Our national forests

by Richard H. D. Boerker

HOW THE FOREST SERVICE APPROPRIATION IS ALLOTTED TO THE NATIONAL FORESTS

It is, indeed, a great task to distribute the money that is each year appropriated by Congress for the Forest Service so that the Washington Office, the District Offices, and the 147 National Forests each get their just share and so that each dollar buys the greatest amount of good for the whole people without extravagance or waste. To do this a large organization has been built up composed of business men who have absolutely no selfish interest at heart and among whom graft or favoritism is unknown and unheard of. It may be said without exaggeration that the business of the National Forests is on a thoroughly sound and efficient basis.

Forest Service Expenses. While for reasons already spoken of, the cash receipts are considerably below the expenses for running the Forests, the rapidly increasing system of roads, trails and telephone lines points not only to a constantly increasing use and service to the public but also as a consequence to increased financial returns.

The expenses of the Forest Service on the National Forests are of a two-fold character. There are costs of administration and protection on the one hand which might be called ordinary running expenses, and the costs of improvements, reforestation, and forest investigations on the other. The latter are really in the nature of investments, and do not properly fall into the category of operating costs. Yet they are absolutely necessary to the welfare of the Forests. They comprise expenditures for roads, trails, telephone lines, and similar improvements, the establishment of forests by the planting of young trees which have been destroyed by past fires, the carrying on of research and experiments to aid in the development of the best methods of forestry, and expenses connected with the classification and segregation of agricultural lands in the Forests. The establishment of permanent boundaries and the cost of making homestead and other surveys are also in the nature of investments. Such expenditures may be looked upon as money deposited in the bank to bear interest; they will not bring direct financial returns now but will produce great revenue many years hence.

The Agricultural Appropriation Bill. The fiscal year in the Forest Service extends from July 1 of one year to June 30 of the next. Every year, in the Agricultural Appropriation Bill that comes before Congress, there is an appropriation for the Forest Service for its work. This appropriation is not in a lump sum but by allotments or funds. There is the fund for Fire Fighting, one for General Expenses, another for Statutory Salaries, another for Improvements, another for Emergency Fire conditions, and usually there are special appropriations for various purposes. For the fiscal year 1918 (extending from July 1, 1917, to June 30, 1918) there are special appropriations for Land Classification, for purchasing land under the Weeks Law, for coöperative fire protection under the Weeks Law, and for the Federal Aid Road Act.

The Ranger's Protection and Improvement Plans. Long before this bill reaches Congress every Forest Ranger on every National Forest, every Forest Supervisor, and every Branch of the Washington and the District Offices have been estimating how much money they will need to carry out the plans proposed for the next fiscal year. Each Forest Ranger works and studies over his plans for the next year with which he hopes to protect his district from fire. He plans and figures out what improvements are urgently necessary to make the remote parts of his district more accessible. He tries to arrive at a safe estimate of the cost of so many miles of trails, roads, and telephone lines, so many cabins, barns, corrals, etc., which he thinks are absolutely essential to the proper administration of his district, and he estimates the number of Forest Guards, lookout men, and patrol men he will need for the protection of his territory. Usually these items are summed up under his annual Improvement Plan and his Protection Plan respectively.

The Supervisor's Plans. When the Forest Supervisor receives such estimates and plans from each of his Forest Rangers he studies them over carefully and tries to decide in an impartial way what improvements are most necessary in each Ranger district and what additional men are necessary for the adequate protection of the region in question. He carefully weighs the arguments for and against each expenditure and decides what improvements must be made now and which ones it would be possible to postpone for one or more years without detriment to the work of his Forest as a whole. For in most cases the amount of necessary work to be done on each Ranger district is far in excess of the amount which the Forest Supervisor could approve owing to the inadequacy of the Forest Service funds. So, for the Forest Supervisor, it is merely a question of how low he can keep his estimates for money for the ensuing year until such a time when Congress will appropriate more money so that all the important and necessary work can be done. In most cases therefore the major part of all the expenditures recommended by the Forest Ranger is warranted, but the Forest Supervisor knows that he must cut all the estimates down considerably in order to bring the total Forest estimate reasonably near the amount he is likely to get, basing his judgment upon what he got the year before.

Approval of Plans by the District Forester. The District Forester then gets the National Forest estimate from every one of his 25 or 30 Forest Supervisors and he in turn must decide what projects on each Forest are immediately necessary and which ones can be postponed. The same process is repeated in the Washington office when all the estimates from the District Foresters are received, and the Forester in turn sends to the Secretary of Agriculture his estimates by allotments or funds, which in turn are put before Congress. While Congress sometimes makes minor changes in the Forest Service appropriation, in most cases the bill is passed as it stands.

The District Fiscal Agent. The money appropriated by Congress is allotted to each district, and in turn to each National Forest and finally to each Ranger district by funds, such as General Expenses, Fire Fighting, Improvements, etc. In each district the financial matters are taken care of in the Office of Accounts by the District Fiscal Agent. He is the Assistant of the Chief of the Forest Service Branch of the Division of Accounts of the Department of Agriculture and pays all the bills incurred by the district and receives all the money which comes in from the sale of National Forest resources. The amount of money appropriated for the district is credited to him and he disburses this appropriation in accordance with the Fiscal Regulations of the Department of Agriculture. No other officer is allowed to receive money for the sale of timber, forage, or other resources; in fact no other official in the District handles any of the Forest Service funds whatsoever.

All remittances by users of the National Forests are made to the U. S. District Depository. If a rancher has bought some timber from a Forest Ranger, he is given a letter of transmittal showing the amount of the purchase which he must send to the District Fiscal Agent with the amount necessary to pay for the timber. The letter of transmittal explains the purpose of the remittance.

Tax Money Paid to the States. Another interesting feature of the National Forest business is the money paid each State out of the annual receipts in lieu of taxes. It must be remembered that National Forests do not pay taxes to the States in which they are located. On the other hand, if the National Forests were private property they would bring into the county and state treasuries yearly taxes. To compensate the State for the taxes lost in this way each National Forest pays to each county in proportion to the area of the National Forest lands located in that county a sum of money equal to 25 per cent, of the total gross receipts each fiscal year. From the receipts of the fiscal year 1917 this amounts to about $850,000. It is provided that this money is to be expended for schools and roads in the county in which the National Forests lie. Recently a law was passed giving the Secretary of Agriculture authority to expend an additional 10 per cent. of the National Forest receipts for the construction of roads and trails for the benefit of local communities. From the fiscal year 1917 this amounts to about $340,000. These moneys for roads, trails, and schools are of course a great benefit to the mountain communities, since usually the amount of taxable property in such remote localities is small and hence the amount of taxes received is small. These allotments to the counties have helped to develop the communication systems of local communities and have also made the National Forests more accessible and useful.