Rogue River-Siskiyou National Forest Staff Followed the Forest Service’s Postfire Recovery Approach, but Unique Circumstances Affected the Time Taken and Alternatives Considered for the Biscuit Fire Recovery Project

In developing the Biscuit Fire Recovery Project, the Rogue River-Siskiyou  National Forest staff followed the Forest Service’s general approach for  postfire recovery efforts, but several unique circumstances, combined,  affected the time taken to develop the Project and the alternatives included  in it. First, the size of the burned area—and subsequently the  Project—complicated the environmental analysis and the time needed to  complete and review it. Authorized Management Activities in Inventoried Roadless Areas Changed over the Course of Planning for the Project

The second circumstance unique to the Biscuit Fire that affected the  development of the Project was the uncertainty of the regulations and  guidance governing road building and salvage harvest activities in  inventoried roadless areas, which affected the alternatives in the Project  EIS and the time needed to analyze them. Salvage Sales Are Nearly Complete, but a Full Comparison of Financial and Economic Results with Initial Estimates Is Difficult

As of December 2005, the forest staff had nearly completed 12 salvage sales  in the matrix and late-successional reserve areas; however, incomplete  sales information and a lack of comparable economic data make a  comparison of the financial and economic results of the sales with the  agency’s initial estimates difficult. For fiscal years 2003 through 2005,  the Forest Service and other agencies spent about $5 million on the sales  and related activities such as law enforcement. In return, the agency  collected about $8.8 million from the sales. From these receipts, the Forest  Service plans to spend an additional $5.7 million in the next several years to  remove brush, reforest, and conduct other work in sale areas. In the EIS,  the sale expenditures and receipts were estimated to be about $24 million  and $19.6 million, respectively, and the salvage harvest was expected to  generate about 6,900 local jobs and $240 million in regional economic  activity. However, it is premature to compare the results through 2005 with  the estimates because the Forest Service will generate additional  expenditures, revenues, and potential economic activity from two sales in  June and August 2006. Forest Service and Other Agencies Spent an Estimated $5 Million for the Biscuit Fire Salvage Sales from Fiscal Years 2003 through 2005, and Forest Service Plans to Spend $5.7 Million of the $8.8 Million in Receipts from Sales

From fiscal years 2003 through 2005, the Forest Service reported that it  spent an estimated $4.6 million to plan, prepare, and administer the salvage  sales in the Biscuit Fire Recovery Project, while other agencies spent an  estimated $350,000. For example, the amount of  brush disposal work—an estimated 18,939 acres in the records of  decision—will be reduced because the acres where salvage harvest will be  done have been reduced. The forest staff do not have a schedule for developing fuel management  zones and have not requested additional funds for the work. The forest staff are still planning these activities and  completing them depends on schedules and funding sources. Completion of the study depends on the completion of other Project  activities. The forest staff confirmed three instances of improper  logging and determined that two were the result of errors on the part of the  forest staff, and one was an error by the timber purchaser. Objectives, Scope, and Methodology

Our objectives were to determine (1) how the development of the Biscuit  Fire Recovery Project compared with the Forest Service’s general  approach to postfire recovery; (2) the status of the Biscuit Fire Recovery  Project salvage sales and how the reported financial and economic results  of the sales compared with the Forest Service’s initial estimates; (3) the  status of other activities identified in the Biscuit Fire Recovery Project; and  (4) the extent and cause of improper logging within the Biscuit Fire  Recovery Project, as reported by the Forest Service, and changes the  agency made to prevent such occurrences in the future.
Why GAO Did This Study

In 2002, the Biscuit Fire burned almost 500,000 acres of the Rogue River-Siskiyou National Forest in southwestern Oregon. In its wake, the Biscuit Fire Recovery Project (Project) is one of the largest, most complex postfire recovery projects undertaken by the Forest Service. Considerable controversy exists over the Project and its salvage sales to harvest dead trees. GAO was asked to determine (1) how the Project compares with the Forest Service's general approach to postfire recovery, (2) the status of the Project's salvage sales and how the reported financial and economic results of the sales compare with initial estimates, (3) the status of other Project activities, and (4) the extent of reported improper logging and the agency's response. To answer these objectives, GAO reviewed Project environmental analysis documents, plans, and activity reports and interviewed agency officials.

What GAO Found

The Rogue River-Siskiyou National Forest staff followed the Forest Service's general approach to postfire recovery in developing the Biscuit Fire Recovery Project, but several unique circumstances affected the time taken and the alternatives it included. For example, the size of the burned area--and, subsequently, the size of the Project--complicated the environmental analysis and increased the time needed to complete and review it. Also, the regulations and guidance governing timber harvest and road building in the forest's inventoried roadless areas changed several times, in part due to litigation, affecting the amount of timber available for harvest. As of December 2005, the forest staff had nearly completed 12 salvage sales; however, incomplete sales and a lack of comparable economic data, among other things, make comparing the financial and economic results with the agency's initial estimates difficult. For fiscal years 2003 through 2005, the Forest Service and other agencies spent about $5 million on the sales and related activities. In the next several years, the Forest Service also plans to spend an additional $5.7 million to remove brush and reforest the sale areas. In return, the agency collected about $8.8 million from the sales. While the agency estimated that the salvage sales would generate about $19.6 million for restoration, 6,900 local jobs, and $240 million in regional economic activity, it is premature to compare these estimates with the results because the sales are not complete. The Forest Service will generate additional expenditures, revenues, and economic activity from two sales sold in the summer of 2006. Even when complete sales' results are available, however, a comparison will be complicated by a lack of comparable financial and economic data. Through December 2005, the forest staff began work on most of the other activities identified in the Project but completing them depends on the amount of salvage harvest, funding sources, and work schedules. For example, the amount of brush disposal work--estimated at 18,939 acres--will be reduced because the acres of salvage harvest have been reduced. Other activities, such as establishing fuel management zones to help fight future fires, depend on the Forest Service funding and scheduling the work over many years. In addition, a large-scale study and monitoring activities are still being planned and yet unfunded. Although the forest staff identified the importance of making Project results available to the public, they do not separately report on Project activities and results from other programs. During salvage harvest operations in 2004 and 2005, the Forest Service reported three incidents of improper logging and took action to prevent such occurrences in the future. Two of the incidents were caused by Forest Service errors in marking its boundaries. Forest staff have since developed procedures to better mark boundaries of sale areas. A third incident was caused by an error on the part of the company that purchased the sale; the company was fined $24,000, and the trees were left on the ground.