Report on Maine Forest Service
District Forester Program
to the
Joint Standing Committee on
Agriculture, Conservation and Forestry
of the
rd
123 Maine Legislature,
Second Regular Session
10 March 2008
Submitted by
Maine Department of Conservation
Bureau of Forestry
Forest Policy & Management Division
22 State House Station
Augusta, Maine 04333-0022
(207) 287-2791
We help you make informed decisions about Maine’s forests
Printed under Appropriation # 010 04A 5100 512
Maine Forest Service – District Forester Report
10 March 2008
12 MRSA § 8612, sub-§ 4 directs the Bureau to report biannually in odd-numbered years to the
committee on activities under the field forester program. This report must include a description of the
types of assistance given to landowners and wood processors, a description of the activities of the field
foresters and any recommendations for changes in the program.
SUMMARY
The role and duties of the Maine Forest Service (MFS) Field Forester (referred to
hereafter as District Forester) continue to evolve with the times. Changing landowner
values, public expectations, and legislative mandates have combined with new
technologies and resource limitations to change significantly what the MFS District
Foresters do to promote informed decisions about Maine’s forests and how they do their
job.
PROGRAM DESCRIPTION
Maine Forest Service District Foresters work within the Forest Policy & Management
Division of the bureau. The District Forester provides a wide array of services to a
diverse clientele. Clients include family forest owners, loggers, consulting foresters,
1
investor-owners, municipalities, students, and the public at large.
MFS employs ten District Foresters whose individual districts span the state. Field
offices are located in Alfred, Ashland, Gray, Greenville, Island Falls, Jefferson,
Jonesboro, Norridgewock, Old Town, and West Paris. The District Foresters are
organized into Northern and Southern Teams. Two Team Leaders oversee their work,
as well as the work of two Regional Enforcement Coordinators.
With nearly 18 million acres of forest land and over 100,000 family forest owners in the
state, District Foresters have a lot of ground to cover and a lot of people to serve.
CLIENT ASSISTANCE
District Foresters face a daunting challenge in meeting the many, often conflicting,
demands of their clients. They serve a wide array of clients with diverse needs - family
forest owners, loggers, consulting foresters, investor-owners, municipalities, students,
and the public at large. District Foresters as a group typically serve about 2,500 family
forest owners and several hundred loggers and consulting foresters each year. The
number of towns, school children and other clients served increases the total number of
people served to more than 8,000 annually.
District Foresters typically perform non-regulatory work that supports informed decisions
by land managers, including direct, one-on-one contacts in the field or over the phone,
educational workshops, and other group settings. In recent years, District Foresters
have invested considerable effort in supporting harvest monitoring initiatives, including
implementation and effectiveness of Best Management Practices for water quality (an
ongoing program), and liquidation harvesting (ad hoc). The ongoing development of a
multi-resource harvest monitoring protocol likely will draw on foresters’ time as well.
District Foresters have also invested considerable effort in promoting forest certification
1
12 MRSA §8612, sub-§2 limits District Foresters to three site visits per landowner over a five-year period, except as
necessary to administer federal programs related to forestry or to determine regulatory compliance.
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Maine Forest Service – District Forester Report
10 March 2008
to landowners, loggers, and foresters. In fact, the foresters’ work on harvest monitoring
supports the certification efforts of landowners and others, as certification auditors
routinely contact MFS for such data as part of their verification and audit processes.
District Foresters have also been assigned significant regulatory responsibilities.
District Foresters provide the technical expertise necessary to document violations of
the state’s forest practices laws and implementing rules. They also provide technical
assistance to the Forest Protection Division’s Rangers on cases involving timber theft
and trespass. The regulatory role of District Foresters has grown substantially,
particularly since the forest policy ferment of the late 1990’s. The Forest Policy &
Management Division tries to mitigate the potential negative aspects of its regulatory
role through a tiered approach that starts with education and outreach; followed by
active intervention on the ground to prevent or mitigate violations; with formal
enforcement action taken if preventive efforts fail. While this philosophy has worked
well, there is no question that the District Foresters’ growing role in regulatory affairs
diverts significant resources from their traditional service role.
CHALLENGES AND OPPORTUNITIES
Maine's family forest owners are not getting the support they need to help them hold on
to their land and keep it in active forest management. It’s well documented that many
landowners do not manage their land, and many of those who do manage their land do
so without any professional assistance. Additional research identifies an imminent
generational shift in forest land ownership as a critical land use challenge in the next
decade or so. As a state, we are far from optimizing our use of the forest and the many
benefits we receive from it. We sorely need to capitalize on the forests as a resource for
multiple industries (wood products, tourism, construction via the burgeoning retirement
and second home market, etc.). Further, Maine's forested landscape directly supports
our overall quality of life that is crucial to attracting and retaining people and economic
activity.
In a survey of the 20 northeastern states, Maine came out dead last in the proportion of
family forest ownership acres to the number of state and/or extension foresters (one
forester per 355,000 acres). This stands in stark contrast to our billing as "the most
2
forested state in the nation." Our major competitors in global forest products markets do
much better (Minnesota at one forester per 20,000 acres; Wisconsin at one forester per
29,000 acres). Further, 12 MRSA §8612 directs that "The bureau shall employ ...at
least 16 field foresters to be located in field offices." This legislative directive has never
been fully funded (only 10 District Forester positions exist now).
Maine’s growing population means that virtually all areas of the state are seeing
substantial land turnover and new landowners, who often have little understanding of
the forest (except as a scenic backdrop to their house). Only one of our District
Foresters covers substantially less than one million acres; others cover over 3 million
acres. We are already spread too thin, yet demands for our wide range of services
continue to increase.
2
Maine has approximately 5.7 million acres of family forest ownerships out of 17.7 million acres of forest land
(Forests of Maine: 2003).
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Maine Forest Service – District Forester Report
10 March 2008
A recent study sponsored by the National Commission on Science for Sustainable
Forestry found that "the highest program priority among forest owners is one-on-one
access to a [service or extension] forester or other natural resource professional to "walk
the land" with them and discuss their management alternatives. The study's findings and
conclusions yielded a recommendation that there be increased funding and availability
of one-on-one technical assistance from both state service foresters and extension
foresters. Other recommendations in the study either are predicated on increasing
technical assistance or identify other forms of assistance and incentives as relatively
3
less effective than technical assistance.
A paper published in the “Journal of Forestry” also highlighted family forest owners’
interest in direct service from state foresters. The authors studied state forestry
assistance programs and conducted focus groups with family forest owners. Based on
the findings, the authors recommended, among other things, “Increase funding and
availability for one-on-one technical assistance state Service Foresters. Direct access
to a forester for onsite consultation was viewed as the single greatest need among
family forest owners. Family forest owners believe they know their land better than
anyone else, but lack the technical knowledge to maximize the land’s potential. Having
a forester walk the land with them builds this bridge between an in-depth understanding
4
of the land’s characteristics and forest management possibilities.”
Closer to home, in a recent presentation series to the 25 fastest growing communities in
Maine, the Small Woodland Owners Association of Maine, in collaboration with
GrowSmart Maine, identified “Access to Assistance” as one of five major challenges
facing small woodland owners in Maine. They identified the Maine Forest Service as
5
one of a handful of key sources of such assistance.
The recent Brookings Report, “Charting Maine’s Future,” also highlights the importance
of MFS’s District Foresters: “Accessible wild places and tranquil country farms, human
scaled Main Streets and working waterfronts: These are what differentiate Maine from
other places and in many respects drive its economy. Yet these assets are at risk. … the
state’s first economic development need: Establish the Maine Quality Places Fund to
protect and enhance Maine’s vivid townscapes, top-notch scenery, traditional uses of
the land, and tourism industry. Maine’s first step toward bolstering its economy should
be to place investment in the state’s incomparable quality of place on a steadier, more
serious path.”
6
MFS District Foresters have long played a role in the promotion and administration of
federal programs that provide financial support for family forest owners, e.g. cost
sharing of forest management plans and implementing practices. These programs
typically have been delivered by the USDA Forest Service through state forestry
agencies. Federal financial support for these programs has declined in real terms over
3
Greene, J. et al. 2005. Existing and potential incentives for practicing sustainable forestry on non-industrial private
forest lands. Final report to the National Commission on Science for Sustainable Forestry.
http://ncseonline.org/NCSSF/.
4
Kilgore, M. et al. 2007. The influence of financial incentive programs in promoting sustainable forestry on the
Nations’ family forests. Journal of Forestry 105 (5): 184-191.
5
Moesswilde, M. 2007. Personal communication.
6
Brookings Institution. 2006. Charting Maine’s future: An action plan for promoting sustainable prosperity and
quality places. Pp. 99-100. http://www3.brookings.edu/metro/pubs/maine.pdf. Last accessed 31 August 2007.
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Maine Forest Service – District Forester Report
10 March 2008
the last several years. The decline could continue, with a “redesign” of these programs
underway at the federal level as this report is written. Although other federal programs
may continue to be funded (e.g. the Environmental Quality Incentives Program offered
through the USDA Natural Resources Conservation Service, or NRCS), these programs
are not specifically geared to serve family forest owners (farmers are the traditional
clientele for such programs). MFS has entered into a joint program delivery agreement
with NRCS; however, this effort is still in its infancy, and it remains to be seen whether
and how family forest owners will respond.
Maine cannot preserve its working forest base without mechanisms to deliver quality
technical assistance, information, and education to forest landowners, loggers, and
foresters. The University of Maine has largely abandoned its forestry extension
program; the Small Woodland Owners Association of Maine serves only a small fraction
of the family forest base; and consulting foresters largely do not provide these services
because they are not revenue-generators. Thus, getting the job done falls largely to the
District Foresters and professional staff of the Forest Policy & Management Division.
RECOMMENDATION
The Forest Policy & Management Division recognizes the difficult state budget situation
and makes no position requests at this time. However, should the state budget situation
improve, the division would request the inclusion of 6 additional Forester I positions that
would be dedicated to working in the field with family forest owners, loggers, and other
clients, as directed by statute. These positions would allow us to improve our service
level, particularly in the parts of the state where family forest ownerships are under
intense pressure for change of use. We do not compete directly with private
consultants, but in many cases add value to their businesses by conducting outreach,
engaging new landowners, and referring our new contacts to natural resource
professionals. We would also realize some efficiencies in service delivery, as our
existing forester cadre must often travel great distances to serve their clients.
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Maine Forest Service – District Forester Report
10 March 2008
APPENDIX 1. MAINE’S DISTRICT FORESTERS
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Maine Forest Service – District Forester Report
10 March 2008
APPENDIX 2. PROGRAM HISTORY
Maine has had a District Forester (known previously as Service Forester and Field
Forester) program for many decades. The early years of the program are not well
documented; however, some important milestones stand out. Unless otherwise noted,
position counts refer to general fund positions:
1943: Beginning of the Cooperative Service Forestry Program, between the State of
Maine Forestry Department and the USDA Forest Service. The stated
7
purpose of the program was to “promote better management of small privately
owned woodlands.”
1949: Forest Management Division created.
1959: Records indicate the division had 17 field staff.
1971: Records indicate the division had 21 Service Foresters and two utilization and
marketing foresters.
1981: MFS eliminated 13 forester positions and the entire District Forester program
during a budget reduction exercise. The program was restored sometime
between 1981 and 1987.
1987: Records indicate the division had 8 Service Foresters, one tree improvement
specialist, one utilization and marketing forester, and one logging specialist.
1989: Forest Practices Act enacted. Foresters’ role expands to include regulatory
matters. Division has 11 Service Foresters and one utilization and marketing
forester.
1995: Forest Management Division and Policy, Program and Information Divisions
combined to become the Forest Policy & Management Division. Division has
10 Service Foresters, one utilization and marketing forester (now on federal
funds), and one enforcement coordinator.
1998: Legislature creates three Forester positions in response to public concerns
expressed during forestry referendum debates. These positions are
dedicated solely to regulatory affairs (regional enforcement coordinators).
2003: One regional enforcement coordinator position abolished during budget
exercise.
2005: Two federally funded outreach forester positions created to support efforts of
general fund District Foresters (these positions expire at the end of 2008).
Due to loss of federal funds, the utilization and marketing forester is shifted to
one of the outreach forester positions.
7
1971-1972 Biennial Report, p. 52.
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Maine Forest Service – District Forester Report
10 March 2008
APPENDIX 3. ENABLING LEGISLATION
12 MRSA §8612. Field foresters
The bureau shall employ by 1991, at least 16 field foresters to be located in field offices. [1989, c. 555,
§8 (new).]
1. Duties. These foresters shall provide outreach services and referrals to small woodland owners and
wood processors for harvesting, marketing and utilization of wood products. The foresters shall
assist landowners and processors in:
A. Obtaining and explaining required forms for harvest notification and reporting; [1989, c. 555, §8
(new).]
B. Obtaining information to comply with the performance standards under this chapter; [1989, c.
555, §8 (new).]
C. Following up with landowners after harvest notification; [1989, c. 555, §8 (new).]
D. Reviewing landowner forest management plans; [1989, c. 555, §8 (new).]
E. Obtaining information to comply with environmental standards; [1989, c. 555, §8 (new).]
F. Explaining forest management options; [1989, c. 555, §8 (new).]
G. Promoting involvement in grants and incentive programs; [1989, c. 555, §8 (new).]
H. Disseminating educational material; and [1989, c. 555, §8 (new).]
I.
Other duties as the director prescribes. [1989, c. 555, §8 (new).]
[1989, c. 555, §8 (new).]
2. Limitations. Field foresters are limited to 3 site visits per landowner over a 5-year period, except as
necessary to administer federal programs related to forestry or to determine compliance with
provisions of this Title. [1989, c. 555, §8 (new).]
3. Comprehensive plans. The foresters may provide technical assistance on forestry issues to
municipalities in developing their comprehensive plans. [1989, c. 555, §8 (new).]
4. Reporting requirements. The commissioner shall report biannually beginning in 1991, to the joint
standing committee of the Legislature having jurisdiction over forestry matters on activities under
the field forester program. This report, to be completed by February 1st, must include a description
of the types of assistance given to landowners and wood processors, a description of the activities
of the field foresters and any recommendations for changes in the program. [2003, c. 346, §2
(amd).]
Section History:
PL 1989, Ch. 555, §8 (NEW).
PL 2003, Ch. 346, §2 (AMD).
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Maine Forest Service – District Forester Report
10 March 2008
APPENDIX 4. DISTRICT FORESTER PROGRAMS IN THE NORTHEAST
Number of state foresters per family forest acre - 2006
State
State and/or extension
Acres of family
Acres of family
foresters
forests
forests/state forester
Minnesota
287
5,929,000
20,659
Delaware
11
317,000
28,818
Wisconsin
334
9,709,000
29,069
Indiana
93
3,700,000
39,785
Maryland
45
1,923,000
42,733
Rhode Island
5
231,000
46,200
Vermont
75
3,597,000
47,960
Iowa
31
2,370,000
76,452
Pennsylvania
135
10,338,000
76,578
New York
128
13,100,000
102,344
New Hampshire
24
3,169,000
132,042
Massachusetts
16
3,200,000
200,000
Ohio
32
7,160,000
223,750
Connecticut
5
1,400,000
280,000
Maine*
16
5,690,000
355,625
Maine (District Foresters
10
5,690,000
569,000
only)
TOTALS
1,247
71,833,000
57,605
*Figure includes supervisory and regulatory foresters (only 10 actual Service Foresters).
Data as reported at Forest Resources Program Leaders meeting, May 2006.
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About the Forest Policy and Management Division
The Forest Policy and Management Division promotes informed decisions about
Maine's forests.
Division staff provide technical assistance, information and
education services to a wide variety of publics. Staff also provides outreach and
enforcement services on timber harvesting rules. The division anticipates and
responds to forest policy issues and reports on the state of Maine’s forests.
The
division
provides
assistance
through
education
workshops,
field
demonstrations, media presentations, and one-on-one contact between District
Foresters and landowners.
Statute limits technical assistance to individual
landowners.
The division has four components:
District Foresters who work directly with
landowners and others; policy, planning and education specialists; program
specialists who oversee water quality, stewardship, community forestry, utilization
and marketing programs; and shared responsibility for enforcement of timber
harvesting rules The Division Director reports to the Bureau Director
