Kelsi Bracmort
Specialist in Agricultural Conservation and Natural Resources Policy
Wildfires can have beneficial and harmful impacts on ecosystems (e.g., by
reducing fuel loads, or by damaging communities and timber resources).
These impacts are generally measured and discussed based on the priorities
of humans in these ecosystems. Federal resources are typically deployed
during wildfire season—an annual occurrence of intense wildfire activity—to
help manage wildfires and potentially minimize some of the impacts,
including the loss of life and property. The primary agencies for federal
wildfire response are the Forest Service and the Department of the
Interior. Federal wildfire response activities involve preparedness,
suppression, fuel reduction, site rehabilitation, and more.
More than 9.3 million acres burned during the 2012 wildfire season, which was
the third-largest acreage burned annually since 1960. The total amount of
wildfire management (WFM) appropriations for 2012 was more than $2.8
billion, not including an additional $407.5 million appropriated in 2013
to repay 2012 WFM wildfire suppression accounts. Over the last five years, WFM
appropriations on average have steadily increased relative to earlier years.
This leads some to question whether federal resources for wildfire
management are being used efficiently. This report provides wildfire management
statistics (e.g., number of wildfires, acres burned, select state wildfire
activity, firefighter personnel), presents WFM appropriations from fiscal years
2008 to the present, and discusses two related issues—wildfire suppression
funding estimation and air tanker readiness.
Date of Report: October 22, 2013
Number of Pages: 18
Order Number: R43077
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Nicole T. Carter
Specialist in Natural Resources Policy
As part of its civil works mission, the U.S. Army Corps of Engineers
manages water resource projects. Areas behind and below Corps dams, and
Corps navigation locks and their pools, are popular recreation sites,
attracting 370 million visits annually. Corps projects include some of the most
densely used federal recreation sites. Currently, 36 C.F.R. Section 327 sets
out the regulations for public use of Corps projects. Section 327.13
generally prohibits possession of loaded firearms by private (i.e.,
non-law enforcement) individuals at Corps-administered projects unless
they are being used for hunting at designated sites (with devices required to
be unloaded while transported to and from the sites) or at authorized shooting
ranges. The regulation applies at projects regardless of their location in
states allowing open or concealed carry of loaded firearms.
Proposed legislation—H.R. 2046, the Recreational Lands Self-Defense Act;
Section 113 of H.R. 2609, the Energy and Water Development and Related
Agencies Appropriations Act of FY2014 (which are all substantively similar);
Section 103 of S. 1335, the Sportsmen’s Act; and an amendment proposed,
but not adopted, during Senate floor consideration of S. 601, the Water Resources
Development Act—would bar the Secretary of the Army from promulgating or enforcing
regulations that prohibit individuals from possessing firearms (including
assembled or functional firearms) at Corps projects. The proposed language
would require firearms possession to comply with state law. Supporters see
it as addressing a patchwork of regulations restricting firearms on federal
lands, as providing consistency for open and concealed firearms possession within
a state, and as facilitating recreational shooting and self-defense. They argue
that enactment would result in Corps policies consistent with Section 512
of P.L. 111-24, which made it legal for individuals to possess firearms at
National Park Service (NPS) and National Wildlife Refuge System (NWRS)
units of the Department of the Interior (DOI). Other stakeholders are concerned
that the legislation as proposed may produce unintended public safety and infrastructure
security issues.
The issue for Congress is not only possession and use of loaded firearms but
also maintaining public safety and infrastructure security at Corps
projects.
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Critical facilities security: Proposed legislation does not explicitly
provide authority to restrict firearms at Corps facilities (e.g., dams) or
in specifically designated areas.
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Public safety and law enforcement: No armed federal law enforcement officers are
commissioned for public safety and security purposes at Corps projects. Corps
rangers issue citations for regulatory violations and are not allowed to carry
firearms. Most law enforcement is provided by local and state personnel.
A safety, security, and cost and benefit assessment related to altering
firearms possession and use at Corps projects has not been performed.
DOI’s Bureau of Reclamation is faced with similar safety and security
issues at its water resource projects. It allows possession of firearms on Reclamation
lands and waterbodies (e.g., reservoirs behind dams) when such possession
complies with federal, state, and local law; hunting is similarly allowed
unless an area has been closed for public use or has been designated as a
special use area. Firearms are restricted at Reclamation facilities (e.g.,
dams and buildings). DOI and Reclamation use multiple authorities and mechanisms
to provide for armed and unarmed law enforcement and public safety and
security.
Date of Report: October 22, 2013
Number of Pages: 11
Order Number: R42602
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Nicole T. Carter
Specialist in Natural Resources Policy
Charles V. Stern
Specialist in Natural Resources Policy
The U.S. Army Corps of Engineers undertakes activities to maintain
navigable channels, reduce flood and storm damage, and restore aquatic
ecosystems. Congress directs the Corps through authorizations,
appropriations, and oversight of its studies, construction projects, and other activities.
This report summarizes congressional authorization and appropriations processes
for the Corps. It also discusses agency activities under general authorities.
Omnibus Authorization Legislation. Congress generally authorizes numerous
Corps activities and provides policy direction in an omnibus Corps
authorization bill, typically called the Water Resources Development Act
(WRDA). The most recent WRDA was enacted in 2007 (P.L. 110- 114). WRDAs
historically are omnibus bills including many provisions for site-specific
activities. How to construct a WRDA bill that complied with House rules
related to a moratorium on earmarks complicated WRDA consideration in the
112th Congress.
The House is set to consider the omnibus Corps authorization and policy
bill, H.R. 3080, the Water Resources Reform and Development Act (WRRDA).
The Senate passed WRDA 2013, S. 601, on May 15, 2013. S. 601 would authorize
Corps activities and modifications of existing authorizations that meet
certain criteria; the bill includes numerous other provisions as it
attempts to address issues with the duration and cost of Corps projects.
The bill also would establish new procedures for using Harbor Maintenance Trust
Fund monies, in an effort to expand spending above current levels.
Agency Appropriations. Federal funding for Corps civil works activities is
provided in annual Energy and Water Development appropriations acts or
supplemental appropriations acts. Annual Corps civil works appropriations
have ranged from $4.5 billion to $5.5 billion in the last decade. An
increasing share of the agency’s appropriations is used for operations and
maintenance. Another trend has been increasing emergency supplemental
appropriations. From 1987 to 2013, Congress appropriated $32.2 billion in
Corps supplemental funding. Of this funding, $30.8 billion came through
acts passed between 2003 and 2013. This funding was more than half of the Corps’ regular
appropriations from 2003 through 2013 ($55 billion). In part because of
competition for funds and because Corps authorizations outpace
appropriations, many authorized activities have not received appropriations.
There is a backlog of more than 1,000 authorized studies and construction
projects. In recent years, few new studies and new construction activities have
been in either the President’s budget request or enacted appropriations.
Standard Project Development. The standard process for a Corps project
requires two separate congressional authorizations—one for investigation
and one for construction—as well as appropriations. The investigation
phase starts with Congress authorizing a study; if it is funded, the Corps
conducts an initial reconnaissance study followed by a more detailed
feasibility study. Congressional authorization for construction is based
on the feasibility study. For most activities, Congress requires a
nonfederal sponsor to share some portion of study and construction costs. These
cost-sharing requirements vary by the type of project. For many project types
(e.g., levees), nonfederal sponsors are responsible for operation and
maintenance once construction is complete.
Other Corps Activities and Authorities. Although the project development
process just described is standard, there are exceptions. Congress has
granted the Corps some general authorities to undertake some studies,
small projects, technical assistance, and emergency actions such as
flood-fighting and repair of damaged levees. Additionally, the Corps conducts
emergency response actions directed by the Federal Emergency Management
Agency.
Date of Report: October 18, 2013
Number of Pages: 25
Order Number: R41243
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