Forest Service

Policies and Plans

Executive Order 14008 (Tackling the Climate Crisis at Home and Abroad) and Executive Order 14057 (Catalyzing Clean Energy Industries and Jobs Through Federal Sustainability), together require each federal agency to develop climate adaptation plan, and to submit annual progress reports to communicate agency action to bolster climate adaptation and resilience.

In addition, the Forest Service’s policies and plans regarding climate change implement subject-specific directives, including Executive Order 14072 (Strengthening the Nation's Forests, Communities, and Local Economies) and Secretary Vilsack's 2022 Memorandum 1077-044 (Climate Resilience and Carbon Stewardship of America's National Forests and Grasslands).

On April 21, 2023, the USDA Forest Service published a proposed rule to “adapt current policies to protect, conserve, and manage the national forests and grasslands for climate resilience” in light of “climate change and related stressors [] resulting in increasing impacts with rapid and variable rates of change on national forests and grasslands.” 88 Fed. Reg. 24,497 (Apr. 21, 2023).

Biden Administration (2021–2024)

On April 21, 2023, the USDA Forest Service published a proposed rule to “adapt current policies to protect, conserve, and manage the national forests and grasslands for climate resilience” in light of “climate change and related stressors [] resulting in increasing impacts with rapid and variable rates of change on national forests and grasslands.” 88 Fed. Reg. 24,497 (Apr. 21, 2023).

In July 2022, the Forest Service released a new Climate Adaptation Plan, containing a number of adaptation actions and an implementation plan. 

In April 2022, the Forest Service released its Strategic Plan for fiscal years 2022 to 2026. The plan’s first strategic goal focuses on combating climate change.

Obama Administration (2009–2016)

In June 2015, the Forest Service released a Strategic Plan for fiscal years 2015 to 2020. The first strategic goal outlined in the Plan is to sustain U.S. forests and grasslands by fostering resilient, adaptive ecosystems, mitigating wildfire risk, and conserving open space.

In February 2011, the Forest Service released the National Roadmap for Responding to Climate Change, which aims to help units achieve the goals outlined in the 2008 Strategic Framework for Responding to Climate Change. The document, which recognizes the Forest Service’s role in maintaining ecosystem health for future generations, outlines four ways the USFS can address climate change: organizational capacity, partnerships and conservation education, adaptation, and mitigation.

In June 2009, USDA’s Forest Service issued a Global Change Research Strategy for the years 2009 to 2019. This strategy outlines research needed to inform the development of climate change adaptation and mitigation approaches to sustain healthy ecosystems and improve forest and grassland management.

Resource Management Rules and Directives

The Forest Service’s authority to sustainably manage National Forest System lands and resources is derived from the Forest and Rangeland Renewable Resources Planning Act of 1974, as amended by the National Forest Management Act of 1976 (16 U.S.C. 1600–1614, 472a); the Healthy Forests Restoration Act of 2003 (16 U.S.C. 6501–6591); Multiple-Use Sustained-Yield Act of 1960 (16 U.S.C. 528–531); and the Organic Administration Act (16 U.S.C. 475, 551).

Forest Resilience

In April 2023, the Forest Service published a report, Mature and Old-Growth Forests: Definition, Identification, and Initial Inventory on Lands Managed by the Forest Service and Bureau of Land Management, to implement section 2(b) of President Biden’s Executive Order 14072. The Executive Order expresses the administration’s policy to protect old-growth forests, especially from climate-related threats such as wildfires. The 2023 Report contains the first national inventory of old-growth and mature forests on land administered by the Forest Service and Bureau of Land Management.

Biden Administration (2021-2024)

Forest Resilience

In April 2023, the Forest Service published a report, Mature and Old-Growth Forests: Definition, Identification, and Initial Inventory on Lands Managed by the Forest Service and Bureau of Land Management, to implement section 2(b) of President Biden’s Executive Order 14072. The Executive Order expresses the administration’s policy to protect old-growth forests, especially from climate-related threats such as wildfires. The 2023 Report contains the first national inventory of old-growth and mature forests on land administered by the Forest Service and Bureau of Land Management.

Obama Administration (2009–2016)

Ecosystem Resilience

On April 27, 2016, the Forest Service issued a policy directive, establishing a framework for restoring and maintaining resilient ecosystems that will have greater capacity to withstand stressors and recover from disturbances, including those caused by climate change. 81 Fed. Reg. 24,785 (Apr. 27, 2016). It requires land and resource managers to plan, authorize, implement, monitor and evaluate “ecological restoration activities” and provides guidance on how managers should implement this directive. It replaces an interim policy on ecological restoration and resilience from 2008.

Forest Resilience

On Feb. 6, 2015, USFS amended the Forest Service Manual and Land Management Planning Handbook to implement the 2012 Planning Rule. 80 Fed. Reg. 6,683 (Feb. 6, 2015). The revisions contain more detailed directions on how to account for the effects of climate change and pursue adaptive management in the context of specific NFS planning and management activities. 

On April 9, 2012, the Forest Service adopted a final rule governing the development of land management plans for the 155 national forests, 20 grasslands, and 1 prairie that comprise the National Forest System (NFS). 77 Fed. Reg. 21,161 (April 9, 2012). The rule sets specific requirements for land management plans, which are designed to ensure that all management plans are environmentally sustainable, and that NFS lands are more resilient to climate change.

National Environmental Policy Act Regulations

The Forest Service may promulgate National Environmental Policy Act (NEPA) implementing regulations which should be consistent with the White House Council on Environmental Quality's intent for federal agencies to conduct environmental reviews in consistent and coordinated ways, and to avoid unnecessary burden or delay.

First Trump Administration (2017–2020)

On November 19, 2020, the Forest Service finalized revisions of its regulations under the National Environmental Policy Act (NEPA). 85 Fed. Reg. 73,620 (Nov. 19, 2020). The final rule creates six new categorical exclusions, including for forest restoration and resilience, recreational sites, and road management activities. (See Clinch Coalition v. U.S. Forest Service in “Litigation” below.)

Obama Administration (2009–2016)

On January 13, 2009, the Forest Service issued guidance on “Climate Change Considerations in Project Level NEPA Analysis.” This guidance document directs Forest Service staff to analyze the effects of a proposed action on climate change and the effects of climate change on the action when conducting NEPA reviews. The guidance provides specific recommendations on how to conduct the analysis, including the types of greenhouse gas emissions that should be accounted for, when to conduct a quantitative versus qualitative analysis of emissions, and the types of climate change impacts to be considered.

Litigation

Challenge to 2020 Rule - Clinch Coalition v. U.S. Forest Service

On January 8, 2021, a coalition of environmental groups challenged the 2020 NEPA regulation revisions in court.

Roadless Rule

The 2001 Roadless Rule and related regulations are authorized by USDA’s broad authority to protect and administer National Forest System lands granted by the Organic Administration Act of 1897, the Multiple-Use Sustained Yield Act of 1960, and the National Forest Management Act of 1976.

On February 1, 2021, the USDA directed the Forest Service in a memorandum to temporarily halt road construction and logging in roadless areas of national forests pending completion of a review into whether the activities are compatible  with environmental and climate policy goals.

Biden Administration (2021-2024)

On February 1, 2021, the USDA directed the Forest Service in a memorandum to temporarily halt road construction and logging in roadless areas of national forests pending completion of a review into whether the activities are compatible  with environmental and climate policy goals.

On July 15, 2021, USDA announced a new Southeast Alaska Sustainability Strategy through which USDA will consult with Tribes and Alaska Native corporations, and engage partners and communities in a collaborative process to invest approximately $25 million in financial and technical resources to advance sustainable opportunities for economic growth and community well-being and identify priorities for future investments. USDA will also end large-scale old growth timber sales on the Tongass National Forest and will instead focus management resources to support forest restoration, recreation and resilience, including for climate, wildlife habit and watershed improvement. Small and micro old growth sales will still be offered for community consumption and cultural uses such as totem poles, canoes and tribal artisan use. USDA also announced that it will initiate a rulemaking later in the summer that will propose to restore 2001 Roadless Rule protections in the Tongass National Forest.

First Trump Administration (2017-2020)

On October 29, 2020, the Forest Service published a final decision exempting the Tongass National Forest from the 2001 Roadless Area Conservation Rule, which prohibits tree harvest and road construction within certain protected areas. 85 Fed. Reg. 68,688 (Oct. 29, 2020). The Tongass is the largest national forest in the United States, and is thought to play a significant role in storing carbon. (See Organized Village of Kake v. Perdue in “Litigation” below.)

Litigation

Challenge to 2020 Rule - Organized Village of Kake v. Perdue

On December 23, 2020, a lawsuit filed in the federal district court for the District of Alaska challenged the final rule exempting the Tongass National Forest from the Roadless Area Conservation Rule.