There are approximately 765 million acres of forestlands in the United States, most of which are privately owned (443 million acres, or 58%) by individuals, families, Native American tribes, corporations, nongovernmental organizations, and other groups (see Figure 1).1 The federal government has numerous programs to support forest management on those private forests and on nonfederal public forests (such as those owned by state, county, and local governments). These programs support a variety of forest management and protection goals, including activities related to planning for and responding to wildfires, as well as supporting the development of new uses and markets for wood products. These programs are primarily administered by the Forest Service (FS) in the U.S. Department of Agriculture (USDA), and often with the assistance of state partner agencies.
This report describes current forestry assistance programs mostly funded and administered through the State and Private Forestry (SPF) branch of the FS.2 Following a brief background and overview, this report presents information on the purposes of the programs, types of activities funded, eligibility requirements, authorized program duration and funding level, and requested and enacted program appropriations.
Other agencies, inside and outside of USDA, also administer programs that may have forest conservation or protection benefits. For example, the USDA Farm Service Agency administers several programs, including the Emergency Forest Restoration program, which provides assistance to nonindustrial forest landowners to restore forests following catastrophic events.3 The USDA Natural Resources Conservation Service administers the Healthy Forests Reserve program, which funds agreements, contracts, or easements to assist landowners with forest restoration or enhancement projects.4 The Department of the Interior administers a community assistance program to support collaborative community planning and projects to mitigate wildfire risk.5 These programs are outside the scope of this report.
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Figure 1. Forest Landownership in the Conterminous United States |
 |
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Source: CRS analysis of data from Jaketon H. Hewes, Brett J. Butler, and Greg C. Liknes, Forest Ownership in the Conterminous United States circa 2014 - geospatial data set, Forest Service Research Data Archive, 2017, at https://doi.og/10.2737/RDS-2017-0007. |
Background
Providing federal assistance for nonfederal forest landowners has been a component of USDA's programs for more than a century. Initial forestry assistance efforts began with the creation of the USDA Division of Forestry in 1881 (to complement forestry research, which began in 1876). Forestry assistance and research programs grew slowly, and in 1901 the division was upgraded to the USDA Bureau of Forestry. In 1905, the bureau merged with the Interior Department's Division of Forestry (which administered the forest reserves, later renamed national forests) and became the USDA Forest Service (FS). The FS has three primary mission areas: managing the National Forest System, conducting forestry research, and providing forestry assistance.
The Senate and House Agriculture Committees have jurisdiction over forestry in general, forestry assistance, and forestry research programs. Congress authorized specific forestry assistance programs in the Clarke-McNary Act of 1924.6 This law guided those programs for more than half a century, until it was revised in the Cooperative Forestry Assistance Act of 1978 (CFAA).7 The House and Senate Agriculture Committees often examine these programs in the periodic omnibus legislation to reauthorize agriculture and food policy programs, commonly known as the farm bill.8
- The 2008 farm bill established national funding priorities (e.g., conserve working forests, protect and restore forests, and enhance public benefits from private forests); enacted a standardized process for states to assess forest resource conditions and strategize about funding needs (referred to as statewide assessments); and established, modified, and repealed specific assistance programs, among other provisions.9
- The 2014 farm bill reauthorized and modified some existing programs and repealed several programs, mostly programs whose authorizations had expired or programs that had never received appropriations.10
- The 2018 farm bill reauthorized, modified, and repealed existing programs and provided statutory authorization and congressional direction for two current programs that were operating under existing, but broad, authorizations (the Landscape Scale Restoration program and Wood Innovation program). The 2018 farm bill also reauthorized the requirement for statewide assessments.11
The funding authorization for many of the agricultural programs—including three forestry programs—is scheduled to expire at the end of FY2023 unless Congress provides for an extension or reauthorizes them.
Overview
The FS administers most forestry assistance programs, but state partners (e.g., state forestry or natural resource agencies) typically implement the programs. In these cases, the FS provides technical and financial aid to the states, which then provides information and assistance to private landowners or specified eligible entities.12 The 2008 farm bill expanded some agricultural conservation programs to include forestry practices, and thus direct federal financial assistance to private forest landowners may be feasible through those conservation programs.13 See Table 1 for a brief summary of the FS programs addressed in this report; more information on each program is available in the "Forest Service Assistance Programs" section of this report.
To be eligible to receive funds for most of the programs, each state must prepare a State Forest Action Plan, consisting of
- a statewide assessment of forest resource conditions, including the conditions and trends of forest resources in the state; threats to forestlands and resources, consistent with national priorities; any areas or regions of the state that are a priority; and any multistate areas that are a regional priority; and
- a long-term statewide forest resource strategy, including strategies for addressing the threats to forest resources identified in the assessment; and a description of the resources necessary for the state forester to address the statewide strategy.14
The State Forest Action Plans are to be reviewed every 5 years and revised every 10 years.15 All 50 states, the District of Columbia, and 8 territories are covered by a State Forest Action Plan. Each state must also publish an annual funding report and have a State Forest Stewardship Coordination (FSC) Committee.16 Chaired by the state forester and composed of federal, state, and local representatives (including representatives from conservation, industry, recreation, and other organizations), the FSC Committee makes recommendations on statewide priorities on specific programs as well as on the development and maintenance of the State Forest Action Plan.
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National Funding Priorities and Objectives In 2007, the Forest Service (FS) initiated an effort to "redesign" its State and Private Forestry (SPF) programs to improve program delivery and effectiveness. As a result of this process, FSin conjunction with state partnersidentified three nationwide themes and objectives to provide a framework for prioritizing and allocating funds and resources. Congress codified these national priorities in the 2008 farm bill (16 U.S.C. §2101(c)). The three priorities are as follows: Conserve and manage working forest landscapes for multiple values and uses. Objectives include identifying and conserving high-priority forest ecosystems and landscapes and promoting active and sustainable forest management strategies. Protect forests from threats. Objectives include identifying, managing, and reducing forest and ecosystem threats (e.g., uncharacteristic wildfire, insects and disease, and invasive species) and conducting post-disturbance forest restoration activities. Enhance public benefits from trees and forests. Objectives include promoting the ecological, economic, and community benefits derived from trees and forests, including protecting water quality and quantity; conserving wildlife and fish habitat; providing open space; and providing outdoor recreation opportunities. |
|
Program |
Authorization |
Type of Aid |
Eligible Recipients |
Primary Activities |
|
|
U.S. Code Citation or Authorizing Statute |
Discretionary Funding Level and Expiration (if applicable) |
||||
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Collaborative Forest Restoration |
$5 million |
Financial |
Collaborative groups in New Mexico |
Forest restoration projects |
|
|
Community Forest and Open Space Conservation |
16 U.S.C. §2103d |
Such sums as necessary |
Financial |
Local governments, tribes, nonprofit organizations |
Purchase forestlands threatened with conversion to other uses |
|
Cooperative Fire Protection
|
16 U.S.C. §2106 |
Such sums as necessary |
Technical and financial |
States |
Systems for fire prevention, control, and use; fire equipment and training; etc. |
|
Forest Health Protection
|
16 U.S.C. §2104 |
Such sums as necessary |
Technical and financial |
States |
Survey, prevent, suppress, or control insects and diseases |
|
Forest Legacy |
16 U.S.C. §2103c |
Such sums as necessary |
Financial |
States |
Purchase forestlands or easements for forests threatened with conversion to other uses |
|
Forest Stewardship
|
16 U.S.C. §2103a 16 U.S.C. §2107 16 U.S.C. §2102 |
Such sums as necessary |
Technical and financial |
States |
Planning; forest and watershed restoration; reforestation; wildlife habitat improvement; and others |
|
International Forestry |
16 U.S.C. §4501 |
Such sums as necessary |
Technical and financial |
Other countries |
Planning and management; fire, insect, and disease prevention and control; rehabilitation |
|
Landscape Scale Restoration |
16 U.S.C. §2109a |
$20 million through FY2023 |
Financial |
State |
Forest restoration projects |
|
Urban & Community Forestry |
16 U.S.C. §2105 |
Such sums as necessary |
Technical and financial |
State, tribal, local governments, private organizations |
Planning; education; tree planting and maintenance |
|
Wood Technology and Innovation
|
7 U.S.C. §8113 16 U.S.C. §1650 7 U.S.C. §6601 7 U.S.C. §7655d |
$25 million through FY2023 Such sums as necessary $5 million through FY2023 No specific funding authorization |
Technical and financial |
State, tribal, and local governments, other organizations |
Education; technology development and transfer; market development; applied research |
Types of Assistance
The FS assistance programs may provide technical assistance, financial assistance, or both. Technical assistance includes providing guidance documents, skills training, data, or otherwise sharing information, expertise, and advice, either broadly or on specific projects. Technical assistance may also include the development and transfer of technological innovations. Financial assistance is typically delivered through formula or competitive grants (with or without contributions from recipients) or cost-sharing (with varying levels of matching contributions from recipients). As an example, the Forest Health Protection program provides both types of assistance: financial assistance in the form of funding for FS to perform surveys and to control insects or diseases on state or private lands (with the consent and cooperation of the landowner) and technical assistance in the form of data, expertise, and guidance for addressing specific insect and disease infestations.
Funding
Most—but not all—FS assistance programs are available nationally and are permanently authorized to receive discretionary funding. All FS assistance programs require funding through the annual discretionary appropriations process, and are typically funded in the annual Interior, Environment, and Related Agencies appropriations acts; none have mandatory spending. Most of the assistance programs are funded through the FS's State and Private Forestry (SPF) account, although some programs are funded or allocated from other accounts or programs.
Funding for FS assistance programs has remained relatively stable over the past 15 years in terms of nominal dollars but has declined in terms of inflation-adjusted constant dollars (see Figure 2). The average annual appropriation over that time, from FY2006 through FY2020, was $359.8 million, with a peak of $423.5 million in FY2010 and a low of $321.8 million in FY2013 (figures in nominal dollars).17 For the third consecutive year, funding increased year-over-year in FY2020, to $368.1 million. When adjusting for inflation, overall funding also peaked in FY2010 and has remained fairly constant since FY2013. Funding in FY2020 was 25% below FY2010 levels and 24% below FY2006 levels (in inflation-adjusted current dollars). In total, these FS assistance programs made up 7% of the FS's total annual discretionary appropriation on average across those 15 years (from FY2006 through FY2020).18
The Administration requested $243.6 million in FY2021 and proposed to eliminate funding for several of the programs and decrease funding for the others (see Table 2 for FY2016-FY2020 appropriations and the FY2021 budget request; more information on each program is available in the "Forest Service Assistance Programs" section of this report).
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Source: CRS analysis using data compiled from the tables prepared by the House Committee on Appropriations and annual agency budget documents. Notes: Figures reflect total annual discretionary appropriations for FS assistance programs, including appropriations provided through the FS's State and Private Forestry, Wildland Fire Management, and National Forest System accounts. Figures adjusted to FY2019 constant dollars using the annual GDP deflator price index reported by the U.S. Department of Commerce, Bureau of Economic Analysis, National Income and Products Accounts Tables, Table 1.1.9. |
Table 2. FS Assistance Programs Appropriations, FY2016-FY2020 Enacted and FY2021 Requested
(nominal dollars, in millions)
|
Program |
FY2016 |
FY2017 |
FY2018 |
FY2019 |
FY2020 |
FY2021 Request |
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|
Collaborative Forest Restoration Programa |
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Community Forest & Open Space Conservation |
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|
|
|
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Cooperative Fire Protectionb |
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State Fire Assistance |
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Volunteer Fire Assistance |
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Supplemental |
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Forest Health Protectionc |
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Federal Lands |
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Cooperative Lands |
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Forest Legacyd |
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Forest Stewardshipe |
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International Forestry |
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Landscape Scale Restoration |
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Urban and Community Forestry |
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Wood Technology and Innovationf |
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Total |
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Percentage of Total FS Discretionary Appropriationsh |
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|
|
|
|
|
Source: CRS analysis using data compiled from the tables prepared by the House Committee on Appropriations, communications with the Forest Service Legislative Affairs staff, and Forest Service annual budget documents, including the FY2021 Budget Justification, available from at https://www.fs.usda.gov/about-agency/budget-performance.
Notes: Figures reflect rescissions and supplemental funding as noted. The programs are funded through the FS's State and Private Forestry (SPF) account, unless otherwise specified. Columns may not add due to rounding.
a. According to Forest Service Legislative Affairs staff, as of April 2019, the charter for the advisory committee required for the Collaborative Forest Restoration Program (CFRP) is expired, and activities under this program—such as soliciting new project proposals—will not resume until the advisory committee has been re-chartered. The FY2021 budget request does not include a specific request for funding the CFRP, which was previously funded through allocations from the Wildland Fire Management (WFM) account.
b. The Cooperative Fire Protection program is sometimes referred to as Cooperative Fire Assistance (CFA) for appropriations purposes. FY2019 figures reflect $9.3 million in emergency supplemental funding for disaster recovery purposes. Those funds were not further allocated between the State Fire Assistance and Volunteer Fire Assistance programs. CFA was funded through the WFM account in FY2016 and FY2017, and in the SPF account starting in FY2018. The Administration's FY2021 budget request proposed changing the names of those programs to National Fire Capacity and Rural Fire Capacity, respectively.
c. The Forest Health Protection program is sometimes referred to as Forest Health Management (FHM) for appropriations purposes. The total FHM figures reflect emergency supplemental appropriations provided to the Cooperative Lands program: $1.5 million in FY2018 and $0.4 million in FY2019.
d. The Forest Legacy figures reflect rescissions of $12.0 million in FY2017, $5.9 million in FY2018, and $1.5 million in FY2019.
e. These Forest Stewardship figures reflect emergency supplemental appropriations of $6.0 million in FY2018 and $1.5 million in FY2019. The Administration's FY2021 budget request proposed changing the name of this program to Working Forest Lands.
f. Wood Technology and Innovations includes funding for several programs, including grants for wood innovation, biomass and wood energy market development, and related research programs. The funds are allocated from several FS appropriations accounts, including SPF, WFM, and Forest and Rangeland Research.
g. The Cooperative Lands figures reflect emergency supplemental appropriations of $1.5 million in FY2018 and $0.4 million in FY2019.
h. For information on FS FY2019 and FY2020 appropriations, see CRS In Focus IF11416, Forest Service: FY2019 and FY2020 Appropriations, by Katie Hoover, Forest Service: FY2019 and FY2020 Appropriations. For additional information on FS total discretionary appropriations, congressional clients may contact the report authors.
Unfunded and Repealed Programs
Some FS programs have been repealed by previous farm bills, or have gone unfunded by Congress for several years. Table 3 lists these programs and the most recent congressional action. Some activities authorized by these unfunded or repealed programs may continue to be performed or provided by FS through other authorizations or funding sources.
|
Program Name |
Action-Year |
Description |
|
Biomass Commercial Utilization Program |
Repealed in 2018 farm bill (§8403) |
This program was authorized to provide financial assistance to offset the cost of biomass for owners or operators of facilities which use biomass as a raw material to produce energy (16 U.S.C. §6531). |
|
Community Fire Protection |
Unfunded since established in 2002 farm billa |
A program authorized to assist communities in reducing threats from wildfire (16 U.S.C. §2106c). Some activities are performed through the Cooperative Fire Protection programs. |
|
Community Wood Energy Program |
Unfunded since established in 2008 farm bill; modified by the 2018 farm bill |
Originally authorized as a program to provide financial assistance for state and local governments to acquire wood energy systems for public buildings, the 2018 farm bill (§8644) expanded the program to also include assistance for the construction of manufacturing or processing plants that use or produce innovative wood products and renamed it to the Community Wood Energy and Wood Innovation Program (7 U.S.C. §8113, see below).b Authorization for up to $25 million in annual appropriations expires in FY2023. |
|
Economic Action Programs (EAP) |
Unfunded since FY2010 |
EAP consisted of several programs to provide technical assistance to promote economic development of forest and wood products and in forestry-dependent communities. Some programs have been repealed, others have been unfunded since at least FY2010, and others have continued under different names or as part of a different program. |
|
Unfunded since FY2010 |
A program to provide financial and technical assistance to rural communities (7 U.S.C. §§6611-6617). |
|
Repealed in 2014 farm bill |
The funding authorization for this forest marketing program had expired in FY1991. Some activities have since been authorized in other programs, (e.g., the Wood Technology and Innovations Program). |
|
Unfunded since FY2004 |
An EAP program to promote wood products for use in transportation applications. Also known as the Wood in Transportation program. |
|
Emergency Reforestation Assistance |
Unfunded since FY1993 |
A program to provide seedlings or reimburse the reforestation costs for commercial tree stands damaged from wildfire, damaging weather, or insect or disease infestation (16 U.S.C. §2106a). |
|
Forest Biomass for Energy Program |
Repealed in 2014 farm billb |
A program to provide competitive funding for research and development of forest biomass for energy. |
|
Forest Land Enhancement Program |
Repealed in 2014 farm bill |
A program to provide cost-share assistance to forest landowners for specified forest management activities. |
|
Pest and Disease Revolving Loan Fund |
Unfunded since established in 2008 farm bill |
A program to provide financial loans to local governments to purchase authorized equipment to perform specified forest management activities (16 U.S.C. §2104a). |
|
Watershed Forestry Assistance |
Repealed in 2014 farm bill |
A program to promote forestry best management practices and water quality technical assistance for nonindustrial private forestland and tribal forestland. |
Source: CRS.
a. The Farm Security and Rural Investment Act of 2002, P.L. 107-171 §8003.
b. For more information on this program specifically and energy assistance programs generally, see CRS Report R45943, The Farm Bill Energy Title: An Overview and Funding History, by Kelsi Bracmort.
Forest Service Assistance Programs
The following section provides basic information on each of the FS assistance programs, including
- brief program description;
- program activities;
- eligibility requirements;
- the FS appropriations account budget line item (BLI) that provides funding for the program;
- authorized funding levels and any funding restrictions;
- FY2020 funding level in the Further Consolidated Appropriations Act, 2020 (P.L. 116-94);
- FY2021 funding level requested by the Administration;
- statutory authority, recent amendments, and U.S. Code reference;
- expiration date of program authority unless permanently authorized; and
- program's website link.
Information for the following tables is drawn largely from agency budget documents and presentations, explanatory notes, and websites. Further information about these programs may be found on the FS SPF website at http://www.fs.fed.us/spf and on the "cooperative forestry" page.
Collaborative Forest Restoration Program (CFRP)
|
Program purpose and description |
CFRP (also known as the Community Forest Restoration Program) was established to encourage collaborative partnerships among community groups in New Mexico to improve forest ecosystem functioning and watershed conditions and reduce the threats of catastrophic wildfires or insect and disease outbreaks. |
|
Activities |
Provides cost-share grants of up to $360,000 for forest restoration projects to reduce the threat of catastrophic wildfires, reestablish fire regimes, preserve old and large trees, replant deforested areas, and increase small-diameter tree utilization on public and tribal lands in New Mexico. |
|
Eligibility requirements |
Collaborative groups consisting of a diverse and balanced group of stakeholders, government, and tribal representatives are eligible to apply for funding. Projects must be on public (federal, state, county, or municipal) or tribal lands in New Mexico. |
|
FS Appropriations account |
Funds are allocated from National Forest System (NFS) Hazardous Fuels account. |
|
Funding authority |
Up to $5 million annually. |
|
FY2020 funding |
$0. According to Forest Service Legislative Affairs staff, as of April, 2019, the charter for the advisory committee required for the program is expired, and activities under this program—such as soliciting new project proposals—will not resume unless the advisory committee has been re-chartered. |
|
FY2021 Administration request |
The FY2021 budget request does not include a specific request for CFRP. |
|
Statutory authority |
Authorized in Title VI of the Secure Rural Schools and Community Self-Determination Act of 2000 (P.L. 106-393). |
|
Authorization expires |
Permanent authority. |
|
Program website |
Community Forest and Open Space Conservation Program (CFP)
|
Program purpose and description |
CFP provides financial assistance to establish community forests for community benefits by acquiring and protecting private forestlands. |
|
Activities |
Provides up to 50% cost-share grants to purchase the fee simple title of eligible private forestlands. Funding may not be used to purchase conservation easements. The lands to be purchased must be privately owned, at least five acres, 75% forested, and threatened by conversion to nonforest uses, such as residential development, mineral extraction, industrial use, or commercial uses other than timber production. The purchased lands must be managed for public economic, recreational, environmental, or education benefits to communities and provide public access. |
|
Eligibility requirements |
Local governments, Indian tribes, or qualified nongovernment organizations are eligible to apply for funding. Proposals are submitted to state foresters (or equivalent tribal officials) and then forwarded to FS. Proposal ranking and project selection criteria are outlined in 36 C.F.R. 230.5. |
|
FS appropriations account |
SPF Cooperative Forestry. |
|
Funding authority |
No specified authorization level, and FS may allocate 10% of the appropriated funds to state foresters for program administration. |
|
FY2020 funding |
$4.0 million. |
|
FY2021 Administration request |
$0; Administration proposes to eliminate program. |
|
Statutory authority |
Authorized in the 2008 farm bill (§8003), 16 U.S.C. §2103d. |
|
Authorization expires |
Permanent authority. |
|
Program website |
https://www.fs.fed.us/managing-land/private-land/community-forest/program |
Cooperative Fire Protection: State Fire Assistance (SFA)
|
Program purpose and description |
The Cooperative Fire Protection (FP) program consists of two components, State Fire Assistance (SFA) and Volunteer Fire Assistance (VFA, described in the following section). The program's overall purpose is to provide assistance to encourage effective, coordinated, and uniform responses to wildfire, with an emphasis on improving preparedness (such as fire planning and initial attack capabilities) for state and local government fire agencies to respond to wildfires on nonfederal lands, and mitigation (such as hazardous fuels reduction and wildfire prevention activities) for state and local government agencies to reduce the risk of or damage from catastrophic wildfires. The SFA component provides assistance for preparedness activities to promote firefighter safety, capability, and capacity, and community mitigation activities to reduce wildfire risk to communities and promote community fire planning. |
|
Activities |
Provides financial assistance, technical training, and equipment to state foresters to promote fire protection on nonfederal lands. States may use funds for preparedness activities (e.g., development of fire readiness plans, facility maintenance); firefighting activities, training, and support (e.g., dispatch centers); to purchase, maintain, or rehabilitate equipment; and for program administration. Assistance is also provided for community mitigation programs, including conducting hazardous fuels reduction projects on nonfederal lands and supporting the development of Community Wildfire Protection Plans and/or Firewise certification. Manages and provides financial assistance to states to acquire fire-related equipment through the Federal Excess Personal Property Program (FEPP) and educational programs (e.g., the Smokey Bear public service campaign). |
|
Eligibility requirements |
Funding is provided to state foresters or equivalent state officials. A minimum level of funding is allocated annually to each state to ensure a base fire management capacity (at least $100,000), and additional funds are allocated based on acres of nonfederal land, population, and required level of fire protection. |
|
FS appropriations account/BLI |
SPF Cooperative Fire Assistance. |
|
Funding authority |
No specified authorization level for most activities, and up to $35 million annually is reserved for SFA cost-share assistance. |
|
FY2020 funding |
$82.0 million [$100.0 million total provided for FP]. |
|
FY2021 Administration request |
$81.1 million; Administration proposes to change the program's name to National Fire Capacity [$98.1 million total requested for FP]. |
|
Statutory authority |
Authorized in CFAA and amended by 1990 farm bill (Food, Agriculture, Conservation and Trade Act of 1990; P.L. 101-624, §§1215, 1220), 16 U.S.C. §2106. |
|
Authorization expires |
Permanent authority. |
|
Program website |
CRS was unable to locate a website specific to the FP program. For information on FS wildfire programs, see https://www.fs.usda.gov/managing-land/fire. |
Cooperative Fire Protection: Volunteer Fire Assistance (VFA)
|
Program purpose and description |
The Cooperative Fire Protection (FP) program consists of two components, State Fire Assistance (SFA, described in the preceding section) and Volunteer Fire Assistance (VFA).The program's overall purpose is to provide assistance to encourage effective, coordinated, and uniform responses to wildfire, with an emphasis on improving preparedness (such as fire planning and initial attack capabilities) for state and local government fire agencies to respond to wildfires on nonfederal lands, and mitigation (such as hazardous fuels reduction and wildfire prevention activities) for state and local government agencies to reduce the risk of or damage from catastrophic wildfires. The VFA component supports state efforts to provide organization, training, and equipment for rural fire departments to protect and respond to wildfires on nonfederal lands in rural areas. |
|
Activities |
Provides up to 50% cost-share grants and technical assistance to states to provide education, planning, training, and equipment for rural fire departments to improve fire protection capabilities and effectiveness. |
|
Eligibility requirements |
Funding is provided to state foresters or equivalent state officials. States may use the funds to support any organized, not-for-profit, fire protection organization that provides services to a community with a population less than 10,000 or whose firefighting personnel is at least 80% volunteer. |
|
FS appropriations account/BLI |
SPF Cooperative Fire Assistance. |
|
Funding authority |
No specified authorization level for most activities, and up to $35 million annually is reserved for VFA cost-share assistance. |
|
FY2020 funding |
$18.0 million [$100.0 million total provided for FP]. |
|
FY2021 Administration request |
$17.0 million; Administration proposes to change the program's name to Rural Fire Capacity [$98.1 million total requested for FP]. |
|
Statutory authority |
Specific authorization for VFA was initially provided as the Rural Community Fire Protection program in the 1973 farm bill (Agriculture and Consumer Protection Act of 1973; P.L. 93-86 §27) but was eliminated and replaced by an unrelated program in the 1996 farm bill (Federal Agriculture Improvement and Reform Act; P.L. 104-127 §§741(a)(4) and (5)). Since then, Congress has continued to provide appropriations to the program under the broader FP program, as authorized in CFAA and amended by the 1990 farm bill (§§1215, 1220), 16 U.S.C. §2106. |
|
Authorization expires |
Permanent authority. |
|
Program website |
CRS was unable to locate a website specific to the FP program. For information on FS wildfire programs, see https://www.fs.usda.gov/managing-land/fire. |
Forest Health Protection (FHP): Federal Lands and Cooperative Lands
|
Program purpose and description |
FHP was created to protect trees, forests, and wood products from negative impacts due to natural and man-made causes nationwide. The program is implemented through two subprograms: Federal Lands and Cooperative Lands. |
|
Activities |
The Federal Lands subprogram surveys and monitors forest health conditions on federal lands, performs pest suppression efforts on federal and tribal trust lands (including lands managed by other federal agencies and tribal governments), and coordinates an integrated pest management program and specific prevention and suppression programs for major insects, diseases, and invasive species across all landownership types. The Cooperative Lands subprogram provides technical and financial assistance to states to conduct forest surveys to detect, monitor, and assess forest conditions across nonfederal lands. Financial assistance may also be provided through 50% cost-share grants for projects or programs to treat specific forest health problems. |
|
Eligibility requirements |
FS can act on its own lands and other lands with consent, cooperation, and participation (including financial contributions). Other federal land management agencies submit suppression-related project requests to the FS for approval. Financial assistance is provided to states to support a base level of forest health expertise at the appropriate state partner agencies; these funds are allocated based on nonfederal forest acreage, among other factors. |
|
FS appropriations account/BLI |
SPF Forest Health Management. |
|
Funding authority |
No specified authorization level. |
|
FY2020 funding |
$100.0 million ($56.0 million for Federal Lands; $44.0 million for Cooperative Lands). |
|
FY2021 Administration request |
$84.6 million ($50.9 million for Federal Lands; $33.8 million for Cooperative Lands). |
|
Statutory authority |
Authorized in the CFAA and amended by the 1990 farm bill (§1218), 16 U.S.C. §2104. |
|
Authorization expires |
Permanent authority. |
|
Program website |
Forest Legacy Program (FLP)
|
Program purpose and description |
FLP provides financial assistance to protect environmentally important forest areas that are threatened by conversion to nonforest uses. |
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Activities |
Provides up to 75% cost-share grants to states to acquire eligible private forestlands, either through fee-simple purchases or conservations easements. Landowners with FLP conservation easements on their property must manage the land consistent with the purposes for which the land was enrolled in the program, and may include timber production, hiking, hunting, and fishing. Financial assistance may also be provided to the states to administer the program. |
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Eligibility requirements |
Funding typically goes to state forestry agencies or equivalent to purchase and hold the title or easement. Nonprofit organizations may hold the title or conservation easement for donated tracts. A federally or state-recognized tribe may participate in partnership with the state. States must have and maintain State Forest Action Plans, which must include a Forest Legacy Assessment and recommendations for Forest Legacy Areas. The assessment evaluates current and future forest uses statewide and defines the criteria the state will use to identify, recommend, and prioritize threatened environmentally important forest areas as Forest Legacy Areas. The FS designates Forest Legacy Areas within the state upon approval of the state's Forest Action Plan. The acquired lands must be within a designated Forest Legacy Area, at least 75% forestland, and be acquired from a willing seller. Project selection is a three-step competitive process. First, the State FSC Committee evaluates proposals and makes recommendations to the state; second, the state then submits recommendations to the FS; and third, the FS makes the final selection. |
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FS appropriations account/BLI |
SPF Cooperative Forestry. |
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Funding authority |
No specified authorization level. Since FY2004, funding has been provided through the Land and Water Conservation Fund. For more information, see CRS Report R44121, Land and Water Conservation Fund: Appropriations for "Other Purposes." |
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FY2020 funding |
$64.0 million. |
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FY2021 Administration request |
$0; Administration proposes to eliminate program. |
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Statutory authority |
Authorized in the 1990 farm bill (§1217), 16 U.S.C. §2103c. |
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Authorization expires |
Permanent authority. |
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Program website |
https://www.fs.fed.us/managing-land/private-land/forest-legacy/program |
Forest Stewardship Program (FSP)
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Program purpose and description |
FSP was established to encourage long-term stewardship on nonindustrial private forestlands (NIPFs). NIPFs are defined as "lands with existing tree cover, or suitable for growing trees, and owned by any private individual, group, association, corporation, tribe, or other private legal entity" (16 U.S.C. §2103a(c)). Forest stewardship is not defined directly or indirectly by reference in the statute. Since FY1993, two other programs have been funded and administered as part of FSP:
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Activities |
Provides technical and financial assistance to states, which provides information and assistance to private landowners. Technical assistance includes activities such as landowner outreach and education, development of forest stewardship management plans, and fostering stewardship planning across multiple owners for a landscape-level approach. |
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Eligibility requirements |
State forestry agencies or equivalent. States must have and maintain State Forest Action Plans. States may use funds to provide financial assistance to private landowners. |
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FS appropriations account/BLI |
SPF Cooperative Forestry. |
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Funding authority |
No specified authorization level. |
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FY2020 funding |
$21.0 million. |
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FY2021 Administration request |
$20.7 million; Administration proposes to rename as Working Forest Lands. |
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Statutory authority |
FSP was authorized in the CFAA and amended by the 1990 farm bill (§1215), 16 U.S.C. §2103a.
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Authorization expires |
Permanent authority. |
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Program website |
https://www.fs.fed.us/managing-land/forest-stewardship/program |
International Forestry Programs
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Program purpose and description |
International forestry programs support forestry and natural resource activities outside of the United States to promote conservation and sustainable forest management and global environmental stability. |
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Activities |
Provides financial and technical assistance to countries to promote development and transfer of technical, research, managerial, education, and administrative skills to forest managers. Includes research and assistance through the Institute of Tropical Forestry and Institute for Pacific Islands Forestry. |
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Eligibility requirements |
Assistance is available only to countries that receive USAID support. |
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FS appropriations account/BLI |
SPF International Forestry. |
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Funding authority |
No specified authorization level. |
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FY2020 funding |
$12.0 million. |
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FY2021 Administration request |
$0; Administration proposes to eliminate program. |
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Statutory authority |
International forestry activities are authorized in two places:
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Authorization expires |
The authorization for the Office of International Forestry (7 U.S.C. §6704) to receive funding expired at the end of FY2018. Other International Forestry programs are permanently authorized. |
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Program website |
Landscape Scale Restoration Program (LSR)
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Program purpose and description |
LSR was originally established to support innovative regional or national forest restoration projects that cross multiple landownership boundaries. The 2018 farm bill statutorily codified the program to encourage collaborative, science-based restoration of priority forest landscapes. The 2018 farm bill also provided congressional direction on program eligibility, criteria, and establishment, and is expected to be fully implemented in the FY2021 grant cycle. Projects with multiple ownerships are prioritized, but projects must include nonindustrial private forestland as well as state- or locally owned forestland. Projects may include activities authorized by other programs including FSP, FHP-Cooperative Lands, UCF, and SFA; but not VFA, FLP, or FHP-Federal Lands. |
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Activities |
Provides 50% cost-share grants for cross-boundary projects that address regionally or nationally significant issues or landscapes as identified in State Forest Action Plans. Funding is provided through a two-step competitive process: proposals are first evaluated at a regional level and then at the national level. Each region (Northeast, South, and West) develops regionally specific evaluation criteria that must be consistent with national standards. |
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Eligibility requirements |
Prior to the 2018 farm bill, state forestry agencies and the District of Columbia were eligible to receive funding and authorized to pass the funding to partners. Tribes, nonprofit organizations, local governments, and land grant colleges or universities were eligible to sponsor or participate as a partner in a project. The 2018 farm bill specifies that proposals must be submitted through state foresters or other appropriate state agency. It is not clear if a state pass-through of the funding will still be required after the 2018 farm bill direction is implemented. |
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FS appropriations account/BLI |
SPF Landscape Scale Restoration. |
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Funding authority |
Up to $20 million annually, through FY2023. |
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FY2020 funding |
$14.0 million. |
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FY2021 Administration request |
$14.0 million. |
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Statutory authority |
Authorized in the 2018 farm bill (§8102(a)), 16 U.S.C. §2109a. Prior to the 2018 farm bill, the program operated under a broad authority provided in the 2008 farm bill (§8007). |
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Authorization expires |
Permanent authority. |
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Program website |
https://www.fs.usda.gov/naspf/working-with-us/grants/landscape-scale-restoration-grants |
Urban and Community Forestry Assistance Program (UCF)
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Program purpose and description |
UCF was created to establish, manage, and protect trees, forests, green spaces, and related natural resources in and adjacent to cities and towns. |
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Activities |
Provides financial, technical, and related assistance to conduct tree inventories; prepare management plans; plant and care for trees; disaster planning, mitigation, response, and recovery; support workforce development; and host community activities, such as youth summer camps. Also provides 50% cost-share grants to address strategic issues and opportunities identified by the National Urban and Community Forestry Advisory Council (NUCFAC). The NUCFAC consists of 15 members as appointed by the Secretary. |
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Eligibility Requirements |
No eligibility requirements specified in law. Therefore, states and territories, tribes, nongovernmental organizations, private nonprofit organizations, or individuals are eligible to apply for funding. |
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FS appropriations account/BLI |
SPF Cooperative Forestry. |
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Funding authority |
No specified authorization level |
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FY2020 funding |
$32.0 million. |
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FY2021 Administration request |
$0; Administration proposes to eliminate program. |
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Statutory authority |
Authorized in CFAA and amended by 1990 farm bill (§§1215, 1219), 16 U.S.C. §2105. |
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Authorization expires |
Permanent authorization. According to FS Legislative Affairs staff, as of July 2018, the charter for NUCFAC is expired. |
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Program website |
Wood Technology and Innovation Programs
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Program purpose and description |
This includes several FS authorities and programs to provide financial and technical assistance to develop, promote, and market innovative uses of wood products in an effort to remove hazardous fuels and other wood residues (e.g., biomass) from National Forest System (NFS) lands, reduce the costs of forest management on public and private forestlands, and promote economic and environmental health of forest-dependent communities, among other purposes. |
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Activities |
The Wood Innovation Grant Program, a part of the broader Rural Revitalization Technologies (RRT) program, provides cost-share grants to stimulate or expand wood energy and wood products markets through projects that use wood, expand wood energy markets, and promote wood as a construction material in commercial buildings. The Hardwood Technology Transfer and Applied Research (HTTAR) program conducts technology transfer and development, training, and applied research in the management, processing and utilization of hardwoods, including through grants, contracts, or cooperative agreements. The program operates through the Wood Education and Resource Center (WERC), the Institute of Hardwood Technology Transfer and Applied Research (IHTTAR), and Forest Products Laboratory. The Community Wood Energy and Wood Innovation (CWE/WI) program provides competitive cost-share grants to install community wood energy systems or build innovative wood product facilities. |
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Eligibility requirements |
State, local, and tribal governments, communities, nongovernmental organizations, institutes of higher education, school districts, communities, and special purpose districts. |
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FS appropriations account/BLI |
Funds are allocated from other FS accounts and programs, including NFS Hazardous Fuels. |
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Funding authority |
Funding is authorized through different programs, including
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FY2020 funding |
$21.1 million. |
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FY2021 Administration request |
$26.2 million. |
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Statutory authority |
This group of programs relies on different authorities, including
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Authorization expires |
RRT and the Community Wood Energy and Wood Innovation program expire in FY2023. HTTAR is permanently authorized. |
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Program website |
https://www.fs.fed.us/science-technology/energy-forest-products/wood-innovations-grants |