Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020)

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Forest Service Appropriations: Ten-Year Data
October October 129, 2020 , 2020
and Trends (FY2011-FY2020)
Katie Hoover
The Forest Service (FS) is responsible for managing 193 The Forest Service (FS) is responsible for managing 193 ~~million~~mil ion acres of the National acres of the National ~~Forest~~
Specialist in Natural Specialist in Natural
Forest System (NFS); conducting forestry research; and providing assistance to state andSystem (NFS); conducting forestry research; and providing assistance to state and ~~local~~
Resources Policy Resources Policy
local government, private, and international forest owners. Funding to complete such government, private, and international forest owners. Funding to complete such work is provided work is provided

through both discretionary and mandatory appropriations. Congress through both discretionary and mandatory appropriations. Congress considers the appropriate considers the appropriate
level of funding for the FS through the annual and supplemental discretionary appropriations level of funding for the FS through the annual and supplemental discretionary appropriations

processes and through the enactment, reauthorization, amendment, or processes and through the enactment, reauthorization, amendment, or expiration of statutes expiration of statutes
providing for mandatory spending. For the 10-year period from FY2011 to FY2020,providing for mandatory spending. For the 10-year period from FY2011 to FY2020, FS total discretionary and mandatory FS total discretionary and mandatory
appropriations combined were $7.00 appropriations combined were $7.00 ~~billion annually~~bil ion annual y on average in constant (FY2020) dollars, which are adjusted for on average in constant (FY2020) dollars, which are adjusted for
inflation. FS total appropriations fluctuated inflation. FS total appropriations fluctuated ~~annually~~annual y but increased over the 10-year period. In FY2020, the FS received $8.20 but increased over the 10-year period. In FY2020, the FS received $8.20
~~billion~~bil ion in total appropriations, an increase of 36% as compared with the FY2011 appropriation, when adjusted to constant in total appropriations, an increase of 36% as compared with the FY2011 appropriation, when adjusted to constant
dollars. dollars.
Although it is an agency within the U.S. Department of Agriculture, the FS Although it is an agency within the U.S. Department of Agriculture, the FS ~~generally receive~~sgeneral y receives discretionary ~~appropriations~~appropriations
through Title III of the regular Interior, Environment, and Related Agencies appropriations through Title III of the regular Interior, Environment, and Related Agencies appropriations ~~bill.~~ bil . For the 10-year period from For the 10-year period from
~~FY2011~~ FY2011 to FY2020,to FY2020, FS discretionary appropriations were $6.21 FS discretionary appropriations were $6.21 ~~billion annually~~bil ion annual y on average in constant dollars, which was on average in constant dollars, which was
89% of the FS’s total annual appropriation on average over the period. FS discretionary appropriations fluctuated 89% of the FS’s total annual appropriation on average over the period. FS discretionary appropriations fluctuated ~~annually~~
annual y from FY2011from FY2011 to FY2020 but to FY2020 but ~~generally~~general y increased, in terms of both constant and nominal dollars (i.e., not adjusted for increased, in terms of both constant and nominal dollars (i.e., not adjusted for
inflation). The annual fluctuations were driven in part by inflation). The annual fluctuations were driven in part by supplemental appropriations provided to respond to disasters or supplemental appropriations provided to respond to disasters or
replenish funds for wildland fire management. Supplemental appropriations were provided in 7 of the 10 fiscal years in this replenish funds for wildland fire management. Supplemental appropriations were provided in 7 of the 10 fiscal years in this
period, including funds provided pursuant to the period, including funds provided pursuant to the wildfire adjustment in FY2020 (the wildfire adjustment is a budgetary in FY2020 (the wildfire adjustment is a budgetary
mechanism that mechanism that ~~allows~~ al ows Congress to provide additional funding for wildfire suppression above a specified baselineCongress to provide additional funding for wildfire suppression above a specified baseline through an through an
upward adjustment to the discretionary spending limit). In FY2020,adjustment to the discretionary spending limit). In FY2020, the FS received $7.50 the FS received $7.50 ~~billion~~bil ion in discretionary in discretionary appropriations, an appropriations, an
increase of 37% over the FY2011 appropriation in constant dollars. The majority of FS discretionary appropriations go to two increase of 37% over the FY2011 appropriation in constant dollars. The majority of FS discretionary appropriations go to two
accounts, which fund activities related to wildland fire management and accounts, which fund activities related to wildland fire management and management of the NFS. Figure 1.FS Total Appropriations, FY2011-FY2020 Source: CRS. Data are derived from annual budget justifications, appropriations acts, supplemental appropriations acts, committee reports, explanatory statements, and the detailed funding tables prepared by the House and Senate Committees on Appropriations. Notes: Figures reflect applicable supplemental and emergency-designated appropriations, sequestration, rescissions, and deferrals. Figures were adjusted to estimated FY2020 constant dol ars using the GDP Chained Price Index from the White House Office of Management and Budget. ~~management of the NFS.~~
Each year, the FS also Each year, the FS also ~~receive~~sreceives mandatory appropriations under existing authorizing statutes. Laws authorizing mandatory under existing authorizing statutes. Laws authorizing mandatory
appropriations appropriations ~~allow~~al ow the FS to spend money without further action by Congress. The FS has about two the FS to spend money without further action by Congress. The FS has about two Congressional Research Service Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020) dozen mandatory dozen mandatory
appropriations accounts, and the budget authority for several of these accounts depends on revenue generated by activities in appropriations accounts, and the budget authority for several of these accounts depends on revenue generated by activities in
the national forests. From FY2011the national forests. From FY2011 through FY2020, the FS’s average annual mandatory appropriation was $782.5 through FY2020, the FS’s average annual mandatory appropriation was $782.5 ~~million~~mil ion in in
constant dollars, which was 11% of the agency’s total annual constant dollars, which was 11% of the agency’s total annual appropriation on average over the period. FS mandatory appropriation on average over the period. FS mandatory
appropriations fluctuated appropriations fluctuated ~~annually~~annual y from FY2011 from FY2011 through FY2020, particularly over the second half of the decade. The through FY2020, particularly over the second half of the decade. The
fluctuations were related in part to the expiration and reauthorization of a program funded through one FS mandatory fluctuations were related in part to the expiration and reauthorization of a program funded through one FS mandatory
account. account.
Congress may consider several policy issues related to FS appropriations. Priority issues pertain to processes and controls for Congress may consider several policy issues related to FS appropriations. Priority issues pertain to processes and controls for
budget administration and management through the FS’s budget structure. To address concerns with budget administration and management through the FS’s budget structure. To address concerns with the FS’s budget the FS’s budget
administration, Congress put fiscal year limitations on many of the agency’s discretionary appropriations accounts and administration, Congress put fiscal year limitations on many of the agency’s discretionary appropriations accounts and
established quarterly reporting requirements, among other provisions. In addition, the FS’s account structure has changed established quarterly reporting requirements, among other provisions. In addition, the FS’s account structure has changed
over time, including during the period from FY2011over time, including during the period from FY2011 through FY2020, and additional through FY2020, and additional ~~structura l~~structural changes already have been changes already have been
enacted for FY2021; these changes may improve congressional oversight moving forward but may make examining funding enacted for FY2021; these changes may improve congressional oversight moving forward but may make examining funding
trends over time more trends over time more ~~challenging~~chal enging. .
Another priority issue for Congress has been the impact of fire borrowing on other FS activities and the increasing Another priority issue for Congress has been the impact of fire borrowing on other FS activities and the increasing portion of portion of
the FS budget used for wildfire suppression. Due to the emergency nature of fire control activities, the FS is authorized to the FS budget used for wildfire suppression. Due to the emergency nature of fire control activities, the FS is authorized to
transfer money out of other discretionary accounts if suppression funds become depleted; thistransfer money out of other discretionary accounts if suppression funds become depleted; this process is often referred to as process is often referred to as
fire borrowing. Congress . Congress ~~typically~~typical y has enacted supplemental appropriations to repay the transferred funds and/or to replenish has enacted supplemental appropriations to repay the transferred funds and/or to replenish
the FS’s wildfire accounts. Congress also has established different accounts and budgetary mechanisms to address borrowing the FS’s wildfire accounts. Congress also has established different accounts and budgetary mechanisms to address borrowing
and suppression concerns. This includes, for example, the wildfire adjustment. and suppression concerns. This includes, for example, the wildfire adjustment.
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Appendixes
Appendix. Detailed Discretionary Appropriations Data ....................................................... 2930

Contacts
Author Information ....................................................................................................... 3233

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he Forest Service (FS) is responsible for managing 193 mil ion acres of the National he Forest Service (FS) is responsible for managing 193 mil ion acres of the National
Forest System (NFS), as wel as for conducting forestry research and providing assistance Forest System (NFS), as wel as for conducting forestry research and providing assistance
T to state and local government, private, and international forest owners. Funding to T to state and local government, private, and international forest owners. Funding to
complete such work is provided through both discretionary and mandatory appropriations. complete such work is provided through both discretionary and mandatory appropriations.
Although it is an agency within the U.S. Department of Agriculture, the FS general y receives its Although it is an agency within the U.S. Department of Agriculture, the FS general y receives its
discretionary appropriations through Title III of the regular Interior, Environment, and Related discretionary appropriations through Title III of the regular Interior, Environment, and Related
Agencies appropriations bil .1 In some years, the FS has received additional discretionary monies Agencies appropriations bil .1 In some years, the FS has received additional discretionary monies
through supplemental appropriations laws or a budgetary mechanism known as the through supplemental appropriations laws or a budgetary mechanism known as the wildfire
adjustment (see (see “Wildfire Adjustment,” below). In addition, Congress has used continuing ” below). In addition, Congress has used continuing
appropriations resolutions to maintain funding for the agency when regular appropriations bil s appropriations resolutions to maintain funding for the agency when regular appropriations bil s
have not been enacted before the start of the fiscal year. In some cases, continuing resolutions have not been enacted before the start of the fiscal year. In some cases, continuing resolutions
have provided full-year funding.2 have provided full-year funding.2
The FS also receives annual mandatory appropriations under existing authorizing statutes.3 Laws The FS also receives annual mandatory appropriations under existing authorizing statutes.3 Laws
authorizing mandatory appropriations al ow the FS to spend money without further action by authorizing mandatory appropriations al ow the FS to spend money without further action by
Congress. The budget authority for several of these mandatory spending accounts depends on Congress. The budget authority for several of these mandatory spending accounts depends on
revenue generated by activities on the national forests. These laws typical y are permanent, revenue generated by activities on the national forests. These laws typical y are permanent,
although sometimes the authorizations have a sunset date. although sometimes the authorizations have a sunset date.
This report includes data on total FS appropriations for the 10-year period from FY2011 through This report includes data on total FS appropriations for the 10-year period from FY2011 through
FY2020. The report focuses primarily on FS discretionary appropriations, which accounted for FY2020. The report focuses primarily on FS discretionary appropriations, which accounted for
89% of annual FS appropriations on average over the period. The report summarizes the FS’s 89% of annual FS appropriations on average over the period. The report summarizes the FS’s
discretionary appropriations accounts and provides account-level data and analysis. Mandatory discretionary appropriations accounts and provides account-level data and analysis. Mandatory
appropriations accounted for the remaining 11% of annual FS appropriations from FY2011 appropriations accounted for the remaining 11% of annual FS appropriations from FY2011
through FY2020; in addition to total mandatory appropriations data, this report summarizes the through FY2020; in addition to total mandatory appropriations data, this report summarizes the
FS’s mandatory appropriations accounts and provides account-level data for FY2019 mandatory FS’s mandatory appropriations accounts and provides account-level data for FY2019 mandatory
funding.4 It concludes with a discussion of selected policy issues related to FS appropriations: fire funding.4 It concludes with a discussion of selected policy issues related to FS appropriations: fire
borrowing, budget administration, and account restructuring. borrowing, budget administration, and account restructuring.
Forest Service Total Appropriations
For the 10-year period from FY2011 to FY2020, FS total appropriations were $7.00 bil ion For the 10-year period from FY2011 to FY2020, FS total appropriations were $7.00 bil ion
annual y on average in FY2020 constant dollars, which are adjusted for inflation. (The average annual y on average in FY2020 constant dollars, which are adjusted for inflation. (The average
was $6.50 bil ion annual y in nominal dollars, which are not adjusted for inflation.5) FS total was $6.50 bil ion annual y in nominal dollars, which are not adjusted for inflation.5) FS total

1 For an overview of the Interior, Environment, and Related Agencies appropriations bill, see CRS Report R45875, 1 For an overview of the Interior, Environment, and Related Agencies appropriations bill, see CRS Report R45875,
Interior, Environm ent, and Related Agencies: Overview of FY2020 Appropriations, and CRS Report R46519, , and CRS Report R46519, Interior,
Environm ent, and Related Agencies: Overview of FY2021 Appropriations, by Carol Hardy Vincent . , by Carol Hardy Vincent .
2 For more information on the three types of discretionary appropriations measures, see CRS Report R42388, 2 For more information on the three types of discretionary appropriations measures, see CRS Report R42388, The
Congressional Appropriations Process: An Introduction , coordinated by James V. Saturno. , coordinated by James V. Saturno.
3 Mandatory appropriations are sometimes referred to as 3 Mandatory appropriations are sometimes referred to as permanent appropriations, , mandatory spending, or , or direct
spending. T his report typically uses the term . T his report typically uses the term m andatory appropriations in reference to this type of appropriations. in reference to this type of appropriations.
4 FY2019 is the most recent year for which final mandatory appropriations data are available. T he FY2020 figures are 4 FY2019 is the most recent year for which final mandatory appropriations data are available. T he FY2020 figures are
estimates and are subject to revision. See CRS Report R45994, estimates and are subject to revision. See CRS Report R45994, Federal Land Managem ent Agencies’ Mandatory
Appropriations Accounts, coordinated by Carol Hardy Vincent , for more information regarding Forest Service (FS) , coordinated by Carol Hardy Vincent , for more information regarding Forest Service (FS)
mandatory appropriations. mandatory appropriations.
5 T he figures and tables in this report generally reflect applicable supplemental and emergency 5 T he figures and tables in this report generally reflect applicable supplemental and emergency -designated -designated
appropriations, sequestration, rescissions, and deferrals. For FY2011 -FY2016, mandatory appropriations reflect figures appropriations, sequestration, rescissions, and deferrals. For FY2011 -FY2016, mandatory appropriations reflect figures
reported as “new budget authority” in FS budget documents. T op-line figures for discretionary, mandatory, and total reported as “new budget authority” in FS budget documents. T op-line figures for discretionary, mandatory, and total
appropriations are inflated to estimated appropriations are inflated to estimated ~~FY2020~~FY202 0 constant dollars to enable comparisons across time. Figures were constant dollars to enable comparisons across time. Figures were
adjusted to estimated FY2020 dollars using the GDP Chained Price Index from the White House Office of adjusted to estimated FY2020 dollars using the GDP Chained Price Index from the White House Office of
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Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020)

appropriations fluctuated annual y but increased over the 10-year period, in terms of both appropriations fluctuated annual y but increased over the 10-year period, in terms of both
constant and nominal dollars (seconstant and nominal dollars (see Figure 12 aand Table 1). In FY2020, the FS received $8.20 . In FY2020, the FS received $8.20
bil ion in total appropriations, an increase of 36% as compared with the FY2011 appropriation, bil ion in total appropriations, an increase of 36% as compared with the FY2011 appropriation,
when adjusted to constant dollars.6 The FY2020 total appropriation included $7.50 bil ion (92%) when adjusted to constant dollars.6 The FY2020 total appropriation included $7.50 bil ion (92%)
in discretionary appropriations and $0.69 bil ion in mandatory appropriations (8%). In addition to in discretionary appropriations and $0.69 bil ion in mandatory appropriations (8%). In addition to
the regular enacted discretionary appropriations, the FS receivethe regular enacted discretionary appropriations, the FS received additional discretionary
appropriations in 7 of the 10 years from FY2011 through FY2020, including funds provided in 7 of the 10 years from FY2011 through FY2020, including funds provided
pursuant to tpursuant to the wildfire adjustment (discussed later in this report; see (discussed later in this report; see “Wildfire Adjustment”). ).
These additional appropriations contributed to the annual fluctuations and the overal funding These additional appropriations contributed to the annual fluctuations and the overal funding
increase between FY2011 and FY2020. increase between FY2011 and FY2020.
Figure 12. Forest Service (FS) Total Appropriations, FY2011-FY2020
(bil ions of dol ars) (bil ions of dol ars)

Sources: Prepared by the Congressional Research Service (CRS). Discretionary appropriations data are derived Prepared by the Congressional Research Service (CRS). Discretionary appropriations data are derived
from annual appropriations acts, supplemental appropriations acts, committee reports, explanatory statements, from annual appropriations acts, supplemental appropriations acts, committee reports, explanatory statements,
and detailed funding tables prepared by the House and Senate Committees on Appropriations. Mandatory and detailed funding tables prepared by the House and Senate Committees on Appropriations. Mandatory
appropriations data are derived from annual FS budget justifications. appropriations data are derived from annual FS budget justifications.
Notes: See footnot See footnote 5 for additional information about this figure. FY2020 mandatory appropriations figures are for additional information about this figure. FY2020 mandatory appropriations figures are
estimates and are subject to revision. estimates and are subject to revision.

Management and Budget, T able 10.1, “Management and Budget, T able 10.1, “ Gross Domestic Product and Deflators Used in the Historical T ables—1940-Gross Domestic Product and Deflators Used in the Historical T ables—1940-
2025” in 2025” in Historical Tables, at http://www.whitehouse.gov/omb/budget/Historicals. at http://www.whitehouse.gov/omb/budget/Historicals.
6 In nominal dollars, the FS’s FY2020 appropriation was a 59% increase over its FY20116 In nominal dollars, the FS’s FY2020 appropriation was a 59% increase over its FY2011 appropriation. Note that the appropriation. Note that the
FY2020 appropriation is not final, as the mandatory appropriation is an estimate. FY2020 appropriation is not final, as the mandatory appropriation is an estimate.
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Table 1. FS Total Appropriations, FY2011-FY2020
(bil ions of dol ars) (bil ions of dol ars)
Total
Constant (FY2020)

Discretionary
Mandatory
Nominal
Dollars
FY2011 FY2011
$4.685 $4.685
$0.458 $0.458
$5.143 $5.143
$6.010 $6.010
FY2012 FY2012
4.594 4.594
0.720 0.720
5.315 5.315
6.095 6.095
FY2013 FY2013
4.925 4.925
0.775 0.775
5.700 5.700
6.418 6.418
FY2014 FY2014
5.480 5.480
0.833 0.833
6.313 6.313
6.974 6.974
FY2015 FY2015
5.056 5.056
0.830 0.830
5.887 5.887
6.429 6.429
FY2016 FY2016
6.364 6.364
0.891 0.891
7.256 7.256
7.855 7.855
FY2017 FY2017
5.596 5.596
0.444 0.444
6.040 6.040
6.425 6.425
FY2018 FY2018
6.581 6.581
0.705 0.705
7.286 7.286
7.574 7.574
FY2019 FY2019
6.941 6.941
0.883 0.883
7.825 7.825
7.979 7.979
FY2020 FY2020
7.504 7.504
0.692 0.692
8.196 8.196
8.196 8.196
10-Year Average 10-Year Average
5.773 5.773
0.723 0.723
6.496 6.496
6.996 6.996
Sources: Prepared by CRS. Discretionary appropriations data are derived from annual appropriation s acts, Prepared by CRS. Discretionary appropriations data are derived from annual appropriation s acts,
supplemental appropriations acts, committee reports, explanatory statements, and detailed funding tables supplemental appropriations acts, committee reports, explanatory statements, and detailed funding tables
prepared by the House and Senate Committees on Appropriations. Mandatory appropriations data are derived prepared by the House and Senate Committees on Appropriations. Mandatory appropriations data are derived
from annual FS budget justifications. from annual FS budget justifications.
Notes: See footnotSee footnote 5 for additional information about this table. Column totals may not add due to rounding. for additional information about this table. Column totals may not add due to rounding.
FY2020 mandatory appropriations are estimates and are subject to revision. FY2020 mandatory appropriations are estimates and are subject to revision.
Forest Service Discretionary Appropriations
FS discretionary appropriations accounted for 89% of the FS’s total annual appropriations on FS discretionary appropriations accounted for 89% of the FS’s total annual appropriations on
average from FY2011 to FY2020. Over that period, FS discretionary appropriations fluctuated average from FY2011 to FY2020. Over that period, FS discretionary appropriations fluctuated
annual y but general y increased, in terms of both constant and nominal dollars. On average, the annual y but general y increased, in terms of both constant and nominal dollars. On average, the
annual discretionary appropriation was $6.21 bil ion in FY2020 constant dollars.annual discretionary appropriation was $6.21 bil ion in FY2020 constant dollars.7 Figure 23 and and
Table 2 show total discretionary appropriations for each year over the past 10 fiscal years in show total discretionary appropriations for each year over the past 10 fiscal years in
nominal and constant dollars. nominal and constant dollars.
Appropriations laws specify the time frame in which the funding is available to the agency. Prior Appropriations laws specify the time frame in which the funding is available to the agency. Prior
to FY2017, Congress general y provided the FS with a to FY2017, Congress general y provided the FS with a no-year appropriation, meaning the funds , meaning the funds
were available until expended and any unobligated funds at the end of a fiscal year would carry were available until expended and any unobligated funds at the end of a fiscal year would carry
over until expended (or rescinded by Congress). Starting in FY2017 (and continuing annual y over until expended (or rescinded by Congress). Starting in FY2017 (and continuing annual y
through FY2020), Congress began stipulating that appropriations to most FS accounts would be through FY2020), Congress began stipulating that appropriations to most FS accounts would be
available only for a specified period (typical y ranging from three to four fiscal years). Any available only for a specified period (typical y ranging from three to four fiscal years). Any
unobligated funds in those accounts would expire at the end of the specified period. (See the unobligated funds in those accounts would expire at the end of the specified period. (See the
“Budget Administration” section for additional discussion.) section for additional discussion.)

7 In nominal dollars, the FS received an average of $5.77 billion annually in discretionary appropriations from FY2011 7 In nominal dollars, the FS received an average of $5.77 billion annually in discretionary appropriations from FY2011
to FY2020. to FY2020.
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The following sections provide information on discretionary appropriations. The sections include The following sections provide information on discretionary appropriations. The sections include
a description of each FS discretionary account, information on supplemental appropriations, and a description of each FS discretionary account, information on supplemental appropriations, and
data regarding the funding trends over the 10-year period between FY2011 and FY2020. data regarding the funding trends over the 10-year period between FY2011 and FY2020.
Figure 23. FS Discretionary Appropriations, FY2011-FY2020
(bil ions of dol ars) (bil ions of dol ars)

Sources: Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations
acts, committee reports, explanatory statements, and detailed funding tables prepared by the House and Senate acts, committee reports, explanatory statements, and detailed funding tables prepared by the House and Senate
Committees on Appropriations. Committees on Appropriations.
Notes: See footnot See footnote 5 for additional information about this figure. for additional information about this figure.
Table 2. FS Discretionary Appropriations, FY2011-FY2020
(bil ions of dol ars) (bil ions of dol ars)
Constant

Nominal Dollars
(FY2020) Dollars
FY2011 FY2011
$4.685 $4.685
$5.475 $5.475
FY2012 FY2012
4.594 4.594
5.269 5.269
FY2013 FY2013
4.925 4.925
5.545 5.545
FY2014 FY2014
5.480 5.480
6.054 6.054
FY2015 FY2015
5.056 5.056
5.522 5.522
FY2016 FY2016
6.364 6.364
6.890 6.890
FY2017 FY2017
5.596 5.596
5.953 5.953
FY2018 FY2018
6.581 6.581
6.841 6.841
FY2019 FY2019
6.941 6.941
7.078 7.078
FY2020 FY2020
7.504 7.504
7.504 7.504
10-Year Average 10-Year Average
5.773 5.773
6.213 6.213
Sources: Prepared by CRS using information from annual FS budget justifications. Prepared by CRS using information from annual FS budget justifications.
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Notes: See footnotSee footnote 5 for additional information about this table. Sefor additional information about this table. See Table A-1 for a detailed table with for a detailed table with
account-level information on regular-enacted and supplemental appropriations and rescissions. Column totals account-level information on regular-enacted and supplemental appropriations and rescissions. Column totals
may not add due to rounding. may not add due to rounding.
Discretionary Accounts
Between FY2011 and FY2020, FS discretionary appropriations mostly were provided in six main Between FY2011 and FY2020, FS discretionary appropriations mostly were provided in six main
accounts. In addition to those six accounts, the FS has several other relatively smal accounts. accounts. In addition to those six accounts, the FS has several other relatively smal accounts.
These accounts are combined into an “Other” category for this report. The FS accounts are listed These accounts are combined into an “Other” category for this report. The FS accounts are listed
below (in order of decreasing average appropriations): below (in order of decreasing average appropriations):
 Wildland Fire Management (WFM), which includes appropriations to the  Wildland Fire Management (WFM), which includes appropriations to the
FLAME Wildfire Reserve Fund and the Wildfire Suppression Operations FLAME Wildfire Reserve Fund and the Wildfire Suppression Operations
Reserve Fund (Reserve Fund (~~also known~~referred to as the wildfire adjustment as the wildfire adjustment account in this report);8 );8
 National Forest System (NFS);  National Forest System (NFS);
 Capital Improvement and Maintenance (CIM);  Capital Improvement and Maintenance (CIM);
 Forest and Rangeland Research (FRR);  Forest and Rangeland Research (FRR);
 State and Private Forestry (SPF);  State and Private Forestry (SPF);
 Land Acquisition (LA); and  Land Acquisition (LA); and
 Other.  Other.
FS budget requests and committee reports and explanatory statements accompanying Interior FS budget requests and committee reports and explanatory statements accompanying Interior
appropriations bil s typical y show al ocations of monies at the account and subaccount levels appropriations bil s typical y show al ocations of monies at the account and subaccount levels
and, in some cases, among specific programs and activities. This report general y does not and, in some cases, among specific programs and activities. This report general y does not
address al ocations below the account level. The FS al ocates appropriations from these accounts address al ocations below the account level. The FS al ocates appropriations from these accounts
among the nine FS regions, five research stations, two service centers and laboratories, and among the nine FS regions, five research stations, two service centers and laboratories, and
national headquarters office in Washington, DC. For most accounts, once the funds have been national headquarters office in Washington, DC. For most accounts, once the funds have been
al ocated to the regions, the money is further al ocated to each unit of the National Forest System. al ocated to the regions, the money is further al ocated to each unit of the National Forest System.
Some accounts and programs, however, are managed at a national level; for example, the Wildfire Some accounts and programs, however, are managed at a national level; for example, the Wildfire
Suppression Program (within the WFM account) is al ocated based on need throughout the Suppression Program (within the WFM account) is al ocated based on need throughout the
wildfire season. Because appropriations are al ocated based on different factors, this can make it wildfire season. Because appropriations are al ocated based on different factors, this can make it
chal enging to analyze appropriations by region or by forest. Further, FS regions do not follow chal enging to analyze appropriations by region or by forest. Further, FS regions do not follow
state boundaries and many national forests cross state boundaries, which can make it chal enging state boundaries and many national forests cross state boundaries, which can make it chal enging
to analyze FS appropriations by state. This level of detail is beyond the scope of this report. to analyze FS appropriations by state. This level of detail is beyond the scope of this report.
The following section describes the programs and activities funded through each discretionary The following section describes the programs and activities funded through each discretionary
account. It includes information regarding changes that occurred in each account from FY2011 account. It includes information regarding changes that occurred in each account from FY2011
through FY2020. through FY2020.
~~Wildland Fire Management~~
~~The WFM account funds two programs related to the management of wildfires: preparedness and~~
~~suppression. Appropriations for preparedness are used for wildfire prevention and detection,~~
~~equipment, training, and baseline personnel. Appropriations for suppression are used primarily for~~

8 T he FLAME account was established under the Federal Land Assistance, Management, and Enhancement Act 8 T he FLAME account was established under the Federal Land Assistance, Management, and Enhancement Act
(FLAME; P.L. 111-88, Division A, T itle V, 43 U.S.C. §§1748a et seq.) for emergency wildfire suppression activities. (FLAME; P.L. 111-88, Division A, T itle V, 43 U.S.C. §§1748a et seq.) for emergency wildfire suppression activities.
T he T he funds appropriated to FS’s and DOI’s Wildfire Suppression Operations Reserve Fund (Wildfire Suppression Operations Reserve Fund ( wildfire adjustment account) permitted the use of the wildfire adjustment, which was ~~wildfire adjustm ent~~~~) account was~~ established by P.L. 115-141 established by P.L. 115-141
(Division O, §102(a), 2 U.S.C. §901(b)(2)(F))(Division O, §102(a), 2 U.S.C. §901(b)(2)(F))~~, also for emergency wildfire suppression activities~~. Appropriations for . Appropriations for
these accounts are combined with the Wildlandthese accounts are combined with the Wildland Fire Management (WFM) account for purposes of this report. Both Fire Management (WFM) account for purposes of this report. Both
~~laws also established~~laws also establish ed separate accounts for the Department of the Interior (DOI) to fund wildfire separate accounts for the Department of the Interior (DOI) to fund wildfire management activities management activities
on DOI-managed federal lands. on DOI-managed federal lands.
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link to page link to page 2931 Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020)
Wildland Fire Management9 The WFM account funds two programs related to the management of wildfires: preparedness and suppression. Appropriations for preparedness are used for wildfire prevention and detection, equipment, training, and baseline personnel. Appropriations for suppression are used primarily for
wildfire response. This response includes firefighter salaries, aviation asset operations, incident wildfire response. This response includes firefighter salaries, aviation asset operations, incident
support functions, and personnel and resources for post-fire analysis and recovery. Prior to support functions, and personnel and resources for post-fire analysis and recovery. Prior to
FY2018, WFM included funding for programs such as Hazardous Fuels, Cooperative Fire FY2018, WFM included funding for programs such as Hazardous Fuels, Cooperative Fire
Assistance, and fire science and research. Starting in FY2018, these programs were funded Assistance, and fire science and research. Starting in FY2018, these programs were funded
through other FS discretionary accounts. through other FS discretionary accounts.
As noted, for purposes of this report, appropriations shown for the WFM account also include As noted, for purposes of this report, appropriations shown for the WFM account also include
funding for two other accounts:funding for two other accounts:
 the FLAME Wildfire Reserve Fund andthe FLAME Wildfire Reserve Fund and
~~ the Wildfire Suppression Operations Reserve Fund, also known as the wildfire~~
~~adjustment~~ the wildfire adjustment account. .
The funds appropriated to both of these accounts may be transferred to the WFM account for The funds appropriated to both of these accounts may be transferred to the WFM account for
emergency suppression purposes. The following sections provide more information on each of emergency suppression purposes. The following sections provide more information on each of
these accounts (see the these accounts (see the “Fire Borrowing” section for additional discussion). section for additional discussion).
FLAME Wildfire Reserve Fund
The FLAME account was established in FY2010 and funds emergency wildfire suppression The FLAME account was established in FY2010 and funds emergency wildfire suppression
activities under specified circumstances.activities under specified circumstances.910 Funds in the FLAME account may be used to cover the Funds in the FLAME account may be used to cover the
costs of large or complex fires and are to be used when amounts provided for suppression in the costs of large or complex fires and are to be used when amounts provided for suppression in the
WFM account are exhausted. Upon a secretarial declaration, the Secretary of Agriculture may WFM account are exhausted. Upon a secretarial declaration, the Secretary of Agriculture may
transfer funds from the FLAME account into the WFM account for suppression activities. transfer funds from the FLAME account into the WFM account for suppression activities.
The FLAME account received appropriations starting in FY2011 and last received appropriations The FLAME account received appropriations starting in FY2011 and last received appropriations
in FY2018. The account wil terminate after three consecutive years without an appropriation or in FY2018. The account wil terminate after three consecutive years without an appropriation or
withdrawal, meaning the account may terminate if no appropriations are provided through the end withdrawal, meaning the account may terminate if no appropriations are provided through the end
of FY2021. of FY2021.1011
Wildfire Adjustment
Funds Funds ~~are~~ appropriated to the Wildfire Suppression Operations Reserve Fund appropriated to the Wildfire Suppression Operations Reserve Fund ~~pursuant to the~~
permit the use of the wildfire adjustment, a budgetary mechanism that a budgetary mechanism that ~~al ows Congress to provide additional funding~~
~~above a specified baseline for wildfire suppression through an adjustment to the discretionary~~
~~spending limit.11~~gives special budgetary treatment to certain funding for wildfire suppression.12 The mechanism al ows such funds to be effectively exempt from the discretionary spending limits.13 The wildfire adjustment The wildfire adjustment is also sometimes referred to as is also sometimes referred to as the wildfire funding fix or the suppression cap adjustment. 9 For more information, see CRS Report R46583, Federal Wildfire Management: Ten-Year Funding Trends and Issues (FY2011-FY2020), by Katie Hoover. 10 43 U.S.C. §§1748a et seq. 11the wildfire funding fix.
~~The baseline is the 10-year suppression obligation average, as reported in FY2015 ($1.011 bil ion~~
~~for FS). Whatever amount, if any, Congress elects to appropriate over the FY2015 baseline~~
~~pursuant to the wildfire adjustment essential y would not be subject to discretionary spending~~
~~limits, up to the specified maximum. This is because the discretionary spending limit is adjusted~~
~~upward by the amount of the wildfire adjustment for each year,12 which al ows Congress to~~
~~provide additional funding for wildfire suppression for the same discretionary budget “score” as~~
~~was provided in the FY2015 baseline year.~~

~~9 43 U.S.C. §§1748a et seq.~~
10 43 U.S.C. §1748a(i). T he FS reports the last withdrawal from the FLAME account occurred in FY2018 (FS, 43 U.S.C. §1748a(i). T he FS reports the last withdrawal from the FLAME account occurred in FY2018 (FS, FY2021
Budget Justification, February 2020, at https://www.fs.usda.gov/sites/default/files/2020-02/usfs-fy-2021-budget -, February 2020, at https://www.fs.usda.gov/sites/default/files/2020-02/usfs-fy-2021-budget -
justification.pdf, p. 103). justification.pdf, p. 103).
~~11 2 U.S.C. §901(b)(2)(F).~~
~~12 For more information on budgetary adjustments, see CRS Report R45778,~~ ~~Exceptions to the Budget Control Act’s~~
~~Discretionary Spending Lim its, by Megan S. Lynch.~~
~~Congressional Research Service~~
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~~link to page 20~~ ~~Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020)~~

~~The wildfire adjustment is available annual y from FY2020 through FY2027, although the~~
~~statutory limits for discretionary spending currently are in effect only through FY2021.13 The~~
12 Formally, the law states that the enactment of such spending allows for a subsequent upward adjustment of the discretionary limits to accommodate the spending. As a result, these types of spending are referred to as adjustm ents (2 U.S.C. §901(b)(2)(F)). 13 T he discretionary spending limit refers to certain procedural and budgetary controls over discretionary spending for each of the fiscal years between FY2012 and FY2021, as established by the Budget Control Act of 2011 (BCA; P.L. 112-25). T he Balanced Budget and Emergency Deficit Control Act (BBEDCA; T itle II of P.L. 99-177, 2 U.S.C. §§900- Congressional Research Service 6 link to page 22 Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020) There is a precondition for using the wildfire adjustment—that a baseline amount of funding must be appropriated subject to the discretionary spending limits. For the purposes of the wildfire adjustment, the baseline is the 10-year suppression obligation average, as reported in FY2015 ($1.011 bil ion for FS). Once the precondition is met, the law also places restrictions on the level of funding that can be provided under the adjustment and therefore can be exempt from the discretionary spending limits. The maximum amount available pursuant to the wildfire ~~maximum amount available pursuant to the wildfire~~ adjustmentadjustment starts at $1.950 bil ion for starts at $1.950 bil ion for ~~the FS~~
FS in FY2020 and increases annual y.14 Up to the specified annual maximum, any amount that is enacted for a fiscal year that is over the FY2015 baseline would cause the discretionary spending limit to be adjusted upward by that amount. This mechanism al ows Congress to effectively provide additional funding for wildfire suppression for the same discretionary budget score as was provided in the FY2015 baseline year. The wildfire adjustment is available annual y from FY2020 through FY2027, although the statutory limits for discretionary spending currently are in effect only through FY2021. ~~in FY2020 and increases annual y.14~~
Funds appropriated pursuant to the wildfire adjustment Funds appropriated pursuant to the wildfire adjustment may be transferred to the WFM account may be transferred to the WFM account
for for wildfire suppression operations. Such operations include spending for the purposes of “the . Such operations include spending for the purposes of “the
emergency and unpredictable aspects of wildland firefighting, including support, response, and emergency and unpredictable aspects of wildland firefighting, including support, response, and
emergency stabilization activities; other emergency management activities; and the funds emergency stabilization activities; other emergency management activities; and the funds
necessary to repay any transfers needed for the costs of wildfire suppression operations.”15 necessary to repay any transfers needed for the costs of wildfire suppression operations.”15
National Forest System
Appropriations from the NFS account fund management of the lands and resources across the 193 Appropriations from the NFS account fund management of the lands and resources across the 193
mil ion acres of national forests and grasslands. The FS also may use funds from other mil ion acres of national forests and grasslands. The FS also may use funds from other
discretionary accounts to address various aspects of NFS management (e.g., funds from the CIM discretionary accounts to address various aspects of NFS management (e.g., funds from the CIM
account to fund infrastructure projects). In addition, several mandatory accounts fund NFS account to fund infrastructure projects). In addition, several mandatory accounts fund NFS
activities (see the activities (see the “Forest Service Mandatory Appropriations” section for more information). The section for more information). The
NFS account includes several subaccounts, programs, and activities, many of which reflect the NFS account includes several subaccounts, programs, and activities, many of which reflect the
different ways national forests are used:16 different ways national forests are used:16
  Hazardous Fuels funds activities to remove, modify, or manipulate vegetation to funds activities to remove, modify, or manipulate vegetation to
reduce the likelihood of catastrophic wildland fire. Prior to FY2018, this program reduce the likelihood of catastrophic wildland fire. Prior to FY2018, this program
was funded through the WFM account. was funded through the WFM account.
  Forest Products funds activities to analyze, prepare, offer, award, and administer funds activities to analyze, prepare, offer, award, and administer
timber sales, stewardship contracts, and special forest products permits on NFS timber sales, stewardship contracts, and special forest products permits on NFS
lands. lands.
  Recreation, Heritage, and Wilderness funds activities related to recreation funds activities related to recreation
management on the NFS, administration of special-use authorizations, protection management on the NFS, administration of special-use authorizations, protection
~~of heritage resources, and protection of designated wilderness areas and wild and~~
~~scenic rivers.~~
~~ Vegetation and Watershed Management funds restoration-related management~~
~~activities to improve forest and rangeland conditions; fish and wildlife habitat;~~
~~and water quality, water quantity, and timing of stream flows, among others.~~
~~ Land Management Planning, Assessment, and Monitoring funds the~~
~~development, maintenance, and revision of forest plans.~~
~~ Wildlife and Fish Habitat Management funds activities to restore, recover, and~~
~~maintain wildlife and fish—particularly rare animal and plant species—and their~~
~~habitats on NFS lands.~~

~~13 For more information on discretionary spending limits, see CRS Report R44874,~~ ~~The Budget Control Act: Frequently~~
~~Asked Questions, by Grant A. Driessen and Megan S. Lynch .~~
~~14 Including funds available to DOI pursuant to~~ 922, as amended by the BCA) provides for certain ty pes of spending to be effectively exempt from those limits. T he wildfire adjustment was established through an amendment to the BBEDCA ( P.L. 115-141, Division O, §102(a), 2 U.S.C. §901(b)(2)(F)). For more information on discretionary spending limits, see CRS Report R44874, The Budget Control Act: Frequently Asked Questions, by Grant A. Driessen and Megan S. Lynch . For more information on budgetary adjustments, see CRS Report R45778, Exceptions to the Budget Control Act’s Discretionary Spending Lim its, by Megan S. Lynch. 14 Including funds available to DOI pursuant t o the wildfire adjustment, the maximum amount available starts at the wildfire adjustment, the maximum amount available starts at
$2.25 billion in FY2020 and increases to $2.95 billion in FY2027 (2 U.S.C. §901(b)(2)(F)(i)). $2.25 billion in FY2020 and increases to $2.95 billion in FY2027 (2 U.S.C. §901(b)(2)(F)(i)).
15 2 U.S.C. §901(b)(2)(F)(ii)(II). 15 2 U.S.C. §901(b)(2)(F)(ii)(II).
16 T he subaccounts, programs, and activities are listed in decreasing order of FY2020 regular appropriations. For more 16 T he subaccounts, programs, and activities are listed in decreasing order of FY2020 regular appropriations. For more
information on the National Forest System, see CRS Report R43872, information on the National Forest System, see CRS Report R43872, National Forest System Managem ent: Overview,
Appropriations, and Issues for Congress, by Katie Hoover and Anne A. Riddle. , by Katie Hoover and Anne A. Riddle.
Congressional Research Service Congressional Research Service
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Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020)
of heritage resources, and protection of designated wilderness areas and wild and scenic rivers.  Vegetation and Watershed Management funds restoration-related management activities to improve forest and rangeland conditions; fish and wildlife habitat; and water quality, water quantity, and timing of stream flows, among others.  Land Management Planning, Assessment, and Monitoring funds the development, maintenance, and revision of forest plans.  Wildlife and Fish Habitat Management funds activities to restore, recover, and maintain wildlife and fish—particularly rare animal and plant species—and their habitats on NFS lands.
  Law Enforcement Operations funds response to emergencies, investigations of funds response to emergencies, investigations of
il egal activities (such as il egal drug activities), and conduct of crime-prevention il egal activities (such as il egal drug activities), and conduct of crime-prevention
activities on NFS lands. activities on NFS lands.
  Landownership Management provides funds for the basic land management provides funds for the basic land management
and real estate activities necessary to support al NFS programs, such as granting and real estate activities necessary to support al NFS programs, such as granting
special-use authorizations for energy transmission corridors and processing land special-use authorizations for energy transmission corridors and processing land
exchanges. exchanges.
  Minerals and Geology Management funds the administration of mineral funds the administration of mineral
operations on NFS lands, management and mitigation of abandoned mine lands, operations on NFS lands, management and mitigation of abandoned mine lands,
management of geologic resources and hazards, and management of management of geologic resources and hazards, and management of
environmental compliance and restoration related to mineral activities. environmental compliance and restoration related to mineral activities.
  Grazing Management funds the administration of livestock grazing use permits funds the administration of livestock grazing use permits
on the NFS and implementation of environmental reviews of al FS grazing on the NFS and implementation of environmental reviews of al FS grazing
al otments as statutorily mandated. Funds from the Range Betterment Fund al otments as statutorily mandated. Funds from the Range Betterment Fund
(appropriated through a separate account listed under the “Other” category) also (appropriated through a separate account listed under the “Other” category) also
may be used for these purposes.may be used for these purposes.
  Collaborative Forest Landscape Restoration Program Fund funds 23 funds 23
landscape-scale restoration projects in priority landscapes.17 landscape-scale restoration projects in priority landscapes.17
Capital Improvement and Maintenance
The CIM account funds activities to provide and maintain infrastructure across the NFS. The CIM account funds activities to provide and maintain infrastructure across the NFS.
Infrastructure needs extend to roads, trails, dams, bridges, administrative facilities, and recreation Infrastructure needs extend to roads, trails, dams, bridges, administrative facilities, and recreation
sites (e.g., campgrounds), among others. As of FY2020, these activities are funded through three sites (e.g., campgrounds), among others. As of FY2020, these activities are funded through three
budget line budget line items, or program areas, within the CIM account: facilities, roads, and trails. items, or program areas, within the CIM account: facilities, roads, and trails.
From FY2011 to FY2020, the CIM account at times included other budget line items. For From FY2011 to FY2020, the CIM account at times included other budget line items. For
example, prior to FY2018, CIM included a budget line item for the Legacy Roads and Trails example, prior to FY2018, CIM included a budget line item for the Legacy Roads and Trails
Program. This program provided funds for road and trail repair, maintenance, and Program. This program provided funds for road and trail repair, maintenance, and
decommissioning specifical y for water quality purposes. The budget line item funding was decommissioning specifical y for water quality purposes. The budget line item funding was
discontinued in FY2018, though Congress directed the FS to continue to address these types of discontinued in FY2018, though Congress directed the FS to continue to address these types of
~~projects along with other roads and trails infrastructure projects.18 Similar language was included~~
~~for FY2019 and FY2020 appropriations.19~~

17 T he Collaborative Forest Landscape Restoration Program was first authorized in FY2009 and was authorized to 17 T he Collaborative Forest Landscape Restoration Program was first authorized in FY2009 and was authorized to
receive $40.0 million annually, subject to appropriations (receive $40.0 million annually, subject to appropriations ( P.L. 111-11, T itle IV). T he program was extended through P.L. 111-11, T itle IV). T he program was extended through
FY2023, and the authorization was increased to $80.0 million annually, subject to appropriations (FY2023, and the authorization was increased to $80.0 million annually, subject to appropriations ( P.L. 115-334, T itle VII, §8629). Congressional Research Service 8 link to page 31 Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020) projects along with other roads and trails infrastructure projects.18 Similar language was included for FY2019 and FY2020 appropriations.19 As another example, prior to FY2017, the CIM account had a specific budget line item to address ~~P.L. 115-334, T itle~~
~~VII, §8629).~~
~~18 U.S. Congress, House Committee on Appropriations,~~ ~~Legislative Text and Explanatory Statement for the~~
~~Consolidated Appropriations Act, 2018 (P.L. 115-141), Book 2 of 2, committee print, 115th Cong., 2nd sess., 2018,~~
~~House Print 29-457, p. 1178.~~
~~19 For FY2019, see U.S. Congress, House Committee on Appropriations,~~ ~~Making Further Continuing Appropriations~~
~~for the Departm ent of Hom eland Security for FY2019 and for Other Purposes, conference report to accompany~~
~~H.J.Res. 31, 116th Cong., 1st sess., February 13, 2019, H.Rept. 116-9, p. 748. For FY2020, see U.S. Congress, House~~
~~Committee on Appropriations, Subcommittee on Inter ior, Environment, and Related Agencies,~~ ~~Departm ent of the~~
~~Interior, Environm ent, and Related Agencies Appropriations Bill, 2020~~ ~~, report to accompany H.R. 3052, 116th Cong.,~~
~~1st sess., June 3, 2019, H.Rept. 116-100, pp. 110-111; and U.S. Congress, Senate Committee on Appropriations,~~
~~Subcommittee on Department of the Interior, Environment, and Related Agencies,~~ ~~Departm ent of the Interior,~~
~~Environm ent, and Related Agencies Appropriations Bill, 2020~~ ~~, report to accompany S. 2580, 116th Cong., 1st sess.,~~
~~September 26, 2019, S.Rept. 116-123, p. 108.~~
~~Congressional Research Service~~
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~~As another example, prior to FY2017, the CIM account had a specific budget line item to address~~
the FS’s backlog of deferred maintenance. the FS’s backlog of deferred maintenance. Deferred maintenance includes maintenance and includes maintenance and
repairs that were not performed when they should have been or were scheduled to be performed repairs that were not performed when they should have been or were scheduled to be performed
and put off or delayed for a future period.20 After FY2017, funding for deferred-maintenance and put off or delayed for a future period.20 After FY2017, funding for deferred-maintenance
needs was no longer provided as a specific line item but was incorporated into the facilities, needs was no longer provided as a specific line item but was incorporated into the facilities,
roads, and trails programs.21 roads, and trails programs.21
The Roads and Trails Fund, one of the FS’s mandatory appropriations accounts, also pertains to The Roads and Trails Fund, one of the FS’s mandatory appropriations accounts, also pertains to
infrastructure needs. Starting in FY2008, however, appropriations laws have transferred—or infrastructure needs. Starting in FY2008, however, appropriations laws have transferred—or
deferred—the funds in the account to the U.S. Treasury, which means the collections have not —the funds in the account to the U.S. Treasury, which means the collections have not
been available to the FS since FY2007. Appropriations documents show the deferral of these been available to the FS since FY2007. Appropriations documents show the deferral of these
funds as a reduction to CIM funding, with an average reduction of $15.8 mil ion annual y from funds as a reduction to CIM funding, with an average reduction of $15.8 mil ion annual y from
FY2011 through FY2020. (For additional information, see FY2011 through FY2020. (For additional information, see “Roads and Trails Fund,” below.) ” below.)
Forest and Rangeland Research
The FRR account funds research and development efforts to provide scientific information and The FRR account funds research and development efforts to provide scientific information and
new technologies to support sustainable forest and rangeland management. FRR includes two new technologies to support sustainable forest and rangeland management. FRR includes two
programs: Research and Development (R&D) and the Forest Inventory and Analysis (FIA) programs: Research and Development (R&D) and the Forest Inventory and Analysis (FIA)
Program. Program.
R&D funds applied and basic research across the FS’s seven research stations and 81 R&D funds applied and basic research across the FS’s seven research stations and 81
experimental forests and ranges. Starting in FY2018, this account includes funding al ocated to experimental forests and ranges. Starting in FY2018, this account includes funding al ocated to
support the Joint Fire Science Program and other research regarding wildland fires, activities support the Joint Fire Science Program and other research regarding wildland fires, activities
which previously were funded as budget line items in the WFM account. The Joint Fire Science which previously were funded as budget line items in the WFM account. The Joint Fire Science
Program is a grant program administered in partnership with the Department of the Interior to Program is a grant program administered in partnership with the Department of the Interior to
fund research regarding wildland fire. fund research regarding wildland fire.
The FIA program is a continuous census of forest resources throughout the United States; it The FIA program is a continuous census of forest resources throughout the United States; it
provides data and analysis regarding the extent and status of forested lands throughout the provides data and analysis regarding the extent and status of forested lands throughout the
country.22 The FS uses remote sensing data and field data collected from a series of permanently country.22 The FS uses remote sensing data and field data collected from a series of permanently
~~established research sites. The data are collected through an annualized sampling process in~~
~~which a representative sample of plots in each state is surveyed at regular intervals, with the goal~~
~~of each plot being sampled every 5 to 10 years.23~~
~~State and Private Forestry~~
~~The SPF account funds programs to provide financial and technical assistance to nonfederal~~
~~forest owners and managers, including programs to address international forestry issues.24 The~~

18 U.S. Congress, House Committee on Appropriations, Legislative Text and Explanatory Statement for the Consolidated Appropriations Act, 2018 (P.L. 115-141), Book 2 of 2, committee print, 115th Cong., 2nd sess., 2018, House Print 29-457, p. 1178. 19 For FY2019, see U.S. Congress, House Committee on Appropriations, Making Further Continuing Appropriations for the Departm ent of Hom eland Security for FY2019 and for Other Purposes, conference report to accompany H.J.Res. 31, 116th Cong., 1st sess., February 13, 2019, H.Rept. 116-9, p. 748. For FY2020, see U.S. Congress, House Committee on Appropriations, Subcommittee on Interior, Environment, and Related Agencies, Departm ent of the Interior, Environm ent, and Related Agencies Appropriations Bill, 2020 , report to accompany H.R. 3052, 116th Cong., 1st sess., June 3, 2019, H.Rept. 116-100, pp. 110-111; and U.S. Congress, Senate Committee on Appropriations, Subcommittee on Department of the Interior, Environment, and Related Agencies, Departm ent of the Interior, Environm ent, and Related Agencies Appropriations Bill, 2020, report to accompany S. 2580, 116th Cong., 1st sess., September 26, 2019, S.Rept. 116-123, p. 108. 20 T his definition is taken from Federal Accounting Standards Advisory Board, “Statement of Federal Financial 20 T his definition is taken from Federal Accounting Standards Advisory Board, “Statement of Federal Financial
Accounting Standards 42: Deferred Maintenance and Repairs” in the Accounting Standards 42: Deferred Maintenance and Repairs” in the FASAB Handbook of Federal Accounting
Standards and Other Pronouncem ents, as Am ended , June 30, 2018, p. 1463 (pdf), at http://files.fasab.gov/pdffiles/, June 30, 2018, p. 1463 (pdf), at http://files.fasab.gov/pdffiles/
2018_fasab_handbook.pdf. 2018_fasab_handbook.pdf.
21 For more information on deferred maintenance on federal lands, see CRS Report R43997, 21 For more information on deferred maintenance on federal lands, see CRS Report R43997, Deferred Maintenance of
Federal Land Managem ent Agencies: FY2009 -FY2018 Estim ates and Issues, by Carol Hardy Vincent . , by Carol Hardy Vincent .
22 16 U.S.C. §1642(3). Congressional Research Service 9 link to page 16 Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020) established research sites. The data are collected through an annualized sampling process in which a representative sample of plots in each state is surveyed at regular intervals, with the goal of each plot being sampled every 5 to 10 years.23 State and Private Forestry The SPF account funds programs to provide financial and technical assistance to nonfederal forest owners and managers, including programs to address international forestry issues.24 The ~~22 16 U.S.C. §1642(3).~~
~~23 Hawaii and the U.S. territories do not have established plots. Plots for interior Alaska were established in 2014~~
~~(Environmental Protection Agency, Annex 3-Part B: “ Methodological Descriptions for Additional Source or Sink~~
~~Categories” in Inventory of U.S. Greenhouse Gas Em issions and Sinks, 1990 -2018, EPA 430-R-20-002, April 13, 2020,~~
~~p. A.419).~~
~~24 For more information on FS assistance programs, see CRS Report R45219, Forest Service Assistance Programs, by~~
~~Anne A. Riddle and Katie Hoover.~~
~~Congressional Research Service~~
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~~link to page 14~~ ~~Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020)~~

programs are primarily grant or cost-sharing programs, and they include support for planning and programs are primarily grant or cost-sharing programs, and they include support for planning and
implementing forest restoration projects; promoting urban forestry; enhancing state and rural implementing forest restoration projects; promoting urban forestry; enhancing state and rural
wildfire management capabilities; promoting the use of forest products; and protecting wildfire management capabilities; promoting the use of forest products; and protecting
forestlands from wildfires, insects and diseases, or conversion to non-forest uses. forestlands from wildfires, insects and diseases, or conversion to non-forest uses.
Since FY2018, SPF has included total funding for the Cooperative Fire Assistance program. Until Since FY2018, SPF has included total funding for the Cooperative Fire Assistance program. Until
FY2014, the program was funded through appropriations to both the SPF and the WFM accounts; FY2014, the program was funded through appropriations to both the SPF and the WFM accounts;
from FY2014 through FY2017, the program was funded entirely through appropriations to the from FY2014 through FY2017, the program was funded entirely through appropriations to the
WFM account. Similarly, since FY2014, SPF has included total funding for the Forest Health WFM account. Similarly, since FY2014, SPF has included total funding for the Forest Health
Program, which previously was funded through appropriations to both the SPF and the WFM Program, which previously was funded through appropriations to both the SPF and the WFM
accounts. accounts.
SPF includes funding for the Forest Legacy Program, a cost-share grant program for forest land SPF includes funding for the Forest Legacy Program, a cost-share grant program for forest land
acquisition. Through FY2020, appropriations for the Forest Legacy Program were derived from acquisition. Through FY2020, appropriations for the Forest Legacy Program were derived from
the Land and Water Conservation Fund (LWCF).25 the Land and Water Conservation Fund (LWCF).25
Land Acquisition
The LA account funds activities to enable the FS to acquire lands or interests in lands (e.g., The LA account funds activities to enable the FS to acquire lands or interests in lands (e.g.,
easements).26 The LA account is funded through appropriations derived from the LWCF.27 Funds easements).26 The LA account is funded through appropriations derived from the LWCF.27 Funds
in the LA account cover expenses related to the purchase cost of lands, waters, or interests therein in the LA account cover expenses related to the purchase cost of lands, waters, or interests therein
and administrative costs, such as title searches, land surveys, and appraisals. In addition, funds and administrative costs, such as title searches, land surveys, and appraisals. In addition, funds
from the LA account may be used for cash equalization payments, in which the FS provides a from the LA account may be used for cash equalization payments, in which the FS provides a
cash payment (up to 25%) to equalize values in a land exchange.28 cash payment (up to 25%) to equalize values in a land exchange.28
In addition to this LA account, appropriations laws provide funding for two smal er land In addition to this LA account, appropriations laws provide funding for two smal er land
acquisition accounts. These two appropriations—one for land acquisitions under special acts and acquisition accounts. These two appropriations—one for land acquisitions under special acts and
one to complete land exchanges—are included in the one to complete land exchanges—are included in the “Other” account, described below. , described below.
~~Other~~
~~In addition to the larger accounts described above, the FS receives discretionary appropriations to~~
~~several relatively smal accounts, listed below. These accounts are combined into an “Other”~~
~~category for this report.~~
~~ Acquisition of Land for National Forests, Special Acts. These funds are used~~
~~to acquire lands in specified national forests in Nevada, Utah, California, and~~
~~Arkansas, as authorized under various authorities (or special acts).~~
~~ Acquisition of Lands to Complete Land Exchanges. These funds provide for~~
~~the acquisition of lands with funds collected from the exchange or sale of~~
~~national forest lands, as authorized under various authorities.~~

23 Hawaii and the U.S. territories do not have established plots. Plots for interior Alaska were established in 2014 (Environmental Protection Agency, Annex 3-Part B: “ Methodological Descriptions for Additional Source or Sink Categories” in Inventory of U.S. Greenhouse Gas Em issions and Sinks, 1990 -2018, EPA 430-R-20-002, April 13, 2020, p. A.419). 24 For more information on FS assistance programs, see CRS Report R45219, Forest Service Assistance Programs, by Anne A. Riddle and Katie Hoover. 25 54 U.S.C. §§200301 et seq. For more information on the Land and Water Conservation Fund (LWCF) and funding 25 54 U.S.C. §§200301 et seq. For more information on the Land and Water Conservation Fund (LWCF) and funding
for the Forest Legacy Program, see CRS Report R44121, for the Forest Legacy Program, see CRS Report R44121, Land and Water Conservation Fund: Appropriations for
“Other Purposes”, by Carol Hardy Vincent . , by Carol Hardy Vincent .
26 For more information on FS land acquisition, see CRS Report RL34273, 26 For more information on FS land acquisition, see CRS Report RL34273, Federal Land Ownership: Acquisition and
Disposal Authorities, coordinated by Carol Hardy Vincent . , coordinated by Carol Hardy Vincent .
27 54 U.S.C. §§200301 et seq. For more information on the LWCF, see CRS Report RL33531, 27 54 U.S.C. §§200301 et seq. For more information on the LWCF, see CRS Report RL33531, Land and Water
Conservation Fund: Overview, Funding History, and Issues, by Carol Hardy Vincent . , by Carol Hardy Vincent .
28 43 U.S.C. §1716. 28 43 U.S.C. §1716.
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Other In addition to the larger accounts described above, the FS receives discretionary appropriations to several relatively smal accounts, listed below. These accounts are combined into an “Other” category for this report.  Acquisition of Land for National Forests, Special Acts. These funds are used to acquire lands in specified national forests in Nevada, Utah, California, and Arkansas, as authorized under various authorities (or special acts).  Acquisition of Lands to Complete Land Exchanges. These funds provide for the acquisition of lands with funds collected from the exchange or sale of national forest lands, as authorized under various authorities.
  The Range Betterment Fund. Appropriations from this fund are derived from . Appropriations from this fund are derived from
receipts from grazing permit fees on FS lands.29 Funds are to be used for range receipts from grazing permit fees on FS lands.29 Funds are to be used for range
rehabilitation, protection, and improvement projects. rehabilitation, protection, and improvement projects.
  Gifts, Donations, and Bequests for Research. Appropriations from this account Appropriations from this account
are derived from gifts, donations, and bequests received from outside sources to are derived from gifts, donations, and bequests received from outside sources to
establish or operate any forest and rangeland research facility or program.30 establish or operate any forest and rangeland research facility or program.30
  Management of National Forest Lands for Subsistence Uses. These funds are These funds are
used to fulfil the FS’s obligation to provide a subsistence priority to rural used to fulfil the FS’s obligation to provide a subsistence priority to rural
Alaskans to harvest fish and wildlife on federal lands.31 Alaskans to harvest fish and wildlife on federal lands.31
  Communication Site Management. In FY2020, funds were provided for In FY2020, funds were provided for
administering special-use authorizations for communication sites on NFS lands.32 administering special-use authorizations for communication sites on NFS lands.32
The funds are derived from offsetting collections from the fees charged to The funds are derived from offsetting collections from the fees charged to
process and monitor communication site applications. process and monitor communication site applications.
Supplemental Discretionary Appropriations
In addition to regular discretionary appropriations, at times Congress has provided the FS with In addition to regular discretionary appropriations, at times Congress has provided the FS with
additional funds, general y referred to as additional funds, general y referred to as supplemental appropriations. These funds often—. These funds often—
though not always—are provided in an appropriations law enacted after the regular annual law. though not always—are provided in an appropriations law enacted after the regular annual law.
For instance, Division B of the CARES Act provided supplemental appropriations for the FS for For instance, Division B of the CARES Act provided supplemental appropriations for the FS for
FY2020,33 after enactment of the regular appropriations law for that year (Division D of the FY2020,33 after enactment of the regular appropriations law for that year (Division D of the
Further Consolidated Appropriations Act, 2020).34 In some cases, however, funds were provided Further Consolidated Appropriations Act, 2020).34 In some cases, however, funds were provided
in the regular annual appropriations law but designated as in the regular annual appropriations law but designated as ~~“additional.”~~additional. For example, Division E For example, Division E
of the Further Consolidated Appropriations Act, 2019, included $500.0 mil ion in of the Further Consolidated Appropriations Act, 2019, included $500.0 mil ion in ~~“additional”~~
additional funds for the FS for FY2019 as part of the agency’s annual appropriation.35 Later, Title VII of the funds for the FS for FY2019 as part of the agency’s annual appropriation.35 Later, Title VII of the
Additional Supplemental Appropriations for Disaster Relief Act, 2019, provided additional Additional Supplemental Appropriations for Disaster Relief Act, 2019, provided additional
~~supplemental appropriations for the FS for FY2019.36 Supplemental funds are provided~~
~~frequently to respond to disasters or to replenish funds for wildland fire management (see the~~
~~“Fire Borrowing” section for more information), and they have been appropriated to several~~
~~different FS discretionary accounts. The supplemental appropriations contribute to the annual~~
~~fluctuation in FS discretionary funding levels (see Figure 3).~~
~~Congress sometimes has designated FS supplemental appropriations as being of an “emergency”~~
~~nature (referred to as emergency supplemental appropriations in this report). Emergency funding~~
~~is not subject to certain procedural and statutory limits on discretionary spending.37 However, not~~
~~al FS supplemental appropriations have received the emergency designation. For example, the~~
~~supplemental appropriations provided in FY2013 and FY2014 were not designated as emergency,~~

29 43 U.S.C. §1751. For more information on livestock grazing fees on FS lands, see CRS Report RS21232, 29 43 U.S.C. §1751. For more information on livestock grazing fees on FS lands, see CRS Report RS21232, Grazing
Fees: Overview and Issues, by Carol Hardy Vincent . , by Carol Hardy Vincent .
30 16 U.S.C. §1643(b). 30 16 U.S.C. §1643(b).
31 16 U.S.C. §§3111-3126. 31 16 U.S.C. §§3111-3126.
32 P.L. 115-331, §8705, as amended by P.L. 116-94, Division D, §416. 32 P.L. 115-331, §8705, as amended by P.L. 116-94, Division D, §416.
33 CARES Act (P.L. 116-136). 33 CARES Act (P.L. 116-136).
34 T he Further Consolidated Appropriations Act, 2020 (P.L. 116-94). In some cases, the same law has contained regular 34 T he Further Consolidated Appropriations Act, 2020 (P.L. 116-94). In some cases, the same law has contained regular
and supplemental appropriations for FS. See, for example, P.L. 108-447, Division E, T itle IV. and supplemental appropriations for FS. See, for example, P.L. 108-447, Division E, T itle IV.
35 Further Consolidated Appropriations Act, 2019 (P.L. 116-6). 35 Further Consolidated Appropriations Act, 2019 (P.L. 116-6).
~~36 Additional Supplemental Appropriations for Disaster Relief Act, 2019 ( P.L. 116-20).~~
~~37 2 U.S.C. §901(b)(2)(A)(i).~~
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Congressional Research Service 11 link to page 31 link to page 18 Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020) supplemental appropriations for the FS for FY2019.36 Supplemental funds are provided frequently to respond to disasters or to replenish funds for wildland fire management (see the “Fire Borrowing” section for more information), and they have been appropriated to several different FS discretionary accounts. The supplemental appropriations contribute to the annual fluctuation in FS discretionary funding levels (see Figure 4). Congress sometimes has designated FS supplemental appropriations as being of an emergency nature (referred to as emergency supplemental appropriations in this report). Emergency funding is not subject to certain procedural and statutory limits on discretionary spending.37 However, not al FS supplemental appropriations have received the emergency designation. For example, the supplemental appropriations provided in FY2013 and FY2014 were not designated as emergency, and thus they were subject to budget enforcement. In some cases, the emergency designation has and thus they were subject to budget enforcement. In some cases, the emergency designation has
meant a lower budgetary score for a total appropriation that is higher in nominal dollars than meant a lower budgetary score for a total appropriation that is higher in nominal dollars than
another total appropriation. For instance, the FS received discretionary appropriations for FY2014 another total appropriation. For instance, the FS received discretionary appropriations for FY2014
of $5.48 bil ion and for FY2017 of $5.60 bil ion (in nominal dollars). These totals included of $5.48 bil ion and for FY2017 of $5.60 bil ion (in nominal dollars). These totals included
supplemental appropriations of $600.0 mil ion in FY2014 and $342.0 mil ion in FY2017. The supplemental appropriations of $600.0 mil ion in FY2014 and $342.0 mil ion in FY2017. The
FY2014 supplemental funding was not emergency-designated, but the FY2017 supplemental FY2014 supplemental funding was not emergency-designated, but the FY2017 supplemental
funding was emergency-designated. Thus, the budgetary score of $5.25 bil ion for FY2017 was funding was emergency-designated. Thus, the budgetary score of $5.25 bil ion for FY2017 was
lower than the budgetary score of $5.48 bil ion for FY2014. lower than the budgetary score of $5.48 bil ion for FY2014.
Funds provided pursuant to the wildfire adjustment are not emergency-designated, but they are Funds provided pursuant to the wildfire adjustment are not emergency-designated, but they are
treated similarly in terms of budgetary scoring, albeit under a different budgetary mechanism. treated similarly in terms of budgetary scoring, albeit under a different budgetary mechanism.
Thus, although the total discretionary appropriation for FY2020 was $7.50 bil ion, the budgetary Thus, although the total discretionary appropriation for FY2020 was $7.50 bil ion, the budgetary
score was $5.48 bil ion. This is because the $1.95 bil ion wildfire adjustment and $score was $5.48 bil ion. This is because the $1.95 bil ion wildfire adjustment and $~~0.07 bil~~7.0 mil ion in ion in
emergency supplemental appropriations were not counted toward the discretionary spending limit emergency supplemental appropriations were not counted toward the discretionary spending limit
for that year. for that year.
36 Additional Supplemental Appropriations for Disaster Relief Act, 2019 (P.L. 116-20). 37 2 U.S.C. §901(b)(2)(A)(i). Congressional Research Service 12 link to page 6 link to page 21 link to page 36 Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020) Figure 4 ~~Figure 3~~. FS Regular and Supplemental Discretionary Appropriations,
FY2011-FY2020
(bil ions of dol ars) (bil ions of dol ars)

Sources: Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations
acts, committee reports, explanatory statements, and detailed funding tables prepared by the House and Senate acts, committee reports, explanatory statements, and detailed funding tables prepared by the House and Senate
Committees on Appropriations. Committees on Appropriations.
Notes: See footnot See footnote 5 for additional information about this figure. Suppl. = supplemental. FY2020 discretionary for additional information about this figure. Suppl. = supplemental. FY2020 discretionary
appropriations figures may change if additional appropriations are enacted for the fiscal year. appropriations figures may change if additional appropriations are enacted for the fiscal year.
Discretionary Appropriations Data and Trends
As discussed, FS discretionary appropriations fluctuated annual y but general y increased over the As discussed, FS discretionary appropriations fluctuated annual y but general y increased over the
10-year period from FY2011 to FY2020. The annual fluctuations were driven in part by 10-year period from FY2011 to FY2020. The annual fluctuations were driven in part by
supplemental appropriations, which were provided in 7 of the 10 fiscal years (including the supplemental appropriations, which were provided in 7 of the 10 fiscal years (including the
wildfire adjustment in FY2020). On average, the FS received $6.21 bil ion annual y in wildfire adjustment in FY2020). On average, the FS received $6.21 bil ion annual y in
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discretionary appropriations, in constant dollars, over the period in question.38 The FS received discretionary appropriations, in constant dollars, over the period in question.38 The FS received
the least discretionary funding in FY2012 and the most in FY2020, in both constant and nominal the least discretionary funding in FY2012 and the most in FY2020, in both constant and nominal
dollars. The FS received $7.50 bil ion in FY2020, an increase of 37% over the FY2011 dollars. The FS received $7.50 bil ion in FY2020, an increase of 37% over the FY2011
appropriation in constant dollars.appropriation in constant dollars.39 Table 3 shows account-level discretionary appropriations for shows account-level discretionary appropriations for
each year over the past 10 fiscal years. (See alseach year over the past 10 fiscal years. (See also Table A-1 in the appendix for a more detailed in the appendix for a more detailed
discretionary appropriations table, including amounts of supplemental and rescinded funding.) discretionary appropriations table, including amounts of supplemental and rescinded funding.)
38 In nominal dollars, the FS received an average of $5.77 billion annually in discretionary appropriations between FY2011 and FY2020. 39 In nominal dollars, the FS’s FY2020 discretionary appropriation was a 60% increase over the FY2011 appropriation. Congressional Research Service 13 link to page 6 link to page 19 link to page 20 link to page 20 Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020) Figure 5 ~~Figure 4~~. FS Discretionary Appropriations by Account, FY2011-FY2020
(bil ions of dol ars) (bil ions of dol ars)

Sources: Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations
acts, committee reports, explanatory statements, and detailed funding tables prepared by the Houseacts, committee reports, explanatory statements, and detailed funding tables prepared by the House and Senate and Senate
Committees on Appropriations. Committees on Appropriations.
Notes: See footnot See footnote 5 for additional information about this figure. WFM = Wildland Fire Management; NFS = for additional information about this figure. WFM = Wildland Fire Management; NFS =
National Forest System; CIM = Capital Improvement and Maintenance; SPF = State and Private Forestry; FRR = National Forest System; CIM = Capital Improvement and Maintenance; SPF = State and Private Forestry; FRR =
Forest and Rangeland Research; LA = Land Acquisition; Other = several smal er accounts combined. Forest and Rangeland Research; LA = Land Acquisition; Other = several smal er accounts combined.
The majority of FS discretionary appropriations go to two accounts: WFM and NFS, as shown in The majority of FS discretionary appropriations go to two accounts: WFM and NFS, as shown in
Figure 45 aand Figure 56. Combined, these two accounts have received 82% of average annual Combined, these two accounts have received 82% of average annual
appropriations since FY2011. The WFM account received 53% of average annual appropriations appropriations since FY2011. The WFM account received 53% of average annual appropriations
from FY2011 to FY2020, and it received more than 50% of total discretionary appropriations in from FY2011 to FY2020, and it received more than 50% of total discretionary appropriations in
al but two years. The WFM figures reflect supplemental appropriations. Notwithstanding the al but two years. The WFM figures reflect supplemental appropriations. Notwithstanding the
supplemental appropriations, however, WFM stil received the largest portion of the FS’s supplemental appropriations, however, WFM stil received the largest portion of the FS’s
discretionary funding (44%) between FY2011 and FY2020. discretionary funding (44%) between FY2011 and FY2020.
In some cases, fluctuations in funding distributions resulted in part from structural changes. For In some cases, fluctuations in funding distributions resulted in part from structural changes. For
example, starting in FY2018, some programs that had been funded through the WFM account example, starting in FY2018, some programs that had been funded through the WFM account
were transferred to other accounts. The largest of the transferred programs—Hazardous Fuels—were transferred to other accounts. The largest of the transferred programs—Hazardous Fuels—
was moved to the NFS account, and smal er programs were moved to the SPF and FRR accounts. was moved to the NFS account, and smal er programs were moved to the SPF and FRR accounts.
Some of the fluctuation in funding distribution from FY2017 to FY2018 reflects these structural Some of the fluctuation in funding distribution from FY2017 to FY2018 reflects these structural

~~38 In nominal dollars, the FS received an average of $5.77 billion annually in discretionary appropriations between~~
~~FY2011 and FY2020.~~
~~39 In nominal dollars, the FS’s FY2020 discretionary appropriation was a 60% increase over the FY2011 appropriation.~~
changes rather than a substantive change in program funding. Figure 6 depicts the move of Hazardous Fuels from WFM to NFS. Congressional Research Service Congressional Research Service
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Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020)

~~changes rather than a substantive change in program funding. Figure 5 depicts the move of~~
~~Hazardous Fuels from WFM to NFS.~~
Figure 56. Distribution of FS Discretionary Appropriations

Sources: Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations
acts, committee reports, explanatory statements, and detailed funding tables prepared by the House and Senate acts, committee reports, explanatory statements, and detailed funding tables prepared by the House and Senate
Committees on Appropriations. Committees on Appropriations.
Notes: See footnot See footnote 5 for additional information about this figure. WFM = Wildland Fire Management; NFS = for additional information about this figure. WFM = Wildland Fire Management; NFS =
National Forest System; Al Other FS Accounts include appropriations to the other FS discretionary accounts, National Forest System; Al Other FS Accounts include appropriations to the other FS discretionary accounts,
including Capital Improvement and Maintenance, State and Private Forestry, Forest and Rangeland Research, including Capital Improvement and Maintenance, State and Private Forestry, Forest and Rangeland Research,
Land Acquisition, and several smal er accounts. Funding for the Hazardous Fuels program is included to il ustrate Land Acquisition, and several smal er accounts. Funding for the Hazardous Fuels program is included to il ustrate
the effect of its transfer from WFM to NFS on the distribution of funding between those accounts. the effect of its transfer from WFM to NFS on the distribution of funding between those accounts.

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Table 3. FS Discretionary Appropriations by Account, FY2011-FY2020
(mil ions of dol ars) (mil ions of dol ars)

FY2011
FY2012
FY2013
FY2014
FY2015
FY2016
FY2017a
FY2018
FY2019
FY2020
FRR FRR
$306.6 $306.6
$295.3 $295.3
$279.9 $279.9
$292.8 $292.8
$296.0 $296.0
$291.0 $291.0
$288.5 $288.5
$297.0 $297.0
$301.0 $301.0
$308.0 $308.0
SPF SPF
277.6 277.6
252.9 252.9
239.7 239.7
230.0 230.0
232.7 232.7
237.0 237.0
216.9 216.9
337.1 337.1
347.5 347.5
347.0 347.0
NFS NFS
1,542.2 1,542.2
1,554.1 1,554.1
1,455.3 1,455.3
1,496.3 1,496.3
1,494.3 1,494.3
1,509.4 1,509.4
1,513.3 1,513.3
1,944.4 1,944.4
2,023.0 2,023.0
1,991.5 1,991.5
CIM CIM
459.6 459.6
382.1 382.1
346.5 346.5
333.0 333.0
343.4 343.4
348.2 348.2
348.0 348.0
525.6 525.6
467.0 467.0
466.8 466.8
LA LA
32.9 32.9
52.5 52.5
49.8 49.8
43.5 43.5
47.5 47.5
63.4 63.4
54.4 54.4
64.3 64.3
72.6 72.6
76.9 76.9
WFM WFM
2,058.5 2,058.5
2,050.2 2,050.2
2,547.7 2,547.7
3,077.3 3,077.3
2,636.4 2,636.4
3,909.3 3,909.3
3,175.4 3,175.4
3,406.8 3,406.8
3,725.3 3,725.3
4,307.6 4,307.6
Othe Otherb
7.5 7.5
7.1 7.1
5.7 5.7
6.7 6.7
6.0 6.0
6.0 6.0
6.0 6.0
5.7 5.7
5.1 5.1
6.4 6.4
Total
4,685.0
4,594.3
4,924.5
5,479.6
5,056.2
6,364.3
5,596.3
6,580.9
6,941.4
7,504.2
Constant (FY2020) $
5,474.6
5,268.7
5,545.4
6,054.0
5,522.4
6,890.1
5,952.9
6,841.0
7,078.4
7,504.2
Sources: Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations acts, committee reports, explanatory statements, and Prepared by CRS using data derived from annual appropriations acts, supplemental appropriations acts, committee reports, explanatory statements, and
detailed funding tables prepared by the House and Senate Committees on Appropriations. detailed funding tables prepared by the House and Senate Committees on Appropriations.
Notes: Accounts are listedAccounts are listed in the order in which they appear in appropriations laws.in the order in which they appear in appropriations laws. FRR = Forest and Rangeland Research; SPF = State and Private Forestry; NFS = FRR = Forest and Rangeland Research; SPF = State and Private Forestry; NFS =
National Forest System; CIM = Capital Improvement and Maintenance; LA = Land Acquisition; WFM = Wildland Fire Management, which also includes appropriations to National Forest System; CIM = Capital Improvement and Maintenance; LA = Land Acquisition; WFM = Wildland Fire Management, which also includes appropriations to
FS’s FLAME and wildfire adjustment accounts. See footnotFS’s FLAME and wildfire adjustment accounts. See footnote 5 for additional information about this table. Seefor additional information about this table. See Table A-1 for a detailed table with account-level for a detailed table with account-level
information on regular-enacted and supplemental appropriations and rescissions. Column totals may not add due to rounding. information on regular-enacted and supplemental appropriations and rescissions. Column totals may not add due to rounding.
a. The FY2017 total reflects a general rescission of $6.2 mil ion. a. The FY2017 total reflects a general rescission of $6.2 mil ion.
b. “Other” reflects appropriations to several relatively smal FS discretionary accounts, including for specified land acquisition activities; the Range Betterment Fund; b. “Other” reflects appropriations to several relatively smal FS discretionary accounts, including for specified land acquisition activities; the Range Betterment Fund;
gifts, donations, and bequests for research; management of national forest lands for subsistence use; and gifts, donations, and bequests for research; management of national forest lands for subsistence use; and , in FY2020, communication site management. , in FY2020, communication site management.
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Forest Service Mandatory Appropriations40
FS mandatory appropriations accounted for 11% of the FS’s total annual appropriations on FS mandatory appropriations accounted for 11% of the FS’s total annual appropriations on
average from FY2011 through FY2020. Over that period, FS mandatory appropriations fluctuated average from FY2011 through FY2020. Over that period, FS mandatory appropriations fluctuated
annual y, particularly over the second half of the decade, as shown iannual y, particularly over the second half of the decade, as shown in Figure 67 a and Table 4. The The
fluctuations were related in part to the expiration and reauthorization of a program funded fluctuations were related in part to the expiration and reauthorization of a program funded
through one FS mandatory account (Payments to States Funds). The following section includes a through one FS mandatory account (Payments to States Funds). The following section includes a
description of each FS mandatory account with FY2019 mandatory appropriations above $25 description of each FS mandatory account with FY2019 mandatory appropriations above $25
mil ion (listed in decreasing order of appropriations). FS mandatory accounts with FY2019 mil ion (listed in decreasing order of appropriations). FS mandatory accounts with FY2019
mandatory appropriations below $25 mil ion are grouped and listed together at the end of the mandatory appropriations below $25 mil ion are grouped and listed together at the end of the
section. section.
On average, the mandatory appropriation from FY2011 through FY2020 was $782.5 mil ion in On average, the mandatory appropriation from FY2011 through FY2020 was $782.5 mil ion in
constant FY2020 dollars.41 The FY2020 mandatory appropriation is estimated to be $692.3 constant FY2020 dollars.41 The FY2020 mandatory appropriation is estimated to be $692.3
mil ion, below the 10-year average.42 mil ion, below the 10-year average.42
The following section provides information on mandatory appropriations. It includes a The following section provides information on mandatory appropriations. It includes a
description of each FS mandatory account. For each account, the following section also includes description of each FS mandatory account. For each account, the following section also includes
the amount of appropriations for FY2019, the most recent year for which final data are available. the amount of appropriations for FY2019, the most recent year for which final data are available.
Data for FY2020 mandatory appropriations are estimates and are subject to revision, in part Data for FY2020 mandatory appropriations are estimates and are subject to revision, in part
because many of the accounts are based on receipts or collections from throughout the fiscal year, because many of the accounts are based on receipts or collections from throughout the fiscal year,
which ended on September 30, 2020, and fiscal year totals have not been compiled to date. which ended on September 30, 2020, and fiscal year totals have not been compiled to date.

40 For a discussion of the issues related to mandatory appropriations and data on FS FY2018 mandatory appropriations, 40 For a discussion of the issues related to mandatory appropriations and data on FS FY2018 mandatory appropriations,
see CRS Report R45994, see CRS Report R45994, Federal Land Managem ent Agencies’ Mandatory Appropriations Accounts, coordinated by , coordinated by
Carol Hardy Vincent . Carol Hardy Vincent .
41 In nominal dollars, the average mandatory appropriation was $723.3 million annually from FY2011 to FY2020. 41 In nominal dollars, the average mandatory appropriation was $723.3 million annually from FY2011 to FY2020.
42 In nominal dollars, the FY2020 mandatory appropriation is an increase of 51% over the FY2011 mandatory 42 In nominal dollars, the FY2020 mandatory appropriation is an increase of 51% over the FY2011 mandatory
appropriation. appropriation.
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Figure 67. FS Mandatory Appropriations, FY2011-FY2020
(mil ions of dol ars) (mil ions of dol ars)

Sources: Prepared by CRS using information from annual FS budget justifications. Prepared by CRS using information from annual FS budget justifications.
Notes: See footnot See footnote 5 for additional information about this figure. FY2020 mandatory appropriations figures are for additional information about this figure. FY2020 mandatory appropriations figures are
estimates and are subject to revision. estimates and are subject to revision.
Table 4. FS Mandatory Appropriations, FY2011-FY2020
(mil ions of dol ars) (mil ions of dol ars)
Constant (FY2020)

Nominal Dollars
Dollars
FY2011 FY2011
$458.4 $458.4
$535.6 $535.6
FY2012 FY2012
720.4 720.4
826.1 826.1
FY2013 FY2013
775.1 775.1
872.8 872.8
FY2014 FY2014
833.1 833.1
920.4 920.4
FY2015 FY2015
830.4 830.4
907.0 907.0
FY2016 FY2016
891.5 891.5
965.1 965.1
FY2017 FY2017
443.8 443.8
472.1 472.1
FY2018 FY2018
705.1 705.1
733.0 733.0
FY2019 FY2019
883.2 883.2
900.7 900.7
FY2020 FY2020
692.3 692.3
692.3 692.3
10-Year Average 10-Year Average
723.3 723.3
782.5 782.5
Sources: Prepared by CRS using information from annual FS budget justifications. Prepared by CRS using information from annual FS budget justifications.
Notes: See footnot See footnote 5 for additional information about this table. FY2020 mandatory appropriations figures are for additional information about this table. FY2020 mandatory appropriations figures are
estimates and are subject to revision. estimates and are subject to revision.
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FY2019 Mandatory Appropriations Data
FY2019 mandatory appropriations for the FS were $883.2 mil ion. This amount is 11% of the FY2019 mandatory appropriations for the FS were $883.2 mil ion. This amount is 11% of the
FS’s total FY2019 appropriations ($7.83 bil ion). These mandatory appropriations were in about FS’s total FY2019 appropriations ($7.83 bil ion). These mandatory appropriations were in about
two dozen accounts.43 Of those accounts, seven had mandatory appropriations each exceeding two dozen accounts.43 Of those accounts, seven had mandatory appropriations each exceeding
$25.0 mil ion in FY2019, with the largest account containing $293.5 mil ion. The remaining $25.0 mil ion in FY2019, with the largest account containing $293.5 mil ion. The remaining
accounts had appropriations of less than $25 mil ion each in FY2019; eight of those accounts had accounts had appropriations of less than $25 mil ion each in FY2019; eight of those accounts had
less than $1 mil ion each, including two accounts with no new mandatory spending authority in less than $1 mil ion each, including two accounts with no new mandatory spending authority in
FY2019 FY2019. Table 5 shows the FS mandatory appropriations for FY2019. shows the FS mandatory appropriations for FY2019.
Agency receipts fund many of these accounts, although one is supplemented by the General Fund Agency receipts fund many of these accounts, although one is supplemented by the General Fund
of the Treasury, as needed. In addition, import tariffs fund one account and license fees fund of the Treasury, as needed. In addition, import tariffs fund one account and license fees fund
another. Almost al of the accounts support agency activities, though some are used to make another. Almost al of the accounts support agency activities, though some are used to make
revenue-sharing payments with states, local, or tribal governments. revenue-sharing payments with states, local, or tribal governments.
Table 5. FS Mandatory Appropriations, by Account, FY2019
(in mil ions of dol ars) (in mil ions of dol ars)
FS Account
FY2019
Accounts with $25.0 Million or More

Payment to States Fund Payment to States Fundsa
$293.5 $293.5
Cooperative Work—Knutson-Vandenberg (K-V) Trust Fund Cooperative Work—Knutson-Vandenberg (K-V) Trust Fund
253.6 253.6
Recreation Fee Program, F Recreation Fee Program, FSb
97.0 97.0
Cooperative Work—Other Trust Fund Cooperative Work—Other Trust Fund
89.5 89.5
Timber Salvage Sale Fund Timber Salvage Sale Fund
45.8 45.8
Reforestation Trust Fund Reforestation Trust Fund
30.0 30.0
Stewardship Contracting Fund Stewardship Contracting Fund
26.3 26.3
Accounts with Less Than $25.0 Million

Operation and Maintenance of FS Quarters Operation and Maintenance of FS Quarters
10.1 10.1
Brush Disposal Brush Disposal
9.4 9.4
Restoration of Forest Lands and Improvements Restoration of Forest Lands and Improvements
6.0 6.0
Land Between the Lakes Management and Trust Fu Land Between the Lakes Management and Trust Fundc
5.3 5.3
Cost Recovery (Land Uses) Cost Recovery (Land Uses)
5.0 5.0
Timber Sales Pipeline Restoration Timber Sales Pipeline Restoration
3.0 3.0
Conveyance of Administrative Sites Conveyance of Administrative Sites
2.7 2.7
Timber Purchaser Election Road Construction Timber Purchaser Election Road Construction
2.0 2.0
Forest Botanical Products Forest Botanical Products
1.5 1.5
Midewin National Tal grass Prairie Rental Fees Midewin National Tal grass Prairie Rental Fees
0.7 0.7
Commercial Filming and Stil Photography Land Use Fees Commercial Filming and Stil Photography Land Use Fees
0.6 0.6
Organizational Camps Program Organizational Camps Program
0.5 0.5

43 In this report, four FS mandatory spending accounts have been combined into two accounts due to their similarity 43 In this report, four FS mandatory spending accounts have been combined into two accounts due to their similarity
and relatively small size, as noted iand relatively small size, as noted in Table 5. In addition, two FS mandatory accounts did not have new mandatory In addition, two FS mandatory accounts did not have new mandatory
spending authority in FY2019, though one account had carryover from prior fiscal years. spending authority in FY2019, though one account had carryover from prior fiscal years.
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FS Account
FY2019
Licensee Programs: Smokey Bear and Woodsy O Licensee Programs: Smokey Bear and Woodsy Owld
0.5 0.5
FS Go Green Program FS Go Green Program
0.2 0.2
Site-Specific Lands Act Site-Specific Lands Act
<0.1 <0.1
Roads and Trails Fund Roads and Trails Fund
0 0
Quinault Special Management Area Fund Quinault Special Management Area Fund
0 0
Total Mandatory Appropriations
883.2
Source: FS, FS, FY2021 Budget Justification, February 2020, at https://www.fs.usda.gov/sites/default/files/2020-02/usfs-, February 2020, at https://www.fs.usda.gov/sites/default/files/2020-02/usfs-
fy-2021-budget-justification.pdf. fy-2021-budget-justification.pdf.
Notes: Accounts are listed in decreasing order of FY2019 mandatory appropriations. The table does not reflect Accounts are listed in decreasing order of FY2019 mandatory appropriations. The table does not reflect
two accounts with no new funding in FY2019. Amounts in column may not sum to total shown due to rounding. two accounts with no new funding in FY2019. Amounts in column may not sum to total shown due to rounding.
a. The Payment to States Funds account consists of several funds that are used to issue payments to specified a. The Payment to States Funds account consists of several funds that are used to issue payments to specified
state and local governments under several different authorities. The FS general y groups the funds together state and local governments under several different authorities. The FS general y groups the funds together
for reporting purposes. At times, the FS provides additional details about each fund and associated payment, for reporting purposes. At times, the FS provides additional details about each fund and associated payment,
but it did not do so for FY2019 in the but it did not do so for FY2019 in the FY2021 Budget Justification. .
b. This total includes $25.3 mil ion col ected by the FS from recreation.gov and used for administration b. This total includes $25.3 mil ion col ected by the FS from recreation.gov and used for administration of this of this
reservation service. reservation service.
c. These are two separate accounts but were combined for this table. The Land Between the Lakes c. These are two separate accounts but were combined for this table. The Land Between the Lakes
Management permanent appropriation had $5.2 mil ion in mandatory appropriations for FY2019. The Land Management permanent appropriation had $5.2 mil ion in mandatory appropriations for FY2019. The Land
Between the Lakes Trust Fund had $0.1 mil ion in mandatory appropriations for FY2019. Between the Lakes Trust Fund had $0.1 mil ion in mandatory appropriations for FY2019.
d. These are two separate accounts but were combined for this table. The Smokey Bear Licensee Program had d. These are two separate accounts but were combined for this table. The Smokey Bear Licensee Program had
$0.4 mil ion in mandatory appropriations for FY2019, and the Woodsy Owl Licensee Program had <$0.1 $0.4 mil ion in mandatory appropriations for FY2019, and the Woodsy Owl Licensee Program had <$0.1
mil ion in mandatory appropriations for FY2019. mil ion in mandatory appropriations for FY2019.
Mandatory Accounts44
The following section includes a description of each FS mandatory account with FY2019 The following section includes a description of each FS mandatory account with FY2019
mandatory appropriations above $25 mil ion (listed in decreasing order of appropriations). FS mandatory appropriations above $25 mil ion (listed in decreasing order of appropriations). FS
mandatory accounts with FY2019 mandatory appropriations below $25 mil ion are grouped and mandatory accounts with FY2019 mandatory appropriations below $25 mil ion are grouped and
listed together at the end of the section. listed together at the end of the section.
Payment to States Funds
Payment to States Funds provide compensation or revenue-sharing payments to specified state Payment to States Funds provide compensation or revenue-sharing payments to specified state
and local governments.45 The payments are required by different laws with varying (but and local governments.45 The payments are required by different laws with varying (but
sometimes related) purposes and disbursement formulas, as summarized below. The funds sometimes related) purposes and disbursement formulas, as summarized below. The funds
general y consist of receipts from sales, leases, rentals, or other fees for using NFS lands or general y consist of receipts from sales, leases, rentals, or other fees for using NFS lands or
resources (e.g., timber sales, certain recreation fees, and communication site leases). resources (e.g., timber sales, certain recreation fees, and communication site leases).
  25% Revenue-Sharing Payments.46 The Act of May 23, 1908, requires states to .46 The Act of May 23, 1908, requires states to
receive annual payments of 25% of the average gross revenue generated over the receive annual payments of 25% of the average gross revenue generated over the
previous seven years on the national forests in the state, for use on roads and previous seven years on the national forests in the state, for use on roads and

44 Accounts in this section are described in decreasing order of funding. 44 Accounts in this section are described in decreasing order of funding.
45 In most cases, the payments are made to states but the states do not retain any of the funds. T he states pass the funds 45 In most cases, the payments are made to states but the states do not retain any of the funds. T he states pass the funds
to the specified local government entities (i.e., counties, townships, and others). In some cases, the payments may be to the specified local government entities (i.e., counties, townships, and others). In some cases, the payments may be
made directly to the local government entity. made directly to the local government entity.
46 T his program is sometimes referred to as 46 T his program is sometimes referred to as Payments to States..
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schools in the counties containing those lands.47 Funded through receipts, the schools in the counties containing those lands.47 Funded through receipts, the
payment is made to the state after the end of the fiscal year. The state cannot payment is made to the state after the end of the fiscal year. The state cannot
retain any of the funds but al ocates the payment to the counties based on the area retain any of the funds but al ocates the payment to the counties based on the area
of national forest land in each county. of national forest land in each county.
  SRS Payments. The Secure Rural Schools and Community Self-Determination . The Secure Rural Schools and Community Self-Determination
Act of 2000 (SRS) authorized an optional, alternative payment to the FS 25% Act of 2000 (SRS) authorized an optional, alternative payment to the FS 25%
revenue-sharing payments.48 The payment amount is determined by a formula revenue-sharing payments.48 The payment amount is determined by a formula
based in part on historical revenue payments that declines overal by 5% based in part on historical revenue payments that declines overal by 5%
annual y. Similar to the 25% revenue-sharing payments, the payment is made annual y. Similar to the 25% revenue-sharing payments, the payment is made
after the end of the fiscal year and the bulk of the payment is to be used for roads after the end of the fiscal year and the bulk of the payment is to be used for roads
and schools in the counties containing national forests. The FS may retain a and schools in the counties containing national forests. The FS may retain a
portion of the payment for use on specified projects. Funding for the payment portion of the payment for use on specified projects. Funding for the payment
comes first from receipts and, if necessary, is supplemented through transfers comes first from receipts and, if necessary, is supplemented through transfers
from the General Fund of the Treasury. The original authorization for SRS from the General Fund of the Treasury. The original authorization for SRS
payments expired at the end of FY2006, but Congress reauthorized the payments payments expired at the end of FY2006, but Congress reauthorized the payments
several times (through various laws) and payments were made annual y from several times (through various laws) and payments were made annual y from
FY2001 through FY2016. The authorization expired for the FY2016 SRS FY2001 through FY2016. The authorization expired for the FY2016 SRS
payment, and counties received the 25% revenue-sharing payment for one year, payment, and counties received the 25% revenue-sharing payment for one year,
in FY2017. Congress then reauthorized the SRS payments for four years in FY2017. Congress then reauthorized the SRS payments for four years
(FY2017 through FY2020).49 Because SRS payments are disbursed after the (FY2017 through FY2020).49 Because SRS payments are disbursed after the
fiscal year ends, the FY2019 payment was made in FY2020 and the FY2020 fiscal year ends, the FY2019 payment was made in FY2020 and the FY2020
payment is set to be made in FY2021. payment is set to be made in FY2021.
  National Grassland Fund Payments. These payments are authorized by the . These payments are authorized by the
Bankhead-Jones Farm Tenant Act, which requires payments of 25% of Bankhead-Jones Farm Tenant Act, which requires payments of 25% of net (rather (rather
than gross) receipts directly to the counties for roads and schools in the counties than gross) receipts directly to the counties for roads and schools in the counties
where the national grasslands are located.50 These payments are sometimes where the national grasslands are located.50 These payments are sometimes
referred to as referred to as Payments to Counties, because the payment is made directly to the , because the payment is made directly to the
counties and al ocation is based on the national grassland acreage in each county. counties and al ocation is based on the national grassland acreage in each county.
  Payments to Minnesota Counties. Enacted in 1948, this program pays three . Enacted in 1948, this program pays three
northern Minnesota counties 0.75% of the appraised value of the land, without northern Minnesota counties 0.75% of the appraised value of the land, without
restrictions on using the funds.51 restrictions on using the funds.51
The funding level in the Payments to States Funds account varies annual y, depending on The funding level in the Payments to States Funds account varies annual y, depending on
fluctuations in revenue from the NFS and whether SRS is authorized. For example, over the 10 fluctuations in revenue from the NFS and whether SRS is authorized. For example, over the 10
years from FY2011 to FY2020, annual mandatory appropriations averaged $270.5 mil ion, in years from FY2011 to FY2020, annual mandatory appropriations averaged $270.5 mil ion, in
nominal dollars. The FY2017 appropriation ($73.1 mil ion, nominal dollars) was much lower nominal dollars. The FY2017 appropriation ($73.1 mil ion, nominal dollars) was much lower
than the annual average. This low figure occurred primarily because of the expiration of SRS than the annual average. This low figure occurred primarily because of the expiration of SRS

47 16 U.S.C. §500. 47 16 U.S.C. §500.
48 16 U.S.C. §§7101-7153. T he Secure Rural Schools and Community Self-Determination Act of 2000 (SRS; P.L. 106-48 16 U.S.C. §§7101-7153. T he Secure Rural Schools and Community Self-Determination Act of 2000 (SRS; P.L. 106-
393) also authorized payments for certain lands managed by Bureau of Land Management. For more information on the 393) also authorized payments for certain lands managed by Bureau of Land Management. For more information on the
SRS program, see CRS Report R41303, SRS program, see CRS Report R41303, The Secure Rural Schools and Com m unity Self-Determ ination Act:
Background and Issues, by Katie Hoover. , by Katie Hoover.
49 P.L. 115-141, Division O, §§401-402, and P.L. 116-94, Division H, T itle III. 49 P.L. 115-141, Division O, §§401-402, and P.L. 116-94, Division H, T itle III.
50 7 U.S.C. §1012. 50 7 U.S.C. §1012.
51 T hye-Blatnik Act of June 22, 1948 (16 U.S.C. §577g). Also known as the Superior National Forest Land 51 T hye-Blatnik Act of June 22, 1948 (16 U.S.C. §577g). Also known as the Superior National Forest Land
Consolidation Act . Consolidation Act .
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payments for that year. SRS payments general y are higher than 25% payments and often require payments for that year. SRS payments general y are higher than 25% payments and often require
supplemental funding from the General Fund of the Treasury. supplemental funding from the General Fund of the Treasury.
Cooperative Work—Knutson-Vandenberg Trust Fund
The Knutson-Vandenberg (K-V) Trust Fund was established by the Act of June 6, 1930, and is The Knutson-Vandenberg (K-V) Trust Fund was established by the Act of June 6, 1930, and is
funded through revenue generated by timber sales.52 The FS determines the amount collected on funded through revenue generated by timber sales.52 The FS determines the amount collected on
each sale, which can be up to 100% of receipts from the sale. The fund is used for two purposes. each sale, which can be up to 100% of receipts from the sale. The fund is used for two purposes.
First, the fund is used on the site of the timber sale to reforest and improve timber stands or to First, the fund is used on the site of the timber sale to reforest and improve timber stands or to
mitigate and enhance non-timber resource values. Second, unobligated balances from the fund mitigate and enhance non-timber resource values. Second, unobligated balances from the fund
may be used for specified land management activities within the same FS region in which the may be used for specified land management activities within the same FS region in which the
timber sale occurred.53 Because the deposits are determined on a sale-by-sale basis, the balance in timber sale occurred.53 Because the deposits are determined on a sale-by-sale basis, the balance in
the fund varies from year to year. the fund varies from year to year.
Recreation Fee Program, Forest Service
The FS charges and collects recreational fees under several programs and deposits those funds The FS charges and collects recreational fees under several programs and deposits those funds
into the Recreation Fees account to be used for specified purposes. Under the Federal Lands into the Recreation Fees account to be used for specified purposes. Under the Federal Lands
Recreation Enhancement Act (FLREA), the FS is one of five federal agencies authorized to Recreation Enhancement Act (FLREA), the FS is one of five federal agencies authorized to
charge, collect, and retain fees for specified recreational activities on federal lands.54 FLREA charge, collect, and retain fees for specified recreational activities on federal lands.54 FLREA
directs that at least 80% of the fees collected from the FS are to be available without further directs that at least 80% of the fees collected from the FS are to be available without further
appropriation for use at the site where they were collected. The FS typical y uses the money for appropriation for use at the site where they were collected. The FS typical y uses the money for
visitor services, law enforcement, and other purposes authorized under FLREA. visitor services, law enforcement, and other purposes authorized under FLREA.
In addition to its FLREA authorization, the FS is authorized to collect and retain fees at two In addition to its FLREA authorization, the FS is authorized to collect and retain fees at two
specific sites: Grey Towers National Historic Site and the Shasta-Trinity National Recreation specific sites: Grey Towers National Historic Site and the Shasta-Trinity National Recreation
Area (NRA).55 The FS is authorized to use the fees collected at the Grey Towers National Historic Area (NRA).55 The FS is authorized to use the fees collected at the Grey Towers National Historic
Site for program support and administration. The agency may use the fees collected at the Shasta-Site for program support and administration. The agency may use the fees collected at the Shasta-
Trinity NRA for the same purposes as FLREA, as wel as for direct operating or capital costs Trinity NRA for the same purposes as FLREA, as wel as for direct operating or capital costs
associated with the issuance of a marina permit. The FS also administers the multiagency associated with the issuance of a marina permit. The FS also administers the multiagency
National Recreation Reservation Service program, which collects reservation fees for those National Recreation Reservation Service program, which collects reservation fees for those
recreational facilities on federal lands that al ow reservations. The FS is responsible for collecting recreational facilities on federal lands that al ow reservations. The FS is responsible for collecting
the fees and issuing pass-through payments to other agencies. the fees and issuing pass-through payments to other agencies.
Appropriations to this fund vary depending on fee rates, the number of locations charging fees, Appropriations to this fund vary depending on fee rates, the number of locations charging fees,
and the number of visitors to FS lands. and the number of visitors to FS lands.

52 16 U.S.C. §576. For more information on federal timber sales, see CRS Report R45688, 52 16 U.S.C. §576. For more information on federal timber sales, see CRS Report R45688, Timber Harvesting on
Federal Lands, by Anne A. Riddle. , by Anne A. Riddle.
53 In the FY2006 Interior Appropriations Act (P.L. 109-54 §412), Congress authorized the use of Knutson-Vandenberg 53 In the FY2006 Interior Appropriations Act (P.L. 109-54 §412), Congress authorized the use of Knutson-Vandenberg
funds for “watershed restoration, wildlife habitat improvement, control of insects, diseases, and noxiousfunds for “watershed restoration, wildlife habitat improvement, control of insects, diseases, and noxious weeds, weeds,
community protection activities, and the maintenance of forests roads within the Forest Service region in which the community protection activities, and the maintenance of forests roads within the Forest Service region in which the
timber sale occurred.” timber sale occurred.”
54 16 U.S.C. §§6801-6814. The other agencies are the Bureau of Land Management, Fish and Wildlife Service, 54 16 U.S.C. §§6801-6814. The other agencies are the Bureau of Land Management, Fish and Wildlife Service,
National Park Service, and Bureau of Reclamation. For more information, see CRS In Focus IF10151, National Park Service, and Bureau of Reclamation. For more information, see CRS In Focus IF10151, Federal Lands
Recreation Enhancem ent Act: Overview and Issues, by Carol Hardy Vincent . , by Carol Hardy Vincent .
55 T he authority to charge, collect, and retain fees at the Grey T owers National Historic Site was provided in the 55 T he authority to charge, collect, and retain fees at the Grey T owers National Historic Site was provided in the
Consolidated Appropriations Act, 2005 (P.L. 108-447 §348). T he authority to charge, collect, and retain fees from Consolidated Appropriations Act, 2005 (P.L. 108-447 §348). T he authority to charge, collect, and retain fees from
marina special use permits at Shasta-T rinity National Recreation Area was first provided through FY2014 by the marina special use permits at Shasta-T rinity National Recreation Area was first provided through FY2014 by the
Consolidated Appropriations Act, 2008 (P.L. 110-161 §422), and was extended through FY2019 by the Consolidated Consolidated Appropriations Act, 2008 (P.L. 110-161 §422), and was extended through FY2019 by the Consolidated
Appropriations Act, 2014 (P.L. 113-76). Appropriations Act, 2014 (P.L. 113-76).
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Cooperative Work—Other Trust Fund
This trust fund collects deposits from cooperators and partners for use on NFS lands or to fund This trust fund collects deposits from cooperators and partners for use on NFS lands or to fund
research programs.56 The deposits may be made under an assortment of instruments, including research programs.56 The deposits may be made under an assortment of instruments, including
cooperative agreements, permits, or contracts, and with a variety of partners, for services cooperative agreements, permits, or contracts, and with a variety of partners, for services
involving any aspect of forestry ranging from timber measurement to fire protection, among involving any aspect of forestry ranging from timber measurement to fire protection, among
others. These services vary widely in scope and duration, and the associated deposits also vary others. These services vary widely in scope and duration, and the associated deposits also vary
widely, commensurate with the scale of those services. The deposits may be made pursuant to a widely, commensurate with the scale of those services. The deposits may be made pursuant to a
specific agreement or project, or they may include funds pooled from multiple cooperators for specific agreement or project, or they may include funds pooled from multiple cooperators for
later spending on related projects. The amount of deposits is specified in each instrument. later spending on related projects. The amount of deposits is specified in each instrument.
Because the fund consists of deposits under many individual cooperative agreements or other Because the fund consists of deposits under many individual cooperative agreements or other
instruments, the funding level varies considerably from year to year. instruments, the funding level varies considerably from year to year.
Timber Salvage Sale Fund
The Timber Salvage Sale Fund is funded through receipts from timber sales (or portions of sales) The Timber Salvage Sale Fund is funded through receipts from timber sales (or portions of sales)
designated as salvage by the FS, and its funds may be used to prepare, sel , and administer other designated as salvage by the FS, and its funds may be used to prepare, sel , and administer other
salvage sales.57 Salvage sales involve the timely removal of insect-infested, dead, damaged, or salvage sales.57 Salvage sales involve the timely removal of insect-infested, dead, damaged, or
down trees that are commercial y usable to capture some of the economic value of the timber down trees that are commercial y usable to capture some of the economic value of the timber
resource before it deteriorates or to remove the associated trees for stand improvement. The fund resource before it deteriorates or to remove the associated trees for stand improvement. The fund
may be used for timber sales with any salvage component.58 may be used for timber sales with any salvage component.58
Appropriations to this fund vary from year to year, based on factors that influence tree mortality Appropriations to this fund vary from year to year, based on factors that influence tree mortality
(e.g., catastrophic wildfires, insect infestations) and on market fluctuations for the demand and (e.g., catastrophic wildfires, insect infestations) and on market fluctuations for the demand and
price of the harvested timber. price of the harvested timber.
Reforestation Trust Fund
The Reforestation Trust Fund was created in 1980 to eliminate the backlog of reforestation and The Reforestation Trust Fund was created in 1980 to eliminate the backlog of reforestation and
timber stand improvement work on NFS lands.59 Deposits to this account come from tariffs on timber stand improvement work on NFS lands.59 Deposits to this account come from tariffs on
specified imported wood products, up to $30.0 mil ion annual y.60 Funds may be used for a range specified imported wood products, up to $30.0 mil ion annual y.60 Funds may be used for a range
of activities related to reforestation (e.g., site preparation for natural regeneration, seeding, or tree of activities related to reforestation (e.g., site preparation for natural regeneration, seeding, or tree
planting) and to improve timber stands (e.g., removal of vegetation to reduce competition, planting) and to improve timber stands (e.g., removal of vegetation to reduce competition,
fertilization). Funding general y has been at or around the maximum of $30.0 mil ion annual y. fertilization). Funding general y has been at or around the maximum of $30.0 mil ion annual y.

56 T his fund was established pursuant to the Act of June 30, 1914 (16 U.S.C. §498), and expanded substantially in the 56 T his fund was established pursuant to the Act of June 30, 1914 (16 U.S.C. §498), and expanded substantially in the
National Forest Roads and T rails Act (16 U.S.C. §537). National Forest Roads and T rails Act (16 U.S.C. §537).
57 T he T imber Salvage Sale Fund was established by §14(h) of the National Forest Management Act of 1976 (16 57 T he T imber Salvage Sale Fund was established by §14(h) of the National Forest Management Act of 1976 (16
U.S.C. §472a(h)). U.S.C. §472a(h)).
58 Sales with a salvage component may use funds derived from the T imber Salvage Sale Fund in proportion to the size 58 Sales with a salvage component may use funds derived from the T imber Salvage Sale Fund in proportion to the size
of the salvage component. of the salvage component.
59 Recreational Boating Safety and Facilities Improvement Act of 1980 (16 U.S.C. §1606a). T he fund was to be 59 Recreational Boating Safety and Facilities Improvement Act of 1980 (16 U.S.C. §1606a). T he fund was to be
terminated at the end of FY1984 and any remaining funds were to be transferred to the states for reforesting nonfederal terminated at the end of FY1984 and any remaining funds were to be transferred to the states for reforesting nonfederal
lands. T hose provisions were repealed, however, which effectively extended the fund indefinitely. T he termination was lands. T hose provisions were repealed, however, which effectively extended the fund indefinitely. T he termination was
repealed by §422 the Surface T ransportation Assistance Act of 1982 (P.L. 97-424). T he fund transfer was repealed by repealed by §422 the Surface T ransportation Assistance Act of 1982 (P.L. 97-424). T he fund transfer was repealed by
an unnumbered provision under the heading “National Forest System” in the Department of the Interior and Related an unnumbered provision under the heading “National Forest System” in the Department of the Interior and Related
Agencies Appropriations Act, 1986, in P.L. 99-190. Agencies Appropriations Act, 1986, in P.L. 99-190.
60 T he deposits come from tariffs on specified subheadings primarily within Chapter 44 of the 60 T he deposits come from tariffs on specified subheadings primarily within Chapter 44 of the Harmonized Tariff
Schedule of the United States, available at https://hts.usitc.gov/current. As shown in this source, from FY2014 through , available at https://hts.usitc.gov/current. As shown in this source, from FY2014 through
FY2018, averageFY2018, average estimated duties collected for the specified products were $127.4 million annually. estimated duties collected for the specified products were $127.4 million annually.
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Stewardship Contracting Fund
Congress authorized the FS to combine timber sale contracts and land restoration services Congress authorized the FS to combine timber sale contracts and land restoration services
contracts into contracts into stewardship contracts.61 Doing so al ows the FS to retain and use the revenue .61 Doing so al ows the FS to retain and use the revenue
generated from timber sales to offset the cost of specified restoration work on NFS lands. The FS generated from timber sales to offset the cost of specified restoration work on NFS lands. The FS
is authorized to retain any receipts in excess of the cost of the restoration work in its Stewardship is authorized to retain any receipts in excess of the cost of the restoration work in its Stewardship
Contracting Fund and to use those funds on future stewardship contracts. Funding varies based on Contracting Fund and to use those funds on future stewardship contracts. Funding varies based on
the extent to which receipts are in excess of costs. the extent to which receipts are in excess of costs.
FS Mandatory Accounts with Less Than $25.0 Million in FY2019
FS had several additional accounts with mandatory appropriations of less than $25.0 mil ion each FS had several additional accounts with mandatory appropriations of less than $25.0 mil ion each
in FY2019: in FY2019:
  Operation and Maintenance of Forest Service Quarters. This account al ows the This account al ows the
agency to collect rent from employees who use government-owned housing and agency to collect rent from employees who use government-owned housing and
to use the funds to maintain and repair the structures.62 to use the funds to maintain and repair the structures.62
  Brush Disposal. This account receives money from timber purchasers. The fund This account receives money from timber purchasers. The fund
is used on timber sale sites to dispose of treetops, limbs, and other debris from is used on timber sale sites to dispose of treetops, limbs, and other debris from
timber cutting; reduce fire and insect hazards; assist reforestation; and conducttimber cutting; reduce fire and insect hazards; assist reforestation; and conduct
related activities. The FS identifies the amount required to cover the costs of related activities. The FS identifies the amount required to cover the costs of
those activities for each timber sale.63 those activities for each timber sale.63
  Restoration of Forest Lands and Improvements. This account is funded through This account is funded through
recoveries from judgements, settlements, bond forfeitures, and related actions recoveries from judgements, settlements, bond forfeitures, and related actions
from permittees or timber purchasers who fail to complete the required work. The from permittees or timber purchasers who fail to complete the required work. The
funds are used to complete the work or repair any associated damage. funds are used to complete the work or repair any associated damage.
  Land Between the Lakes Management and Trust Fund. This account consists of This account consists of
two separate accounts related to the management of the Land Between the Lakes two separate accounts related to the management of the Land Between the Lakes
NRA.64 The accounts are funded primarily through charges, user fees, and NRA.64 The accounts are funded primarily through charges, user fees, and
receipts generated on the NRA. The funds are available for NRA management. receipts generated on the NRA. The funds are available for NRA management.
  Cost Recovery (Land Uses). The FS is authorized to collect and retain fees to The FS is authorized to collect and retain fees to
cover the costs of processing and monitoring certain special-use authorizations cover the costs of processing and monitoring certain special-use authorizations
for the use and occupancy of NFS lands.65 The processing and monitoring fees for the use and occupancy of NFS lands.65 The processing and monitoring fees
are based on the estimated number of hours it wil take the FS to process the are based on the estimated number of hours it wil take the FS to process the
application (or renew the authorization) and monitor the activity to ensure application (or renew the authorization) and monitor the activity to ensure
compliance with the authorization. The rates are updated annual y to adjust for compliance with the authorization. The rates are updated annual y to adjust for
inflation. Funding varies based on the number and type of special-use inflation. Funding varies based on the number and type of special-use
authorizations. authorizations.

61 16 U.S.C. §6591c. Stewardship contracting was first authorized on a pilot basis in FY1999 ( P.L. 105-277) and was 61 16 U.S.C. §6591c. Stewardship contracting was first authorized on a pilot basis in FY1999 ( P.L. 105-277) and was
extended and expanded several times before being made permanent in 2014. T he authority is also available to the extended and expanded several times before being made permanent in 2014. T he authority is also available to the
Bureau of Land Management. For more information on stewardship contracts, see CRS In Focus IF11179, Bureau of Land Management. For more information on stewardship contracts, see CRS In Focus IF11179, Stewardship
End Result Contracting: Forest Service and Bureau of Land Managem ent, by Anne A. Riddle. , by Anne A. Riddle.
62 5 U.S.C. §5911. 62 5 U.S.C. §5911.
63 Act of August 11, 1916 (16 U.S.C. §490). 63 Act of August 11, 1916 (16 U.S.C. §490).
64 Land Between the Lakes Protection Act (P.L. 105-277, 16 U.S.C. §460lll). 64 Land Between the Lakes Protection Act (P.L. 105-277, 16 U.S.C. §460lll).
65 16 U.S.C. §497e. T he authority originally was provided in §331 of Appendix C—H.R. 3423, enacted in §1000(a)(3) 65 16 U.S.C. §497e. T he authority originally was provided in §331 of Appendix C—H.R. 3423, enacted in §1000(a)(3)
of Division B of the Consolidated Appropriations Act, 2000 (P.L. 106-113). It was made permanent by §425 of of Division B of the Consolidated Appropriations Act, 2000 (P.L. 106-113). It was made permanent by §425 of
Division G of the Consolidated Appropriations Act, 2014Division G of the Consolidated Appropriations Act, 2014 (P.L. 113-76). (P.L. 113-76).
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  Timber Sales Pipeline Restoration. This account is funded through the federal This account is funded through the federal
share of receipts from certain canceled-but-reinstated timber sales.66 Up to 75% share of receipts from certain canceled-but-reinstated timber sales.66 Up to 75%
of the receipts from these sales may be used to prepare additional sales, and the of the receipts from these sales may be used to prepare additional sales, and the
other 25% of the receipts are to be used for recreation projects on FS land.other 25% of the receipts are to be used for recreation projects on FS land.
  Conveyance of Administrative Sites. This account is funded through receipts from This account is funded through receipts from
the conveyance of unneeded administrative sites and may be used for building the conveyance of unneeded administrative sites and may be used for building
maintenance, rehabilitation, and construction.67maintenance, rehabilitation, and construction.67
  Timber Purchaser Election Road Construction. This account is funded through This account is funded through
deposits from timber purchasers that elect to have the FS conduct any required deposits from timber purchasers that elect to have the FS conduct any required
road construction work related to the timber sale. Funds are used to pay for the road construction work related to the timber sale. Funds are used to pay for the
road construction costs. road construction costs.
  Forest Botanical Products. This account is funded through receipts generated This account is funded through receipts generated
from the sale of forest botanical products (e.g., bark, mushrooms, wildflowers). from the sale of forest botanical products (e.g., bark, mushrooms, wildflowers).
The funds are available for program administration.The funds are available for program administration.
  Midewin National Tallgrass Prairie Rental Fees. This account is funded through This account is funded through
user fees, rental fees, and facilities or equipment sales from the Midewin user fees, rental fees, and facilities or equipment sales from the Midewin
National Tal grass Prairie.68 Funds may be used for compensation payments to National Tal grass Prairie.68 Funds may be used for compensation payments to
the state and local government, restoration and improvement projects, and the state and local government, restoration and improvement projects, and
program administration. program administration.
  Commercial Filming and Still Photography Land Use Fees. This account is This account is
funded through land use fees for commercial filming or photography. The funds funded through land use fees for commercial filming or photography. The funds
may be used for program administration. may be used for program administration.
  Organizational Camps Program. This account is funded through land use fees for This account is funded through land use fees for
organizational camp programs. The funds may be used for program organizational camp programs. The funds may be used for program
administration and other specified purposes. administration and other specified purposes.
  Licensee Programs: Smokey Bear and Woodsy Owl. This account consists of two This account consists of two
separate accounts related to licensee programs. These accounts are funded separate accounts related to licensee programs. These accounts are funded
through licensee royalty fees, and the funds are used to support nationwide through licensee royalty fees, and the funds are used to support nationwide
initiatives related to wildfire prevention and environmental conservation. initiatives related to wildfire prevention and environmental conservation.
  FS Go Green Program. This account is funded through revenue generated from . This account is funded through revenue generated from
recycling or other waste reduction or prevention programs. Its funds are used to recycling or other waste reduction or prevention programs. Its funds are used to
implement other recycling, waste reduction, or prevention programs. implement other recycling, waste reduction, or prevention programs.
  Site-Specific Lands Act. This account is funded through receipts collected from . This account is funded through receipts collected from
land sales pursuant to special acts enacted by Congress. The funds are used for land sales pursuant to special acts enacted by Congress. The funds are used for

66 16 U.S.C. §1611 note. T hese timber sales originally were offered or awarded under §318 of the FY1990 Interior 66 16 U.S.C. §1611 note. T hese timber sales originally were offered or awarded under §318 of the FY1990 Interior
appropriations act (P.L. 101-381) but were halted in 1992, after the marbled murrelet was appropriations act (P.L. 101-381) but were halted in 1992, after the marbled murrelet was ~~listed~~list ed as a threatened species as a threatened species
under the Endangered Species Act (P.L. 93-205, 87 Stat. 884. 16 U.S.C. §§1531-1544). T he FS was directed to under the Endangered Species Act (P.L. 93-205, 87 Stat. 884. 16 U.S.C. §§1531-1544). T he FS was directed to
reinstate the sales by the 1995 Emergency Supplemental Appropriations and Rescissions Act ( P.L. 104-19, §2001(k)). reinstate the sales by the 1995 Emergency Supplemental Appropriations and Rescissions Act ( P.L. 104-19, §2001(k)).
T his provision, as well as the other provisions in §2001, was commonly referred to as the T his provision, as well as the other provisions in §2001, was commonly referred to as the salvage tim ber rider around around
the time of enactment. The Bureau of Land Management also operates a T imber Sales Pipeline Restoration Fund. the time of enactment. The Bureau of Land Management also operates a T imber Sales Pipeline Restoration Fund.
67 Forest Service Facility Realignment and Enhancement Act (FREA) of 2005 ( P.L. 109-54, 16 U.S.C. §580d note). 67 Forest Service Facility Realignment and Enhancement Act (FREA) of 2005 ( P.L. 109-54, 16 U.S.C. §580d note).
T he authority originally was authorized through September 30, T he authority originally was authorized through September 30, ~~2006~~20 06, but has been extended through September 30, , but has been extended through September 30,
2020, through several reauthorizations. Prior to the enactment of FREA, the authority was provided on a pilot basis in 2020, through several reauthorizations. Prior to the enactment of FREA, the authority was provided on a pilot basis in
P.L. 107-63 §329. P.L. 107-63 §329.
68 Illinois Land Conservation Act of 1995 (P.L. 104-106 Title XXIX, 16 U.S.C. §1609 note). 68 Illinois Land Conservation Act of 1995 (P.L. 104-106 Title XXIX, 16 U.S.C. §1609 note).
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land or facility improvements within the same national forest or state, or as land or facility improvements within the same national forest or state, or as
otherwise specified. otherwise specified.
In addition, the FS had two accounts with no new budget authority in FY2019: In addition, the FS had two accounts with no new budget authority in FY2019:
  Roads and Trails Fund.69 This account is funded through 10% of the receipts .69 This account is funded through 10% of the receipts
generated from specified NFS uses and activities. The funds may be used for generated from specified NFS uses and activities. The funds may be used for
construction and maintenance activities on the roads and trails in the national construction and maintenance activities on the roads and trails in the national
forests. Annual y since FY2008, appropriations laws have directed these funds to forests. Annual y since FY2008, appropriations laws have directed these funds to
be transferred to the General Fund of the Treasury. be transferred to the General Fund of the Treasury.
  Quinault Special Management Area Fund. This account is funded through . This account is funded through
receipts generated on the Quinault Special Management Area in the Olympic receipts generated on the Quinault Special Management Area in the Olympic
National Forest. The funds are used for program administration and to share National Forest. The funds are used for program administration and to share
revenues with the Quinault Tribe and the State of Washington.70 There were no revenues with the Quinault Tribe and the State of Washington.70 There were no
mandatory appropriations in FY2019, though the account had funds carried over mandatory appropriations in FY2019, though the account had funds carried over
from prior fiscal years.71 from prior fiscal years.71
Issues
Congress considers the appropriate level of funding for FS accounts and programs through the Congress considers the appropriate level of funding for FS accounts and programs through the
annual discretionary appropriations process and through the enactment, amendment, annual discretionary appropriations process and through the enactment, amendment,
reauthorization, or expiration of statutes providing for mandatory spending. FS appropriations reauthorization, or expiration of statutes providing for mandatory spending. FS appropriations
also raise several related policy issues for Congress. Congressional attention has centered on three also raise several related policy issues for Congress. Congressional attention has centered on three
of these issues—fire borrowing, budget administration, and account restructuring. These issues of these issues—fire borrowing, budget administration, and account restructuring. These issues
are discussed below. are discussed below.
Fire Borrowing
Overal appropriations to the FS for wildfire-related activities have increased considerably since Overal appropriations to the FS for wildfire-related activities have increased considerably since
the 1990s. A significant portion of that increase is related to rising suppression costs, even during the 1990s. A significant portion of that increase is related to rising suppression costs, even during
years of relatively mild wildfire activity, although the costs vary annual y and are difficult to years of relatively mild wildfire activity, although the costs vary annual y and are difficult to
predict. Through various actions and mechanisms, Congress has addressed concerns about the predict. Through various actions and mechanisms, Congress has addressed concerns about the
cost of WFM general y and suppression activities specifical y, as discussed below. cost of WFM general y and suppression activities specifical y, as discussed below.
Due to the emergency nature of fire control activities, appropriations laws provide the FS Due to the emergency nature of fire control activities, appropriations laws provide the FS
authority to transfer money out of other discretionary accounts if suppression funds become authority to transfer money out of other discretionary accounts if suppression funds become
depleted; this is often referred to as depleted; this is often referred to as fire borrowing.72 When such transfers have occurred, .72 When such transfers have occurred,
Congress typical y has enacted supplemental appropriations to repay the transferred funds and/or Congress typical y has enacted supplemental appropriations to repay the transferred funds and/or
to replenish the agency’s wildfire accounts, though sometimes these funds have been provided in to replenish the agency’s wildfire accounts, though sometimes these funds have been provided in
subsequent fiscal years. Congress sometimes—but not always—has provided these supplemental subsequent fiscal years. Congress sometimes—but not always—has provided these supplemental
funds outside of discretionary budget constraints. In other years, the supplemental funding was funds outside of discretionary budget constraints. In other years, the supplemental funding was

69 16 U.S.C. §501. 69 16 U.S.C. §501.
70 P.L. 100-638. 70 P.L. 100-638.
71 FS, 71 FS, FY2021 Budget Justification, February 2020, at https://www.fs.usda.gov/sites/default/files/2020-02/usfs-fy-2021-, February 2020, at https://www.fs.usda.gov/sites/default/files/2020-02/usfs-fy-2021-
budget-justification.pdf, p. 107. budget-justification.pdf, p. 107.
72 T he transfer authority is granted annually through language in the administrative provisions section for the FS in the 72 T he transfer authority is granted annually through language in the administrative provisions section for the FS in the
Interior, Environment, and Related Agencies appropriations acts. Interior, Environment, and Related Agencies appropriations acts.
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subject to discretionary budget constraints and thus could be considered as having “competed” subject to discretionary budget constraints and thus could be considered as having “competed”
with other programs funded through the Interior appropriations bil . with other programs funded through the Interior appropriations bil .
The authority to access additional funds for suppression operations provides the FS flexibility to The authority to access additional funds for suppression operations provides the FS flexibility to
respond quickly in time-sensitive emergency situations. However, critics contend the authority is respond quickly in time-sensitive emergency situations. However, critics contend the authority is
too broad and could provide little incentive to manage suppression costs.73 The FS—and the too broad and could provide little incentive to manage suppression costs.73 The FS—and the
Government Accountability Office (GAO)—also have asserted that fire borrowing is disruptive to Government Accountability Office (GAO)—also have asserted that fire borrowing is disruptive to
the FS’s non-fire operations and hinders the agency’s ability to carry out its statutory the FS’s non-fire operations and hinders the agency’s ability to carry out its statutory
missions.74 According to the FS, borrowing from other program accounts—even when repaid in missions.74 According to the FS, borrowing from other program accounts—even when repaid in
subsequent appropriations—creates uncertainty in the availability of funds and affects program subsequent appropriations—creates uncertainty in the availability of funds and affects program
implementation. In addition, some programs are time sensitive (e.g., land sales) and may suffer implementation. In addition, some programs are time sensitive (e.g., land sales) and may suffer
adverse impacts (e.g., changing land prices) if and when delayed by fire transfers, according to adverse impacts (e.g., changing land prices) if and when delayed by fire transfers, according to
GAO.75 GAO.75
Some Members of Congress also have expressed concern about the impact of fire borrowing on Some Members of Congress also have expressed concern about the impact of fire borrowing on
other FS activities and about the increasing portion of the FS budget used for suppression. The other FS activities and about the increasing portion of the FS budget used for suppression. The
FLAME account was intended in part to address fire borrowing impacts.76 In establishing FLAME account was intended in part to address fire borrowing impacts.76 In establishing
FLAME, the conferees on the FY2010 Interior appropriations bil stated their intent that the FLAME, the conferees on the FY2010 Interior appropriations bil stated their intent that the
funding in the FLAME account, together with appropriations to the WFM account, should fully funding in the FLAME account, together with appropriations to the WFM account, should fully
fund anticipated wildfire suppression needs and prevent future borrowing of funds from non-fire fund anticipated wildfire suppression needs and prevent future borrowing of funds from non-fire
programs.77 In practice, though the FLAME account created an additional account for suppression programs.77 In practice, though the FLAME account created an additional account for suppression
operations, fire borrowing stil occurred during the years the FLAME account was active operations, fire borrowing stil occurred during the years the FLAME account was active
(FY2010-FY218). (FY2010-FY218).
The wildfire adjustment also is intended to address fire borrowing impacts, and it is an additional The wildfire adjustment also is intended to address fire borrowing impacts, and it is an additional
account for suppression operations. The wildfire adjustment, however, al ows additional funding account for suppression operations. The wildfire adjustment, however, al ows additional funding
for wildfire suppression without needing to enact supplemental appropriations or borrow from, for wildfire suppression without needing to enact supplemental appropriations or borrow from,
then replenish, other accounts. As noted, under the wildfire adjustment, any additional funding then replenish, other accounts. As noted, under the wildfire adjustment, any additional funding
that Congress elects to appropriate over the FY2015 baseline essential y would not be subject to that Congress elects to appropriate over the FY2015 baseline essential y would not be subject to
discretionary spending limits, up to the specified maximum.78 However, because the statutory discretionary spending limits, up to the specified maximum.78 However, because the statutory
limits for discretionary spending are in effect only until FY2021, the wildfire adjustment would limits for discretionary spending are in effect only until FY2021, the wildfire adjustment would
no longer apply if no new limits were enacted. If new limits are statutorily established for any no longer apply if no new limits were enacted. If new limits are statutorily established for any
year between FY2022 and FY2027, then the wildfire adjustment wil remain applicable. year between FY2022 and FY2027, then the wildfire adjustment wil remain applicable.

73 National Academy of Public Administration, 73 National Academy of Public Administration, Wildfire Suppression: Strategies for Containing Costs, September , September
2002. 2002.
74 See for example, U.S. Government Accountability Office (GAO), 74 See for example, U.S. Government Accountability Office (GAO), Wildfire Suppression: Funding Transfers Cause
Project Cancellations and Delays, Strained Relationships, and Managem ent Disruptions, GAO-04-612, June 2004; , GAO-04-612, June 2004;
testimony of FS Chief T om T idwell, in U.S. Congress, Senate Committee on Energy and Natural Resources, testimony of FS Chief T om T idwell, in U.S. Congress, Senate Committee on Energy and Natural Resources, Hearing
to Receive Testim ony on the Federal Governm ent’s Role in Wildfire Managem ent, the Im pact of Fires on Com m unities,
and Potential Im provem ents to Be Made in Fire Operations, 114th Cong., 1st sess., May 5, 2015; and FS, , 114th Cong., 1st sess., May 5, 2015; and FS, Fire Transfer
Im pact by State, June 9, 2014, at http://www.fs.fed.us/publications/forest -service-fire-transfer-state-impacts.pdf. , June 9, 2014, at http://www.fs.fed.us/publications/forest -service-fire-transfer-state-impacts.pdf.
75 GAO-04-612. 75 GAO-04-612.
76 U.S. Congress, 76 U.S. Congress, Department of the Interior, Environment, and Related Agencies Appropriations Acts, 2010, 111th 111th
Cong., 1st sess., October 28, 2009, H.Rept. 111-316, p.104. Cong., 1st sess., October 28, 2009, H.Rept. 111-316, p.104.
77 H.Rept. 111-316, p. 104. 77 H.Rept. 111-316, p. 104.
78 For more information on budgetary adjustments, see CRS Report R45778, 78 For more information on budgetary adjustments, see CRS Report R45778, Exceptions to the Budget Control Act’s
Discretionary Spending Lim its, by Megan S. Lynch. , by Megan S. Lynch.
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Budget Administration
A 2018 GAO report identified several issues with the FS’s administrative controls regarding A 2018 GAO report identified several issues with the FS’s administrative controls regarding
appropriations and budget management.79 Among other findings, GAO determined the FS did not appropriations and budget management.79 Among other findings, GAO determined the FS did not
have adequate processes or controls to ensure appropriated amounts were used as designated, have adequate processes or controls to ensure appropriated amounts were used as designated,
unobligated no-year appropriations were reviewed for continued need, or fire borrowing transfers unobligated no-year appropriations were reviewed for continued need, or fire borrowing transfers
into the WFM account were implemented correctly. According to GAO, these weaknesses could into the WFM account were implemented correctly. According to GAO, these weaknesses could
lead to the FS submitting budget requests to Congress based on inadequate information. GAO lead to the FS submitting budget requests to Congress based on inadequate information. GAO
general y recommended the FS develop or update policies to address these areas. general y recommended the FS develop or update policies to address these areas.
In FY2017—prior to publication of the 2018 GAO report—Congress began including language In FY2017—prior to publication of the 2018 GAO report—Congress began including language
and directives in annual appropriations laws intended to “increase transparency and confidence in and directives in annual appropriations laws intended to “increase transparency and confidence in
the [FS’s] management of its programs and activities.”80 These directives included requiring the the [FS’s] management of its programs and activities.”80 These directives included requiring the
FS to submit quarterly balance reports for al discretionary and mandatory accounts and directing FS to submit quarterly balance reports for al discretionary and mandatory accounts and directing
the FS to centralize, standardize, and improve the budgeting, accounting, procurement, and the FS to centralize, standardize, and improve the budgeting, accounting, procurement, and
financial management practices and processes across FS regions and programs.81 Congress also financial management practices and processes across FS regions and programs.81 Congress also
placed fiscal-year limitations on the appropriations to most FS accounts; previously, Congress placed fiscal-year limitations on the appropriations to most FS accounts; previously, Congress
had provided appropriations to most FS accounts as no-year funds. Congress directly responded had provided appropriations to most FS accounts as no-year funds. Congress directly responded
to the GAO report in FY2018 and continued to include language and directives intended to to the GAO report in FY2018 and continued to include language and directives intended to
increase transparency and improve the FS’s budget administration in appropriations laws in increase transparency and improve the FS’s budget administration in appropriations laws in
subsequent fiscal years.82 subsequent fiscal years.82
The Administration requested a budgetary restructuring in FY2020 in part to respond to the The Administration requested a budgetary restructuring in FY2020 in part to respond to the
concerns raised by Congress and the issues identified by GAO.83 The proposal was to establish a concerns raised by Congress and the issues identified by GAO.83 The proposal was to establish a
FS general management appropriations account.84 This account would have replaced the FS’s FS general management appropriations account.84 This account would have replaced the FS’s
practice of using cost pools from each program account to pay for certain fixed costs, overhead, practice of using cost pools from each program account to pay for certain fixed costs, overhead,
and administrative expenses. The proposal also would have established new salary and expense and administrative expenses. The proposal also would have established new salary and expense
budget line items within several FS accounts and programs in an effort to provide more budget line items within several FS accounts and programs in an effort to provide more
transparency for program funding. This proposal is discussed further in the following transparency for program funding. This proposal is discussed further in the following “Account
Restructuring” section. ” section.
Account Restructuring
The FS’s account structure has changed over time, including during the period from FY2011 The FS’s account structure has changed over time, including during the period from FY2011
through FY2020. The programs through which certain activities have been funded have varied through FY2020. The programs through which certain activities have been funded have varied
over the years. Additional accounts and programs have been created; others have been combined over the years. Additional accounts and programs have been created; others have been combined
or eliminated. Some structural changes already have been enacted for FY2021, with the potential or eliminated. Some structural changes already have been enacted for FY2021, with the potential

79 GAO, 79 GAO, Forest Service: Improvements Need in Internal Controls over Budget Execution Process, GAO-18-56, January , GAO-18-56, January
31, 2018, at https://www.gao.gov/products/GAO-18-56. Hereinafter referred to as GAO-18-56. 31, 2018, at https://www.gao.gov/products/GAO-18-56. Hereinafter referred to as GAO-18-56.
80 U.S. Congress, House Committee on Appropriations, 80 U.S. Congress, House Committee on Appropriations, Consolidated Appropriations Act, 2017, committee print, , committee print,
prepared by Legislative T ext and Explanatory Statement for P.L. 115-31, 115th Cong., 1st sess., H.Prt. 25-289 prepared by Legislative T ext and Explanatory Statement for P.L. 115-31, 115th Cong., 1st sess., H.Prt. 25-289
(Washington: GPO, 2017), p. 1129. (Washington: GPO, 2017), p. 1129.
81 T he quarterly reports are available on the FS Budget website, under “Appropriations-Related Questions from 81 T he quarterly reports are available on the FS Budget website, under “Appropriations-Related Questions from
Congress,” at https://www.fs.usda.gov/about-agency/budget-performance. Congress,” at https://www.fs.usda.gov/about-agency/budget-performance.
82 Explanatory Statement Accompanying Consolidated Appropriations Act, 2018, 82 Explanatory Statement Accompanying Consolidated Appropriations Act, 2018, Congressional Record, vol. 164, , vol. 164,
No.50—Book II (March 22, 2018), p. H2625. No.50—Book II (March 22, 2018), p. H2625.
83 FS, 83 FS, FY2020 Budget Justification, March 2019, p. 177, at https://www.fs.usda.gov/about-agency/budget-performance. , March 2019, p. 177, at https://www.fs.usda.gov/about-agency/budget-performance.
Hereinafter cited as FS, Hereinafter cited as FS, FY2020 Budget Justification.
84 FS, 84 FS, FY2020 Budget Justification, p. 177. , p. 177.
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for more changes, as described below. These changes may improve congressional oversight for more changes, as described below. These changes may improve congressional oversight
moving forward but may make examining funding trends over time more chal enging. moving forward but may make examining funding trends over time more chal enging.
In response to congressional direction to improve FS accounting, budgeting, and management In response to congressional direction to improve FS accounting, budgeting, and management
practices, the Administration requested a budgetary restructuring in FY2020.85 In response to the practices, the Administration requested a budgetary restructuring in FY2020.85 In response to the
request, both the House- and the Senate-passed versions of the FY2020 Interior appropriations request, both the House- and the Senate-passed versions of the FY2020 Interior appropriations
bil sought to establish a Forest Service Operations (FSO) account and to provide new salary and bil sought to establish a Forest Service Operations (FSO) account and to provide new salary and
expense budget line items within several FS accounts and programs. The FY2020 appropriations expense budget line items within several FS accounts and programs. The FY2020 appropriations
law directed the Secretary of Agriculture to establish an FSO account no later than October 1, law directed the Secretary of Agriculture to establish an FSO account no later than October 1,
2020, and to submit a report to the House Appropriations Committee no later than November 1, 2020, and to submit a report to the House Appropriations Committee no later than November 1,
2020, detailing the account adjustments.86 The act specified that the FSO account was to be used 2020, detailing the account adjustments.86 The act specified that the FSO account was to be used
for base salary and expenses for general administrative and management support functions; costs for base salary and expenses for general administrative and management support functions; costs
of facility maintenance, repairs, and leases for buildings and sites; costs of utility and other of facility maintenance, repairs, and leases for buildings and sites; costs of utility and other
business expenses; and costs of other administrative support functions. For FY2021, the FS business expenses; and costs of other administrative support functions. For FY2021, the FS
request incorporated the FSO account and proposed additional changes.87 For FY2021, the House request incorporated the FSO account and proposed additional changes.87 For FY2021, the House
Appropriations Committee indicated continued support for the restructuring but noted there was Appropriations Committee indicated continued support for the restructuring but noted there was
not sufficient information to implement the changes at the time of consideration of the FY2021 not sufficient information to implement the changes at the time of consideration of the FY2021
appropriations.88 appropriations.88
In addition, Congress authorized new mandatory spending for the FS in the Great American In addition, Congress authorized new mandatory spending for the FS in the Great American
Outdoors Act (GAOA).89 Pursuant to the GAOA, funding that previously was provided through Outdoors Act (GAOA).89 Pursuant to the GAOA, funding that previously was provided through
discretionary appropriations is set to be provided through mandatory appropriations starting in discretionary appropriations is set to be provided through mandatory appropriations starting in
FY2021. For example, the GAOA made the LWCF mandatory spending; this change means FY2021. For example, the GAOA made the LWCF mandatory spending; this change means
programs that previously received appropriations from the LWCF (e.g., the Forest Legacy programs that previously received appropriations from the LWCF (e.g., the Forest Legacy
Program; programs under the LA account) wil be considered mandatory spending starting in Program; programs under the LA account) wil be considered mandatory spending starting in
FY2021. In addition, the GAOA established the National Parks and Public Land Legacy FY2021. In addition, the GAOA established the National Parks and Public Land Legacy
Restoration Fund to address deferred-maintenance needs across several federal agencies, Restoration Fund to address deferred-maintenance needs across several federal agencies,
including the FS. The FS is set to receive 15% of the annual deposits to the fund (for FY2021-including the FS. The FS is set to receive 15% of the annual deposits to the fund (for FY2021-
FY2025), which are derived from a portion of federal energy sales. FY2025), which are derived from a portion of federal energy sales.

85 FS, 85 FS, FY2020 Budget Justification, p. 177. , p. 177.
86 P.L. 116-94, Division D, §435. 86 P.L. 116-94, Division D, §435.
87 FS, 87 FS, FY2021 Budget Justification, February 2020, p. 137, at https://www.fs.usda.gov/about-agency/budget-, February 2020, p. 137, at https://www.fs.usda.gov/about-agency/budget-
performance. performance.
88 U.S. Congress, House Committee on Appropriations, 88 U.S. Congress, House Committee on Appropriations, Department of the Interior, Environment, and Related Agencies
Appropriations Bill, 2021, report to accompany H.R. 7612, 116th Cong., 2nd sess., July 14, 2020, H.Rept. 116-448, p. , report to accompany H.R. 7612, 116th Cong., 2nd sess., July 14, 2020, H.Rept. 116-448, p.
112. 112.
89 For more information on the Great American Outdoors Act (GAOA, P.L. 116-152), see CRS In Focus IF11636, 89 For more information on the Great American Outdoors Act (GAOA, P.L. 116-152), see CRS In Focus IF11636, The
Great Am erican Outdoors Act, P.L. 116-152, by Carol Hardy Vincent, Laura B. Comay, and Bill Heniff Jr. , by Carol Hardy Vincent, Laura B. Comay, and Bill Heniff Jr.
Congressional Research Service Congressional Research Service
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Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020)

Appendix. Detailed Discretionary
Appropriations Data
The following table details the discretionary appropriations provided to the Forest Service (FS) The following table details the discretionary appropriations provided to the Forest Service (FS)
from FY2011 through FY2020. It general y distinguishes regular-enacted appropriations, from FY2011 through FY2020. It general y distinguishes regular-enacted appropriations,
supplemental appropriations, and enacted rescissions. In addition, the table details wildfire supplemental appropriations, and enacted rescissions. In addition, the table details wildfire
funding, including appropriations provided pursuant to the wildfire adjustment, and regular, funding, including appropriations provided pursuant to the wildfire adjustment, and regular,
supplemental, and rescinded appropriations for the Wildland Fire Management (WFM) and supplemental, and rescinded appropriations for the Wildland Fire Management (WFM) and
FLAME accounts. FLAME accounts.

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Table A-1. Detailed Forest Service (FS) Discretionary Appropriations by Account, FY2011-FY2020
(mil ions of dol ars) (mil ions of dol ars)

FY2011
FY2012
FY2013
FY2014
FY2015
FY2016
FY2017a
FY2018
FY2019
FY2020
FRR FRR
$306.6 $306.6
$295.3 $295.3
$279.9 $279.9
$292.8 $292.8
$296.0 $296.0
$291.0 $291.0
$288.5 $288.5
$297.0 $297.0
$301.0 $301.0
$308.0 $308.0
Regular
$306.6
$295.3
$279.9
$292.8
$296.0
$291.0
$288.5
$297.0
$300.0
$305.0
Emerg. Suppl.
—
—
—
—
—
—
—
—
$1.0
$3.0
SPF SPF
277.6 277.6
252.9 252.9
239.7 239.7
230.0 230.0
232.7 232.7
237.0 237.0
216.9 216.9
337.1 337.1
347.5 347.5
347.0 347.0
Regular
277.6
252.9
239.7
230.0
232.7
237.0
228.9
335.5
337.0
347.0
Emerg. Suppl.
—
—
—
—
—
—
—
7.5
12.0
—
Rescissions
—
—
—
—
—
—
-12.0
-5.9
-1.5
—
NFS NFS
1,542.2 1,542.2
1,554.1 1,554.1
1,455.3 1,455.3
1,496.3 1,496.3
1,494.3 1,494.3
1,509.4 1,509.4
1,513.3 1,513.3
1,944.4 1,944.4
2,023.0 2,023.0
1,991.5 1,991.5
Regular
1,542.2
1,554.1
1,455.3
1,496.3
1,494.3
1,509.4
1,513.3
1,923.8
1,938.0
1,957.5
Emerg. Suppl.
—
—
—
—
—
—
—
20.7
85.0
34.0
CIM CIM
459.6 459.6
382.1 382.1
346.5 346.5
333.0 333.0
343.4 343.4
348.2 348.2
348.0 348.0
525.6 525.6
467.0 467.0
466.8 466.8
Regular
472.6
394.1
354.3
350.0
360.4
364.2
364.0
449.0
446.0
455.0
Emerg. Suppl.
—
—
4.2
—
—
—
—
91.6
36.0
26.8
Deferral
-13.0
-12.0
-12.0
-17.0
-17.0
-16.0
-16.0
-15.0
-15.0
-15.0
LA LA
32.9 32.9
52.5 52.5
49.8 49.8
43.5 43.5
47.5 47.5
63.4 63.4
54.4 54.4
64.3 64.3
72.6 72.6
76.9 76.9
Regular
32.9
52.5
49.8
43.5
47.5
63.4
54.4
64.3
72.6
78.9
Rescissions
—
—
—
—
—
—
—
—
—
-2.0
WFM WFM
2,058.5 2,058.5
2,050.2 2,050.2
2,547.7 2,547.7
3,077.3 3,077.3
2,636.4 2,636.4
3,909.3 3,909.3
3,175.4 3,175.4
3,406.8 3,406.8
3,725.3 3,725.3
4,307.6 4,307.6
WFM WFM
2,168.0 2,168.0
1,974.9 1,974.9
1,868.8 1,868.8
2,162.3 2,162.3
2,333.3 2,333.3
2,386.3 2,386.3
2,833.4 2,833.4
2,380.3 2,380.3
2,505.0 2,505.0
2,350.6 2,350.6
Suppl.b
—
—
379.9
600.0
—
—
—
500.0
500.0

Emerg.
—
—
—
—
—
700.0
—
184.5
720.3
7.0
Suppl.c
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FY2011
FY2012
FY2013
FY2014
FY2015
FY2016
FY2017a
FY2018
FY2019
FY2020
Rescissionsd
-200.0
-240.0
—
—
—
—
—
—
—
—
FLAME FLAME
290.4 290.4
315.4 315.4
299.0 299.0
315.0 315.0
303.1 303.1
823.0 823.0
342.0 342.0
—
—
—
Emerg.
—
—
—
—
—
—
—
342.0
—
—
Suppl.e
Rescissionsf
-200.0
—
—
—
—
—
—
—
—
—
WF Adj. WF Adj.
—
—
—
—
—
—
—
—
—
1,950.0 1,950.0
Othe Otherg
7.5 7.5
7.1 7.1
5.7 5.7
6.7 6.7
6.0 6.0
6.0 6.0
6.0 6.0
5.7 5.7
5.1 5.1
6.4 6.4
Total
4,685.0
4,594.3
4,924.5
5,479.6
5,056.2
6,364.3
5,596.3
6,580.9
6,941.4
7,504.2
Constant (FY2020) $
5,474.6
5,268.7
5,545.4
6,054.0
5,522.4
6,890.1
5,952.9
6,841.0
7,078.4
7,504.2
Sources: Prepared by the Congressional Research Service using data derived from annual appropriations acts, supplemental appropriations acts, committee reports, Prepared by the Congressional Research Service using data derived from annual appropriations acts, supplemental appropriations acts, committee reports,
explanatory statements, and detailed funding tables prepared by the Houseexplanatory statements, and detailed funding tables prepared by the House and Senate Committees on Appropriations. and Senate Committees on Appropriations.
Notes: FRR = Forest and Rangeland Research; Regular = regular-enacted appropriations; Emerg. Suppl. = emergency-designated supplemental appropriations; SPF = FRR = Forest and Rangeland Research; Regular = regular-enacted appropriations; Emerg. Suppl. = emergency-designated supplemental appropriations; SPF =
State and Private Forestry; Rescissions = revocation of budgetary authority; NFS = National Forest System; CIM = Capital Improvement and Maintenance; LA = Land State and Private Forestry; Rescissions = revocation of budgetary authority; NFS = National Forest System; CIM = Capital Improvement and Maintenance; LA = Land
Acquisition; WFM = Wildland Fire Management; Suppl. = supplemental appropriations; FLAME = reserve account established pursuant to the Federal Land Assistance, Acquisition; WFM = Wildland Fire Management; Suppl. = supplemental appropriations; FLAME = reserve account established pursuant to the Federal Land Assistance,
Management, and Enhancement Act (P.L. 111-88, Division A, Title V, 43 U.S.C. §§1748a et seq.); WF Adj. = wildfire adjustment. See footnotManagement, and Enhancement Act (P.L. 111-88, Division A, Title V, 43 U.S.C. §§1748a et seq.); WF Adj. = wildfire adjustment. See footnote 5 for additional information for additional information
about this table. Column totals may not add due to rounding. about this table. Column totals may not add due to rounding.
a. The FY2017 total reflects a rescission of $6.2 mil ion, which was not al ocated from a specific account. a. The FY2017 total reflects a rescission of $6.2 mil ion, which was not al ocated from a specific account.
b. The FY2018 and FY2019 figures reflect appropriations designated as “additional” but provided in the regular appropriations b. The FY2018 and FY2019 figures reflect appropriations designated as “additional” but provided in the regular appropriations ~~la w~~law for each fiscal year. The FY2013 and for each fiscal year. The FY2013 and
FY2014 figures reflect appropriations provided in a supplemental appropriations law enacted after the regular appropriations for each fiscal year. For al four fiscal FY2014 figures reflect appropriations provided in a supplemental appropriations law enacted after the regular appropriations for each fiscal year. For al four fiscal
years, the funds were not emergency-designated. years, the funds were not emergency-designated.
c. This row reflects emergency-designated supplemental appropriations provided to the WFM account. c. This row reflects emergency-designated supplemental appropriations provided to the WFM account.
d. This row reflects rescissions from the WFM account. d. This row reflects rescissions from the WFM account.
e. This row reflects emergency-designated supplemental appropriations provided to the FLAME account. e. This row reflects emergency-designated supplemental appropriations provided to the FLAME account.
f. f.
This row reflects rescissions from the FLAME account. This row reflects rescissions from the FLAME account.
g. “Other” reflects appropriations to several relatively smal FS discretionary accounts, including for specified land acquisition activities; the Range Betterment Fund; g. “Other” reflects appropriations to several relatively smal FS discretionary accounts, including for specified land acquisition activities; the Range Betterment Fund;
gifts, donations, and bequests for research; management of national forest lands for subsistence use; and , in FY2020, communication site management. gifts, donations, and bequests for research; management of national forest lands for subsistence use; and , in FY2020, communication site management.

CRS- CRS-3132

Forest Service Appropriations: Ten-Year Data and Trends (FY2011-FY2020)

Author Information

Katie Hoover Katie Hoover

Specialist in Natural Resources Policy Specialist in Natural Resources Policy

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