Mr. Chairman and Members of the Subcommittee, my name is Jim Hubbard, and I am the State Forester of Colorado. I am here today on behalf of the Western Governors’ Association (WGA), which is an independent, non-partisan organization of Governors from 18 Western states and three U.S.-Flag Islands in the Pacific. Let me begin by stating that wildland fire and ecosystem restoration issues are of extreme importance to the Western Governors. Were it not for the short notice available to WGA regarding this hearing, a Western Governor would be before you today. It was my pleasure, however, to accept the invitation from WGA to appear on the Governors’ behalf, especially since I have been actively advising them on wildland fire issues since last summer.

Congressional deliberation on fiscal year 2002 appropriations regarding wildland fire and ecosystem restoration is of initial, critical urgency to Western Governors. I would like to submit, for the record, a recent letter from 18 Western Governors to Senate and House Interior Appropriations conferees. Western Governors are seeking continued substantial funding for wildland fire management issues, along the lines of that received in fiscal year 2001. The attachment to that letter specifically details, among other items, the Governors’ views on funding for restoration and rehabilitation work, community and private land assistance, volunteer fire assistance and the treatment of emergency appropriations. Western Governors also believe that sufficient funding needs to be devoted to the regulatory agencies, such as the Fish and Wildlife Service and the National Marine Fisheries Service, so their environmental compliance work does not become a barrier to allowing on-the-ground fire and restoration projects to proceed.

Western Governors recognize that recent tragic events require an urgent shift in our national priorities, but they ask that we not lose sight of important domestic needs. Over time, with continued substantial up-front investment, we can significantly reduce the damage caused by wildfires, improve the health of our lands and protect lives and property. It has taken more than 100 years to reach the current situation of extreme fuel loads on our federal, tribal, state and private lands, and it will take a multi-year investment of time, money and on-the-ground work to address it. If we are to reduce the threat and consequences of wildland fire to communities and their resource base, we need to continue the effort launched last year.

Stewardship over and sustainability of natural resources and communities is a long-held goal of Western Governors. As the nation witnessed during the 2000 fire season, severe wildfire poses a significant threat to both of these priorities. More than eight million acres were lost. We are again seeing the impact of severe wildfires this season. At least three million acres have burned so far. Almost a year ago, at the Governors’ request, among others, the Congress called on the Departments of Agriculture and Interior, in partnership with the Governors, to develop a long-term strategy to address the wildland fire threat and need for ecosystem restoration. As stated by Congress in the FY 2001 Interior and Related Agencies Appropriations Act (P.L. 106-291), the Secretaries are to:

work with the Governors on a long-term strategy to deal with the wildland fire and hazardous fuels situation, as well as the needs for habitat restoration and rehabilitation in the nation;

and,

engage Governors in a collaborative structure to cooperatively develop a coordinated, National ten-year comprehensive strategy with the States as full partners in the planning, decision-making, and implementation of the plan. Key decisions should be made at local levels.

Last month, Western Governors and the Secretaries of the Interior and Agriculture endorsed and transmitted to the Congress "A Collaborative Approach for Reducing Wildland Fire Risks to Communities and the Environment: 10-Year Comprehensive Strategy." I would like to submit that document for the record along with a joint letter of endorsement from Western Governors and the Secretaries. Additional letters of endorsement are also included from The Intertribal Timber Council, the National Association of Counties and the National Association of State Foresters.

The Strategy was developed in a collaborative manner by those endorsees, as well as a range of stakeholder representatives. These individuals represent the spectrum of natural resources policy interests from environmental groups to industry. Their contribution to and support for the Strategy speak volumes to its value and to the process by which it was developed. The Strategy was designed to accomplish four goals across federal and adjacent state, tribal and private lands:

1. Improve Prevention and Suppression;
2. Reduce Hazardous Fuels;
3. Restore Fire Adapted Ecosystems; and,
4. Promote Community Assistance.

The Strategy sets forth a number of guiding principles to achieve these goals including collaboration, priority setting and accountability. The Strategy also establishes a collaborative structure to accomplish these goals, with states and local governments as full partners in its implementation.

Western Governors are pleased with progress made to date and the level of collaboration among the states and the Department of the Interior and the Forest Service. However, we cannot hope to accomplish our ultimate goals unless Congress provides a substantial annual level of funding and the necessary direction that the Departments use that funding in full partnership with state and local governments. Only through a true partnership can we tackle this threat, which knows no boundaries and is beyond the capability and resources of any single level of government.

Let me take just a moment to describe how Congressional resources have been made available to date and how the Governors believe this needs to evolve to meet the envisioned outcomes of the Strategy.  In fiscal year 2001, most of the funds were appropriated as an emergency supplemental appropriation.  This meant that all the projects to undertake fuels reduction and restoration work already had to "be on the shelf." In other words, they had to have already gone through environmental compliance and National Environmental Policy Act (NEPA) processes.  So when you examine what was done this year with those funds, it may not be the most strategic work possible to address our long-term fire hazard problems, nor will it reflect the gains that we expect will come from working with multiple partners on joint projects both in the wildland-urban interface and across the landscape.

What has become clear over recent years is that the federal land management agencies alone cannot do all that needs to be done.  They need communities, states, tribes, and landowners to be working with them as they design projects to reduce the risk of wildfire to both communities as well as the ecosystem.  If the funds are put into the budget, rather than releasing them only under the declaration of an emergency, the collaboration envisioned by Congress and the Governors can take place. And it will be meaningful, because it will actually be tied to the planning and implementation of projects in such a way that the environmental compliance and NEPA work can be done in a timely fashion.  These processes may take one to two years, so we will need to make this investment from our budgets for a few years before we start seeing strategic, fire risk-reduction projects that are planned to maximize the effectiveness of all of our resources and funding sources. 

You may note that specific implementation actions are not included in the Strategy. Although the states intended to address implementation, we were unable to do so because of the need to first integrate the wildfire management programs of the Department of the Interior and the Forest Service. That will require great effort. The Departments have pledged to work with the Western Governors on an implementation plan to complement the Strategy and to complete it by May 1, 2002. The plan will address the needed integration among the Departments, as well as those of state, tribal and local programs. Performance measures, consistent priorities and timelines for accomplishing the goals of the Strategy will also be established in ways that meet all applicable legal requirements for federal and state actions.

Western Governors intend for the implementation plan to be collaborative, to set priorities, and to provide accountability to all participants, as well as the Congress. WGA believes that accomplishment tracking and reporting processes should incorporate common performance goals and measures in order for the agencies to improve the link from activities and budget to performance and results. In addition, if this effort is to be a true partnership, investment decisions made by the federal government must be done in collaboration with states, tribes and local governments. Finally, just as was done to develop the Strategy itself, Western Governors will employ a collaborative process among a range of stakeholder groups to seek their input and support for the implementation plan.

Western Governors urge you to support the Strategy and the forthcoming implementation plan. We also hope to work with the Administration on additional fire-related items. One is the development of procedures within existing laws to expedite compliance with the NEPA and interagency consultation required under Endangered Species Act. The other is the development of federal agency contracting procedures that will focus on restoration, forest health and rangeland activities recommended by local land managers.

Western Governors believe that a full partnership between the states and the federal government, and substantial on-budget funding to implement the Strategy recently agreed to, are necessary to successfully address the massive scope of the threat and consequences of severe wildfire to communities and ecosystems. We appreciate the recognition by the Congress of the need for state leadership and for the resources you have provided so far to address this problem. We will need your continued support if our nation is to ensure the health of its ecosystems and the sustainability of its invaluable natural resources and the communities in their midst.

This concludes my testimony on behalf of the WGA. Thank you for your consideration. I would be happy to answer any questions that you may have.