|
Items in cart [0] |
Questions? Call 888-624-8373 |
| Copyright © 2010. National Academy of Sciences. All rights reserved. Terms of Use and Privacy Statement |
Below are the first 10 and last 10 pages of uncorrected machine-read text (when available) of this chapter, followed by the top 30 algorithmically extracted key phrases from the chapter as a whole.
Intended to provide our own search engines and external engines with highly rich, chapter-representative searchable text on the opening pages of each chapter.
Because it is UNCORRECTED material, please consider the following text as a useful but insufficient proxy for the authoritative book pages.
Do not use for reproduction, copying, pasting, or reading; exclusively for search engines.
OCR for page R1
-->
Forested Landscapes in Perspective
Prospects and Opportunities for Sustainable Management of America's Nonfederal Forests
Committee on Prospects and Opportunities for Sustainable Management of America's Nonfederal Forests
Board on Agriculture
National Research Council
NATIONAL ACADEMY PRESS
Washington, D.C.
1998
OCR for page R2
-->
NATIONAL ACADEMY PRESS
2101 Constitution Avenue, NW Washington, D.C. 20418
NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the committee responsible for the report were chosen for their special competences and with regard for appropriate balance. In preparing its report, the committee invited people with different perspectives to present their views. Such invitation does not imply endorsement of those views.
This report has been reviewed by a group other than the authors according to procedures approved by a Report Review Committee consisting of members of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. This study was supported by the Forest Service of the U.S. Department of Agriculture, under Agreement No 53-3187-5-11.
Library of Congress Cataloging-in-Publication Data
Forested landscapes in perspective : prospects and opportunities for sustainable management of America's nonfederal forests / Committee on Prospects and Opportunities for Sustainable Management of America's Nonfederal Forests, Board on Agriculture, National Research Council.
p. cm.
Includes bibliographical references and index.
ISBN 0-309-05641-1 (cloth)
1. Forest policy—United States. 2. Forests and forestry—Economic aspects—United States. 3. Forest management—United States. 4. Sustainable forestry—United States. 5. Investments, American—United States. I. National Research Council (U.S.). Committee on Prospects and Opportunities for Sustainable Management of America's Nonfederal Forests.
SD565 .F568 1997
333.75'0973—ddc21
98-9017
CIP
Cover art: Fog © Anne Kilham, Rockport, ME. Distributed by Pen & Inc. of Concord, NH. Used with permission.
Additional copies of this report are available from
National Academy Press,
2101 Constitution Avenue, N.W., Lockbox 285, Washington, D.C. 20055; (800) 624-6242 or (202) 334-3313 (in the Washington metropolitan area); Internet, http://www.nap.edu.
Printed in the United States of America.
Copyright 1998 by the National Academy of Sciences. All rights reserved.
OCR for page R3
-->
Committee on Prospects and Opportunities for Sustainable Management of America's Nonfederal Forests
PAUL V. ELLEFSON, Chair,
University of Minnesota, St. Paul
JAMES K. AGEE,
University of Washington, Seattle
KEITH A. ARGOW,
National Woodland Owners Association, Vienna, Virginia
JEANNE N. CLARKE,
University of Arizona, Tucson
PRESTON D. COLE,
City Forestry Services, Milwaukee, Wisconsin
DOMINICK A. DELLASALA,
World Wildlife Fund, Washington, D.C.
HENRY GHOLZ,
University of Florida, Gainesville
J. KEITH GILLESS,
University of California, Berkeley
PERRY R. HAGENSTEIN,
Institute for Forest Analysis, Planning, and Policy, Wayland, Massachusetts
NEIL D. HAMILTON,
Drake University Law School, Des Moines, Iowa
JAMES E. HUBBARD,
Colorado State University, Fort Collins
KEITH ROSS,
New England Forestry Foundation, Groton, Massachusetts
JOHN T. SHANNON,
Arkansas Forestry Commission, Little Rock
RONALD L. TROSPER,
Northern Arizona University, Flagstaff
Staff
CHARLOTTE KIRK BAER, Project Director
ERIC A. FISCHER, Project Director*
SHIRLEY B. THATCHER, Senior Project Assistant
JULIEMARIE GOUPIL, Project Assistant
*
Through December 1996.
OCR for page R4
-->
Board on Agriculture
DALE E. BAUMAN, Chair,
Cornell University
JOHN M. ANTLE,
Montana State University
MAY R. BERENBAUM,
University of Illinois
LEONARD S. BULL,
North Carolina State University
WILLIAM B. DELAUDER,
Delaware State College
RICHARD R. HARWOOD,
Michigan State University
T. KENT KIRK,
University of Wisconsin
GEORGE E. SEIDEL, JR.,
Colorado State University
SANDRA S. BATIE,
Michigan State University
ANTHONY S. EARL,
Quarles & Brady Law Firm
ESSEX E. FINNEY, JR.,
U.S. Department of Agriculture, Agricultural Research Service
CORNELIA FLORA,
Iowa State University
GEORGE R. HALLBERG,
University of Iowa
HARLEY W. MOON,
Iowa State University
WILLIAM L. OGREN,
University of Illinois
JOHN W. SUTTIE,
University of Wisconsin
JAMES J. ZUICHES,
Washington State University
Staff
J. PAUL GILMAN, Executive Director
MICHAEL J. PHILLIPS, Director
OCR for page R5
-->
Preface
Forests are an important part of everyday life for most Americans. They provide timber, soil, wildlife, recreation, beauty, and relief within rural and urban environments. An issue of increasing concern is the management of forestlands for diverse objectives, including economic returns, biological and ecological integrity of forest resources, and quality of life for populations in rural and urban areas. Thoughtful management of forests is clearly becoming crucial to achieving multifaceted goals and ensuring a productive future for forests.
Traditionally, forestlands in the United States have been categorized as forests owned by the government (public) and forests that are privately owned. The focus of this report is nonfederal forests, or those forests owned by industrial private landowners, nonindustrial private landowners, Native Americans, and state and locally owned forestlands. The issues addressed in this report are primarily those of private forests and private forestland owners, with special attention to nonindustrial private forests and nonindustrial private forestland owners.
At the request of the U.S. Department of Agriculture's (USDA) Forest Service, the National Research Council's Board on Agriculture convened a 14-member Committee on Prospects and Opportunities for Sustainable Management of America's Nonfederal Forests to assess the status of the nation's nonfederal forests and to examine the role of the federal government in contributing to sustainable management of nonfederal forestlands. This study responds to the recognized need for evaluating the current programs and policies directed toward the nation's nonfederal forests and integrates information on the management and use of nonfederal forests while accounting for trends in ownership, location, composition, and condition of forestlands.
The committee began its work in March 1996, seeking to understand the overarching industrial, environmental, social, programmatic, and policy contexts of nonfederal forest management. Issues were analyzed by bringing together views of experts in the general areas of forest policy and private land ownership as well as those of environmental, ecological, economic, legal, and social sciences. Throughout the course of this study, a close examination of the relationship between forest management issues and public needs was carried out through the conduct of public forums held in several regions of the United States. Invitations were extended for submission of written comments to the committee; responses were received from representatives of the forest industry, Native Americans, environmental organizations, consulting foresters, federal, state, and local
OCR for page R6
-->
governments, nonindustrial private landowners, and concerned citizens of all contiguous states and Hawaii and Alaska.
This report, Forested Landscapes in Perspective: Prospects and Opportunities for Sustainable Management of America's Nonfederal Forests, might make its most significant contribution by bringing to light those issues related to private forestland inventory, ownership, and management that have gone unrecognized and that deserve attention today. The information contained in this report improves the knowledge base for directing the role of the federal government in nonfederal forest management. In addition, the report articulates issues for consideration regarding a policy for our nation's forests, options for improving sustainable management of nonfederal forests, and recognizes a variety of approaches for a federal role in sustainable management of nonfederal forestlands.
As a basis for the committee's deliberations, several aspects relevant to its task are defined. Part One of the report focuses on concepts of sustainability, which are presented in Chapter 1. In Part Two, general descriptions of the U.S. forest landscape are provided. The overall status and characteristics of the nation's nonfederal forests are reviewed in Chapter 2. Benefits and values that are attributable to forests in the United States are outlined in Chapter 3. Current policies and programs directed at America's nonfederal forests are described and defined in Chapter 4. Part Three of the report begins with a detailed analysis of the ecological aspects of nonfederal forest management presented in Chapter 5. Chapter 6 examines public and private institutions and their role in nonfederal forest management. Current programs and policies, including education, management, technical assistance, tax policies, regulatory programs, and various incentives that affect nonfederal forests, are described in Chapter 7. A discussion of public and private investments in nonfederal forests is provided in Chapter 8. Information needs with regard to research, monitoring, and technology transfer are outlined in Chapter 9. In Chapter 10, resource owner responsibilities and rights are addressed. In the final chapter of the report, management of U.S. nonfederal forestland in an international and global context is discussed.
Throughout the report, the committee focused on emerging environmental issues such as forest fragmentation and biodiversity as well as other prominent issues such as the availability of timber supplies. Particular attention was given to current program and policy initiatives, the institutional setting within which they are pursued, and the information base for evaluating effectiveness and deficiencies. This information was used as the basis for evaluating ways in which the federal role might be modified to meet emerging needs and issues.
The context for this evaluation the apparently ever-growing demand for the goods and services provided by nonfederal forests on the one hand, and limited federal and state budgets, and a political climate that favors reduction of government spending on the other. Emerging issues, such as global climate change and threats to biodiversity, for which nonfederal forests may help provide solutions, lack the immediacy of the wildfires that did much to galvanize support for the
OCR for page R7
-->
federal role in nonfederal forests. The committee hopes that this report stimulates action for improved, coordinated partnerships between public and private interests in the management of these forests.
The recommendations provided by the committee in this report are the result of many hours of careful listening, coordinated planning, painstaking analyses, thoughtful deliberations, cooperative efforts, and a continuous flow and exchange of resourceful ideas. The wish of the committee, whose membership is as diverse as the issues related to nonfederal forests, is that these recommendations will be implemented in the manner and spirit in which they were developed.
Paul Ellefson, Chair
Committee on Prospects and Opportunities for Sustainable Management of America's Nonfederal Forests
OCR for page R8
-->
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. Upon the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Bruce Alberts is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. William A. Wulf is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, upon its own initiative, to identify issues of medical care, research, and education. Dr. Kenneth I. Shine is president of the Institute of Medicine.
The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy's purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Bruce Alberts and Dr. William A. Wulf are chairman and vice-chairman, respectively, of the National Research Council.
OCR for page R9
-->
Acknowledgments
We gratefully acknowledge the many people who provided information and insight to the committee by participating in the regional public forums held in conjunction with this study during the spring of 1996. The wealth of input received from a vast array of stakeholders at these public forums assisted the committee in shaping its views and preparing the recommendations presented in this report.
The committee also expresses thanks to those who took time from their busy schedules to attend various committee meetings. We offer our gratitude to the following invited speakers who shared their expertise and experience at these meetings:
Oluf Aalde
Royal Norwegian Ministry of Agriculture
Oslo, Norway
Thomas Birch
USDA Forest Service
United States Department of Agriculture
Joan Comanor
Natural Resources Conservation Service
United States Department of Agriculture
Charles H. W. Foster
John F. Kennedy School of Government, Harvard University
Needham, Massachusetts
Jan Heino
Ministry of Agriculture and Forestry
Helsinki, Finland
David Kittredge
Department of Forestry and Wildlife Management
University of Massachusetts
Thomas Larson
Integrated Urban Forestry, Inc.
Laguna Hills, California
OCR for page R10
-->
Robert Moulton
USDA Forest Service
United States Department of Agriculture
Eric Oldar
California Department of Forestry and Fire Protection
David Perry
Oregon State University
Jeffrey Romm
University of California
Gerald Rose
Minnesota Department of Natural Resources
St. Paul, Minnesota
Henry Swan
Wagner Forest Management Ltd.
Lyme, New Hampshire
Courtland Washburn
Hancock Timber Resource Group
John Hancock Mutual Life Insurance Company
It is with most sincere appreciation that we acknowledge the outstanding contribution and wealth of information provided to the committee by Donald G. MacKay, Research Associate, Department of Forest Resources, University of Minnesota. Without his efforts, the work of this committee would not have been possible.
OCR for page R11
-->
Contents
PREFACE
v
ACKNOWLEDGMENTS
ix
EXECUTIVE SUMMARY
1
Extensive and Important Forests
1
Federal Role in Sustainability
2
Challenges for the Future
3
Committee Recommendations
4
Long-Term Forest Health and Integrity
4
Policies, Planning, and Organizing
4
Programs for the Future
7
Investments in Sustainability
8
Information Needs for Decisions
9
Diverse Ownership Considerations
10
The Global Context
10
PART ONE:
SUSTAINABILITY AND THE FEDERAL ROLE IN NONFEDERAL FORESTS
1
INVESTING IN SUSTAINABILITY OF NONFEDERAL FORESTS
15
Introduction
15
Insufficient Investments
15
Sustainability as a Focus
16
Potential Concepts
16
Committee Perspective
17
Federal Role in Sustainability
20
Summary of Findings
21
OCR for page R12
-->
PART TWO:
NONFEDERAL FOREST RESOURCE AND PROGRAM LANDSCAPE
2
RESOURCE AND OWNERSHIP CHARACTERISTICS
25
Introduction
25
Resource Characteristics
25
Forestland Area
25
Timberland
27
Conversion to Non-Forest
27
Urban and Community Forestland
27
Tree Planting and Plantations
28
Ownership Characteristics
29
Private Ownership
29
Nonfederal Public Ownership
30
Summary of Findings
31
3
FOREST VALUES AND BENEFITS
32
Introduction
32
Employment and Income
32
Timber and Wood Products
34
Nontimber Forest Products
36
Urban and Community Benefits
37
Recreational Opportunities
39
Ecological Benefits
40
Summary of Findings
41
4
POLICIES AND PROGRAMS
42
Introduction
42
Federally Directed Programs
42
Assistance and Incentive Programs
44
Forest Health Management
44
Cooperative Forestry Programs
45
Transfer Programs
45
Extension and Outreach
45
Federal Regulatory Programs
46
State-Level Programs
46
Assistance and Incentive Programs
47
Program Focus
47
Regional Differences
48
Regulatory Programs
49
State Programs
49
Local Programs
50
Program Effectiveness
51
Summary of Findings
53
OCR for page R13
-->
PART THREE:
MAJOR POLICY AND PROGRAM LEVEL ISSUES ACROSS THE LANDSCAPE
5
CHANGING CONDITIONS OF THE FOREST
57
Introduction
57
Issues Involving Forest Condition
57
Biodiversity
57
Forest Fragmentation and Habit Isolation
59
Rare and Endangered Species Habitat
60
Forest Management Intensity
61
Forest Fires
64
Air Pollution
65
Carbon Sequestration
67
Forest Insects and Diseases
68
Alien Plants
69
Watershed Integrity
70
Summary of Findings and Recommendations
71
6
INVESTMENTS FOR BETTER INSTITUTIONAL RELATIONSHIPS
72
Introduction
72
National Policy for Nonfederal Forests
72
National Focus and Strategic Direction
74
Organization Within the Federal Government
76
Major Reviews
76
Federal Leadership
79
Improving Federal Organization
79
Linkages Between Federal and Nonfederal Entities
82
Federal Linkages
82
State Organization
84
Improving Federal Linkages to Nonfederal Interests
84
Summary of Findings and Recommendations
88
7
POLICY AND PROGRAM INVESTMENTS
90
Introduction
90
Governmental Initiatives
90
Private and Voluntary Initiatives
91
Forest-Industry-Initiatives
91
Nonprofit-Organization-Initiatives
93
Forestry-Consultant Initiatives
94
Volunteer Efforts
94
Certified Forest Practices
95
OCR for page R14
-->
Education and Technical Assistance
96
Education and Information
96
Technical Assistance
97
Fiscal and Tax Incentives
98
Fiscal Incentives
98
Tax Incentives
99
Estate Taxes
99
Capital Gains Tax
100
Management Cost Deductions
100
Reforestation Investment Tax Incentive
101
State Tax Policies
101
Regulatory Programs
102
Federal Regulatory Initiatives
103
State and Local Initiatives
104
Program Coordination
104
Federal Regulatory Role
104
Regulatory Program Issues
105
Easements and Rental Agreements
105
Conservation Easements
106
Conservation Rental Contracts
106
Safe Harbor Agreements
107
Summary of Findings and Recommendations
107
8
INVESTMENT LEVELS AND POTENTIAL OPPORTUNITIES
109
Introduction
109
Forest Investments
109
Investment Environments
110
Investment Climate
110
Landowner Investment Circumstances
111
Nonindustrial Private Owners
111
Industrial Owners
112
State and County Forests
113
Tribal Forests
114
Urban and Community Forests
116
Investment Issue Areas
117
Forestland Area
117
Timber Inventory
118
Nonindustrial Private Forests
118
Industrial Timberlands
118
Nonfederal Public Forests
119
Timber Management
119
Private Investments
121
Scale of Private Investments
121
OCR for page R15
-->
Capital and Rates of Return
121
Regulatory Effects
122
Public Investments
122
Federal Investments
123
State and Municipal Investments
124
Scale of Public Investments
124
Infrastructure Investments
125
Incidence of Investments
125
Potential Strategies
126
Remedies for Investment Disadvantages
126
Sources of Capital for Investments
127
Summary of Findings and Recommendations
127
9
INVESTING IN RESEARCH AND TECHNOLOGY TRANSFER
133
Introduction
133
Research and Development
133
Quantity and Quality of Research
134
Organization and Management of Research
135
Planning and Focus of Research
135
Information and Technology Transfer
136
Monitoring and Information Management
137
Assessment and Monitoring
137
Information Management
138
Summary of Findings and Recommendations
139
10
RESOURCE-OWNER RIGHTS AND RESPONSIBILITIES TO INVEST
141
Introduction
141
Historic Dimension
141
Responsible Stewardship
142
Private Property Rights and Societal Action
143
Native American Perspectives on Property and Sovereignty
146
Balancing Rights and Responsibilities
149
Summary of Findings and Recommendations
154
11
INVESTING IN GLOBAL AND INTERNATIONAL SETTINGS
156
Introduction
156
Global Considerations
156
International Accords
158
Environmental Agreements
158
Trade Agreements
158
International Issues Affecting Nonfederal Forests
160
OCR for page R16
-->
Timber Export
160
Global Climate Change
160
Environmental Concerns
161
Forests as Emission Absorbers
162
Migratory Wildlife Habitat
162
Summary of Findings and Recommendations
163
APPENDIXES
165
REFERENCES
210
ABOUT THE AUTHORS
227
INDEX
231
OCR for page R17
-->
Figures and Boxes
Figure 2-1
Nonfederal forestland ownership in the United States by region (designated by different patterns), percentage of total forestland owned by nonfederal forestland owners, and percentage change in forestland acreage between 1987 and 1992 (increase and decrease indicated by arrows)
26
Figure 3-1
Economic characteristics of wood-based industries in the United States
33
Figure 8-1
Landowners' reasons for owning forestland (% of landowners)
111
Box 1-1
Definitions of Sustainability, Sustainable Management, and Sustainable Development
17
Box 1-2
Principles of Forest Resource Sustainability: Two Perspectives
18
Box 3-1
Wildcrafting Uses of Forest Resources
37
Box 3-2
Urban and Community Forest Values: Tree Canopies in Milwaukee, Wisconsin
38
Box 4-1
Federal Agencies Involved in the Administration of Programs with Implications for Nonfederal Forests
43
Box 5-1
Condition of the Nation's Forests: Perspective of the USDA Forest Service
58
Box 5-2
Definitions of Biodiversity
59
Box 5-3
Definitions of Ecosystem Management
62
Box 5-4
Watersheds: Measures of Their Integrity
71
Box 6-1
Key Issues Identified at the Congressional Research Service Symposia, March 1994
78
Box 6-2
Minnesota Institutions for Cooperative Engagement of Interests in the Development and Implementation of Major Forest-Resource Policies and Programs
87
Box 7-1
Most to Least Commonly Used State Programs to Influence Private Forestry Practices, 1992
92
Box 8-1
Innovative Programs Involving the Use and Management of Stateor County-Owned Forestlands
115
Box 8-2
Michigan's Long-Term Bonding Program: A Creative Approach to Investing in Public Nonfederal Forests
128
Box 8-3
Norway's Forest Trust Fund: A Creative Approach to Investing in Nonindustrial Private Forests
129
OCR for page R18
-->
Box 8-4
Oregon's Forest Resource Trust: A Creative Approach to Investing in Nonindustrial Private Forests
130
Box 10-1
Landowner Rights and Responsibilities: A Range of Elements
144
Box 10-2
Private Property Responsibility Initiative by the National Woodland Owners Association
146
Box 10-3
State Property-Rights Laws
151
Box 11-1
Selected Principles for the Management, Conservation and Sustainable Development of the World's Forests
159
Box Appendix C-1
National Forest Health Monitoring Program (NFHMP)
207
OCR for page R19
Forested Landscapes in Perspective
OCR for page R20
-->
This page in the original is blank.
