protection..........................................................................................................10
Purposes ....................................................................................................................... ..... 10
Activities ........................................................................................................................... 10
Eligibility ........................................................................................................................... 11
Authorization and Appropriations......................................................................................11
Rural Fire Protection...............................................................................................................12
Purpose........................................................................................................................ ...... 12
Activities ........................................................................................................................... 12
Eligibility .......................................................................................................................... 12
Authorization and Appropriations.....................................................................................12
Forest Legacy..........................................................................................................................13
Purposes ....................................................................................................................... ..... 13
Activities ........................................................................................................................... 13
Eligibility .......................................................................................................................... 14
Authorization and Appropriations.....................................................................................14
Community Fire Protection.....................................................................................................14
Purpose........................................................................................................................ ...... 14
Activities ........................................................................................................................... 14
Eligibility .......................................................................................................................... 15
Authorization and Appropriations.....................................................................................15
Community Forest and Open Space Conservation..................................................................15
Purpose........................................................................................................................ ...... 15
Activities...........................................................................................................................15

Eligibility .......................................................................................................................... 15
Authorization and Appropriations.....................................................................................16
Assistance for Forest Recovery or Restoration.............................................................................16
Emergency Reforestation Assistance......................................................................................16
Purpose........................................................................................................................ ...... 16
Activities ........................................................................................................................... 16
Eligibility .......................................................................................................................... 16
Authorization and Appropriations.....................................................................................17
Emergency Forest Restoration................................................................................................17
Purpose........................................................................................................................ ...... 17
Activities ........................................................................................................................... 17
Eligibility .......................................................................................................................... 17
Authorization and Appropriations.....................................................................................17
Economic Assistance.....................................................................................................................18
Economic Action.....................................................................................................................18
Purpose........................................................................................................................ ...... 18
Activities ........................................................................................................................... 18
Eligibility .......................................................................................................................... 18
Authorization and Appropriations.....................................................................................19
Cooperative National Forest Products Marketing Program....................................................19
Purpose........................................................................................................................ ...... 19
Activities ........................................................................................................................... 19
Eligibility .......................................................................................................................... 20
Authorization and Appropriations.....................................................................................20
International Forestry....................................................................................................................20
Purpose........................................................................................................................ ...... 20
Activities ........................................................................................................................... 20
Eligibility .......................................................................................................................... 20
Authorization and Appropriations.....................................................................................20
Related Provisions.........................................................................................................................21
Consolidation of Payments...............................................................................................21
The National Urban and Community Forestry Advisory Council....................................21
Forest Resource Coordinating Committee........................................................................22
State Forest Stewardship Coordinating Committees.........................................................23
Summary and Conclusions............................................................................................................23
Table 1. USDA Forestry Assistance Programs................................................................................2
Table 2. Forestry Assistance Program Activities.............................................................................3
Table 3. Appropriations for Forest Stewardship, FY2004-FY2008.................................................6
Table 4. Appropriations for Urban and Community Forestry, FY2004-FY2008..........................10
Table 5. Appropriations for Forest Health Protection, FY2004-FY2008.......................................11
Table 6. Appropriations for Rural Fire Protection, FY2004-FY2008...........................................13
Table 7. Appropriations for Forest Legacy, FY2004-FY2008.......................................................14

Table 8. Appropriations for Economic Action, FY2004-FY2008.................................................19
Table 9. Appropriations for International Forestry, FY2004-FY2008...........................................21
Author Contact Information..........................................................................................................24

he federal government has numerous programs to support forest management on state and
private forestlands, primarily administered by the Forest Service (FS) in the U.S.
Department of Agriculture (USDA). The House and Senate Agriculture Committees often T

examine these programs in the periodic legislation to reauthorize agriculture programs,
commonly known as farm bills. The 2008 farm bill (P.L. 110-246) contained a forestry title (as
did three of the previous four farm bills) and addressed forests and forestry practices in several ¹
other titles. Congress provides annual appropriations for these programs, and may oversee their
implementation.
This report describes the current forestry assistance programs funded through the State and ²
Private Forestry (S&PF) branch of the FS. Following a brief overview, this report presents basic
information on the programs to assist forestry practices, forest protection, forest recovery, and
rural economies—the purposes of the programs, types of activities funded, eligibility
requirements, and authorized program duration and funding level, with recent program
appropriations.

Federal forestry assistance for nonfederal landowners has been a part of USDA programs for
more than a century. Initial forestry assistance efforts began with the creation of the USDA
Division of Forestry in 1881 (to complement forestry research begun with funding in 1876).
Forestry assistance and research programs grew slowly, and in 1901 the Division was upgraded to
the USDA Bureau of Forestry. In 1905, the USDA Bureau merged with the Interior Department’s
Division of Forestry (which administered the forest reserves, later renamed national forests) and
became the USDA—FS. Forestry assistance, the primary mission of the State and Private
Forestry (S&PF) branch, together with forestry research and management of the National Forest
System, comprise the three primary FS missions.
Authority for the forestry assistance programs was reestablished and coordinated in the Clarke-
McNary Act of 1924 (ch. 348, 43 Stat. 653). This law guided these programs for more than half a
century, until it was revised in the Cooperative Forestry Assistance Act of 1978 (CFAA, P.L. 95-
313; 16 U.S.C. §§ 2101 et seq.). The CFAA has been amended several times, including in the four
most recent farm bills. The Food, Agriculture, Conservation, and Trade Act of 1990—the 1990
farm bill (P.L. 101-624)—added and rewrote several of the CFAA sections. The Federal
Agriculture Improvement and Reform Act of 1996—the 1996 farm bill (P.L. 104-127)—made a
few additions and modifications to the CFAA (as amended). The Farm Security and Rural
Investment Act of 2002—the 2002 farm bill (P.L. 107-171)—replaced two CFAA provisions (as
amended) with a new provision, and created another new program. Finally, the Food,
Conservation, and Energy Act of 2008—the 2008 farm bill (P.L. 110-246)—established national
priorities and a process for states to address them, while adding and modifying other programs.
There are currently more than a dozen forestry assistance programs, as shown in Table 1. The
programs are administered by the FS, with permanently authorized funding but without specified

¹^Se^e^C^R^S^R^e^por^{t R}^L³³⁹¹⁷^,^F^o^{restry in}^th^e²⁰⁰⁸^Fa^{rm Bi}^ll^,^by^Ros^s^W^.^G^o^rte^.
²^A^s^sⁱ^s^t^aⁿ^ce^f^o^r^f^o^r^e^s^t^r^y^pr^a^c^tic^e^sⁱ^s^a^l^s^o^a^v^a^ila^ble^thr^o^ug^{h m}^aⁿ^y^a^g^rⁱ^c^u^ltur^a^{l c}^ons^e^r^v^a^tion^pr^og^r^a^m^s^{, g}^e^ne^r^a^ll^y^unde^r
^the^U^S^D^A^N^a^tur^a^{l R}^e^s^our^c^e^s^C^ons^e^r^v^a^{tion Se}^r^v^ic^e^.^For^inf^o^r^m^a^tⁱ^on^on^the^s^e^pr^og^r^a^m^s^{, s}^e^e^C^R^S^R^e^por^{t R}^L³²⁹⁴^0,
^Agrⁱ^c^u^lt^ur^e^C^ons^e^r^v^a^ti^on^Pr^o^g^r^a^m^s^:^{A Sc}^or^e^c^a^r^d^,^by^T^a^dloc^k^C^o^w^a^{n a}^{nd R}^e^né^e^J^ohns^on.

funding levels. No forestry assistance programs have mandatory spending; all require annual
funding, and all are funded in the annual Interior appropriations acts. Table 1 identifies the U.S.
Code citation, the authorized duration and level of funding, and FY2008 enacted funding for each
program. Note that some programs are combined for funding purposes. Programs are listed in
decreasing order of FY2008 appropriations, with the two new programs listed last.
Table 1. USDA Forestry Assistance Programs
^{Authorization}^FY20⁰⁸
^Progr^am^{U.S. Code Citation}^Enacted
^{Duration Funding}^Funding
^{Forest Health Protection}^{16 U.S.C. § 2104}^perma^nent^{as needed}^$12^{3 million}
^{Rural Fire Protection}^a^{16 U.S.C. § 2106}^perma^nent^{as needed}^$94^million
^{Forest Legacy}^{16 U.S.C. § 2103c}^perma^nent^{as needed}^$52^million
^{Forest Stewardship}^{16 U.S.C. § 2103a}^perma^nent^{as needed}^$30^million
^{Rural Forestry Assistance}^{16 U.S.C. § 2102}^perma^nent^{as needed}^b
^{Assistance to States}^{16 U.S.C. § 2107}^perma^nent^{as needed}^b
^{Urban Forest}^ry^{16 U.S.C. § 2105}^perma^nent^{as needed}^$28^million
^Inter^{national Forestry}^{16 U.S.C. §§ 4501-45}⁰⁵^perma^nent^{as needed}^{$7 million}
^{Economic Action}^{7 U.S.C.}^{§§ 6611-6}⁶¹⁷^perma^nent^{as needed}^c^$4^million
^{Wood Pro}^{duct Marketing}^{16 U.S.C. § 2112}^perma^nent^{as needed}^d
^Emerge^{ncy Reforestation}^{16 U.S.C. § 2106a}^uns^pecified^uns^pecified^$0
^{Community Fire Protection}^{16 U.S.C. § 2106c}^perma^nent^{as needed}^e^$0
^{Community Forest and}^Ope^{n Spa}^ce^{16 U.S.C. § 2103d}^perma^nent^{as needed}^$0
^Conservation
^Emerge^{ncy Forest Restoration}^{16 U.S.C. §§ 2201-22}⁰⁴^perma^nent^{as needed}^$0
^a.^Includes^{both State Fire Assistanc}^{e and Volunteer Fire Assistan}^ce^{programs. Aut}^{horized funding is}^$35
^mill^{ion annually in cost sha}^{ring an}^{d “as needed” for other}^activities.
^b.^{Since FY199}^{3, Congress}^{has f}^und^{ed this program a}^s^part^{of the Fo}^{rest Stewardship}^program.
^c.^{Up to 5% of FS rec}^{eipts from}^{sales and use}^{r fees,}^{plus added fu}^nd^{s “as needed.”}
^d.^{Since FY199}^{3, Congress}^{has f}^und^{ed this program a}^s^part^{of the}^Ec^{onomic Action Program.}
^e.^{Authorized at $3}^{5 million annually for FY20}^02-FY20^{07, “as}^needed^{” thereafte}^r.
Many forestry assistance programs are intended to provide assistance to the states for undertaking
forestry practices intended to improve timber productivity or to enhance other resource values. ³
These are shown in Table 2 as forest management assistance programs. For the first time since at
least 1978, no forestry program exists to provide cost-sharing for forestry practices on private
lands. However, the 2008 farm bill expanded the definition of authorized conservation practices

³^T^h^e^f^o^r^e^s^t^r^y^pr^og^r^a^m^{to pr}^ov^ide^fⁱ^na^nc^ia^{l a}^s^sⁱ^s^t^aⁿ^c^e^{to pr}^iv^a^t^e^la^ndow^ne^r^s^f^o^r^f^o^r^e^s^t^m^a^nag^e^m^e^nt^—^t^he^For^e^s^t^L^a^nd
^Eⁿ^h^aⁿ^cem^en^t^P^r^o^g^ram^(t^h^a^t^rep^l^aced^t^h^{e F}^o^rest^ry^In^cen^tⁱ^v^{es an}^d^S^t^eward^s^hⁱ^p^Iⁿ^cen^tⁱ^v^{es P}^r^o^g^ram^sⁱⁿ²⁰⁰²⁾^—w^{as n}^o^t
^re^a^u^thoriz^e^dⁱⁿ^the²⁰⁰⁸^f^a^rm^bill.

for agricultural conservation programs generally to include forestry practices, and thus financial ⁴
assistance to private forest landowners may be feasible through the conservation programs.
Table 2. Forestry Assistance Program Activities
^Progr^am^{Type of}^Aid^{Eligible Recipients}^{Primary Activities}
^{Forest Management Practices}
^{Forest Stewardship}^{tech. &}^financial^states^{planning; tre}^{e planting; t}^hinning;^watershed^{restoration; wildl}^{ife habitat impro}^vement
^{Rural Forestry Assistance}^{tech. &}^financial^states^planning;^{produce & distrib}^{ute tr}^{ee seeds &}^{seedlings; protect soils}
^{Assistance to States}^{tech. &}^financial^states^{planning, organization, & manage}^{ment; data}^collecti^{on & manageme}^nt
^{Urban &}^Community^{tech. &}^{state & local govts.,}^{planning; edu}^{cation; tree planting}^&
^Forestry^financial^{private orgs.}^maintenanc^e
^{Forest Protection}
^{Forest Health Protection}^{tech. &}^financial^government^s—federal,^{state, & local}^survey,^preve^{nt, retard, or contr}^{ol insects}^{& diseases}
^{Rural Fire Protection}^{tech. &}^financial^{states; volunteer}^fire^department^s^{systems for}^{fire pr}^{evention, cont}^{rol, & use;}^{fire equip}^{ment &}^{training; etc.}
^purc^hase^{forestlands or easeme}ⁿ^{ts for}
^{Forest Legacy}^financial^states^{forests th}^{reatened with}^conversi^{on to}
^{other use}^s
^{Community Fire Protection}^{tech. &}^communities^{planning; f}^{uel reduction; edu}^{cation; wood}
^financial^utilizat^{ion & marketing}
^{Community Forest & O}^pen^{local govts}^{., Indian tribes,}^purc^hase^{forestlands or easeme}ⁿ^{ts for}
^{Space Conservation}^financial^{nonprofit orgs.}^{forests th}^{reatened with}^conversi^{on to}
^{other use}^s
^{Forest Recovery & Restoration}
^Emerge^{ncy Reforestation}^financial^{private landowners}^{site prepa}^{ration & tree}^{planting f}^{or areas}^{with trees killed by nat}^{ural disasters}
^Emerge^{ncy Forest}^{financial private}^landowners^{restoration of forested areas da}^{maged by}
^Restoration^{natural disasters}
^Eco^{nomic Assistance}
^{Economic Action}^{tech. &}^financial^{rural commu}^nities,^{workers, firms}^{planning; training}^{& education; loans for}^infrastr^uctu^{re & facilities}
^{Wood Pro}^{duct Marketing}^{tech. &}^financial^{states, firms, & private}^landowners^{domestic & export ma}^rketing
^{International Forestry}^{technical other}^count^ries^{planning &}^manageme^{nt; fire, inse}^{ct, &}^{disease preven}^{tion & control; reh}^abilitati^on

⁴^Forⁱⁿ^f^o^r^m^a^{tion on}^U^S^D^A^c^ons^e^r^v^a^{tion pr}^og^r^a^m^s^{, s}^e^e^C^R^S^R^e^por^{t R}^L³⁴⁵^57,^C^o^ns^e^r^v^a^tion^Pr^ov^isⁱ^ons^{of t}^h^e²⁰⁰⁸
^{Farm Bill}^,^by^T^a^dloc^k^C^o^w^a^{n a}^{nd R}^e^né^e^J^o^hⁿ^s^o^n.

Some programs provide assistance for protecting forestlands from wildfire, insects, diseases, and
for preventing conversion of forests to nonforest uses (e.g., agriculture, residences). Table 2
shows these as forest protection programs. Forest health and community fire protection activities
can be applied on private lands with the cooperation of the landowner. Most other forest
protection programs provide financial and/or technical assistance to government or quasi-
government entities—states, local governments, communities, volunteer fire departments, Indian
tribes. The new Community Forestry and Open Space Conservation program also allows grants to
nonprofit organizations.
Two programs provide funding directly to private landowners in response to disasters. The
Emergency Reforestation Program was created in 1990, and has not been funded since 1993. The
Emergency Forest Restoration Program was created in the 2008 farm bill as an amendment to an
existing agricultural conservation program to assist landowners in recovering from natural
disasters.
Two other programs provide assistance to communities whose economic well-being has
traditionally depended on federal forests. These are shown as economic assistance programs in
Table 2. In addition, International Forestry has been included, because (a) it provides technical
assistance to other nations on forestry matters, and (b) it has often been funded out of FS—S&PF
appropriations.
Table 2 also shows the type of assistance available under each program. Some programs provide
only technical assistance, which can range from relevant existing information to advice and aid
on specific projects. Other programs provide financial assistance. Typically these programs are
grants (with or without contributions from recipients) or cost-sharing (with varying levels of
matching contributions from recipients), although two programs have other “financial”
provisions: (1) Forest Health Protection funds FS activities to survey and to control insects or
diseases on state or private lands (with the consent and cooperation of the landowner); and (2)
Forest Legacy includes federal purchase of lands or easements as well as grants to states. Many
programs include both technical and financial assistance.

Four forestry assistance programs provide financial and/or technical aid for planning and
implementing forestry practices (establishing and managing stands of trees) on nonfederal lands.
Two of the programs (Rural Assistance and Assistance to States) have been funded through a third
FS program (Forest Stewardship). Historically, forestry assistance has included programs with
cost-share assistance to private landowners for forestry practices on their lands, but the forestry-
specific landowner assistance program created in the 2002 farm bill (the Forest Land ⁵
Enhancement Program) was not reauthorized in the 2008 farm bill.

⁵^T^h^{e Fo}^{rest L}^aⁿ^d^En^h^aⁿ^cem^en^{t Pro}^g^ra^m^(FL^E^P⁾ⁱⁿ^th^e²⁰⁰²^f^a^r^m^b^{ill rep}^l^aced^th^{e F}^o^restry^In^cen^tiv^{es P}^r^o^g^ra^m^(FIP⁾
^c^r^e^a^t^e^d^{in the}^C^o^o^p^e^r^a^tiv^e^For^e^s^t^r^y^A^s^sⁱ^s^t^aⁿ^c^e^A^c^{t of}^{1978 a}ⁿ^{d t}^h^e^Ste^w^a^r^ds^{hip I}ⁿ^c^eⁿ^tiv^e^s^P^r^og^r^a^m⁽^S^I^P⁾^a^d^de^{d i}ⁿ^t^h^e
¹⁹⁹^{0 f}^a^rm^{bill. FL}^{EP w}^a^s^c^r^ea^te^{d w}^{ith $1}^{00 m}^illio^{n i}ⁿ^m^a^nda^tory^s^p^e^ndi^ng^thr^oug^h^FY²⁰⁰⁷^,^but^s^o^m^e^f^unds^w^e^r^e
^borr^o^w^e^{d to pa}^y^f^o^r^fⁱ^refⁱ^g^h^ting^a^nd^othe^rs^w^e^re^c^aⁿ^c^e^lle^{d. U}^ltim^a^t^e^l^y^,^only^a^bout^ha^lf^of^the^m^a^nda^tory^f^unds^w^e^re
^a^c^t^ua^lly^speⁿ^{t on la}ⁿ^dow^ne^{r a}^ssistaⁿ^c^e^.^FI^P^a^p^pro^p^ria^tⁱ^ons^ha^d^be^eⁿ^be^tw^e^eⁿ^$1^{0 a}ⁿ^{d $}¹⁵^m^{illion a}ⁿ^nua^lly^throug^h
^FY¹⁹^{94 a}^nd^be^tw^e^eⁿ^{$5 a}ⁿ^{d $}⁷^m^{illion a}ⁿⁿ^u^a^lly^f^r^o^m^FY^{1995 t}^h^roug^h^FY²⁰⁰²^(e^x^c^e^p^{t f}^o^{r $16}^.6^m^{illion in}^FY¹⁹⁹⁹^).
^SI^P^f^und^ing^w^a^s^m^o^re^s^pora^d^ic^,^w^{ith f}^unds^be^tw^e^eⁿ^$15^aⁿ^d^$²⁰^m^{illion f}^o^{r FY}¹⁹⁹¹^aⁿ^d^FY¹⁹⁹³^t^h^ro^ug^{h FY}¹⁹⁹⁵^,
^$6.^{5 m}^illionⁱⁿ^FY1⁹⁹⁸^,^$4.^{5 m}^{illion a}ⁿⁿ^u^a^lly^{in FY19}⁹⁶^aⁿ^d^FY1⁹⁹⁷^{, a}ⁿ^{d $}³^.⁰^m^illionⁱⁿ^FY20⁰²^,^w^{ith no f}^uⁿ^d^ingⁱⁿ
⁽^c^onti^nue^d.^..)

The Forest Stewardship program was created to improve timber production and environmental ⁶
protection on nonfederal forest lands. The Secretary of Agriculture, acting through the FS, is
authorized “to encourage the long-term stewardship of nonindustrial private forest lands.... ”
These lands are defined as “lands with existing tree cover, or suitable for growing trees, and
owned by any private individual, group, association, corporation, Indian tribe, or other private ⁷
legal entity.” Forest stewardship is not defined directly in the statute or indirectly by reference to
any listing of forest stewardship practices or standards.
Section 8001 of the 2008 farm bill added a set of national priorities for Forest Stewardship of
private forest conservation through federal support for state assistance. National priorities,
including for allocating funding, are:
• conserving and managing working forests for multiple values and uses;
• protecting forests from threats, including “catastrophic wildfires, hurricanes,
tornados, windstorms, snow or ice storms, flooding, drought, invasive species,
insect or disease outbreak, or development,” and restoring appropriate forest
types in response to such threats; and
• enhancing public benefits from private forests, including air and water quality,
soil conservation, biological diversity, carbon storage, forest products, forestry
jobs, production of renewable energy, wildlife, wildlife corridors, and wildlife
habitat, and recreation.
The program provides technical assistance to private landowners to help them evaluate alternative
actions, including:
• managing and enhancing the productivity of timber, fish and wildlife habitat,
water quality, wetlands, recreational resources, and aesthetic values;
• investing in practices to protect, maintain, and enhance resources;
• ensuring that afforestation, reforestation, improvement of poorly stocked stands,
timber stand improvement, practices to improve seedling growth and survival,
and growth enhancement practices occur where needed to enhance and sustain
the long-term productivity of timber and nontimber forest resources; and

^(...c^on^tin^ue^d)
^the^ot^he^r^y^e^a^r^s⁽^F^Y¹⁹⁹^{2 a}ⁿ^{d FY}¹^999—^FY²⁰⁰¹⁾^.
⁶^T^h^roug^ho^ut^{this re}^p^o^rt,^the^{FS a}^s^the^a^c^tio^{n a}^g^eⁿ^c^y^{is ide}ⁿ^tif^ie^{d in}^lie^{u of}^the^Se^c^r^e^t^a^r^y^of^Ag^ric^u^ltur^e^{, e}^v^eⁿ^tho^u^g^h
^t^h^{e l}^a^w^s^t^y^pⁱ^cal^l^y^sp^eci^fy^a^c^tⁱ^oⁿ^by^t^h^{e S}^ecret^ar^y.
⁷^Ty^pic^a^l^l^y^{, “}^nonin^dus^tr^ia^l^pr^iv^a^t^e^f^o^r^e^s^t^la^nds^”^e^x^c^l^ude^f^o^r^e^s^t^la^nds^ow^ne^{d by}^c^o^m^p^aⁿ^ie^s^eⁿ^g^a^g^e^{d in m}^a^nuf^a^c^t^ur^ing
^w^{ood pr}^od^uc^ts^{, b}^u^{t t}^h^e^de^fⁱ^niti^on^f^o^r^the^f^o^r^e^s^t^s^t^ew^a^r^ds^{hip pr}^og^r^a^m^,^{in 16 U}^.^S.C^.^§²¹^03a⁽^c⁾^,^a^p^pa^r^e^ntly^a^llow^s^the
^prog^ra^m^{to be}^a^v^a^ila^ble^f^o^{r tim}^be^{r ind}^u^stry^la^{nds, a}^s^w^e^ll.

• protecting private forests from damage caused by fire, insects, disease, and
damaging weather.
The FS provides technical and financial aid to the states, which provides information and
assistance to private landowners. For states to be eligible to receive funds, they must prepare:
• a statewide assessment of forest resource conditions, including:
—the conditions and trends of forest resources in the state;
—threats to forest lands and resources, consistent with the national priorities;
—any areas or regions of the state that are a priority; and
—any multi-state areas that are a regional priority; and
• a long-term statewide forest resource strategy, including:
—strategies for addressing the threats to forest resources identified in the assessment; and ⁸
—a description of the resources necessary for the state forester to address the statewide
strategy.
The assessments and strategies are to be updated “at such times as the Secretary determines to be
necessary,” and are to be coordinated with the state’s forest stewardship coordinating committee
(see below), wildlife agency, technical committee (under § 1261 of the Food Security Act of 1985
(16 U.S.C. § 3861)), and relevant federal land management agencies.
The Forest Stewardship program was added as a new § 5 to the CFAA by § 1215 of the 1990 farm
bill. It is codified at 16 U.S.C. § 2103a. Annual appropriations for Forest Stewardship were
authorized at $25 million annually for FY1991-FY1995, with “such sums as may be necessary
thereafter.... ” The authorization does not expire. Funding for statewide forest resource
assessments and strategies was authorized at $10 million annually for FY2008-FY2012, with up
to another $10 million from other appropriations for planning under the CFAA. Annual
appropriations are shown in Table 3.
Table 3. Appropriations for Forest Stewardship, FY2004-FY2008
^{(in millions)}
^FY20⁰⁴^FY20^{05 FY20}^{06 FY20}⁰⁷^FY20⁰⁸
^{Forest Stewardship}^$31.8⁸⁴^$32.3²⁰^$34.1⁴⁴^$41.9⁴⁷^$29.5³²

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The Rural Forestry Assistance program was created to assist in the management and protection of
nonfederal forests. The FS is authorized to assist landowners in “protecting, maintaining,
enhancing, restoring, and preserving” forestlands and the values and uses they provide and in
protecting forests from insects, diseases, fire, and conversion to alternative uses. The program
also assists states in providing support for establishing and managing timber stands on nonfederal
lands and for protecting and improving soils and water yields.
The FS is authorized to provide “financial, technical, educational, and related assistance” for
“private forest land owners and managers, vendors, forest resource operators, forest resource
professionals, public agencies, and individuals to enable such persons to carry out activities that
are consistent with the purposes ...” of the program. The program may also provide “financial,
technical, and related assistance” to the states to produce, distribute, and plant tree seeds and
seedlings, to assist forest management practices, and to protect soil fertility and water quality and
flows.
The FS provides assistance to state foresters for the entire program and to state extension
directors for assisting forest landowners. Assistance to private landowners is through the state
agencies.
Rural Forestry Assistance was created in § 3 of the CFAA, and rewritten in § 1213 of the 1990
farm bill. It is codified at 16 U.S.C. § 2102. The authorization of annual appropriations is “such
sums as may be necessary,” and does not expire. Since FY1993, the program has not been funded
separately, but rather has been included as part of the Forest Stewardship program. (See above.)
The State Assistance program was created to foster coordination of state and federal organizations
in providing assistance to private landowners. The FS is authorized to assist in developing
“stronger and more efficient State organizations,” to ensure that forest data are available and
comparable, and to foster adoption of new technologies.
The FS is authorized to provide “financial, technical, and related assistance” to state foresters for
improving organizational management and forest data collection and use. Specifically, the

program is to “enable them to better fulfill their responsibilities for the protection and
management on non-Federal forest lands [including] ... assistance in matters related to
organizational management, program planning and management, budget and fiscal accounting
services, personnel training and management, information services, and recordkeeping.” The
program may also be used “in the assembly, analysis, display, and reporting of State forest
resources data, in the training of State forest resources planners, and in participating in natural
resources planning ...” In addition, the FS is authorized to create “a program of technology
implementation.”
The FS provides assistance to state foresters, and for technology implementation, to
“cooperators .”
Financial, Technical, and Related Assistance to States was established in § 8 of the CFAA, and
renumbered as § 11 by the 1990 farm bill; it is codified at 16 U.S.C. § 2107. The funding
authorization is for “such sums as may be necessary,” and does not expire. Since FY1993, the
program has not been funded separately, but rather has been included as part of the Forest
Stewardship program. (See above.)
The Urban and Community Forestry Assistance program was created to expand knowledge and
awareness of the value of urban trees and to encourage the maintenance and expansion of urban
tree cover. The FS is to:
• improve understanding of the benefits of preserving existing tree cover in urban
areas and communities;
• encourage owners of private residences and commercial properties to maintain
trees and expand forest cover on their properties;
• provide education programs and technical assistance to state and local
organizations in maintaining forested lands and individual trees;
• provide assistance through competitive matching grants for urban and
community forestry projects;
• implement a tree planting program to support urban open space programs, reduce
carbon dioxide emissions, conserve energy, and improve air quality;
• promote demonstration projects;
• enhance the technical skills and understanding of sound tree maintenance and
arboricultural practices of individuals involved with urban and community
forests and trees; and
• expand existing research and educational efforts.

The FS is authorized to provide financial, technical, and related assistance to state foresters and to
establish and support state information and technical assistance programs to encourage
“cooperative efforts to plan urban forestry programs and to plant, protect, and maintain, and
utilize wood from, trees in open spaces, greenbelts, roadside screens, parks, woodlands, curb
areas, and residential developments ...” The FS is also authorized to cooperate directly with local
governments and with interested members of the public. The Urban and Community Forestry
program is directed to:
• assist urban areas and communities in inventorying their forest resources and
identifying tree planting opportunities;
• assist state and local organizations in organizing and conducting urban and
community forestry projects and programs;
• improve education and technical support in selecting appropriate tree species,
providing for proper tree planting, maintenance, and protection, protecting
individual trees, preserving open spaces, and identifying opportunities for
expanding tree cover;
• assist in developing state and local tree management plans; and
• increase public understanding of the energy conservation, economic, social,
environmental, and psychological values of trees and open space in urban and
community environments.
In addition, the FS is to establish an “urban and community forestry challenge cost-share
program” for competitive grants to eligible communities and organizations for up to 50% of
project costs. State foresters make recommendations on project proposals, and the FS awards
grants based on criteria developed in consultation with the National Urban and Community
Forestry Advisory Council (established under § 9(g) of the CFAA, and described later in this
report).
No criteria for eligibility are specified in law. Apparently, any community, private nonprofit
organization, or individual can apply for assistance.
Urban and Community Forestry was established in § 6 of the CFAA, and rewritten and
renumbered as § 9 in § 1219 of the 1990 farm bill. It is codified at 16 U.S.C. § 2105. The
authorization of appropriations was $30 million annually for FY1991-FY1995 and “such sums as
may be necessary thereafter ...,” and does not expire. The slow decline in annual appropriations
for FY2004-FY2008 is shown in Table 4.

Table 4. Appropriations for Urban and Community Forestry, FY2004-FY2008
^{(in millions)}
^FY20^{04 FY20}^{05 FY20}^{06 FY20}^{07 FY20}⁰⁸
^Urban^a^nd^Commu^nity^Forestry^$34.8^{64 $31.9}^{50 $28.4}^{13 $30.1}^{30 $27.6}⁹¹

There are currently five authorized programs to provide financial and technical assistance for
protecting nonfederal forests. Two programs are funded in multiple expanded budget line items.
Forest Health and Rural Fire Protection both have two funding components, and both receive
funds through S&PF appropriations and Wildland Fire Management appropriations. To date, the
Community Fire Protection program has not been funded separately (though states can use Rural
Fire Protection funds for the program). Lastly, the Community Forest and Open Space
Conservation program was created in the 2008 farm bill. The programs are discussed below in
descending order of FY2008 funding.
The Forest Health Protection program was created to protect trees, forests, and wood products,
directly on the national forests and in cooperation with others on other lands. The FS is
authorized to:
• enhance the growth and maintenance of trees and forests;
• promote the stability of forest-related industries and employment through the
protection of forest resources;
• aid in forest fire prevention and control;
• conserve forest cover on watersheds, shelterbelts, and windbreaks;
• protect outdoor recreation opportunities and other forest resources; and
• extend timber supplies by protecting wood products, stored wood, and wood in
use.
The FS is authorized, directly for the national forests and in cooperation with others for other
lands, to:
• conduct surveys of insect infestations, disease conditions, and man-made stresses
affecting trees, and to monitor changes;
• determine measures needed to prevent, retard, control, or suppress insect
infestations and disease epidemics;

• plan, organize, direct, and perform those measures;
• provide information, advice, and assistance for maintaining healthy forests and
coordinate use of pesticides and other toxic substances;
• develop technologies and test research results prior to full-scale application; and
• promote silvicultural and management techniques to protect or improve forest
health.
The FS can act on its own lands. On other lands, operations “to prevent, retard, control, or
suppress insects or diseases ... shall not be conducted without the consent, cooperation, and
participation [including financial contributions] of the entity having ownership of or jurisdiction
over the affected land.” Appropriations may not be used to pay for cutting or removing dead or
dying trees, unless necessary to prevent the spread of the epidemic, or to compensate for property
injured, damaged, or destroyed. The Secretary may also, by contract or agreement, provide
financial assistance to state foresters or private organizations to monitor forest health and protect
forest lands. Finally, the Secretary, in cooperation with state foresters, may provide 50%-75%
cost shares to cooperators who have established acceptable integrated pest management strategies
for gypsy moths, southern pine beetles, spruce budworms, or other major insect infestations.
Forest Health Protection was created as § 5 of the CFAA, and rewritten and renumbered as § 8 in
§ 1218 of the 1990 farm bill. It is codified at 16 U.S.C. § 2104. Annual appropriations are
authorized at “such sums as may be necessary,” except for a $10 million annual authorization for
cost-sharing to cooperators on integrated pest management strategies. The funding authorization
does not expire. Annual appropriations for the forest health protection program are shown in
Table 5. The table distinguishes funds for federal lands from cooperative (nonfederal) lands, and
includes funding through the Wildland Fire Management account as well as through the S&PF
account. Appropriations rose substantially after the severe fire season in the summer of 2000;
during the 1990s, Forest Health Protection funding averaged about $50 million annually,
compared to $125 million annually over the past five years.
Table 5. Appropriations for Forest Health Protection, FY2004-FY2008
^{(in millions)}
^FY20⁰⁴^FY20^{05 FY20}^{06 FY20}⁰⁷^FY20⁰⁸
^Federal^lands^$68.6⁴³^$69.0^{28 $67.9}^{42 $68.7}⁴²^$68.1⁴⁰
^Cooperative^lands^54.6¹⁹^57.4^{90 56.7}^{57 56.9}⁵⁷^54.3⁹⁵
^{Total $123.}²⁶²^$128.⁶¹⁸^a^$124.^{699 $125.}⁶⁹⁹^$122.⁵³⁵
^a.^{Included $}^2.10^{0 million of emergency s}^u^p^{plemental f}^unds^{provided for uns}^{pecified lands.}

Rural Fire Protection (technically, Rural Fire Prevention and Control) was created to assist in
preventing and controlling wildfires, to protect human lives, crops and livestock, property and
other improvements, and natural resources in rural areas. The FS is authorized to coordinate
efforts and to “provide prompt and adequate assistance whenever a rural fire emergency
overwhelms, or threatens to overwhelm, the firefighting capability” of states or local agencies.
The program has two components, with separate funding accounts: state fire assistance and rural
volunteer fire assistance.
The FS, in cooperation with state foresters, is to develop systems and methods, and assist in their
implementation, for fire prevention, fire control, and prescribed fire use by state foresters, and
through them, by other agencies and organizations, including rural volunteer fire departments.
The FS is also authorized to provide 50% cost-share assistance “to conduct preparedness and
mobilization activities, including training, equipping, and otherwise enabling State and local
firefighting agencies to respond to requests for fire suppression assistance.” Finally, the FS is to
cooperate with the General Services Administration (GSA) to “encourage the use of excess
personal property ... by State and local fire forces receiving assistance ... ”
The Secretary is authorized to provide financial, technical, and related assistance to state foresters
and to rural volunteer fire departments. The latter are defined as “any organized, not for profit,
fire protection organization that provides service primarily to a community or city” of up to
10,000 people, “whose firefighting personnel is 80 percent or more volunteer, and that is
recognized as a fire department by the laws of the State.... ”
The Rural Fire Protection program was established as § 7 of the CFAA, and renumbered as § 10
by the 1990 farm bill. It is codified at 16 U.S.C. § 2106. Annual appropriations are authorized at
“such sums as may be needed” for most activities. Up to $70 million annually, of which half is
available only for state foresters and half only for rural volunteer fire departments, is reserved for
cost-share assistance. The funding authorization does not expire. Annual appropriations rose
steadily from $17 million in FY1996 to $24 million in FY2000, then jumped to $113 million in
FY2001. Since FY2004, appropriations have remained relatively high, generally at $79 million or
more annually, as shown in Table 6.
Congress also continues to appropriate funds for Volunteer Fire Assistance grants. This program
was authorized as the Rural Community Fire Protection program in § 27 of the Agriculture and
Consumer Protection Act of 1973 (P.L. 93-86), which added a new § 816 to the Agriculture Act of
1970 (P.L. 91-524; the 1970 farm bill), which in turn added a new paragraph 13 to § 306(a) of the
1961 Consolidated Farm and Rural Development Act (P.L. 87-128; the 1961 farm bill). It was
codified at 7 U.S.C. § 1926(a)(13). However, the program was eliminated, and replaced by an

unrelated program, in § 741(a)(4) and (5) of the 1996 farm bill (P.L. 104-127). Congress
continued to fund the program under the Rural Housing Service in the annual Agriculture
appropriations acts through FY1998. Since FY1999, the program has been funded under
Cooperative Fire Protection in the S&PF branch in the annual Interior appropriations acts,
apparently under the broader authorization for Rural Fire Protection. Appropriations averaged
about $2 million annually in the late 1990s, but have risen substantially since, averaging $13 to
nearly $14 million annually. Table 6 shows appropriations for both state and volunteer fire
assistance programs, and includes funding through the Wildland Fire Management account as
well as through the S&PF account.
Table 6. Appropriations for Rural Fire Protection, FY2004-FY2008
^{(in millions)}
^FY20⁰⁴^FY20^{05 FY20}^{06 FY20}⁰⁷^FY20⁰⁸
^{State Fire Assistance}^$10^9.29⁸^$93.0⁹⁹^$78.7¹¹^$79.1¹⁶^$80.5⁷²
^{Volunteer Fire Assistance}^13.1⁷⁵^13.8⁰⁶^13.6⁸⁵^13.6⁸⁵^13.6⁷⁹
^{Total $146.}⁵²⁶^a^$126.⁹⁰⁵^b^$92.3^{96 $92.8}⁰²^$94.2⁵¹
^a.^{Includes $}^24.0⁵³^{million of emergency s}^u^p^{plemental fu}^nds^{provided for uns}^{pecified program}^s.
^b.^{Includes $}^20.0⁰⁰^{million of emergency s}^u^p^{plemental fu}^nds^{provided for uns}^{pecified program}^s.
The Forest Legacy program was created to protect forests that might soon be cleared for
nonforest uses, such as for agriculture or residences. The FS is to establish a program for
“ascertaining and protecting environmentally important forest areas that are threatened by
conversion to nonforest uses and ... for promoting forest land protection and other conservation
opportunities. Such purposes shall also include the protection of important scenic, cultural, fish,
wildlife, and recreational resources, riparian areas, and other ecological values.”
The FS is authorized to “acquire from willing landowners lands and interests therein, including
conservation easements and rights of public access.... ” The FS is also authorized to provide
grants to states to carry out the program.
The FS may delegate management of the lands or interests acquired “only to another
governmental agency.” For easements or other interests acquired, the landowner is required to
manage the property “consistent with purposes for which the land was entered in the Forest
Legacy Program.... Hunting, fishing, hiking, and similar recreational uses shall not be considered
inconsistent with the purposes of this program.” Activities may include “forest management
activities, including timber management, ... insofar as the Secretary deems such activities
consistent with the purposes” of the program.

The law establishes a three-step process for acquiring lands or easements. First, in consultation
with state forest stewardship coordinating committees (established under §19(b) of the CFAA and
described below), the FS establishes criteria for identifying eligible areas in each state, which
“shall have significant environmental values or shall be threatened by present or future
conversion to nonforest uses.” Then, also in consultation with the state committees, the FS selects
appropriate areas giving “priority to lands which can be effectively protected and managed, and
which have important scenic or recreational values; riparian areas; fish and wildlife values,
including threatened and endangered species; or other ecological values.” Finally, private
landowners with lands in eligible areas may submit applications for participation to the FS. In
addition, the FS may, at the request of participating states, provide grants to the states to carry out
the program.
The Forest Legacy program was added as a new § 7 to the CFAA by § 1217 of the 1990 farm bill.
It is codified at 16 U.S.C. § 2103c. The subsection authorizing “optional State grants” was added
by § 374 of the 1996 farm bill. The authorization of appropriations is for “such sums as may be
necessary,” and does not expire. Appropriations averaged $3 million annually for FY1996-
FY1998, rose substantially, and have since declined slowly from the peak of $68.4 million in
FY2003, as shown in Table 7.
Table 7. Appropriations for Forest Legacy, FY2004-FY2008
^{(in millions)}
^FY20^{04 FY20}^{05 FY20}^{06 FY20}^{07 FY20}⁰⁸
^Forest^Legacy^$64.1^{34 $57.1}^{34 $56.5}^{24 $56.5}^{36 $52.3}¹⁷
Community Fire Protection was created to assist communities in reducing threats from wildfires.
The FS is to establish a program to focus federal efforts on promoting firefighting efficiency, to
augment federal fire protection efforts, to expand homeowner and community outreach and
education, and to establish defensible space around private homes and property.
The FS, cooperating with and implemented through state foresters, may act on nonfederal lands,
with the landowner’s consent, in:
• fuel hazard mitigation and prevention;
• invasive species management;
• wildfire and community protection planning;

• community and landowner education;
• market development and expansion;
• improved wood utilization; and
• special restoration projects.
The FS may act, through state foresters, on nonfederal lands with the landowner’s consent. It is
unclear whether or when a community might be eligible for assistance or federal action.
The Community Fire Protection program was established as § 10A of the CFAA in § 8003 of the
2002 farm bill. It is codified at 16 U.S.C. § 2106c. Appropriations were authorized at $35 million
annually for FY2002-FY2007, and “such sums as are necessary” thereafter. The authorization
does not expire. To date, Congress has not appropriated funds for this program, although states
can use Rural Fire Assistance funds to fulfill the purposes of the program.
The Community Forest and Open Space Conservation program was established to provide
financial assistance to local governments, tribes, and nonprofit organizations for preventing the
conversion of forestland to nonforest uses, such as crop production or residential construction.
The FS is authorized to award grants to eligible entities to purchase fee simple title to private
forestlands that (1) are threatened by conversion to nonforest uses, and (2) provide public
economic, recreational, environmental, or educational benefits to communities or serve as models
of effective private forest stewardship. Grant recipients must provide at least 50% of the
appraised cost, and are to manage the lands consistent with the purposes of the acquisition and for
public access.
Eligible entities apply to state foresters (or equivalent tribal officials) for grants with a description
of the lands to be acquired and a plan that describes the benefits and management of the lands.
State foresters submit a list of projects to the FS. The FS may allocate up to 10% of appropriated
funds to state foresters for program administration.

The Community Forest and Open Space Conservation program was established as a new § 7A of
the CFAA in § 8003 of the 2008 farm bill. It is codified at 16 U.S.C. § 2103d. The authorization
of appropriations is “such sums as are necessary,” and does not expire.

Two programs—one new and one long-standing—are authorized to provide financial assistance ⁹
to landowners whose private lands have been damaged by natural disasters.Neither program has
provided funding for landowners in recent years—the long-standing program has not received
any appropriations in 15 years, while the new program was created in the 2008 farm bill.
The Emergency Reforestation Assistance program was created to reforest stands damaged by
natural disasters. The FS can provide seedlings or reimburse some reforestation costs to eligible
landowners.
The FS has the discretion to provide either tree seedlings or reimbursement of up to 65% of
reforestation costs for tree stands with at least 35% mortality from wildfire, damaging weather,
defined as “drought, hail, excessive moisture, freeze, tornado, hurricane, excessive wind, or any
combination thereof;” or a related condition, defined as “insect infestations, disease, or other
deterioration of a tree stand that is accelerated or exacerbated by damaging weather.”
Eligible landowners include (a) persons who produce annual commercial crops from up to 500
acres of trees; (b) persons who own up to 1,000 acres of forestland; and (c) persons who own
1,000-5,000 acres of forestland, if the Secretary determines the person to be eligible. To be
eligible, the landowner must not have “qualifying gross revenues” of more than $2 million;
“qualifying gross revenues” generally include gross revenues from farming, ranching, and

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forestry operations.¹⁰ The FS is prohibited from making payments of more than $25,000 (or
equivalent value in tree seedlings) to a landowner in any fiscal year, and from providing
payments to persons who receive other payments or assistance for forestry practices.
Emergency reforestation assistance was established by § 1271 of the 1990 farm bill, and is
codified at 16 U.S.C. § 2106a. The authorization includes no reference to funding level or
expiration date. It was enacted to allow compensation to landowners who suffered substantial
damage when Hurricane Hugo hit South Carolina in late 1989. Congress has not appropriated any
funds for the program since FY1993; the last appropriations were for assistance related to
Hurricanes Andrew and Iniki.
The Emergency Forest Restoration program was created to assist private forestland owners “to
address damage caused by a natural disaster ... on nonindustrial private forest land.... ”
The FS may provide up to 75% of the cost of emergency measures that “would restore forest
health and forest-related resources” and where the damage “if not treated (i) would impair or
endanger the natural resources on the land; and (ii) would materially affect future use of the
land.... ” Natural disasters include “wildfires, hurricanes or excessive winds, drought, ice storms
or blizzards, floods, or other resource-impacting events, as determined by the Secretary.”
Eligible recipients include owners of “nonindustrial private forest land,” defined as rural land that
“(A) has existing tree cover (or had tree cover immediately before the natural disaster and is
suitable for growing trees); and (B) is owned by any nonindustrial private individual, group,
association, corporation, or other private legal entity, that has definitive decision-making
authority over the land.”
The Emergency Forest Restoration program was created by § 8203 of the 2008 farm bill, adding a
new § 407 to Title IV (Emergency Conservation Program) of the Agricultural Credit Act of 1978

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(P.L. 95-324). It is codified at 16 U.S.C. § 2207. Authorized funding is at “such funds as may be
necessary” and does not terminate.

Two programs are currently authorized to provide economic assistance for communities that have
traditionally depended on federal forests (especially federal timber harvests), although both have
been funded under a single expanded budget line item.
The Economic Action Program (EAP) was created to assist communities and their leaders in
improving the efficiency and marketing of natural resource-based industries and in diversifying
rural community economic bases. The FS is authorized to assist rural communities “that are
located in or near National Forest System land and that are economically dependent upon natural
resources or are likely to be economically disadvantaged by Federal or private sector land
management practices.... ”
The FS may establish “rural forestry and economic diversification action teams to prepare an
action plan to provide technical assistance to economically disadvantaged communities.” The
teams are to be designed “to meet the unique needs of the requesting rural community.” They are
to be directed by a FS employee, and may include personnel from other federal and state agencies
and from the private sector. The program can include training and education for businesses,
officials, and individuals, and loans to expand or improve existing infrastructure and facilities and
to support “new industries or commercial ventures unrelated to National Forest System
resour ces.”
“Economically disadvantaged rural communities” may request assistance. A rural community is
defined as “any town, township, municipality, or other similar unit of general purpose local
government, or any area represented by a not-for-profit corporation or institution organized ... to
promote broad based economic development ... as approved by the Secretary” that:
• has a population of no more than 10,000 people;
• is in a county in which at least 15% of total primary and secondary income is
derived from forestry, wood products, or other forest-related industry (such as
recreation, livestock grazing, or tourism); and
• is within the boundary, or within 100 miles of the boundary, of a national forest.
A rural community can also be “any county that is not contained within a Metropolitan Statistical
Area” that meets the income and location requirements identified above. An economically

disadvantaged area is defined as an area suffering “economic hardship due to the loss of jobs or
income” derived from forestry or forest-related enterprises.
The EAP was established by the National Forest-Dependent Rural Communities Economic
Diversification Act of 1990, in §§ 2372-2379 of the 1990 farm bill. It is codified at 7 U.S.C. §§
6611-6617. Annual appropriations are authorized at “an amount not to exceed 5% of” FS user
fees and resource sale receipts, plus “such additional sums as may be necessary.” The ¹¹
authorization does not expire.
Annual appropriations for the EAP (including Pacific Northwest Assistance) have fluctuated
widely over time. Funding reached nearly $40 million in FY1991, fell below $23 million in
FY1993, then averaged about $32 million annually in the mid 1990s. It fell to about $27 million
annually in the late 1990s, then jumped to $63.6 million in FY2001 to provide additional
compensation for communities affected by severe wildfires during the summer of 2000.
Subsequent appropriations have declined, as shown in Table 8. The Bush Administration
continues to propose terminating appropriations for the program.
Table 8. Appropriations for Economic Action, FY2004-FY2008
^{(in millions)}
^FY20^{04 FY20}^{05 FY20}^{06 FY20}^{07 FY20}⁰⁸
^Economic^Action^$25.6⁰⁶^$19.0^{32 $9.53}^{7 $0.00}^{0 $4.20}⁶

The Cooperative National Forest Products Marketing Program was created to authorize the FS to
provide assistance to improve the marketing of forest products, especially for small- and medium-
sized producers.
The program includes two components. Technical assistance can be provided directly to states,
landowners, and small- to medium-sized firms on ways to improve domestic and export
marketing. Also, states can apply for matching grants to support state and regional marketing
efforts targeted at assisting small- to medium-sized firms and nonindustrial private landowners.

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^P^l^aⁿ^f^o^r^a^Sus^t^aⁱ^na^ble^Ec^o^nom^y^{and a}^S^u^s^t^aⁱ^na^ble^Envⁱ^r^onm^eⁿ^{t. C}^ong^r^e^s^s^eⁿ^a^c^t^e^d^f^unds^t^o^s^u^pp^or^{t t}^h^is^pr^og^r^a^m^{in the}
^FY¹⁹^{94 I}ⁿ^te^rⁱ^or^a^ppr^opr^ia^tio^ns^a^c^t^{, a}^{nd c}^onti^nue^{d f}^undi^ng^the^pr^o^g^r^am^thr^oug^{h FY}²⁰^02.^B^e^gⁱⁿⁿⁱ^ng^{in FY}²⁰⁰³^{, the}
^H^ous^e^aⁿ^d^Se^na^te^A^ppr^o^p^rⁱ^a^tio^ns^C^o^m^m^itte^e^s^r^e^c^o^m^m^e^nde^{d tha}^t^s^u^c^h^e^f^f^o^r^t^s^be^c^ontin^ue^{d w}^ithiⁿ^t^h^e^Ec^onom^ic
^A^c^{tion pr}^og^r^a^m^.

For technical assistance, no criteria for eligibility are specified in law. Apparently, any state,
landowner, or “small-sized to medium-sized forest products firms” can apply for assistance. For
financial assistance, eligible states must have a targeted forest products marketing effort, or be
participating in a targeted regional effort.
The Cooperative National Forest Products Marketing Program was added as a new § 15 in the
CFAA by § 4403 of the Omnibus Trade and Competitiveness Act of 1988 (P.L. 100-418). It was
renumbered as § 18 by the 1990 farm bill, and is codified at 16 U.S.C. § 2112. The authorization
of appropriations was $5 million annually for FY1988-FY1991. It has not been reauthorized.
However, since FY1993, Congress has continued to fund this program as part of the EAP. (See
above.)

The International Forestry Program was created for the FS to provide technical assistance to other
nations, especially in the tropics, on forest management for “sustainable development and global
environmental stability.... ”
The FS may provide help to other nations for conserving forests; managing forest plantations;
rehabilitating damaged forestlands; preventing and controlling insects, diseases, and other
damaging agents; using wood; conserving rangelands; and protecting wildlife and fish habitat.
Assistance can include sharing technical and managerial skills, providing education and training
opportunities, cooperating on and exchanging scientific research, and cooperating with domestic
and international organizations for these purposes.
Assistance is provided to countries “that receive assistance from the U.S. Agency for
International Development [AID] only at the request, or with the concurrence, of the
Administrator” of AID. Also, the FS is directed to focus efforts “on key countries which could
have a substantial impact on emissions of greenhouse gases related to global warming.”
The International Forestry Program was established in the International Forestry Cooperation Act
of 1990, Title VI of the Foreign Operations, Export Financing, and Related Programs
Appropriations Act of FY1991 (P.L. 101-513), as amended by the Hawaii Tropical Forest

Recovery Act (P.L. 102-574).¹² It is codified at 16 U.S.C. §§ 4501-4505. The authorization of
appropriations is “such sums as may be necessary,” and does not expire. In addition, the FS’s
Office of International Forestry and Institutes of Tropical Forestry were authorized in § 2405 and
§ 2407 of the 1990 farm bill, and are codified at 7 U.S.C. § 6704 and § 6706, respectively. The

1990 farm bill also directed a separate budget line for FS international cooperation and assistance.

Appropriations were transferred from other FS programs for FY1992 and FY1993, then enacted
at nearly $7 million for FY1994 and FY1995. For FY1996-FY2000, the FS was directed to use
funds from other S&PF accounts for international programs. Since FY2001, Congress has enacted
a separate appropriation for International Forestry. Funding since FY2004 is shown in Table 9.
Table 9. Appropriations for International Forestry, FY2004-FY2008
^{(in millions)}
^FY20⁰⁴^FY20^{05 FY20}^{06 FY20}⁰⁷^FY20⁰⁸
^Inter^national^Forestry^$5.92⁶^$6.41^{0 $6.88}^{6 $6.88}⁶^$7.38³

In addition to these several cooperative forestry assistance programs, the CFAA authorizes
consolidated payments to the states (i.e., a single payment for all the programs) and establishes
three groups to oversee certain programs. The 2008 farm bill replaced an existing oversight
committee with a new structure and purposes. These are described below.
Consolidated payments are authorized in § 9 of the CFAA, renumbered as § 12 and amended by
the 1990 farm bill, and codified at 16 U.S.C. § 2108. To provide flexibility in implementing
programs, states may request consolidated payments for all the authorized cooperative forestry
assistance programs.
The National Urban and Community Forestry Advisory Council was created under the CFAA, as
rewritten in § 1219 of the 1990 farm bill; it is codified at 16 U.S.C. § 2105(g). The Council is to
evaluate implementation of the national urban and community forestry action plan and to develop
criteria and submit recommendations for the urban and community forestry challenge cost-share
program. The Council is composed of 15 members, appointed by the Secretary, representing:

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^pr^ov^ide^a^s^sⁱ^s^t^aⁿ^c^e^to^noⁿⁱ^nd^us^tr^ia^{l pr}^iv^a^t^e^f^o^r^e^s^t^la^ndow^ne^r^s^w^{ho e}^x^pe^rⁱ^eⁿ^c^e^d^a^los^s^of³⁵^%^or^m^o^r^e^{in m}^e^r^c^ha^nta^b^le
^tim^be^r^f^r^om^the²⁰⁰^{5 h}^u^rric^aⁿ^e^s⁽^H^urric^aⁿ^e^Ka^trina^e^t^a^l^.).^T^h^e^pro^g^r^a^m^(a^{s a}^m^e^nde^{d) prov}ⁱ^d^e^d^$5⁰⁴^{.1 m}^illio^{n f}^r^om
^the^Com^m^odity^Cre^d^{it Corp}^ora^tio^{n thr}^ou^{gh t}^h^e^F^a^rm^S^e^rvi^c^e^A^g^en^c^y^f^o^{r 1}⁰^-^y^{ear co}ⁿ^t^ract^{s t}^o^est^a^b^lⁱ^s^h^t^e^m^p^o^r^ar^y
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^{16 U}^.^S.C.^§³⁸^{31) c}^r^e^a^t^e^dⁱⁿ^t^h^e¹⁹⁸^{5 f}^a^rm^{bill, it w}^a^s^e^x^em^pte^d^f^r^om^the^c^ounty^a^c^r^e^a^g^e^a^{nd m}^a^xⁱ^m^u^m^eⁿ^rollm^eⁿ^t
^lim^ita^tions^of^the^C^R^P^.^T^h^e^pr^og^r^a^m^w^a^s^c^r^ea^te^{d in §}¹⁰⁷^of^the^D^e^pa^r^t^m^e^{nt of}^D^e^f^e^ns^e^,^Em^e^r^g^e^ncy^Supple^m^eⁿ^ta^l
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²⁰⁰^{8 f}^a^rm^{bill (§ 2}¹⁰⁶^(b))^re^num^be^re^{d the}^prov^isio^{n a}^s^§¹²³¹^A^,^inste^a^d^of^§¹²^31(k⁾^,^of^the¹⁹⁸⁵^f^a^r^m^bill.

• national nonprofit forestry and conservation citizen organizations (2);
• state, county, and city or town governments (1 each);
• forest products, nursery, or related industry (1);
• urban forestry, landscape, or design consultant (1);
• academic institutions, with relevant expertise (2);
• state forestry (or equivalent) agencies (1);
• professional renewable natural resource or arboricultural society (1);
• USDA Extension Service (1);
• USDA Forest Service (1); and
• others with expertise and experience in urban and community forestry and who
are not governmental officers or employees, at least one of whom is a resident of
a community of fewer than 50,000 people (2).
The Forest Resource Coordinating Committee was created in § 8005 of the 2008 farm bill,
replacing the USDA Coordinating Committee established in § 19 of the CFAA; it is codified at 16
U.S.C. § 2113(a). This committee is to assist in coordinating forestry assistance programs within
USDA and with states and the private sector, to clarify individual agency responsibilities, and to
advise on funding allocations (including competitive allocations). The Committee is chaired by
the FS Chief. It is composed of:
• the Chief of the Forest Service;
• the Chief of the Natural Resources Conservation Service;
• the Director of the Farm Service Agency;
• the Director of the National Institute of Food and Agriculture;
• at least three state foresters from geographically diverse regions;
• a representative of a state fish and wildlife agency;
• an owner of nonindustrial forest land;
• a forest industry representative;
• a conservation organization representative;
• a land-grant university or college representative;
• a private forestry consultant;
• a representative from a State Technical Committee established under § 1261 of
the Food Security Act of 1985 (16 U.S.C. §3861); and
• such other persons as determined by the Secretary to be appropriate.

State Forest Stewardship Coordinating Committees were directed to be created by the Secretary
of Agriculture, in consultation with each state forester, in § 1222 of the 1990 farm bill, which
added a new § 19 to the CFAA; the direction is codified at 16 U.S.C. § 2113(b). Each state
coordinating committee is to consult with other USDA and state committees on cooperative
forestry programs and to make recommendations on priorities and responsibilities and on
priorities for the forest legacy program. Each state coordinating committee is chaired by the state
forester, and composed of federal representatives from “the Forest Service, Soil Conservation
Service, Agricultural Stabilization and Conservation Service, and Extension Service,” and of
others appointed by the state forester to represent:
• local government;
• consulting foresters;
• environmental organizations;
• the forest products industry;
• forest landowners;
• land trust organizations (if applicable);
• conservation organizations;
• the state’s fish and wildlife agency; and
• the State Technical Committee established under § 1261 of the Food Security Act
of 1985 (16 U.S.C. § 3861).

The U.S. Department of Agriculture administers numerous programs to support the management
of state and private forestlands. Several programs provide financial and/or technical assistance
through the states for planning and implementing forest management practices (e.g., tree planting,
site preparation for reforestation, thinning, pruning, fertilizing, prescribed burning, and other
activities) and sometimes practices to enhance other resources (e.g., restoring watersheds,
improving wildlife habitat, and other activities. Some programs have been combined through the
appropriations process.
Additional programs provide financial and technical support for protecting nonfederal forests
from wildfire, insects, diseases, and clearing for nonforest uses. These programs cover many
continuing threats to forests, although global climate change could exacerbate the effects of these
threats. Furthermore, for the Forest Health program, more funds are used to protect federal lands
than cooperative lands. Forest Legacy can help prevent forest clearing. The Community Fire
Protection program can assist communities prepare for wildfires, while the two emergency
programs can help landowners restore forests after the disaster. These programs, as well as many
of the forest management programs noted above, can help to protect and restore state and private
forestlands from catastrophic wildfires and other damaging agents.
Other forestry assistance programs address rural economic development for communities in or
near federal forests. Each program appears to authorize some unique activities, but some

responsibilities appear to overlap. It is unclear the extent to which these activities duplicate
efforts of other USDA agencies which emphasize rural economic development, and which agency
might be most efficient and effective at providing such economic assistance.
Appropriations for forestry assistance programs has been declining in recent years. In response to
the severe wildfires in the summer of 2000, funding more than doubled, from $213.3 million in
FY2000 to a peak of $493.8 million, in FY2001. Funding was $426.3 million in FY2004, $433.0 ¹³
million in FY2005 and $375.4 million in FY2006,$347.1 million in FY2007, and $330.6
million in FY2008. The largest sustained increases have been for the forest protection
programs—forest health (for insect and disease identification and control), wildfire assistance,
and forest legacy (for easements to prevent forest clearing). Forest management assistance
funding has seen less change—forest stewardship funding (for state forestry programs) has grown
slowly (with a modest jump in FY2007 and a drop in FY2008), while urban and community
forestry has declined slowly from a peak in FY2002. After peaking in FY2001, economic
assistance funding has declined substantially, in response to President Bush’s persistent proposals
to terminate the programs. In contrast, funding for international forestry has continued to grow
slowly over the past five years.

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