Timber Harvesting on Federal Lands

Changes from July 28, 2021 to October 25, 2022

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Timber Harvesting on Federal Lands
~~July 28, 2021~~October 25, 2022
Congress has granted some federal land management agencies the authority to sell timber from Congress has granted some federal land management agencies the authority to sell timber from
federal lands. Two agencies, the Forest Service (FS) and the Bureau of Land Management federal lands. Two agencies, the Forest Service (FS) and the Bureau of Land Management
Anne A. Riddle
(BLM), conduct timber sales as an authorized use. Together, the FS and the BLM manage 76% (BLM), conduct timber sales as an authorized use. Together, the FS and the BLM manage 76%
Analyst in Natural Analyst in Natural
of federal forest area. FS manages 144.9 million acres of federal forest area. FS manages 144.9 million acres , while BLM manages 37.6 million acres, while BLM manages 37.6 million acres . .
Resources Policy Resources Policy
The other major federal land management agencies, the National Park Service (NPS) and the Fish The other major federal land management agencies, the National Park Service (NPS) and the Fish

and Wildlife Service (FWS), rarely conduct timber sales. and Wildlife Service (FWS), rarely conduct timber sales.

Lands managed by the FS, the National Forest System (NFS), are managed under a multiple use Lands managed by the FS, the National Forest System (NFS), are managed under a multiple use --
sustained yield model pursuant to the Multiple Use-Sustained Yield Act of 1960 (MUSYA). This statute directs FS to sustained yield model pursuant to the Multiple Use-Sustained Yield Act of 1960 (MUSYA). This statute directs FS to
balance multiple uses of their lands and ensure a sustained yield of those uses in perpetuity. Congress, through the National balance multiple uses of their lands and ensure a sustained yield of those uses in perpetuity. Congress, through the National
Forest Management Act (NFMA), has directed FS to engage in long-term land use and resource management planning. Plans Forest Management Act (NFMA), has directed FS to engage in long-term land use and resource management planning. Plans
set the framework for land management, uses, and protection; they are developed through an interdisciplinary process with set the framework for land management, uses, and protection; they are developed through an interdisciplinary process with
opportunities for public participation. In the case of timber, they describe where timber harvesting may occur and include opportunities for public participation. In the case of timber, they describe where timber harvesting may occur and include
measures of sustainable timber harvest levels. FS uses these plans to guide implementation of individual sales, which measures of sustainable timber harvest levels. FS uses these plans to guide implementation of individual sales, which
generate revenue. Congress has specified various uses for this revenue.generate revenue. Congress has specified various uses for this revenue.
Timber harvest on FS lands has varied over time. FS harvest volumes in the 1940s were around 1 Timber harvest on FS lands has varied over time. FS harvest volumes in the 1940s were around 1- to 3 billion board feet per 3 billion board feet per
year. Annual harvest volumes rose from the 1950s through the 1980s, sometimes exceeding 10 billion board feet. Annual year. Annual harvest volumes rose from the 1950s through the 1980s, sometimes exceeding 10 billion board feet. Annual
harvested volumes decreased in the early 1990s and have remained between 2harvested volumes decreased in the early 1990s and have remained between 2.0 and 3 and 3.0 billion board feet since FY2010. The billion board feet since FY2010. The
total dollar value of FS timber harvests generally rose from the early 1940s to over $3 billion in FY1979.total dollar value of FS timber harvests generally rose from the early 1940s to over $3 billion in FY1979. Total value has Total value has
been between $100 million and $300 million since FY2001. From FY2016been between $100 million and $300 million since FY2001. From FY2016 ~~to FY2020,~~ to FY2021, the greatest average annual harvest the greatest average annual harvest
volume on FS lands was from Oregon and Washington.volume on FS lands was from Oregon and Washington.
BLM lands are managed under a multiple use-sustained yield model pursuant to the Federal Land Policy and Management BLM lands are managed under a multiple use-sustained yield model pursuant to the Federal Land Policy and Management
Act of 1976 (FLPMA). This statute directs BLM to balance multiple uses of their lands and ensure a sustained yield of Act of 1976 (FLPMA). This statute directs BLM to balance multiple uses of their lands and ensure a sustained yield of ~~th ose~~those
uses in perpetuity. Congress has directed BLM to engage in long-term land use and resource management planning through uses in perpetuity. Congress has directed BLM to engage in long-term land use and resource management planning through
FLPMA. Plans set the framework for land management, uses, and protection; they are developed made through an FLPMA. Plans set the framework for land management, uses, and protection; they are developed made through an
interdisciplinary process with opportunities for public participation. In the case of timber, they describe where timber interdisciplinary process with opportunities for public participation. In the case of timber, they describe where timber
harvesting may occur and contain measures of sustainable timber harvest levels. The FS and the BLM use these plans to harvesting may occur and contain measures of sustainable timber harvest levels. The FS and the BLM use these plans to
guide implementation of individual sales, which generate revenue. Congress has specified various uses for this revenue. guide implementation of individual sales, which generate revenue. Congress has specified various uses for this revenue.
Although trends in timber activities on BLM lands are challenging to infer from the available data, volumes sold in the past Although trends in timber activities on BLM lands are challenging to infer from the available data, volumes sold in the past
appear to be larger than recent volumes offered for sale. Data on harvested volumes for the BLM are available from FY1994 appear to be larger than recent volumes offered for sale. Data on harvested volumes for the BLM are available from FY1994
onward. During that time, harvested volumes generally have been between 100 million and 300 million board feet annually, onward. During that time, harvested volumes generally have been between 100 million and 300 million board feet annually,
except in FY1994except in FY1994 and between FY2001-FY2003.and between FY2001-FY2003. Total harvest values have declined since the mid-1990s, and have generally Total harvest values have declined since the mid-1990s, and have generally
been between $20 millionbeen between $20 million and $60 million annually since FY2011. From FY2016and $60 million annually since FY2011. From FY2016 ~~to FY2020,~~ to FY2021, the greatest average annual the greatest average annual
harvest volume from BLM lands was from Oregon and Washington.harvest volume from BLM lands was from Oregon and Washington.
Congress has debated the appropriate balance of timber harvesting and other uses on federal lands. Determining the Congress has debated the appropriate balance of timber harvesting and other uses on federal lands. Determining the
proportions of these uses, in whole and on individual lands, is challenging for land management agencies. Preferences for proportions of these uses, in whole and on individual lands, is challenging for land management agencies. Preferences for
certain balances of these uses often stem from values about federal forests’ purposes, such as consideration of economic, certain balances of these uses often stem from values about federal forests’ purposes, such as consideration of economic,
environmental, or recreational values. Debate has also centered on the relationship of timber harvesting levels to forest environmental, or recreational values. Debate has also centered on the relationship of timber harvesting levels to forest
health, including whether changing harvest levels is a desirable forest management tool.health, including whether changing harvest levels is a desirable forest management tool.
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Introduction
Timber harvesting on federal lands is a long- Timber harvesting on federal lands is a long-
Forest Land, Woodland, and Timberland
standing activity which sometimes generates standing activity which sometimes generates
Forest Forest land, woodland, and timberlandland, woodland, and timberland are are al
all controversy. Most timber harvesting on federal controversy. Most timber harvesting on federal
classifications classifications ~~referring~~ referring to lands dominated by trees. to lands dominated by trees.
lands occurs on lands directed to provide a lands occurs on lands directed to provide a
This report, This report, and and al all reported data herein,reported data herein, use use
regular output of multiple uses under current regular output of multiple uses under current
definitions from the decennial assessment definitions from the decennial assessment of forest of forest
resourcesresources prepared by the Forestprepared by the Forest ~~Service~~ Service as required as required
law. Determining the proportions of these law. Determining the proportions of these
by the Forest and Rangeland Renewable Resources by the Forest and Rangeland Renewable Resources
uses, in whole and on individual uses, in whole and on individual lands, is lands, is
Planning Act (RPA, P.L. 93-378). Planning Act (RPA, P.L. 93-378).
~~chal enging~~challenging for land management agencies. for land management agencies.
Forest Land (also referred (also referred to as “forest” in this to as “forest” in this
Often at issue is the appropriate use of federal Often at issue is the appropriate use of federal
report) is defined as land with at least 10% cover by report) is defined as land with at least 10% cover by
lands for timber harvesting under these lands for timber harvesting under these
live trees, live trees, including lands that formerlyincluding lands that formerly had this tree had this tree
policies, including what amount of timber policies, including what amount of timber
cover and cover and ~~wil~~ will be regenerated. be regenerated.
harvesting should occur and what constitutes harvesting should occur and what constitutes
Timberland is defined as forestis defined as forest land that is producing land that is producing
or is capable of producing crops of industrial wood and or is capable of producing crops of industrial wood and
proper balance among timber harvesting and proper balance among timber harvesting and
is not withdrawn from is not withdrawn from timber use by statute or timber use by statute or
other uses. other uses.
regulation. Areas regulation. Areas qualifying as timberland are capable of qualifying as timberland are capable of
producing in excess of 20 cubic feetproducing in excess of 20 cubic feet per acre per year per acre per year
Congress has authorized timber harvesting on Congress has authorized timber harvesting on
of industrial wood. Timberland may be of industrial wood. Timberland may be natural, if trees if trees
certain federal lands under specified certain federal lands under specified
are established by natural regeneration, are established by natural regeneration, or or planted, if if
circumstances. Most timber harvesting on circumstances. Most timber harvesting on
trees are established by human planting or seeding. trees are established by human planting or seeding.
federal lands occurs on two land systems. The federal lands occurs on two land systems. The
Woodland is defined as land with sparse trees with a is defined as land with sparse trees with a
majority of harvests occur on the National majority of harvests occur on the National
tree canopy cover of 5% to 10%, combined with shrubs tree canopy cover of 5% to 10%, combined with shrubs
Forest System (NFS), which is managed by Forest System (NFS), which is managed by
to achieve an to achieve an ~~overal~~ overall cover of woody vegetation over cover of woody vegetation over
the Forest Service (FS) within the Department the Forest Service (FS) within the Department
10%. Woodland is not included in the definition of 10%. Woodland is not included in the definition of
timberland because woodland is not timberland because woodland is not ~~general y~~generally capable capable
of Agriculture (USDA). Harvests also occur of Agriculture (USDA). Harvests also occur
of producing the timber volumes of producing the timber volumes in the definition. in the definition.
on the public lands managed by the Bureau of on the public lands managed by the Bureau of
However, However, ~~timber~~ timber harvesting could occur on woodland. harvesting could occur on woodland.
Land Management (BLM) within the Land Management (BLM) within the
For further information For further information regarding these definitions, see regarding these definitions, see
Department of the Interior (DOI). The FS Department of the Interior (DOI). The FS
Sonja Oswalt, Sonja Oswalt, W. Brad Smith,W. Brad Smith, and Patrick Miles,and Patrick Miles, et al., et al.,
manages 144.9 manages 144.9 ~~mil ion~~million acres of forest, while acres of forest, while
Forest Resources of the United States, 2012: A Technical
the BLM manages 37.6 the BLM manages 37.6 ~~mil ion~~ million acres of forest acres of forest
Document ~~Supporting~~ Supporting the Forest Service Update of the
2010 RPA Assessment. U.S.U.S. Department of Agriculture Department of Agriculture
( (seesee Figure 1).1 Together, FS and BLM forest 1 Together, FS and BLM forest
(USDA), Forest Service (USDA), Forest Service (FS), GTR-WO-91, 2014. (FS), GTR-WO-91, 2014.
comprises 76% of federal forest area and 23% comprises 76% of federal forest area and 23%
~~of al~~ of all forest in the United States. Within their respective forest, the FS has 96.1 forest in the United States. Within their respective forest, the FS has 96.1 ~~mil ion~~million acres of acres of
timberlands, and the BLMtimberlands, and the BLM has 6.1 has 6.1 ~~mil ion~~million acres of timberlands. The United States has 765.5 acres of timberlands. The United States has 765.5
~~mil ion~~ million acres of forest, of which 514.4 acres of forest, of which 514.4 ~~mil ion~~million acres is timberland and 57% is private. The United acres is timberland and 57% is private. The United
States has 57.0 States has 57.0 ~~mil ion~~million acres of woodland.2 acres of woodland.2
Timber harvesting is the physical cutting and removal of trees or parts of trees from a given is the physical cutting and removal of trees or parts of trees from a given
forested site. forested site. Harvested timber, or cut and removed trees, is the raw material for items made of or cut and removed trees, is the raw material for items made of
wood, such as lumber, plywood, paper, and other products. Timber harvesting may occur on wood, such as lumber, plywood, paper, and other products. Timber harvesting may occur on
private, federal, or nonfederal publiclyprivate, federal, or nonfederal publicly owned lands, and may be conducted by the landowner or owned lands, and may be conducted by the landowner or

1 All following1 All following acreage data herein wereacreage data herein were generated asgenerated as part of the forest and rangeland resourcespart of the forest and rangeland resources assessment process assessment process
conducted by FSconducted by FS ~~as required~~ as required under the Forest and Rangelandunder the Forest and Rangeland ~~Renewable Resources~~ Renewable Resources Planning Act of 1974 (RPA, P.L. Planning Act of 1974 (RPA, P.L.
93-378). Data from Sonja Oswalt, Patrick Miles, and Scott Pugh, et al., 93-378). Data from Sonja Oswalt, Patrick Miles, and Scott Pugh, et al., Forest Resources of the United States, 2017: A
Technical ~~Docum ent~~Document Supporting the Forest Service 2020 Update of the RPA ~~Assessm ent~~ Assessment, Forest Service, Forest Service (FS), U.S. (FS), U.S.
Department of Agriculture (USDA),Department of Agriculture (USDA), 2017, https://www.fia.fs.fed.us/program-features/rpa/docs/2017, https://www.fia.fs.fed.us/program-features/rpa/docs/
~~2017RPAFIAT ABLESFINAL_050918~~2017RPAFIATABLESFINAL_050918.pdf, hereinafter referred to as .pdf, hereinafter referred to as RPA 2017.
2 2 RPA 2017. ~~T his~~This source does source does not classify woodlandnot classify woodland by ownership. by ownership.
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Timber Harvesting on Federal Lands

by another entity they by another entity they ~~al ow~~allow to do so. Most timber harvesting in the United States is conducted on to do so. Most timber harvesting in the United States is conducted on
private lands: in 2011, 88% of timber harvests were conducted on private lands, and in 2012, 90% private lands: in 2011, 88% of timber harvests were conducted on private lands, and in 2012, 90%
of wood and paper products in the United States originated on private lands.3 of wood and paper products in the United States originated on private lands.3
Figure 1. FS, BLM, and Other Forest and Woodland

Source: CRS. Data from U.S. GeologicalCRS. Data from U.S. Geological Survey, Gap AnalysisSurvey, Gap Analysis Program (GAP), Protected Areas Database of the Program (GAP), Protected Areas Database of the
United States (PAD-US), version 1.4 Combined Feature Class, 2016, and Jaketon Hewes,United States (PAD-US), version 1.4 Combined Feature Class, 2016, and Jaketon Hewes, Brett ButlerBrett Butler and Greg and Greg
Liknes,Liknes, ~~Forest~~ Forest ownership in the conterminous United States circa 2014: distribution of seven ownership types - ownership in the conterminous United States circa 2014: distribution of seven ownership types -
geospatial dataset. Fort geospatial dataset. Fort ~~Col ins,~~ Collins, CO: Forest ServiceCO: Forest Service Research Data Archive,Research Data Archive, 2017. Data shown are forests2017. Data shown are forests and and
woodlands. woodlands.
Notes: FS and BLM land that is not forest or woodland is not depicted. Forest FS and BLM land that is not forest or woodland is not depicted. Forest or woodland in or woodland in al all other other
ownership types, including private, public nonfederal, and federal non-FS and non-BLM ownership, is depicted ownership types, including private, public nonfederal, and federal non-FS and non-BLM ownership, is depicted
in blue. in blue.
FS and BLM conduct FS and BLM conduct timber sales as the most general way to as the most general way to ~~al ow~~allow timber harvesting on their timber harvesting on their
respective lands, although they may respective lands, although they may ~~al ow~~allow harvesting in other ways.4 A timber sale is a formal harvesting in other ways.4 A timber sale is a formal
process whereby an entity may purchase a contract to cut and remove specified timber. FS and process whereby an entity may purchase a contract to cut and remove specified timber. FS and
BLM receive revenue from the sale of the contract. Information on timber harvesting in this BLM receive revenue from the sale of the contract. Information on timber harvesting in this
report, such as harvested volume, harvested value, and other statistics, derives from FS and BLM report, such as harvested volume, harvested value, and other statistics, derives from FS and BLM
data and may include timber harvested through timber sales or other means. data and may include timber harvested through timber sales or other means.

3 Sonja Oswalt,3 Sonja Oswalt, W. BradW. Brad Smith, and Patrick Miles, et al., Smith, and Patrick Miles, et al., Forest Resources of the United States, 2012: A Technical
~~Docum ent~~Document Supporting the Forest Service Update of the 2010 RPA ~~Assessm ent. FS, USDA, GT R~~Assessment. FS, USDA, GTR-WO-91, 2014, and -WO-91, 2014, and
Sonja OswaltSonja Oswalt and W. Bradand W. Brad Smith, Smith, U.S. Forest Resource Facts and Historical Trends, FS,, FS, USDA,USDA, FS-1035, 2014. FS-1035, 2014.
4 For general authorities regarding timber sales on FS 4 For general authorities regarding timber sales on FS and BLM land, see “and BLM land, see “~~Statut ory~~Statutory Authorities for Harvesting Authorities for Harvesting
~~T imber~~Timber” in the FS” in the FS and BLMand BLM sections. A detailedsections. A detailed ~~discussion~~ discussion of specific authorities allowing FSof specific authorities allowing FS to sell or otherwise to sell or otherwise
disposedispose of timber through various vehicles, or in specified circumstances, is beyond the scope of this report.of timber through various vehicles, or in specified circumstances, is beyond the scope of this report.
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Timber Harvesting on Federal Lands

Both FS and BLM timber sale planning and implementation proceed under similar principles of Both FS and BLM timber sale planning and implementation proceed under similar principles of
achieving multiple use and sustained yield. Both agencies conduct timber harvesting for various achieving multiple use and sustained yield. Both agencies conduct timber harvesting for various
purposes. Both plan long-term timber management by designating areas that can support purposes. Both plan long-term timber management by designating areas that can support
sustainable timber harvest and calculating yields that can be taken without permanent sustainable timber harvest and calculating yields that can be taken without permanent
impairment. In the short term, both agencies create plans for timber sales, determine the value of impairment. In the short term, both agencies create plans for timber sales, determine the value of
offered timber and specify what timber may be cut, and conduct sales in a competitive manner offered timber and specify what timber may be cut, and conduct sales in a competitive manner
open to the public.5open to the public.5
Timber harvesting may also occur on two other federal land systems, the National Park System, Timber harvesting may also occur on two other federal land systems, the National Park System,
managed by the National Park Service, and the National Wildlifemanaged by the National Park Service, and the National Wildlife Refuge System (NWRS), Refuge System (NWRS),
managed by the Fish and Wildlifemanaged by the Fish and Wildlife Service (both agencies are within DOI). In the case of the Service (both agencies are within DOI). In the case of the
National Park System, the Secretary may dispose of timber to control insects and diseases or to National Park System, the Secretary may dispose of timber to control insects and diseases or to
conserve natural or historic resources.6 In the case of the NWRS, the Secretary of the Interior may conserve natural or historic resources.6 In the case of the NWRS, the Secretary of the Interior may
permit timber harvesting to achieve desired fish and wildlifepermit timber harvesting to achieve desired fish and wildlife habitat conditions. On both systems, habitat conditions. On both systems,
timber harvesting is rare, and harvested volumes are timber harvesting is rare, and harvested volumes are ~~smal .7~~
small.7 This report provides an overview of timber harvesting on FS and BLM lands. The report This report provides an overview of timber harvesting on FS and BLM lands. The report
describes general statutory authorities and regulations, planning activities, timber sales, and describes general statutory authorities and regulations, planning activities, timber sales, and
trends in the volume and value of timber harvested, first from FS lands, and then for BLM lands.8 trends in the volume and value of timber harvested, first from FS lands, and then for BLM lands.8
It concludes with a discussion of issues Congress has debated concerning timber harvesting and It concludes with a discussion of issues Congress has debated concerning timber harvesting and
federal lands.federal lands.
The National Forest System
The National Forest System comprises nearly 193 The National Forest System comprises nearly 193 ~~mil ion~~million acres. It is made up of 154 national acres. It is made up of 154 national
forests, national grasslands, and other units such as research and experimental areas.9 forests, national grasslands, and other units such as research and experimental areas.9
Approximately 75% of national forest acreage is located in 15 states.10 As discussed, the NFS Approximately 75% of national forest acreage is located in 15 states.10 As discussed, the NFS
contains 144.9 contains 144.9 ~~mil ion~~million acres of forest and woodland, of which 66% are considered timberland.11 acres of forest and woodland, of which 66% are considered timberland.11

5 For greater detail, see FS5 For greater detail, see FS and BLMand BLM “Planning Rules and Process” sections. Some agency authorities and resources “Planning Rules and Process” sections. Some agency authorities and resources
describedescribe this this process; for BLM, see 43 C.F.R.this this process; for BLM, see 43 C.F.R. §5410 and BLM Handbook H-5410-1, §5410 and BLM Handbook H-5410-1, Annual Forest Product Sale
Plan; for FS,; for FS, see see FS Manual 2431.04, Management of ~~Tim ber~~Timber Sale Program . .
6 54 U.S.C. 6 54 U.S.C. §100753. §100753.
7 For an overview of general purposes, authorities, and organization of the NWRS and the different units of the NPS, 7 For an overview of general purposes, authorities, and organization of the NWRS and the different units of the NPS,
see respectively CRSsee respectively CRS Report R45265, Report R45265, U.S. Fish and Wildlife Service: An Overview,, by R. Eliot Crafton, and CRS by R. Eliot Crafton, and CRS
Report R41816, Report R41816, National Park System : What Do the Different Park Titles Signify? , by Laura B. Comay. , by Laura B. Comay.
8 Unless otherwise specified, this report discusses 8 Unless otherwise specified, this report discusses harvested volume, also called cut volume, and harvested value, also harvested volume, also called cut volume, and harvested value, also
calledcalled cut value. Harvested volume refers to the amount of timber physically removed in a given period of time. cut value. Harvested volume refers to the amount of timber physically removed in a given period of time.
VolumeVolume of timber harvested in a given year typically differs from timber sold or timber offered for sale in that year. of timber harvested in a given year typically differs from timber sold or timber offered for sale in that year.
Harvested valueHarvested value refers to the amount paid for the cut timber after it is removed. refers to the amount paid for the cut timber after it is removed.
9 FS,9 FS, USDA,USDA, Land Areas Report (LAR), 2018, 2018, ~~T able~~Table 1, at https://www.fs.fed.us/land/staff/lar/LAR2018/ 1, at https://www.fs.fed.us/land/staff/lar/LAR2018/
~~LART able01~~LARTable01.pdf. .pdf.
10 10 ~~T hese~~These states are FS states are FS regions 1 through 6, which includesregions 1 through 6, which includes the states of Arizona, California, Colorado, Idaho, Kansas, the states of Arizona, California, Colorado, Idaho, Kansas,
Montana, Nebraska, Nevada, NewMontana, Nebraska, Nevada, New Mexico, North Dakota, Oregon, South Dakota, Utah, Washington, and Wyoming. Mexico, North Dakota, Oregon, South Dakota, Utah, Washington, and Wyoming.
11 Data from RPA 2017. For more information on the NFS, see CRS 11 Data from RPA 2017. For more information on the NFS, see CRS Report R43872, Report R43872, National Forest System
~~Managem ent~~Management: Overview, Appropriations, and Issues for Congress, by, by Katie Hoover. Katie Hoover.
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Statutory Authorities for Harvesting Timber
Most of the lands contained in the modern Forest Service were reserved from the public lands in Most of the lands contained in the modern Forest Service were reserved from the public lands in
the late 19th and early 20th centuries, in what were first the late 19th and early 20th centuries, in what were first ~~cal ed~~called “forest reserves.”12 The forest “forest reserves.”12 The forest
reserves were reserves were ~~initial y~~initially managed by the DOI and later moved to the USDA and the Forest managed by the DOI and later moved to the USDA and the Forest
Service.13 Through the Organic Administration Act, Congress specified that the purpose of these Service.13 Through the Organic Administration Act, Congress specified that the purpose of these
forests was to “improve and protect the forest within the reservation … and to furnish a forests was to “improve and protect the forest within the reservation … and to furnish a
continuous supply of timber for the use and necessities of the citizens of the United States,” in continuous supply of timber for the use and necessities of the citizens of the United States,” in
addition to protecting water flows.14 The act authorized timber sales of “dead, matured or large addition to protecting water flows.14 The act authorized timber sales of “dead, matured or large
growth of trees” and set out procedures for conducting them.15growth of trees” and set out procedures for conducting them.15
Congress expanded the purposes for the national forests, and developed management goals to Congress expanded the purposes for the national forests, and developed management goals to
achieve those purposes, through the Multiple Use-Sustained Yieldachieve those purposes, through the Multiple Use-Sustained Yield Act of 1960 (MUSYA).16 Act of 1960 (MUSYA).16
Congress added the provision of fish and wildlife habitat, recreation, energy and mineral Congress added the provision of fish and wildlife habitat, recreation, energy and mineral
development, and livestock grazing as official purposes of the national forests, in addition to development, and livestock grazing as official purposes of the national forests, in addition to
timber harvesting and watershed protection. To supply these activities, management of the forests’ timber harvesting and watershed protection. To supply these activities, management of the forests’
resources is to be organized for multiple uses in a “harmonious and coordinated” manner that resources is to be organized for multiple uses in a “harmonious and coordinated” manner that
considers the combination of uses that best meets the needs of the American people, not that considers the combination of uses that best meets the needs of the American people, not that
necessarily yields the largest dollar return or output. The act also directs a sustained yield of necessarily yields the largest dollar return or output. The act also directs a sustained yield of
products and services, meaning high-level regular output in perpetuity without impairing the products and services, meaning high-level regular output in perpetuity without impairing the
lands’ productivity.17lands’ productivity.17
Planning, Sale Process, and Revenues
Congress has directed FS to engage in long-term land use and resource management. Plans set the Congress has directed FS to engage in long-term land use and resource management. Plans set the
framework for land management, uses, and protection. They are developed through an framework for land management, uses, and protection. They are developed through an
interdisciplinary process with opportunities for public participation. FS uses these plans to guide interdisciplinary process with opportunities for public participation. FS uses these plans to guide
implementation of site-specific activities. In the case of timber, plans describe where timber implementation of site-specific activities. In the case of timber, plans describe where timber
harvesting may occur and include measures of sustainable timber harvest levels, and are used to harvesting may occur and include measures of sustainable timber harvest levels, and are used to

12 Congress granted the President the authority to establish forest reserves from lands in the public domain12 Congress granted the President the authority to establish forest reserves from lands in the public domain through the through the
Forest Reserve Act of March 3, 1891, P.L. 51Forest Reserve Act of March 3, 1891, P.L. 51 -561. Congress repealed the President’s authority to establish forest -561. Congress repealed the President’s authority to establish forest
reserves in certain states through the Agriculture Appropriations Act of March 4, 1907 (Preserves in certain states through the Agriculture Appropriations Act of March 4, 1907 (P .L. 60-242) and renamed the .L. 60-242) and renamed the
forest reserves “national forests.” Congress repealed the President’s authority to establish forest reserves “national forests.” Congress repealed the President’s authority to establish ~~nat ional~~national forests altogether forests altogether
with the passage of the National Forest Management Act of 1976 (NFMA, P.L. 94-588; seewith the passage of the National Forest Management Act of 1976 (NFMA, P.L. 94-588; see “ “Planning, Sale Process,
and Revenues” in the FSin the FS section below).section below). For example, in 1910, national forests comprised 172 million acres. SeeFor example, in 1910, national forests comprised 172 million acres. See FS, FS,
USDA,USDA, Land Areas Report (LAR), 2018, , 2018, ~~T able~~Table 21 for data on historical NFS 21 for data on historical NFS acres. acres.
13 The Transfer~~13 T he T ransfer~~ Act of 1905 (33 Stat. 628, 16 U.S.C. §472) moved management of these lands to the Bureau of Forestry Act of 1905 (33 Stat. 628, 16 U.S.C. §472) moved management of these lands to the Bureau of Forestry
in the USDA. Secretary of Agriculturein the USDA. Secretary of Agriculture James Wilson changed the name of the BureauJames Wilson changed the name of the Bureau of Forestry to the Forest Service of Forestry to the Forest Service
through General Order No. 84, issuedthrough General Order No. 84, issued ~~February~~ February 1, 1905. U.S. Congress,1, 1905. U.S. Congress, Senate, Senate, Rules and Regulations governing the
~~Departm ent~~Department of Agriculture in its various branches, Furnished, Furnished in response to a resolution adopted by the Senate of the in response to a resolution adopted by the Senate of the
United States , prepared by Government Printing Office, United States , prepared by Government Printing Office, ~~59 th~~59th Cong., 2nd sess., 398 (Washington: GPO, 1907). Cong., 2nd sess., 398 (Washington: GPO, 1907).
14 Act of June 4, 1897, Organic Administration Act, hereinafter referred to as the FS Organic Act (16 U.S.C. 14 Act of June 4, 1897, Organic Administration Act, hereinafter referred to as the FS Organic Act (16 U.S.C. §473§473 --
476); timber authorization in seventh and ninth paragraphs under “Surveying the Public Lands.”476); timber authorization in seventh and ninth paragraphs under “Surveying the Public Lands.” ~~T he~~ The act was amended act was amended
by the National Forest Management Act of 1976, described belowby the National Forest Management Act of 1976, described below in the FSin the FS “ “Planning, Sale Process, and Revenues”
section. section.
15 While the FS15 While the FS Organic Act provides a general authorization for harvesting timber, other laws have provided specific Organic Act provides a general authorization for harvesting timber, other laws have provided specific
authorities. For example, salvage sale authority was provided in the National Forest Management Act, P.L. 94-588, authorities. For example, salvage sale authority was provided in the National Forest Management Act, P.L. 94-588,
among others. Detailed description of special authorities is beyond the scope of this report. among others. Detailed description of special authorities is beyond the scope of this report.
16 P.L. 86-517, 16 U.S.C. §§528 et seq. 16 P.L. 86-517, 16 U.S.C. §§528 et seq.
17 16 U.S.C.17 16 U.S.C. §531b. §531b.
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guide implementation of individual guide implementation of individual sales. These sales generate revenues. Congress has specified sales. These sales generate revenues. Congress has specified
various uses for these revenues. various uses for these revenues.
Congress directed the Forest Service to conduct long-term planning and management through the Congress directed the Forest Service to conduct long-term planning and management through the
passage of the National Forest Management Act of 1976 (NFMA).18 NFMA requires the FS to passage of the National Forest Management Act of 1976 (NFMA).18 NFMA requires the FS to
prepare a land and resource management plan—often prepare a land and resource management plan—often ~~cal ed~~called a “forest plan”—for each NFS unit.19 a “forest plan”—for each NFS unit.19
These plans are to be revised at least every 15 years. The FS has issued regulations to implement These plans are to be revised at least every 15 years. The FS has issued regulations to implement
the planning requirement—often the planning requirement—often ~~cal ed~~called “planning rules”—and to establish the procedures for “planning rules”—and to establish the procedures for
developing, amending, and revising forest plans. The first planning rule was issued in 1979 and developing, amending, and revising forest plans. The first planning rule was issued in 1979 and
later revised; the current rule dates from 2012.20 Forest planning and implementation later revised; the current rule dates from 2012.20 Forest planning and implementation ~~general y~~generally
proceed as described below. Forest Service timber planning and administration proceed under proceed as described below. Forest Service timber planning and administration proceed under
general FS planning procedures.21 general FS planning procedures.21
Forest plans guide management of the plan area by specifying objectives, standards, and Forest plans guide management of the plan area by specifying objectives, standards, and
guidelines for resources and activities. They contain certain components required by statute, such guidelines for resources and activities. They contain certain components required by statute, such
as components addressing provision of outdoor recreation, range, wildlife, fish, and timber. as components addressing provision of outdoor recreation, range, wildlife, fish, and timber.
Among the most general required components addressing timber are requirements to identify Among the most general required components addressing timber are requirements to identify
areas and quantities for timber harvesting.22 The FS must identify lands that may be areas and quantities for timber harvesting.22 The FS must identify lands that may be not suited for
timber production.23 .23 Al All other lands in the NFS unit are considered suitable for timber production. other lands in the NFS unit are considered suitable for timber production.
The plan must contain the The plan must contain the allowable sale quantity, the measure of timber that can be removed the measure of timber that can be removed
~~annual y~~annually without impairing future yield, although FS also considers other measures of sustainable without impairing future yield, although FS also considers other measures of sustainable
yield in planning over various time horizons.24 The yield in planning over various time horizons.24 The ~~al owable~~allowable sale quantity informs the amount of sale quantity informs the amount of
timber that can be removed timber that can be removed ~~annual y~~ annually over a 10-year plan period.25 Plans are required to be over a 10-year plan period.25 Plans are required to be
developed with public participation and in accordance with various other administrative and developed with public participation and in accordance with various other administrative and
environmental statutes, such as the National Environmental Policy Act (NEPA).26environmental statutes, such as the National Environmental Policy Act (NEPA).26

18 P.L. 93-378 P.L. 94-588, 16 U.S.C. §1601 et al. (NFMA). NFMA amended the Forests and Rangelands18 P.L. 93-378 P.L. 94-588, 16 U.S.C. §1601 et al. (NFMA). NFMA amended the Forests and Rangelands Renewable Renewable
ResourcesResources Planning Act (RPA), P.L. 93-378, 16 U.S.C. §§1600 et seq. Planning Act (RPA), P.L. 93-378, 16 U.S.C. §§1600 et seq.
19 NFS 19 NFS units may consist of more than one national forest. units may consist of more than one national forest.
20 36 C.F.R. §221. For greater detail on the history of the planning rule, see CRS20 36 C.F.R. §221. For greater detail on the history of the planning rule, see CRS Report R43872, Report R43872, National Forest
System ~~Managem ent~~ Management: Overview, Appropriations, and Issues for Congress,, by Katie Hoover; see also Forest Service, by Katie Hoover; see also Forest Service,
“History of Forest Planning,” https://www.fs.usda.gov/main/planningrule/history. “History of Forest Planning,” https://www.fs.usda.gov/main/planningrule/history.
21 Information in this section derives from a general survey of selected FS21 Information in this section derives from a general survey of selected FS laws,laws, regulations, and other authorities, such regulations, and other authorities, such
as manuals andas manuals and handbooks. For FShandbooks. For FS timber planning and administration authorities, see 16 U.S.C. §472a, 16 U.S.C. timber planning and administration authorities, see 16 U.S.C. §472a, 16 U.S.C.
§1611, 16 U.S.C.§1611, 16 U.S.C. §1604, 36 C.F.R. §219, 36 C.F.R.§1604, 36 C.F.R. §219, 36 C.F.R. §221, 36 C.F.R.§221, 36 C.F.R. §223, FS§223, FS Manual SeriesManual Series 1900, FS Manual Series 1900, FS Manual Series
2400, FS Handbook 1901.12, FS Handbook Series2400, FS Handbook 1901.12, FS Handbook Series 2400. In general, if a 2400. In general, if a ~~c ited~~cited activity is addressed activity is addressed in statute, statute is in statute, statute is
cited, although other authorities may exist (for example, in regulation or agency handbooks, manuals, or other cited, although other authorities may exist (for example, in regulation or agency handbooks, manuals, or other
directives); if a cited activity is addresseddirectives); if a cited activity is addressed in regulations, regulations are cited, although in regulations, regulations are cited, although ~~o ther~~other authorities may exist (for authorities may exist (for
example, in agency handbooks, manuals, or other directives); if a cited activity is addressedexample, in agency handbooks, manuals, or other directives); if a cited activity is addressed in agency handbooks, in agency handbooks,
manuals, or other directives, at least one such authority is cited. manuals, or other directives, at least one such authority is cited.
22 Statutes also require 22 Statutes also require other components addressing timber harvesting in forest plans, suchother components addressing timber harvesting in forest plans, such as components addressing as components addressing
circumstances wherein harvest levels may becircumstances wherein harvest levels may be increased basedincreased based on intensified management practices, or components on intensified management practices, or components
addressingaddressing circumstances undercircumstances under which harvests to regenerate evenwhich harvests to regenerate even -aged stands may be-aged stands may be used,used, among others. See, for among others. See, for
example, 16 U.S.C.example, 16 U.S.C. §1600(g)(3)(D-F), 16 U.S.C. §1600(m). §1600(g)(3)(D-F), 16 U.S.C. §1600(m).
23 23 ~~T he~~The FS removes from consideration lands that cannot legally be harvested due FS removes from consideration lands that cannot legally be harvested due to executive or legislative action, are to executive or legislative action, are
not forested, have other desired conditions establishednot forested, have other desired conditions established in planning, or willin planning, or will be difficult to restock or damagingbe difficult to restock or damaging to to
harvest. 16 U.S.C. §1604(k). harvest. 16 U.S.C. §1604(k).
24 16 U.S.C. 24 16 U.S.C. §1611(a). §1611(a).
25 See25 See FS FS Handbook 1901.20, Chapter 60, Handbook 1901.20, Chapter 60, Forest Vegetation Resource Management, FS, Manual 2410, , FS, Manual 2410, Timber
Resource ~~Managem ent~~Management Planning, and FS, FSand FS, FS Handbook 2409.13, Handbook 2409.13, ~~Tim ber~~Timber Resource Planning Handbook for a for a
description of other concepts FS may use in planning for shortdescription of other concepts FS may use in planning for short - and long-term sustainable yield. - and long-term sustainable yield.
26 P.L. 91-190, 42 U.S.C. §§4321-4347; for an overview of NEPA, see CRS26 P.L. 91-190, 42 U.S.C. §§4321-4347; for an overview of NEPA, see CRS Report RL33152, Report RL33152, The National
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Forest plans may consider harvesting for various purposes—for example, to produce timber or to Forest plans may consider harvesting for various purposes—for example, to produce timber or to
achieve and maintain desired resource conditions, such as habitat improvement, fire risk achieve and maintain desired resource conditions, such as habitat improvement, fire risk
reduction, and sanitation.27 If the forest plan identifies lands as suitable for timber production, the reduction, and sanitation.27 If the forest plan identifies lands as suitable for timber production, the
plan must address timber harvesting on those lands.28 If the forest plan considers timber plan must address timber harvesting on those lands.28 If the forest plan considers timber
harvesting for purposes other than producing timber, it must delineate areas where such activities harvesting for purposes other than producing timber, it must delineate areas where such activities
may occur. These areas may be identified by forest type, geographic area, or other criteria.29may occur. These areas may be identified by forest type, geographic area, or other criteria.29
FS conducts timber sales to achieve the objectives in the forest plan. FS establishes a sale FS conducts timber sales to achieve the objectives in the forest plan. FS establishes a sale
schedule and timber sale project plan, which may include more than one timber sale.30 The plan schedule and timber sale project plan, which may include more than one timber sale.30 The plan
estimates volume offered, acreage, and harvest methods for the relevant sales. Site-specific timber estimates volume offered, acreage, and harvest methods for the relevant sales. Site-specific timber
harvests must also comport with NEPA and relevant statutes, including any requirement for site-harvests must also comport with NEPA and relevant statutes, including any requirement for site-
specific environmental analysis and review. specific environmental analysis and review.
Prior to an individual Prior to an individual sale, FS marks and appraises the timber to be offered. FS may designate sale, FS marks and appraises the timber to be offered. FS may designate
timber in one of three ways: physical marking, a written description of specific trees for harvest timber in one of three ways: physical marking, a written description of specific trees for harvest
((~~cal ed~~called description)), or a written description of desired post-harvest stand characteristics (or a written description of desired post-harvest stand characteristics (~~cal ed~~called
prescription).31 FS creates a sale package, including a prospectus, sample contract, and other ).31 FS creates a sale package, including a prospectus, sample contract, and other
required documentation; some requirements are site-specific.32 FS advertises the package at an required documentation; some requirements are site-specific.32 FS advertises the package at an
appraised starting price.33 Interested parties may bid on the package. A contract is awarded to the appraised starting price.33 Interested parties may bid on the package. A contract is awarded to the
highest bidder provided legal conditions are met.34 The winning bidder conducts the timber highest bidder provided legal conditions are met.34 The winning bidder conducts the timber
harvest according to the terms—such as timeline, harvest method, and road construction harvest according to the terms—such as timeline, harvest method, and road construction
conditions—specified in the contract. Timber harvests must conditions—specified in the contract. Timber harvests must ~~general y~~generally be completed in 3 years, be completed in 3 years,
with a maximum term of 10 years.35with a maximum term of 10 years.35
Timber sales generate revenue, and disposition of this revenue depends on several factors. Timber sales generate revenue, and disposition of this revenue depends on several factors.
Congress has established several funds for FS to retain and use timber sale receipts. Depending Congress has established several funds for FS to retain and use timber sale receipts. Depending
on the type of sale, among other factors, FS may be required to make certain deposits to these on the type of sale, among other factors, FS may be required to make certain deposits to these
funds. If any portion of receipts are not required to be deposited, FS may distribute receipts funds. If any portion of receipts are not required to be deposited, FS may distribute receipts
among funds at their discretion, including depositing among funds at their discretion, including depositing al all revenue in a single fund. The money in revenue in a single fund. The money in
these funds may be used by the FS for a variety of purposes, sometimes without further these funds may be used by the FS for a variety of purposes, sometimes without further
appropriation (i.e., as mandatory appropriations).36 appropriation (i.e., as mandatory appropriations).36 SeeSee Table A-1 for a list of these funds. A more for a list of these funds. A more

~~Environm ental~~ Environmental Policy Act (NEPA): Background and ~~Im plementation~~Implementation, by Linda Luther. , by Linda Luther.
27 36 C.F.R. §219.11. 27 36 C.F.R. §219.11.
28 36 C.F.R. §219.11(b). 28 36 C.F.R. §219.11(b).
29 FS,29 FS, Manual 1920, Manual 1920, Land and Resource Management Planning and FS, FSand FS, FS HandbookHandbook 1909.12, 1909.12, Land and Resource
~~Managem ent~~Management Planning Handbook.
30 FS, 30 FS, ManualManual 2431.042431.04, Management of Timber Sale Program.
31 In 2014, P.L. 113-79 allowed the FS31 In 2014, P.L. 113-79 allowed the FS to denote trees by description or prescription. Before this, trees could only be to denote trees by description or prescription. Before this, trees could only be
denoted by physical marking. 16 U.S.C.denoted by physical marking. 16 U.S.C. §472a(g).§472a(g).
32 For example, if revenue will 32 For example, if revenue will be be deposited into a specific fund, additional documentation may be requireddeposited into a specific fund, additional documentation may be required in the in the
package. FS,package. FS, Manual 2430, Manual 2430, ~~Com m ercial Tim ber~~Commercial Timber Sales, and FS, and FS, Handbook 2409.18, Handbook 2409.18, ~~Tim ber~~Timber Sale Preparation
Handbook.
33 16 U.S.C. 33 16 U.S.C. §472a(d).§472a(d).
34 16 U.S.C.34 16 U.S.C. §472a(e).§472a(e).
35 16 U.S.C.35 16 U.S.C. §472a(c). §472a(c).
36 For information on FS funds and receipts, see the “Revenue, Receipts, and 36 For information on FS funds and receipts, see the “Revenue, Receipts, and ~~T ransfers~~Transfers” section of the annual FS ” section of the annual FS
~~Budget Justifications,~~ budget justifications (e.g., p. 12 of the FY2021 e.g., p. 12 of the FY2021 ~~Budget Justification~~budget justification at https://www.fs.fed.us/sites/default/files/ at https://www.fs.fed.us/sites/default/files/
media_wysiwyg/usfs-fy-2021-budgetmedia_wysiwyg/usfs-fy-2021-budget -justification.pdf-justification.pdf~~. FS~~ ). FS allocates some revenues to entities as requiredallocates some revenues to entities as required under under
revenue-sharing programs, generally states or local governments. revenue-sharing programs, generally states or local governments. ~~T he~~The relationship between allocation of revenue in this relationship between allocation of revenue in this
manner and deposits into timber revenue fundsmanner and deposits into timber revenue funds is determined by law.is determined by law. A detailed discussionA detailed discussion of this topic is beyond the of this topic is beyond the
scope of this report. For more information on some revenue-sharing programs, see CRSscope of this report. For more information on some revenue-sharing programs, see CRS Report Report ~~RL31392,~~ ~~PILT~~R46260, The Payments
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detailed discussion of revenue levels, expenditures, and issues related to FS timber revenue funds detailed discussion of revenue levels, expenditures, and issues related to FS timber revenue funds
is outside the scope of this report.is outside the scope of this report.
Timber Harvests from the NFS
Timber harvesting is one of many authorized uses of the NFS. The amount of timber harvested Timber harvesting is one of many authorized uses of the NFS. The amount of timber harvested
from the NFS, and its relative proportion of total U.S. timber supply, has fluctuated over time. from the NFS, and its relative proportion of total U.S. timber supply, has fluctuated over time.
This section provides an overview of timber volume harvested from the NFS, and value of those This section provides an overview of timber volume harvested from the NFS, and value of those
harvests, along with some economic and historical factors harvests, along with some economic and historical factors ~~which~~that may have contributed to may have contributed to
observed changes. observed changes.
The volume of timber harvested from the national forests (and their precursors, the forest The volume of timber harvested from the national forests (and their precursors, the forest
reserves) increased slowly from 1898 until the 1940s.37 Most demand for wood was met by reserves) increased slowly from 1898 until the 1940s.37 Most demand for wood was met by
private timberlands; by 1940, for example, FS lands supplied 2% of U.S. timber supply.38private timberlands; by 1940, for example, FS lands supplied 2% of U.S. timber supply.38
In the post-World War II era, timber harvest volume from the NFS grew ( In the post-World War II era, timber harvest volume from the NFS grew (seesee Figure 2).39 The ).39 The
timber supply from private forestry was unable to keep pace with the increased demand, due in timber supply from private forestry was unable to keep pace with the increased demand, due in
part to high harvest levels during WWII.40 In the 1950s, the FS began to raise harvest limits.41 part to high harvest levels during WWII.40 In the 1950s, the FS began to raise harvest limits.41
Harvests rose from 1-3 Harvests rose from 1-3 ~~bil ion~~billion board feet (abbreviated BBF) board feet (abbreviated BBF) ~~annual y~~annually in the early 1940s to more in the early 1940s to more
than 10 BBFthan 10 BBF in some years of the 1960s and 1970s.42 According to historical data from one in some years of the 1960s and 1970s.42 According to historical data from one
source, harvest from the NFS rose from 9% of total U.S. harvest in 1952 to 16% in 1962 and source, harvest from the NFS rose from 9% of total U.S. harvest in 1952 to 16% in 1962 and
1970, and 15% in 1976.431970, and 15% in 1976.43
Harvest volume declined from the mid-1970s to the early 1980s. Harvest on FS lands shifted to Harvest volume declined from the mid-1970s to the early 1980s. Harvest on FS lands shifted to
more marginal timberlands; in part, clear-cutting in the previous decades had reduced tree volume more marginal timberlands; in part, clear-cutting in the previous decades had reduced tree volume
availableavailable for harvest in productive areas.44 This period also coincided with recessions in 1980 and for harvest in productive areas.44 This period also coincided with recessions in 1980 and
1982, which may have reduced demand. 1982, which may have reduced demand.

~~(Paym ents in Lieu of Taxes): Som ewhat Sim plified~~ ~~, by Katie Hoover, and CRS~~ in Lieu of Taxes (PILT) Program: An Overview, by R. Eliot Crafton and CRS Report R41303, Report R41303, The Secure Rural
Schools and ~~Com m unity Self-Determ ination~~Community Self-Determination Act: Background and Issues, by Katie Hoover. , by Katie Hoover.
37 For more information about the FS before 1940, see Paul Hirt, 37 For more information about the FS before 1940, see Paul Hirt, A Conspiracy of Optimism: Management of the
National Forests since World ~~War~~ War Two (Lincoln, NE: University of Nebraska Press, 1994). (Lincoln, NE: University of Nebraska Press, 1994).
38 38 ~~T erry~~Terry West, West, Centennial Mini-Histories of the Forest Service, USDA,, USDA, Report FS-518, 1992. See also MilesReport FS-518, 1992. See also Miles Burnett Burnett
and Charles Davis, “Getting Out the Cut: Politics and National Forest and Charles Davis, “Getting Out the Cut: Politics and National Forest ~~T imber~~Timber Harvests, 1960 Harvests, 1960 -1995.” -1995.” Administration &
Society, vol. 34, no. 2 (2002): pp. 202-228. vol. 34, no. 2 (2002): pp. 202-228.
39 Deborah Che, “ 39 Deborah Che, “~~T he~~The new economy and the forest: rural development in the post new economy and the forest: rural development in the post -industrial spaces of the rural -industrial spaces of the rural
Alleghenies,” Alleghenies,” Social Science Quarterly vol. 84, no. 4, (2003) pp. 963-978vol. 84, no. 4, (2003) pp. 963-978.
40 Miles Burnett and Charles Davis, “Getting Out the Cut: Politics and National Forest 40 Miles Burnett and Charles Davis, “Getting Out the Cut: Politics and National Forest ~~T imber~~Timber Harvests, 1960-1995.” Harvests, 1960-1995.”
~~Adm inistration~~Administration & Society, vol. 34, no. 2 (2002): pp. 202-228; Paul Hirt, vol. 34, no. 2 (2002): pp. 202-228; Paul Hirt, A Conspiracy of ~~Optim ism : Managem ent~~Optimism: Management of the
National Forests since World ~~War~~ War Two (Lincoln, NE: University of Nebraska Press, 1994). (Lincoln, NE: University of Nebraska Press, 1994).
41 For example, according to FS, 41 For example, according to FS, Report of the Chief of the Forest Service, 1953 and 1961, measures of sustainable , 1953 and 1961, measures of sustainable
allowableallowable cut werecut were estimated to be at least 6.9 billion boardestimated to be at least 6.9 billion board feet (BBF) in 1953, and 11.2 BBF in 1961; in 1961, authors feet (BBF) in 1953, and 11.2 BBF in 1961; in 1961, authors
reported a “steady increase in the annual allowablereported a “steady increase in the annual allowable cut in recent years.” cut in recent years.”
42 A board foot is a unit of wood42 A board foot is a unit of wood measuring 12 inches by 12 inches by 1 inch. measuring 12 inches by 12 inches by 1 inch.
43 Calculation from historical national forest timber harvest data and historical U.S. timber harvest data presented in 43 Calculation from historical national forest timber harvest data and historical U.S. timber harvest data presented in
Richard Haynes (Richard Haynes (~~T echnical~~Technical Coordinator), Coordinator), An Analysis of the ~~Tim ber~~Timber Situation in the United States: 1952 to 2050, FS, , FS,
USDA,USDA, PNW-PNW-~~GT R~~GTR-560, 2003. Historical data presented in this source are from 1952, 1962, 1970, 1976, 1986, 1991, -560, 2003. Historical data presented in this source are from 1952, 1962, 1970, 1976, 1986, 1991,
and 1997. Data were compiled as part of the forest and rangeland resourcesand 1997. Data were compiled as part of the forest and rangeland resources assessment process conducted byassessment process conducted by FS FS as as
requiredrequired ~~under~~ under the Forest and Rangelandthe Forest and Rangeland ~~Renewable Resources~~ Renewable Resources Planning Act of 1974 (RPA, P.L. 93-378). They may Planning Act of 1974 (RPA, P.L. 93-378). They may
differ from other assessments of historical timber harvesting if differences exist in the data generating process. differ from other assessments of historical timber harvesting if differences exist in the data generating process.
44 Miles Burnett and Charles Davis, “Getting Out the Cut: Politics and National Forest 44 Miles Burnett and Charles Davis, “Getting Out the Cut: Politics and National Forest ~~T imber~~Timber Harvests, 1960 Harvests, 1960 -1995.” -1995.”
~~Adm inistration~~Administration & Society, vol. 34, no. 2 (2002): pp. 202-228. vol. 34, no. 2 (2002): pp. 202-228.
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Timber Harvesting on Federal Lands

Figure 2. Annual Cut Volume and Value, NFS, FY1940-FY2021

Source: CRS. CRS. FY1977-FY1977-~~FY2020~~FY2021 data: Forest Service, data: Forest Service, Forest Products Cut and Sold Reports, at https://www.fs.fed.us/at https://www.fs.fed.us/
forestmanagement/products/cut-sold/index.shtml.forestmanagement/products/cut-sold/index.shtml. FY1940-FY1976 data: Forest ServiceFY1940-FY1976 data: Forest Service ~~Legislative Affairs~~ Legislative Affairs Office. Office.
Notes: MMBF stands for MMBF stands for ~~mil ion~~ million board feet. 1,000 board feet. 1,000 ~~mil ion~~ million board feet equals 1 board feet equals 1 ~~bil ion~~billion board feet. Nominal board feet. Nominal ~~dol a rs~~dollars
have been converted to have been converted to ~~FY2020 dol ars~~FY2021 dollars using Bureau of Labor Statistics Historical using Bureau of Labor Statistics Historical ~~Consumer~~ Consumer Price Index, Price Index, Al
All Urban Customers,Urban Customers, annual averages. annual averages.
Timber harvests rose from the early 1980s to the early 1990s, sometimes reaching levels of over Timber harvests rose from the early 1980s to the early 1990s, sometimes reaching levels of over
12 BBF12 BBF per year. These timber harvests coincided with the 1986 U.S. peak in per capita per year. These timber harvests coincided with the 1986 U.S. peak in per capita
consumption of wood products, driven in part by an increase in housing starts following the 1982 consumption of wood products, driven in part by an increase in housing starts following the 1982
recession.45 In 1986, timber harvests from the NFS were 13% of total U.S. timber harvests. recession.45 In 1986, timber harvests from the NFS were 13% of total U.S. timber harvests.
In the early 1990s, harvested timber volume began a sustained decrease. In 1991, the NFS In the early 1990s, harvested timber volume began a sustained decrease. In 1991, the NFS
supplied 11% of total U.S. harvested timber, and in 1997, the NFS supplied 5% of total U.S. supplied 11% of total U.S. harvested timber, and in 1997, the NFS supplied 5% of total U.S.
harvested timber.46 In 2011, NFS supplied 2% of U.S. wood and paper products.47 harvested timber.46 In 2011, NFS supplied 2% of U.S. wood and paper products.47 ~~Numerous~~
~~interrelated factors, including statutory, administrative, biological, and market influences, may~~
~~have contributed to this decline. The effect of each individual factor is not settled, as is the effect~~
~~of each factor over time. These factors occurred at varying points in time and may not coincide~~
~~directly with observed harvest level changes. Some sources have noted that statutory changes~~
~~added complexity to forest management and increasing litigation frequency, while also increasing~~
~~transparency and public participation.48 Other sources have noted changing management~~

~~45 James Howard and Kwameka Jones, U.S. Timber Production, Trade, Consumption, and Price Statistics, 1965 -2013,~~
~~USDA, FPL-RP-679, 2016.~~
~~46 Calculation from historical national forest timber harvest data and h istorical U.S. timber harvest data presented in~~
~~Richard Haynes (T echnical Coordinator), An Analysis of the Tim ber Situation in the United States: 1952 to 2050 , FS,~~
~~USDA, PNW-GT R-560, 2003.~~
~~47 Sonja Oswalt, W. Brad Smith, and Patrick Miles, et al.,~~ ~~Forest Resources of the United States, 2012: A Technical~~
~~Docum ent Supporting the Forest Service Update of the 2010 RPA Assessm ent.~~ ~~Forest Service (FS), U.S. Department of~~
~~Agriculture (USDA), GT R-WO-91, 2014~~
~~48 For a historical perspective of FS timber administration, and a description of changes following the enactment of~~
~~statutes such as NFMA, see Herbert Kaufman, The Forest Ranger: A Study in Adm inistrative Behavior (Johns Hopkins~~
~~Press, 1967), T erence T ipple and J. Douglas Wellman, “ Herbert Kaufman’s Forest Ranger T hirty Years Later: From~~
~~Simplicity and Homogeneity to Complexity and Diversity,” Public Administration Review 51(5), 1991, pp. 421-428,~~
~~and Paul Hirt, A Conspiracy of Optim ism : Managem ent of the National Forests since World War Two (Lincoln, NE:~~
~~University of Nebraska Press, 1994). For FS analysis of the effect of procedural requirements on NFS management, see~~
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Harvested volumes have consistently been between 2 BBF and 3 BBF annually from FY2004 onward. In FY2021, approximately 2.8 BBF were harvested from FS lands. In FY2021 dollars, harvest values from approximately FY2000 onward are similar to harvest values in the early 1940s. Harvest values generally increased from the early 1940s to a peak of approximately $3.6 billion (FY2021 dollars) in FY1979, before a decline through FY1982. They rose again thereafter, reaching another peak of approximately $2.9 billion (FY2021 dollars) in FY1989, before again declining. Values from FY2001 onward generally have been between approximately $100 million and $300 million. In FY2021, cut value was approximately $152.4 45 James Howard and Kwameka Jones, U.S. Timber Production, Trade, Consumption, and Price Statistics, 1965-2013, USDA, FPL-RP-679, 2016. 46 Calculation from historical national forest timber harvest data and historical U.S. timber harvest data presented in Richard Haynes (Technical Coordinator), An Analysis of the Timber Situation in the United States: 1952 to 2050, FS, USDA, PNW-GTR-560, 2003. 47 Sonja Oswalt, W. Brad Smith, and Patrick Miles, et al., Forest Resources of the United States, 2012: A Technical Document Supporting the Forest Service Update of the 2010 RPA Assessment. Forest Service (FS), U.S. Department of Agriculture (USDA), GTR-WO-91, 2014 Congressional Research Service 8 link to page 13 Timber Harvesting on Federal Lands million. Harvest value may vary due to quality, species, and age class of offered timber and timber market conditions, and is correlated with volume harvested. Numerous interrelated factors, including statutory, administrative, biological, and market influences, may have contributed to the decline in timber harvesting on NFS lands. The effect of each individual factor is not settled, as is the effect of each factor over time. These factors occurred at varying points in time and may not coincide directly with observed harvest level changes. Some sources have noted that statutory changes added complexity to forest management and increasing litigation frequency, while also increasing transparency and public participation.48 Other sources have noted changing management priorities.49 Others have noted decreasing domestic demand, volatile prices, and the prevalence of priorities.49 Others have noted decreasing domestic demand, volatile prices, and the prevalence of
less valuable timber due to high harvest levels in previous decades.50 The listing of the northern less valuable timber due to high harvest levels in previous decades.50 The listing of the northern
spotted owl (spotted owl (Strix occidentalis caurina) under the Endangered Species Act in 1990 is often under the Endangered Species Act in 1990 is often
discussed in regard to declining timber harvest discussed in regard to declining timber harvest levels.51 Geographic Distribution of Timber Harvests from NFS Lands FS harvest volume differs by region; these differences mirror the major production regions in private forestry (see Figure 3).52 FS Region 6 (the Pacific Northwest), Region 8 (the Southeast), and Region 9 (the North), are the three largest producing regions in both private and public forestry. In general, harvest volume and value by FS region is a function of many complex factors, including the dominant timber species, age class, and condition, as influenced by climate and topography; the suitability of FS sites for harvest operations; the legal limitations on land uses; and the status of the local forest products industry. 48 For a historical perspective of FS timber administration, and a description of changes following the enactment of statutes such as NFMA, see Herbert Kaufman, The Forest Ranger: A Study in Administrative Behavior (Johns Hopkins Press, 1967), Terence Tipple and J. Douglas Wellman, “Herbert Kaufman’s Forest Ranger Thirty Years Later: From Simplicity and Homogeneity to Complexity and Diversity,” Public Administration Review 51(5), 1991, pp. 421-428, and Paul Hirt, A Conspiracy of Optimism: Management of the National Forests since World War Two (Lincoln, NE: University of Nebraska Press, 1994). For FS analysis of the effect of procedural requirements on NFS management, see USDA, FS, The Process Predicament: How Statutory, Regulatory, and Administrative Factors Affect NFS Management, 2002. For a description of some changes to FS litigation patterns over time, see Robert Malmsheimer, Denise Keele, and Donald W. Floyd, “~~levels.51~~
~~Harvested volumes have consistently been between 2 BBF and 3 BBF annual y from FY2004~~
~~onward. In FY2020, approximately 2.6 BBF were harvested from FS lands. Although the national~~
~~timber market in the United States was affected by the 2008 housing market collapse and the~~
~~subsequent decline in demand, timber volumes harvested from FS experienced relatively little~~
~~change in volume, for unclear reasons.52~~
~~In FY2020 dollars, harvest values from approximately FY2000 onward are similar to harvest~~
~~values in the early 1940s. Harvest values general y increased from the early 1940s to a peak of~~
~~approximately $3.5 bil ion (FY2020 dollars) in FY1979, before a decline through FY1982. They~~
~~rose again thereafter, reaching another peak of approximately $2.8 bil ion (FY2020 dollars) in~~
~~FY1989, before again declining. Values from FY2001 onward have general y been between~~
~~approximately $100 mil ion and $300 mil ion in FY2019 dollars. In FY2020, cut value was~~
~~approximately $139.1 mil ion. FS harvest value declined during the recession and housing~~
~~collapse of 2008. Harvest value may vary due to quality, species, and age class of offered timber~~
~~and timber market conditions, and is correlated with volume harvested.~~
~~Geographic Distribution of Timber Harvests from NFS Lands~~
~~FS harvest volume differs by region; these differences mirror the major production regions in~~
~~private forestry (see Figure 3). FS Region 6 (the Pacific Northwest), Region 8 (the Southeast),~~
~~and Region 9 (the North), are the three largest producing regions in both private and public~~
~~forestry.53 In general, harvest volume and value by region is a function of many complex factors,~~

~~USDA, FS,~~ ~~The Process Predicam ent: How Statutory, Regulatory, and Adm inistrative Factors Affect NFS~~
~~Managem ent, 2002. For a description of some changes to FS litigation patterns over time, see Robert Malmsheimer,~~
~~Denise Keele, and Donald W. Floyd, “~~ National Forest Litigation and the U.S. Court of Appeals,” National Forest Litigation and the U.S. Court of Appeals,” Journal of Forestry,
vol.10, no.20 (2004), pp. 20-25, and Amanda Miner, Robert Malmsheimer, and Denise Keele, “vol.10, no.20 (2004), pp. 20-25, and Amanda Miner, Robert Malmsheimer, and Denise Keele, “ ~~T wenty~~Twenty Years of Forest Years of Forest
ServiceService Land Management Litigation,” Land Management Litigation,” Journal of Forestry, vol. 112, no. 1 (2014), pp. 32-40. , vol. 112, no. 1 (2014), pp. 32-40.
49 For example, see Dale Bosworth and Hutch Brown, “After the 49 For example, see Dale Bosworth and Hutch Brown, “After the ~~T imber~~Timber Wars: Community Wars: Community -Based Stewardship,” -Based Stewardship,”
Journal of Forestry,, vol. 105, no. 5 (2007), p. 271, and George Hoberg, “vol. 105, no. 5 (2007), p. 271, and George Hoberg, “ ~~T he Emerging T riumph~~The Emerging Triumph of Ecosystem of Ecosystem
Management: Management: ~~T he T ransformation~~The Transformation of Federal Forest Policy,” in of Federal Forest Policy,” in Western Public Lands and Environmental Politics, ed. , ed.
Charles David, 2nd ed. (Routledge,Charles David, 2nd ed. (Routledge, 2018), pp. 55-86. 2018), pp. 55-86.
50 For information on market changes over time, see 50 For information on market changes over time, see James HowardJames Howard and Kwamekaand Kwameka Jones, Jones, U.S. Timber Production,
Trade, ~~Consum ption~~Consumption, and Price Statistics, 1965 -2013, USDA, FPL-RP-679, 2016; Sonja Oswalt, W. Brad Smith, and , USDA, FPL-RP-679, 2016; Sonja Oswalt, W. Brad Smith, and
Patrick Miles, et al., Forest ResourcesPatrick Miles, et al., Forest Resources of the United States, 2012: A of the United States, 2012: A ~~T echnical~~Technical Document Supporting the Forest Service Document Supporting the Forest Service
Update of the 2010 RPA Assessment. FS,Update of the 2010 RPA Assessment. FS, USDA,USDA, ~~GT R~~ GTR-WO-91, 2014; and-WO-91, 2014; and Paul Hirt, Paul Hirt, A Conspiracy of ~~Optim ism :~~
~~Managem ent~~Optimism: Management of the National Forests since World ~~War Two~~ War Two (Lincoln, NE: University of Nebraska Press, 1994)(Lincoln, NE: University of Nebraska Press, 1994). For For
perspectives on the relationship between timber availability and timber harvest trends before 2000, seeperspectives on the relationship between timber availability and timber harvest trends before 2000, see Roger Sedjo Roger Sedjo
(ed.), (ed.), A Vision for the Forest Service: Goals for Its Next Century (Washington, DC: 2000). (Washington, DC: 2000).
51 See51 See Steven LewisSteven Lewis Yaffee, Yaffee, The Wisdom of the Spotted Owl: Policy Lessons for a New Century (Washington, DC: (Washington, DC:
Island Press, 1994) for a history of the listing of the spotted owl. For more information on the Endangered Species Act, Island Press, 1994) for a history of the listing of the spotted owl. For more information on the Endangered Species Act,
see CRSsee CRS Report R46677, Report R46677, The Endangered Species Act: Overview and ~~Im plem entation~~ Implementation, by Pervaze A. Sheikh, Erin H. Ward, and R. Eliot Crafton. 52 For more information, see CRS Report R46976, U.S. Forest Ownership and Management: Background and Issues for Congress, by Katie Hoover and Anne A. Riddle. Congressional Research Service 9 link to page 14 Timber Harvesting on Federal Lands Figure 3. Average Annual Cut Volume by NFS Region, FY2017-FY2021 Source: CRS. Calculation from Forest Service, Forest Products ~~, by Pervaze A. Sheikh, Erin H.~~
~~Ward, and R. Eliot Crafton.~~
~~52 T he national timber market includes demand and supply from public and private sources. T he housing industry is the~~
~~single largest consumer of wood products in the United States. For an overview of U.S. timber consumption, including~~
~~discussion of timber consumption by sector, see James Howard and Kwameka Jones,~~ ~~U.S. Tim ber Production, Trade,~~
~~Consum ption, and Price Statistics, 1965-2013, USDA, FPL-RP-679, 2016~~.
~~53 James Howard and Kwameka Jones, U.S. Timber Production, Trade, Consumption, and Price Statistics, 1965 -2013,~~
~~USDA, FPL-RP-679, 2016.~~
~~Congressional Research Service~~
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~~Timber Harvesting on Federal Lands~~

~~including the dominant timber type, age class, and condition; the suitability of FS sites for harvest~~
~~operations; the legal limitations on land uses; and the status of the local forest products industry.~~
~~Figure 3. Average Annual Cut Volume by NFS Region, FY2016-FY2020~~

Source: CRS. Calculation from Forest Service, ~~Forest Products~~ Cut and Sold Reports, https://www.fs.fed.us/ https://www.fs.fed.us/
forestmanagement/products/cut-sold/index.shtml. forestmanagement/products/cut-sold/index.shtml.
Notes: MMBF = MMBF = ~~mil ion~~ million board feet. The FS refersboard feet. The FS refers to its regionsto its regions by number, as labeled above. FS Region 7, the by number, as labeled above. FS Region 7, the
North Central, was mergedNorth Central, was merged with FS Region 9, the Eastern, in 1965. The new region is referredwith FS Region 9, the Eastern, in 1965. The new region is referred to as Region 9, to as Region 9,
the Eastern Region, and there is currently no Region 7. Averagethe Eastern Region, and there is currently no Region 7. Average annual cut volume is reported by NFS region; annual cut volume is reported by NFS region;
average annual cut volumeaverage annual cut volume differs for each state and cannot be inferred fromdiffers for each state and cannot be inferred from a regionala regional average. average.
Bureau of Land Management Lands
The Bureau of Land Management (BLM) administers about 246 The Bureau of Land Management (BLM) administers about 246 ~~mil ion~~ million surface acres of federal surface acres of federal
lands, almost entirely located in 12 western states.lands, almost entirely located in 12 western states.5453 As noted, about 37.6 As noted, about 37.6 ~~mil ion~~million acres of BLM acres of BLM
lands are forest; of that, 16% is considered timberland.lands are forest; of that, 16% is considered timberland.5554 The Oregon and California (O&C) lands, The Oregon and California (O&C) lands,
which comprise approximately 2.6 which comprise approximately 2.6 ~~mil ion~~million acres, contain 2.4 acres, contain 2.4 ~~mil ion~~million acres of forest (see acres of forest (see
“Statutory Authorities for Harvesting Timber,” ” below, for a description of the O&C lands).below, for a description of the O&C lands).5655 The The
transfer of the forest reserves to FS administration in the early 1900s reduced the amount of forest transfer of the forest reserves to FS administration in the early 1900s reduced the amount of forest
land and timberland under BLM management today. land and timberland under BLM management today.

~~54 T he~~ 53 The 12 states are Alaska, Arizona, California, Colorado, Idaho, Montana, Nevada, New 12 states are Alaska, Arizona, California, Colorado, Idaho, Montana, Nevada, New Mexico, Oregon, Utah, Mexico, Oregon, Utah,
Washington, and Wyoming. BLM lands in these states comprise 99% of BLMWashington, and Wyoming. BLM lands in these states comprise 99% of BLM lands.lands.
55 54 RPA 2017.
5655 BLM, DOI, BLM, DOI, BLM Facts: Oregon-Washington, 2017. , 2017.
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Statutory Authorities for Harvesting Timber
The modern BLM was formed in 1946 to manage the public domain lands.The modern BLM was formed in 1946 to manage the public domain lands.5756 At its formation, At its formation,
BLM had no general authority to harvest timber on those lands.BLM had no general authority to harvest timber on those lands.5857 Congress authorized BLM to Congress authorized BLM to
dispose of forest materials through the Materials Act of 1947.dispose of forest materials through the Materials Act of 1947.5958 Congress later elaborated BLM’s Congress later elaborated BLM’s
management responsibilities with the passage of the Federal Land Policy and Management Act of management responsibilities with the passage of the Federal Land Policy and Management Act of
1976 (FLPMA).1976 (FLPMA).6059 Like the MUSYA’s mandate for the FS, FLPMA requires BLM to manage the Like the MUSYA’s mandate for the FS, FLPMA requires BLM to manage the
public lands for multiple use and sustained yield in a “harmonious and coordinated” manner that public lands for multiple use and sustained yield in a “harmonious and coordinated” manner that
considers the combination of uses that best meets the needs of the American people, not considers the combination of uses that best meets the needs of the American people, not
necessarily yields the largest dollar return or output. The act directs a sustained yield of necessarily yields the largest dollar return or output. The act directs a sustained yield of
renewable resources, meaning high-level regular output in perpetuity without impairing the lands’ renewable resources, meaning high-level regular output in perpetuity without impairing the lands’
productivity.productivity.6160
The O&C lands are lands in western Oregon managed according to their own establishing The O&C lands are lands in western Oregon managed according to their own establishing
statutes, mostly by BLM. FS manages 492statutes, mostly by BLM. FS manages 492 ~~thousand~~,000 acres of the O&C lands, or 18% of this total acres of the O&C lands, or 18% of this total
area. The lands consist of several areas, the Oregon and California lands and the Coos Bay Wagon area. The lands consist of several areas, the Oregon and California lands and the Coos Bay Wagon
Road (CBWR) lands, which were revested to the federal government following violation of grant Road (CBWR) lands, which were revested to the federal government following violation of grant
terms.terms.6261 They are They are ~~usual y~~usually referred to collectively as “O&C lands” and often grouped for referred to collectively as “O&C lands” and often grouped for
legislativelegislative purposes. BLM or FS’s mandate to purposes. BLM or FS’s mandate to ~~sel~~ sell timber on the O&C lands derives directly from timber on the O&C lands derives directly from
the O&C lands’ establishing statute. The O&C Act directs that O&C lands be managed for the O&C lands’ establishing statute. The O&C Act directs that O&C lands be managed for
sustained yield of permanent forest production, watershed protection, recreation, and contributing sustained yield of permanent forest production, watershed protection, recreation, and contributing
to the economic stability of local communities and industries.to the economic stability of local communities and industries.63
62 Planning, Sale Process, and Receipts
Congress has directed BLM to engage in long-term land use and resource management planning. Congress has directed BLM to engage in long-term land use and resource management planning.
Plans set the framework for land management, uses, and protection. They are developed through Plans set the framework for land management, uses, and protection. They are developed through
an interdisciplinary process with opportunities for public participation. BLM uses these plans to an interdisciplinary process with opportunities for public participation. BLM uses these plans to
guide implementation of site-specific activities. In the case of timber, plans describe where timber guide implementation of site-specific activities. In the case of timber, plans describe where timber
harvesting may occur and include measures of sustainable timber harvest levels. They are used to harvesting may occur and include measures of sustainable timber harvest levels. They are used to
guide execution of individualguide execution of individual sales, which generate revenues. Congress has specified various uses sales, which generate revenues. Congress has specified various uses
for these revenues. for these revenues.

57 56 60 Stat. 1097, 5 U.S.C. 60 Stat. 1097, 5 U.S.C. §403. §403.
5857 For more information on BLM authorities at its formation, see Paul W. Gates, For more information on BLM authorities at its formation, see Paul W. Gates, History of Public Land Law History of Public Land Law
Development, written for the Public Land LawDevelopment, written for the Public Land Law ~~Review~~ Review Commission (Washington, DC: GPO, November 1968), pp. Commission (Washington, DC: GPO, November 1968), pp.
610-622 ; and James610-622 ; and James Muhn, Hanson R. Stuart, and Peter D. Doran, Opportunity and Muhn, Hanson R. Stuart, and Peter D. Doran, Opportunity and ~~Challen ge: T he~~Challenge: The Story of BLM Story of BLM
(Washington, DC, 1998). (Washington, DC, 1998).
5958 61 Stat. 681, 30 U.S.C. 61 Stat. 681, 30 U.S.C. §§601-604. While the Materials Act provides a general authority to conduct timber sales, §§601-604. While the Materials Act provides a general authority to conduct timber sales,
other special authorities exist: for example, the salvage saleother special authorities exist: for example, the salvage sale authority provided in the Interior and Related Agencies authority provided in the Interior and Related Agencies
Appropriations Act for FY1993 (P.L. 102-391). Detailed description of these special authorities is beyond the scope of Appropriations Act for FY1993 (P.L. 102-391). Detailed description of these special authorities is beyond the scope of
this report. this report.
6059 P.L. 94-579, 43 U.S.C. §§1701 et seq. P.L. 94-579, 43 U.S.C. §§1701 et seq.
6160 43 U.S.C. 43 U.S.C. §1702e(h). §1702e(h).
~~62 T he~~61 The CBWR lands CBWR lands were establishedwere established by 40 Stat. 1179, which is not classifiedby 40 Stat. 1179, which is not classified in the in the U.S. Code. . ~~T he~~The Oregon and Oregon and
California landsCalifornia lands ~~were~~ were established byestablished by 50 Stat. 874; 43 U.S.C.50 Stat. 874; 43 U.S.C. §§2601-2634. For a more detailed history of the lands, see §§2601-2634. For a more detailed history of the lands, see
CRSCRS Report R42951, Report R42951, The Oregon and California Railroad Lands (O&C Lands): Issues for Congress, by Katie Hoover, , by Katie Hoover,
and BLM, and BLM, O&C Sustained Yield Act: the Land, the Law, the Legacy, http://www.blm.gov/or/files/OC_History.pdf. , http://www.blm.gov/or/files/OC_History.pdf.
6362 50 Stat. 874; 43 U.S.C. 50 Stat. 874; 43 U.S.C. §2601. §2601.
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BLM timber planning and administration follow general BLM land use planning procedures. BLM timber planning and administration follow general BLM land use planning procedures.6463
Through FLPMA, Congress directs BLM to develop, maintain, and revise plans for managing Through FLPMA, Congress directs BLM to develop, maintain, and revise plans for managing
public lands. BLM issued the first regulations to implement the planning requirement in 1979, public lands. BLM issued the first regulations to implement the planning requirement in 1979,
and subsequently revised them; the current BLM planning rule dates from 2005.and subsequently revised them; the current BLM planning rule dates from 2005.6564 Plans must be Plans must be
developed with public participation and in accordance with various other administrative and developed with public participation and in accordance with various other administrative and
environmental statutes (e.g., NEPA).environmental statutes (e.g., NEPA).6665
Under BLM’s planning rule, resource management plans remain in effect indefinitely. They are to Under BLM’s planning rule, resource management plans remain in effect indefinitely. They are to
include monitoring and evaluation standards, and are to be amended or revised when include monitoring and evaluation standards, and are to be amended or revised when
circumstances warrant.circumstances warrant.6766 The planning rule directs BLM to identify indicators that describe the The planning rule directs BLM to identify indicators that describe the
desired forest outcomes in the plan area. BLM is to identify a suite of management actions to desired forest outcomes in the plan area. BLM is to identify a suite of management actions to
achieve those outcomes, including identifying achieve those outcomes, including identifying sustained yield areas, areas that could support areas that could support
long-term timber harvest.long-term timber harvest.6867 BLM personnel determine a harvest level for these areas that can be BLM personnel determine a harvest level for these areas that can be
maintained without permanent impairment; this harvest level is known as the maintained without permanent impairment; this harvest level is known as the allowable sale
quantity..~~69 Al owable~~68 Allowable sale quantity is measured for a sale quantity is measured for a ~~ten~~10-year period.-year period.70
69 In addition, BLM In addition, BLM ~~general y~~generally makes annual forest product sale plans. makes annual forest product sale plans.7170 These plans contain These plans contain
estimates of sale volume, acreage, and permitted harvest methods for any sales proposed for the estimates of sale volume, acreage, and permitted harvest methods for any sales proposed for the
year.year.7271 Site-specific timber harvests must comport with NEPA and relevant statutes, including any Site-specific timber harvests must comport with NEPA and relevant statutes, including any
~~additional~~ additional requirement for site-specific analysis and review. requirement for site-specific analysis and review.
To conduct an individual sale within the plan, BLM designates the timber for sale and appraises To conduct an individual sale within the plan, BLM designates the timber for sale and appraises
the value of the timber.the value of the timber.7372 BLM timber may be designated by physical marking or by enclosing BLM timber may be designated by physical marking or by enclosing
timber in a sale boundary.timber in a sale boundary.7473 BLM prepares a sale contract, along with a prospectus describing the BLM prepares a sale contract, along with a prospectus describing the
sale.sale.7574 The sale is advertised at an appraised starting price. The sale is advertised at an appraised starting price.7675 Interested parties may bid on the Interested parties may bid on the

64 63 Information in this section derives from selected BLM law, Information in this section derives from selected BLM law, regulation, and other authorities, such as manuals and regulation, and other authorities, such as manuals and
handbooks. For BLM timber planning and administration authorities, see 43 U.S.C.handbooks. For BLM timber planning and administration authorities, see 43 U.S.C. §§1701 et seq.,§§1701 et seq., 43 U.S.C.43 U.S.C. §2601, §2601,
43 C.F.R.43 C.F.R. §1601.0-1601.8, 43 C.F.R. §5003.1-5511.5, BLM Manual Series§1601.0-1601.8, 43 C.F.R. §5003.1-5511.5, BLM Manual Series MS-5000 through MS-5420, BLM Manual MS-5000 through MS-5420, BLM Manual
MS-1601, BLM Handbook 5000 Series, and BLMMS-1601, BLM Handbook 5000 Series, and BLM Handbook H-1601-1. In general, if an activity is addressedHandbook H-1601-1. In general, if an activity is addressed in in
statute, statute is cited, although other authorities may exist (for example, in regulation or agency handbooks, manuals, statute, statute is cited, although other authorities may exist (for example, in regulation or agency handbooks, manuals,
or other directives); if an activity is addressedor other directives); if an activity is addressed in regulations, regulations are cited, although other authorities may exist in regulations, regulations are cited, although other authorities may exist
(for example, in agency handbooks, manuals, or other directives); if an activity is addressed(for example, in agency handbooks, manuals, or other directives); if an activity is addressed in agency handbooks, in agency handbooks,
manuals, or other directives, at least one such authority is cited. manuals, or other directives, at least one such authority is cited.
65 64 43 C.F.R. §1610. 43 C.F.R. §1610.
6665 P.L. 91-190, 42 U.S.C. §§4321-4347; for an overview of NEPA, see CRS P.L. 91-190, 42 U.S.C. §§4321-4347; for an overview of NEPA, see CRS Report RL33152, Report RL33152, The National
~~Environm ental~~Environmental Policy Act (NEPA): Background and ~~Im plementation~~Implementation, by Linda Luther. , by Linda Luther.
6766 43 C.F.R. §1610.4-9 43 C.F.R. §1610.4-9.
6867 BLM Manual MS-5251, BLM Manual MS-5251, Timber Production Capability Classification. .
6968 Allowable Allowable ~~sale~~ sale quantity (ASQ) isquantity (ASQ) is the harvest level that can be maintained without decline over the long term if the the harvest level that can be maintained without decline over the long term if the
scheduleschedule of harvests and regeneration is followed.of harvests and regeneration is followed. An ASQAn ASQ is not a is not a ~~co mmitment~~commitment to offer for sale a specific level of to offer for sale a specific level of
timber volume every year. Volumestimber volume every year. Volumes offered for harvest sale may vary in the short term if sustained yield isoffered for harvest sale may vary in the short term if sustained yield is maintained.maintained.
BLM Manual MS-5000, BLM Manual MS-5000, Forest ~~Managem ent.~~
70Management. 69 BLM Manual MS-5000, BLM Manual MS-5000, Forest Management.
7170 43 C.F.R. §5410. 43 C.F.R. §5410.
7271 BLM Handbook H-5410-1, BLM Handbook H-5410-1, Annual Forest Product Sale Plan. .
7372 43 C.F.R. §5420. 43 C.F.R. §5420.
7473 BLM Manual M-5420, BLM Manual M-5420, Preparation for Sale.
7574 43 C.F.R. §5430.0-1. A prospectus is a descriptive document describing 43 C.F.R. §5430.0-1. A prospectus is a descriptive document describing the sale in greater detail than the the sale in greater detail than the
advertisement, but in lessadvertisement, but in less detail than the contract. It is available to interested biddersdetail than the contract. It is available to interested bidders on request.on request.
76 75 43 C.F.R. §5430.0-1. 43 C.F.R. §5430.0-1.
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link to page 21 link to page 18 link to page 17 link to page 21 link to page 18 link to page 17 Timber Harvesting on Federal Lands

contract. A contract is awarded to the highest bidder provided legal conditions are met. contract. A contract is awarded to the highest bidder provided legal conditions are met.7776 The The
winning bidder conducts the timber harvest according to the terms specified in the contract, such winning bidder conducts the timber harvest according to the terms specified in the contract, such
as timeline and harvest method. Timber harvests must as timeline and harvest method. Timber harvests must ~~general y~~generally be completed in three years, but be completed in three years, but
may be extended under certain circumstances.may be extended under certain circumstances.7877
Timber sales generate revenues, and disposition of these revenues depends on a number of Timber sales generate revenues, and disposition of these revenues depends on a number of
factors. Congress has established several funds for timber sale revenues. Depending on the type factors. Congress has established several funds for timber sale revenues. Depending on the type
of sale and the originating lands, BLM may be required to make certain deposits to these funds. If of sale and the originating lands, BLM may be required to make certain deposits to these funds. If
any portion of revenues are not required to be deposited, BLM may any portion of revenues are not required to be deposited, BLM may ~~al ocate~~allocate those revenues those revenues
among funds at its discretion, including depositing among funds at its discretion, including depositing al all revenues in a single account. Some funds revenues in a single account. Some funds
are permanently appropriated to BLMare permanently appropriated to BLM and may be used without further congressional action (i.e. and may be used without further congressional action (i.e.
as mandatory appropriations).as mandatory appropriations).~~79 Se~~e78 See Table A-2 for a list of these funds. A more detailed for a list of these funds. A more detailed
discussion of funding levels, expenditures, and issues related to BLM timber revenue funds is discussion of funding levels, expenditures, and issues related to BLM timber revenue funds is
outside the scope of this report. outside the scope of this report.
Timber Harvests from BLM Lands
Timber harvesting is one of many authorized uses of BLM lands. Long-term historical data Timber harvesting is one of many authorized uses of BLM lands. Long-term historical data
regarding BLM timber harvesting is unavailable. Other data on past timber program activity show regarding BLM timber harvesting is unavailable. Other data on past timber program activity show
that BLM timber harvesting may have changed over time. This section provides data on timber that BLM timber harvesting may have changed over time. This section provides data on timber
offered for sale, timber sold, and timber harvested from BLM lands at various points in time, offered for sale, timber sold, and timber harvested from BLM lands at various points in time,
along with some economic and historical factors along with some economic and historical factors ~~which~~that may have contributed to observed may have contributed to observed
changes. changes.
Data on cut timber volume from BLM lands is available Data on cut timber volume from BLM lands is available from FY1994 onward (from FY1994 onward (seesee Figure 4). ).
While complete historical cut data is unavailable prior to FY1994, some data exists about past While complete historical cut data is unavailable prior to FY1994, some data exists about past
sales (sales (seesee Table 1). . The intermittent nature of this data The intermittent nature of this data ~~chal enges~~challenges drawing conclusions about drawing conclusions about
larger trends in these periods, larger trends in these periods, ~~especial y~~especially in the missing decades. In addition, these data refer to in the missing decades. In addition, these data refer to
either timber sold or timber offered for sale, which differs from volume of timber cut.either timber sold or timber offered for sale, which differs from volume of timber cut.8079 However, However,
as an approximate comparison, the data show that the volumes sold prior to FY1990 are large as an approximate comparison, the data show that the volumes sold prior to FY1990 are large
compared to recent volumes offered for sale. Observers confirmed a decline in public domain compared to recent volumes offered for sale. Observers confirmed a decline in public domain
timber offered for sale beginning in 1991, though the investigation did not consider the O&C timber offered for sale beginning in 1991, though the investigation did not consider the O&C
~~lands.81~~

77lands.80 76 43 C.F.R. §§5440-5450. 43 C.F.R. §§5440-5450.
7877 43 C.F.R. §5463.1, 43 C.F.R. §5473. 43 C.F.R. §5463.1, 43 C.F.R. §5473.
7978 For information on BLM funds and receipts, see the annual BLM For information on BLM funds and receipts, see the annual BLM ~~Budget Justifications~~ budget justifications on the Department of the on the Department of the
Interior’s Budget Office websiteInterior’s Budget Office website~~, e.g.,~~ (e.g., see the FY2021 budget justification at https://www.doi.gov/budget/appropriations/https://www.doi.gov/budget/appropriations/~~2020~~2021). BLM allocates some revenues . BLM allocates some revenues
to entities as requiredto entities as required ~~under~~ under revenue-sharing programs. BLM allocation of revenue is determined by law,revenue-sharing programs. BLM allocation of revenue is determined by law, ~~including~~ including law law
pertaining to individual fundspertaining to individual funds and activities. A detailedand activities. A detailed ~~discussion~~ discussion of this topic is beyond the scope of this report. For of this topic is beyond the scope of this report. For
more information on some revenue-sharing programs, see more information on some revenue-sharing programs, see ~~CRS~~ CRS Report RL31392, Report RL31392, PILT (~~Paym ents~~Payments in Lieu of Taxes):
~~Som ewhat Sim plified~~Somewhat Simplified, by Katie Hoover, and CRS, by Katie Hoover, and CRS Report R41303, Report R41303, The Secure Rural Schools and ~~Com m unity Self-~~
~~Determ ination~~Community Self-Determination Act: Background and Issues, by Katie Hoover. , by Katie Hoover.
8079 Volume Volume of timber offered for sale, volume of timber sold,of timber offered for sale, volume of timber sold, and volume of timber cut typically differ in a given year. and volume of timber cut typically differ in a given year.
VolumeVolume of timber offered for sale differs from volume of timber sold in that not all offered sales may be completed.of timber offered for sale differs from volume of timber sold in that not all offered sales may be completed.
Both differ from timber cut for a number of reasons. For example,Both differ from timber cut for a number of reasons. For example, purchasers may have a period of several years to cut purchasers may have a period of several years to cut
timber, they may not fully execute the cut specified in the contract, or disturbances may alter volume between the time timber, they may not fully execute the cut specified in the contract, or disturbances may alter volume between the time
the sale is made and the harvest is executed. the sale is made and the harvest is executed.
81 80 U.S. U.S. General Accounting Office, General Accounting Office, BLM Public Domain Lands: ~~Volum e~~Volume of Timber Offered for Sale Has Declined
Substantially since Fiscal Year 1990, GAO-03-615, June 2003. GAO-03-615, June 2003.
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Table 1. BLM Timber Sales, Historical
Timber Volume Sold
Timber Volume Offered
Fiscal Year
(MMBF)
for Sale (MMBF)
1948 1948
431.8 431.8
NA NA
1951 1951
499.5 499.5
NA NA
1960 1960
359.8 359.8
NA NA
1970 1970
1787.5 1787.5
NA NA
1980 1980
1196.8 1196.8
NA NA
1990 1990
1221.8 1221.8
NA NA
2000 2000
NA NA
277.8 277.8
2010 2010
NA NA
92.5 92.5
Source: CRS. Sum of timberCRS. Sum of timber volume salesvolume sales from public lands and O&C lands found in from public lands and O&C lands found in Report of the Director, 1948;
Report of the Director, 1951; Statistical Appendix, Annual Report, 1960; and for each ofand for each of Public Land Statistics, 1970;
Public Land Statistics, 1980; Public Land Statistics, 1990; Public Land Statistics, 2000; and Public Land Statistics, 2010.
Notes: These data report either volume of timber offered for sale, or volume of timberThese data report either volume of timber offered for sale, or volume of timber ~~sold. Volume~~ sold. Volume of timber of timber
offered for sale differs from volume of timber sold in that not offered for sale differs from volume of timber sold in that not al all offered sales may be purchased. Thus, volume offered sales may be purchased. Thus, volume
of timberof timber offered for sale is offered for sale is ~~general y~~ generally greater than volume of timbergreater than volume of timber sold.sold. BLM data sources reportedBLM data sources reported timber timber
volume sold in 1948, 1951, 1960, 1970, 1980, and 1990. BLM data sourcesvolume sold in 1948, 1951, 1960, 1970, 1980, and 1990. BLM data sources reported timber offered for sale in reported timber offered for sale in
2000 and 2010. “NA” means data were2000 and 2010. “NA” means data were not reported in that year. not reported in that year.
Volumes harvested from BLM lands were between 100 and 300 MMBF from FY1995 to FY2000 Volumes harvested from BLM lands were between 100 and 300 MMBF from FY1995 to FY2000
and from FY2004 to FY2019 (and from FY2004 to FY2019 (seesee Figure 4). Harvests were lower in FY1994 and between ). Harvests were lower in FY1994 and between
FY2001 and FY2003. Harvested volumes have shown a FY2001 and FY2003. Harvested volumes have shown a ~~general y~~generally increasing trend since FY2001, increasing trend since FY2001,
with the largest recently recorded harvest in FY2015 (about 258 MMBF)with the largest recently recorded harvest in FY2015 (about 258 MMBF)~~. Like the NFS, harvests~~
~~from BLM lands during the recession and housing market collapse of 2008 experienced relatively~~
~~little change in volume, for unclear reasons. In FY2020~~. In FY2021, about , about ~~239~~ 250 MMBF were harvested from MMBF were harvested from
BLM lands. BLM lands.
Data on cut timber value from BLM lands is available Data on cut timber value from BLM lands is available from FY1996 onward (from FY1996 onward (seesee Figure 4). Total ). Total
value of harvests has declined since FY1996. Harvest values have value of harvests has declined since FY1996. Harvest values have ~~general y~~generally increased since the increased since the
low value of approximately $low value of approximately $~~15.4 mil ion~~ 16.5 million in FY2001, and have been in FY2001, and have been ~~between $20 mil ion and~~
~~$60 mil ion since FY2011 (FY2020~~above $45 million since FY2015 (FY2021 dollars). In dollars). In ~~FY2020~~FY2021, cut value was $56.6 million~~, cut value was $58.8 mil ion. Like the~~
~~FS, BLM harvest value during the recession and housing market collapse of 2008 declined, but~~
~~the relative change was smal compared to the decreases of the late 1990s~~. Harvest value may . Harvest value may
vary due to the quality, species, and age class of offered timber as vary due to the quality, species, and age class of offered timber as ~~wel~~ well as timber market as timber market
conditions, and is correlated with harvested volume. BLM harvest values per unit of timber are conditions, and is correlated with harvested volume. BLM harvest values per unit of timber are
higher than FS values per unit, due to the dominant timber type harvested from BLM lands, higher than FS values per unit, due to the dominant timber type harvested from BLM lands,
among other among other factors.81 81 The~~factors.82~~

~~82 T he~~ great majority of timber harvested from BLM land is from the O&C lands great majority of timber harvested from BLM land is from the O&C lands (see “(see “ ~~T imber~~Timber Harvests on BLM Harvests on BLM
Lands”). O&C landsLands”). O&C lands are dominated byare dominated by ~~Douglas~~ Douglas fir (fir (Pseudotsuga menziesii), a speciesa species ~~used~~ used extensively for timber. extensively for timber.
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Figure 4. Annual Cut Volume and Value, BLM, FY1994-FY2021

Source: CRS. FY2012- CRS. FY2012-~~FY2020~~FY2021 data: BLM, Bureau Wide Timber data: BLM, Bureau Wide Timber Data, Data, Transaction Reports, https://www.blm.gov/https://www.blm.gov/
programs/natural-resources/forests-and-woodlands/timber-sales/bureau-wide-timber-data.programs/natural-resources/forests-and-woodlands/timber-sales/bureau-wide-timber-data. FY1994-FY2011 cut FY1994-FY2011 cut
volume data and FY1996-FY2011 cut value data: personal communication betweenvolume data and FY1996-FY2011 cut value data: personal communication between BLM legislativeBLM legislative affairs office affairs office
and CRS, Decemberand CRS, December 14, 2018.14, 2018.
Notes: Complete Complete historical cut volume data is unavailable priorhistorical cut volume data is unavailable prior to FY1994, and completeto FY1994, and complete historical cut value historical cut value
data is unavailable priordata is unavailable prior to FY1996. MMBF stands for to FY1996. MMBF stands for ~~mil ion~~ million board feet. Nominal board feet. Nominal ~~dol ars~~ dollars have been converted to have been converted to
~~FY2020 dol ars~~FY2021 dollars using Bureau of Labor Statistics Historical using Bureau of Labor Statistics Historical Consumer Price Index, Consumer Price Index, Al All Urban Customers,Urban Customers, annual annual
averages. averages.
Geographic Distribution of Timber Harvests on BLM Lands
Most timber harvests on BLM lands are conducted on the O&C lands. Most timber harvests on BLM lands are conducted on the O&C lands. ~~From FY2014 to FY2018,~~
~~the average~~ In FY2021, the harvested volume from O&C lands was harvested volume from O&C lands was 9388% of the % of the ~~average~~ total volume. The large total volume. The large
proportion of volume harvested from O&C lands reflects the forest cover and type, dominant use proportion of volume harvested from O&C lands reflects the forest cover and type, dominant use
for forest production, and the size of the forest industry in the Pacific Northwest.for forest production, and the size of the forest industry in the Pacific Northwest.8382 As with the As with the
NFS, in general, BLM harvest volume and value is a function of many complex factors, including NFS, in general, BLM harvest volume and value is a function of many complex factors, including
the dominant timber type, age class, and condition; the suitability of sites for harvest operations; the dominant timber type, age class, and condition; the suitability of sites for harvest operations;
legal limitations on land uses; and the status of the local forest products industry. legal limitations on land uses; and the status of the local forest products industry.
Issues for Congress
Management of federal lands for multiple uses and sustained yield is Management of federal lands for multiple uses and sustained yield is ~~chal enging~~challenging, including , including
balancing timber harvesting with other uses. Timber production from federal lands is driven by a balancing timber harvesting with other uses. Timber production from federal lands is driven by a
complex interaction of environmental factors, market forces, and land management policies. complex interaction of environmental factors, market forces, and land management policies.
Under current law, efforts to change harvest levels must comport with the provision of a sustained Under current law, efforts to change harvest levels must comport with the provision of a sustained
yield of multiple uses. Congress has sometimes considered legislation to prioritize or exclude yield of multiple uses. Congress has sometimes considered legislation to prioritize or exclude
some uses in a limitedsome uses in a limited manner—in certain geographic regions, for example—but has not changed manner—in certain geographic regions, for example—but has not changed
these fundamental management concepts since their enactment in the 1960s and 1970s. these fundamental management concepts since their enactment in the 1960s and 1970s.
The public often expresses preferences for uses of federal forests, including with respect to timber The public often expresses preferences for uses of federal forests, including with respect to timber
harvesting. Some may support timber harvesting harvesting. Some may support timber harvesting ~~general y~~generally, and believe the current levels of , and believe the current levels of
production are sufficient. Others may wish to see the levels of production increased or decreased, production are sufficient. Others may wish to see the levels of production increased or decreased,

~~83 T he~~ 82 The largest forest producing regions in the United States are the Pacific Northwest and the Southeast. largest forest producing regions in the United States are the Pacific Northwest and the Southeast. ~~T he~~The BLM does BLM does
not manage any forestland in the Southeast. not manage any forestland in the Southeast.
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depending on their perspective. Those who support timber harvesting on federal lands may cite depending on their perspective. Those who support timber harvesting on federal lands may cite
benefits to the local timber industry, a belief that harvesting is part of the core mission of federal benefits to the local timber industry, a belief that harvesting is part of the core mission of federal
forests, or a belief that timber harvesting is a tool for improving forest health conditions, among forests, or a belief that timber harvesting is a tool for improving forest health conditions, among
other reasons.other reasons.8483 Proponents of timber harvesting on federal lands may also emphasize the role of Proponents of timber harvesting on federal lands may also emphasize the role of
timber harvesting in some forest-adjacent rural economies.timber harvesting in some forest-adjacent rural economies.8584 Others may oppose timber Others may oppose timber
harvesting due to concerns about ecological or human impacts: for example, they may cite beliefs harvesting due to concerns about ecological or human impacts: for example, they may cite beliefs
that timber sales have detrimental impacts on environmental quality, fish and wildlife habitat, that timber sales have detrimental impacts on environmental quality, fish and wildlife habitat,
forest character, recreation and tourism, or cultural and aesthetic values.forest character, recreation and tourism, or cultural and aesthetic values.8685 Opponents may also Opponents may also
contend that conducting timber sales favors the timber industry over other interests.contend that conducting timber sales favors the timber industry over other interests.87
86 In addition to the themes identified above, Congress may also debate other issues related to In addition to the themes identified above, Congress may also debate other issues related to
federal timber harvests that are not discussed in detail in this report. For example, these include federal timber harvests that are not discussed in detail in this report. For example, these include
issues related to the disposition and use of timber sale revenues; the relationship between timber issues related to the disposition and use of timber sale revenues; the relationship between timber
harvest planning and statutes such as NEPA and the Endangered Species Act (ESA); and special harvest planning and statutes such as NEPA and the Endangered Species Act (ESA); and special
harvest authorities, among others. harvest authorities, among others.

~~84 See Roger Sedjo,~~ 83 See Roger Sedjo, The Future of the Forest Service, Property and Environment Research Center, Vol. 36, No. 1, , Property and Environment Research Center, Vol. 36, No. 1,
2017; Greg2017; Greg Brown, “Relationships between spatial and non-spatial preferences and place-based valuesBrown, “Relationships between spatial and non-spatial preferences and place-based values in national in national
forests,” forests,” Applied Geography, vol. 44 (2013), pp. 1-11, vol. 44 (2013), pp. 1-11; and Greg Brown and Pat Reed, “Validation of a forest values and Greg Brown and Pat Reed, “Validation of a forest values
typology for use in national forest planning,” typology for use in national forest planning,” Forest Science, vol. 46, no. 2 (2000), pp. 240-247. , vol. 46, no. 2 (2000), pp. 240-247.
8584 For example, see U.S. For example, see U.S. Congress, Senate Committee on Energy and Natural Resources,Congress, Senate Committee on Energy and Natural Resources, Improving Forest Health and
Socioeconomic Opportunities on the Nation’s Forest System , 114th Cong., 1st sess.,, 114th Cong., 1st sess., 2015, S. Hrg. 114-262 2015, S. Hrg. 114-262
(Washington: GPO, 2016). (Washington: GPO, 2016).
8685 Greg Greg Brown,Brown, “Relationships between spatial and non-spatial preferences and place-basedRelationships between spatial and non-spatial preferences and place-based values in national forests,values in national forests,”
Applied Geography, vol. 44 (2013), pp. 1-11; and Gregvol. 44 (2013), pp. 1-11; and Greg Brown and Pat Reed, “Brown and Pat Reed, “ Validation of a forest values typology Validation of a forest values typology
for usefor use in national forest planning,” in national forest planning,” Forest Science, vol. 46, no. 2 (2000), pp. 240-247.vol. 46, no. 2 (2000), pp. 240-247.
87 86 See, See, for example, Mike Garrity, “for example, Mike Garrity, “~~T axpayer subsidized logging~~ Taxpayer subsidized logging makes no sense,” makes no sense,” Helena Independent Record, (2014). , (2014).
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Appendix. Timber Receipt Funds
The following tables list and describe the funds that receive timber sale revenues; the funds’ The following tables list and describe the funds that receive timber sale revenues; the funds’
statutory authority is also shown. A detailed discussion of funding levels, expenditures, and issues statutory authority is also shown. A detailed discussion of funding levels, expenditures, and issues
related to these funds is outside the scope of this report. related to these funds is outside the scope of this report.
Table A-1. Timber Revenue Funds: Forest Service
Name
Description
Authority
Brush Disposal Brush Disposal
FS determines FS determines an amount for each an amount for each
Act of August 11, 1916; 16 U.S.C. Act of August 11, 1916; 16 U.S.C.
sale, sale, above the stumpage price for above the stumpage price for
§490. §490.
the sale, to be deposited in this the sale, to be deposited in this
permanently appropriated account. permanently appropriated account.
Money in the fund may be used to Money in the fund may be used to
dispose of brush and debrisdispose of brush and debris from from
harvesting within the sale area. harvesting within the sale area.
Credits for Purchaser-Built Roads Credits for Purchaser-Built Roads
Purchasers elect for FS to build the Purchasers elect for FS to build the
National Forest National Forest Management Act, Management Act,
permanent roads required in a sale permanent roads required in a sale
P.L. 94-588; 16 U.S.C. §472a(i). P.L. 94-588; 16 U.S.C. §472a(i).
contract, and make contract, and make deposits to this deposits to this
permanently appropriated fund. The permanently appropriated fund. The
FS uses the money in the fund to FS uses the money in the fund to
build the required roads. build the required roads.
Knutson-Vandenberg (K-V) Fund Knutson-Vandenberg (K-V) Fund
The act authorizes FS to retain The act authorizes FS to retain
Knutson-Vandenberg Act, PL 71- Knutson-Vandenberg Act, PL 71-
revenue revenue ~~col ected from~~ collected from NFS timber NFS timber
319, as amended; 16 U.S.C. 319, as amended; 16 U.S.C. 576-576-
sales in a permanent fund sales in a permanent fund
576b. 576b.
appropriated to the FS. Congress appropriated to the FS. Congress
~~initial y~~ initially authorized use of K-V funds authorized use of K-V funds
to finance reforestation,to finance reforestation, non-non-
commercialcommercial thinning, and other thinning, and other
improvementsimprovements on the saleon the sale site. site.
Subsequent action by Congress has Subsequent action by Congress has
expanded the K-V fund’s authorized expanded the K-V fund’s authorized
uses for other forest and renewable uses for other forest and renewable
resourceresource projects,projects, and extended and extended
the eligiblethe eligible spending area to the FS spending area to the FS
region of the sale.region of the sale. Reforestation of Reforestation of
the sale site is required to makethe sale site is required to make K-K-
V Fund deposits. V Fund deposits.
Salvage Sale Fund Salvage Sale Fund
Revenue from Revenue from a timbera timber sale with sale with
National Forest National Forest Management Act, Management Act,
any salvage component may be any salvage component may be
P.L. 94-588; 16 U.S.C. §472a(h). P.L. 94-588; 16 U.S.C. §472a(h).
placed in this fund, which is placed in this fund, which is
permanently appropriated to FS. permanently appropriated to FS.
Money in the fund must be used to Money in the fund must be used to
conduct other salvage sales. conduct other salvage sales.
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Name
Description
Authority
Stewardship Contracting Fund Stewardship Contracting Fund
FS may enter into stewardship FS may enter into stewardship
Healthy Forests Healthy Forests Restoration Act Restoration Act
contracts to achieve land contracts to achieve land
(HFRA), P.L. 108-148, as amended; (HFRA), P.L. 108-148, as amended;
management goals and to apply the management goals and to apply the
16 U.S.C. 16 U.S.C. §6591c. §6591c.
value of any harvested timber value of any harvested timber
against the cost of those against the cost of those
stewardship stewardship ~~services.a~~ services.a Timber Timber
revenue above the cost of revenue above the cost of
stewardship servicesstewardship services is deposited in is deposited in
this fund and is authorized to be this fund and is authorized to be
used for other stewardship projects used for other stewardship projects
or to cover liabilitiesor to cover liabilities from canceled from canceled
sales. sales.
Timber Timber Sales Pipeline Restoration Sales Pipeline Restoration
Revenues from certain timber Revenues from certain timber sales, sales,
Omnibus Consolidated Rescissions Omnibus Consolidated Rescissions
Fund Fund
and from and from additional sales prepared additional sales prepared
and Appropriations and Appropriations Act of 1996, Act of 1996,
using the fund, are permanently using the fund, are permanently
P.L. 104-134, §327; 16 U.S.C. §1611 P.L. 104-134, §327; 16 U.S.C. §1611
appropriated to FS. Of the available appropriated to FS. Of the available
note. note.
money, 75% is money, 75% is ~~al ocated~~allocated to prepare to prepare
additional timberadditional timber sales,sales, and the and the
other 25% is for recreation other 25% is for recreation
~~projects~~. projects. b
Source: CRS. Table compiled using FS budget justifications from FY2010 onward; and David C. CRS. Table compiled using FS budget justifications from FY2010 onward; and David C. ~~Powel ,~~ Powell, U.S. U.S.
Department of Agriculture,Department of Agriculture, ~~Forest~~ Forest Service,Service, Fact Sheet: Forest Service Trust Funds, FS White Paper F14-SO-WP-, FS White Paper F14-SO-WP-
SILV-17, SILV-17, ~~Umatil a~~Umatilla National Forest, National Forest, Pendleton, OR, last updated February 2014. Pendleton, OR, last updated February 2014.
Notes: Funds are listed Funds are listed in alphabetical order by name of fund. in alphabetical order by name of fund.
a. For morea. For more information on stewardship contracting, seeinformation on stewardship contracting, see CRS In Focus IF11179, CRS In Focus IF11179, Stewardship End Result
Contracting: Forest Service and Bureau of Land Management,, by Anne A. Riddle. by Anne A. Riddle.
b. The sales were b. The sales were ~~original y~~ originally made under the Interior and Related Agenciesmade under the Interior and Related Agencies Appropriations Act for FY1990 Appropriations Act for FY1990
(P.L. 101-121) but were halted in 1992 due to a new Endangered Species Act listing in the region of the (P.L. 101-121) but were halted in 1992 due to a new Endangered Species Act listing in the region of the
sales.sales. The sales wereThe sales were reinstated under the 1995 Emergency Supplementalreinstated under the 1995 Emergency Supplemental Appropriations and Rescissions Appropriations and Rescissions
Act (P.L. 104-19, §327). PriorAct (P.L. 104-19, §327). Prior to the passage of the Omnibus Consolidated Rescissionsto the passage of the Omnibus Consolidated Rescissions and Appropriations and Appropriations
Act of 1996, which authorized the Timber Act of 1996, which authorized the Timber Sales Pipeline Restoration Fund, revenues fromSales Pipeline Restoration Fund, revenues from the reinstated the reinstated
sales weresales were disposed of as general timberdisposed of as general timber receipts.receipts.
Table A-2. Timber Revenue Funds: Bureau of Land Management
Type of Land
Name
Description
Authority
Public Domain Lands Public Domain Lands
Reclamation Fund Reclamation Fund
In 17 western states, a In 17 western states, a
Reclamation Act of June Reclamation Act of June
portion of revenues from portion of revenues from
17, 1902; 43 U.S.C. §391. 17, 1902; 43 U.S.C. §391.
timber sales timber sales on public on public
domain lands are domain lands are
deposited in this deposited in this ~~fun~~dfund.a
Expenditures require an Expenditures require an
annual appropriation, and annual appropriation, and
are are ~~typical y~~typically for water for water
infrastructure projects. infrastructure projects.
Public Domain & O&C Public Domain & O&C
Forest Forest Ecosystem Health Ecosystem Health
After payments to states After payments to states
Interior and Related Interior and Related
Lands Lands
and Recovery Fund and Recovery Fund
and to O&C counties, up and to O&C counties, up
Agencies Agencies Appropriations Appropriations
to 100% of the federal to 100% of the federal
Act for FY1993; P.L. 102- Act for FY1993; P.L. 102-
share of receipts from share of receipts from
391. 391.
sales designated as salvage sales designated as salvage
sales are permanently sales are permanently
appropriated to BLM to appropriated to BLM to
prepare and administer prepare and administer
moremore salvage sales. salvage sales.
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Type of Land
Name
Description
Authority
Public Domain Lands & Public Domain Lands &
Stewardship Contracting Stewardship Contracting
BLM may enter into BLM may enter into
Healthy Forests Healthy Forests
O&C Lands O&C Lands
Excess Receipts Excess Receipts
stewardship contracts to stewardship contracts to
Restoration Act (HFRA), Restoration Act (HFRA),
achieve land management achieve land management
P.L. 108-148, as amended; P.L. 108-148, as amended;
goals and to apply the goals and to apply the
16 U.S.C. 16 U.S.C. §6591c. §6591c.
value of any harvested value of any harvested
timber against the cost of timber against the cost of
those stewardship those stewardship
~~services.b~~ services.b Timber receipts Timber receipts
above the cost of above the cost of
stewardship servicesstewardship services are are
deposited in this fund and deposited in this fund and
are authorized to be used are authorized to be used
for other stewardship for other stewardship
projects or to cover projects or to cover
liabilitiesliabilities from canceled from canceled
sales. sales.
Public Domain Lands & Public Domain Lands &
Timber Timber Sales Pipeline Sales Pipeline
Receipts from certain Receipts from certain
Omnibus Consolidated Omnibus Consolidated
O&C Lands O&C Lands
Restoration Fund Restoration Fund
timber sales timber sales and from and from
Rescissions Rescissions and and
additional sales additional sales prepared prepared
Appropriations Act of Appropriations Act of
using the fund are using the fund are
1996, P.L. 104-134, §327; 1996, P.L. 104-134, §327;
permanently appropriated permanently appropriated
16 U.S.C. 16 U.S.C. §1611. §1611.
to the BLM after to the BLM after
payments to counties. Of payments to counties. Of
the available money, 75% the available money, 75%
is is ~~al ocated~~allocated to prepare to prepare
additional timberadditional timber sales, sales,
and the other 25% is for and the other 25% is for
recreationrecreation ~~project~~s projects.c
Source: Table compiledTable compiled using BLM Budget Justifications from FY2010 onward. using BLM Budget Justifications from FY2010 onward.
Notes: Funds are listed Funds are listed by the applicable lands. For each set of applicable lands, they are listed in alphabetical by the applicable lands. For each set of applicable lands, they are listed in alphabetical
order by name of fund. order by name of fund.
a. The 17 states are a. The 17 states are al all states west of the Mississippi,states west of the Mississippi, except Alaskaexcept Alaska ~~and Hawai~~ and Hawaii. Although statute specifies that . Although statute specifies that
monies monies ~~received~~ received from 17 states are to be deposited in the fund, 99% of BLM land is located in 12 of those from 17 states are to be deposited in the fund, 99% of BLM land is located in 12 of those
states. For morestates. For more information on the Reclamation Fund, seeinformation on the Reclamation Fund, see CRS In Focus IF10042, CRS In Focus IF10042, The Reclamation Fund, by , by
Charles V. Stern. Charles V. Stern.
b. For more b. For more information on stewardship contracting, seeinformation on stewardship contracting, see CRS In Focus IF11179, CRS In Focus IF11179, Stewardship End Result
Contracting: Forest Service and Bureau of Land Management,, by Anne A. Riddle. by Anne A. Riddle.
c. The sales were c. The sales were ~~original y~~ originally made under the Interior and Related Agenciesmade under the Interior and Related Agencies Appropriations Act for FY1990 Appropriations Act for FY1990
(P.L. 101-121) but were halted in 1992 due to a new Endangered Species Act listing in the region of the (P.L. 101-121) but were halted in 1992 due to a new Endangered Species Act listing in the region of the
sales.sales. The sales wereThe sales were reinstated under the 1995 Emergency Supplemental Appropriationsreinstated under the 1995 Emergency Supplemental Appropriations and Rescissions and Rescissions
Act (P.L. 104-19, §327). PriorAct (P.L. 104-19, §327). Prior to the passage of the Omnibus Consolidated Rescissionsto the passage of the Omnibus Consolidated Rescissions and Appropriations and Appropriations
Act of 1996, which authorized the TimberAct of 1996, which authorized the Timber Sales Pipeline Restoration Fund, receipts fromSales Pipeline Restoration Fund, receipts from the reinstated the reinstated
sales weresales were disposed of as general timberdisposed of as general timber receipts.receipts.

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Timber Harvesting on Federal Lands

Author Information

Anne A. Riddle Anne A. Riddle

Analyst in Natural Resources Policy Analyst in Natural Resources Policy

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R45688 R45688 · VERSION 67 · UPDATED
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