Forest Service's Response to the Coronavirus Pandemic at Recreation Sites — Inspection Report 08801-0001-22

Summary

USDA Office of Inspector General inspection report 08801-0001-22, dated May 2023, on the Forest Service's response to the coronavirus pandemic at recreation sites. The agency manages 30,000 sites, and the review covered prevention measures from March 27, 2020, through March 31, 2021. The Forest Service set a framework of measures including temporary closures, cleaning protocols, social distancing, protective equipment and signage, and left regions flexibility to add more. The inspectors found no indication that the measures were not implemented on time and made no recommendations.

Summary drafted by a model from the document's text below and checked by script against that text before publication. It is a navigation aid, not a reading of what the document proves. Where AI is used

Issuer: Source documents
Document type: Covid19 Forest Service Recreation Sites
Case: Covid19 Forest Service Recreation Sites

Cite this document

“Forest Service's Response to the Coronavirus Pandemic at Recreation Sites — Inspection Report 08801-0001-22.” Original at usdaoig.oversight.gov. Archived at Pandemic Darlings, https://pandemicdarlings.com/source-documents/covid19-forest-service-recreation-sites/, SHA-256 89de5c6889ad83b400225bda539612a4d7dcc20ae04bd12cefb60612b7f57f27.

Full text

OFFICE OF INSPECTOR GENERAL
U. S. DEPARTMENT OF AGRICULTURE

COVID-19—Forest Service’s Response to the Coronavirus Pandemic at Recreation Sites

Inspection Report 08801-0001-22
May 2023
COVID-19—Forest Service’s Response to the
Coronavirus Pandemic at Recreation Sites

Inspection Report 08801-0001-22
OIG identified the prevention measures that Forest Service established for
recreation sites in response to the COVID-19 pandemic.

OBJECTIVE WHAT OIG FOUND
Our objectives were to The mission of the Forest Service (FS) is to sustain the
determine the prevention health, diversity, and productivity of the Nation’s forests
measures FS implemented and grasslands to meet the needs of present and future
to protect employees and the
generations. FS manages 30,000 sites nationally, and
public at recreation sites due to
COVID-19, and whether those
these sites feature 10,000 campgrounds, 159,000 miles
measures were implemented of trails, 750 rental cabins, 2,000 trailheads, 130 visitor
within established timeframes. centers, and 2,150 day-use and boating and fishing sites.
In 2020, the United States faced an unprecedented
situation that forced publicly available FS recreation
REVIEWED sites, such as some campgrounds and visitor centers,
to close because of the coronavirus disease of 2019
OIG reviewed the actions FS (COVID-19) pandemic outbreak. As a proactive and
took to develop and implement precautionary step to adjust operations, FS developed
policies and procedures to plans and guidance to prevent the spread of COVID-19 to
mitigate COVID-19 exposure at its staff and visitors.
recreation sites from March 27,
2020, through March 31, 2021.
Forest Service identified a framework of measures to
respond to COVID-19 at recreation sites, including
temporary closure of recreation sites, development
RECOMMENDS of cleaning protocols for recreational facilities, social
distancing, use of personal protective equipment (PPE),
We are not making any
and posting of signage. FS also provided regional
recommendations.
officials with decision-making authority and flexibility
to implement additional measures based on their
operational needs.

FS’ framework of prevention measures was disseminated
to the regional offices, national forests, and recreation
sites with the expectation that the measures would be
implemented immediately. We did not find any indication
that the measures FS developed and communicated were
not implemented timely.
OFFICE OF INSPECTOR GENERAL
United States Department of Agriculture

DATE: May 2, 2023

INSPECTION
NUMBER: 08801-0001-22

TO: Randy Moore
Chief
Forest Service

ATTN: Robert Velasco
Chief Financial Officer
Forest Service

FROM: Janet Sorensen
Assistant Inspector General for Audit

SUBJECT: COVID-19 – Forest Service’s Response to the Coronavirus Pandemic at
Recreation Sites

This report presents the results of the subject review. We are not making any recommendations
in this report. Therefore, no further response to this office is necessary.

We appreciated the courtesies and cooperation extended to us by members of your staff during
our inspection fieldwork and subsequent discussions. This report contains publicly available
information and will be posted in its entirety to our website (https://usdaoig.oversight.gov) in the
near future.
Table of Contents

Background and Objectives ................................................................................... 1
Question 1: What Measures Did the Forest Service Implement Due to
COVID-19 to Protect Employees and the Public at Recreation Sites?.............. 3
Question 2: Were the Prevention Measures Implemented Within Established
Timeframes? ............................................................................................................ 5
Scope and Methodology .......................................................................................... 7
Abbreviations .......................................................................................................... 9
Background and Objectives
Background

The mission of the Forest Service (FS) is to sustain the health, diversity, and productivity of the
Nation’s forests and grasslands to meet the needs of present and future generations. FS is
responsible for managing more than 193 million acres of public land, which is composed of 154
national forests and 20 grasslands in 44 States, Puerto Rico, and the U.S. Virgin Islands.

The FS headquarters is located in Washington, DC. As part of its organizational structure, FS
also includes the National Forest System (NFS), which is managed through nine regions (see
Figure 1).

Figure 1: Map of FS’ Nine Regions.

According to FS guidance, 1 the NFS “is an American treasure” that touches nearly every facet of
the American life and “can be a resource for people during difficult times.” FS “recreation
facilities promote solitude and self-reliance,” and “the recreation activities offer benefits to
health and well-being that visitors to the National Forests can continue to enjoy.” FS manages
30,000 sites nationally, and these sites feature 10,000 campgrounds, 159,000 miles of trails, 750
rental cabins, 2,000 trailheads, 130 visitor centers, and 2,150 day-use and boating and fishing
sites.

During the onset of the coronavirus disease 2019 (COVID-19) pandemic, FS experienced an
increase in visitation to its recreation sites. During fiscal year (FY) 2020, FS received more than

1
Guidance for the Operation of Recreation Services Sites and Food Services (Mar. 2020).

INSPECTION REPORT 08801-0001-22 1
168 million visits to its national forests and grasslands, an increase of 18 million national forest
visits from 2019. FS attributed the increase to people’s desire to be outdoors in natural settings
during the COVID-19 pandemic. The 193 million acres of national forests continued to be a
resource for people to use, including the facilities, trails, and open NFS lands. However, the
pandemic impacted FS operations by challenging its established means of ensuring it could
fulfill its mission and keep true to its motto of “caring for the land and serving people.”

Following the closure of several recreation sites due to the stay-at-home orders issued by States,
FS took steps to safely resume and maintain operations as it responded to the COVID-19
pandemic. FS’ goal was to sustain customer service and mission functions and ensure its
workforce was safe, healthy, and available to meet community and public needs.

On March 27, 2020, Congress passed into law the Coronavirus Aid, Relief, and Economic
Security Act (CARES Act) in response to the COVID-19 outbreak and its impact on the
economy, public health, state and local governments, individuals, and businesses. 2 The CARES
Act provided $70.8 million in funding to FS to assist with relief efforts, including $34 million in
funding to the NFS to prevent, prepare for, and respond to COVID-19 domestically or
internationally. This funding provided for the cleaning and disinfecting of public recreation
amenities, personal protective equipment (PPE), and baseline health testing for first responders.

Objectives

Our objectives were to determine (1) what prevention measures FS implemented due to COVID-
19 to protect employees and the public at recreation sites, and (2) whether those measures were
implemented within established timeframes.

2
Coronavirus Aid, Relief, and Economic Security Act, Pub. L. No. 116-136, 134 Stat. 281 (2020).

2 INSPECTION REPORT 08801-0001-22
Question 1: What Measures Did the Forest Service Implement Due
to COVID-19 to Protect Employees and the Public at Recreation
Sites?
In 2020, the United States faced an unprecedented situation that forced publicly available
recreation sites, such as some campgrounds and visitor centers, to close because of the COVID-
19 outbreak. Despite some closures, according to Forest Service, the national forests and
grasslands received more than 168 million visits for recreation activities during FY 2020. As a
proactive and precautionary step to adjust operations, FS developed plans and guidance to
prevent the spread of COVID-19 to its staff and visitors.

We found that FS identified a framework of measures to manage its response to COVID-19 at
recreation sites. The measures were designed to mitigate agency employees’ and the public’s
exposure to COVID-19. Such measures included the temporary closure of recreation sites, the
development of cleaning protocols for recreation facilities, social distancing, use of PPE, and
posting of signage (see Figure 2).

Figure 2: FS’ Prevention Measures.

INSPECTION REPORT 08801-0001-22 3
Further, the FS chief delegated to regional officials the decision-making authority to modify
operations and/or services based on factors such as protecting employees and the public health
and supporting local and State COVID-19 mitigation efforts. For example, we found that some
regional offices issued supplemental guidance related to vehicle-cleaning protocols, travel
guidance, and sanitizing reusable PPE.

4 INSPECTION REPORT 08801-0001-22
Question 2: Were the Prevention Measures Implemented Within
Established Timeframes?

FS identified a framework of prevention measures with an expectation that the measures would
be implemented immediately upon receipt of instruction. For example, an executive order—
effective March 26, 2020—was issued by a State that required its citizens to stay at home. In
response to the order, FS promptly issued guidance on March 27, 2020, that communicated the
temporary closure of recreation facilities to align with State and local guidance.

We also found FS took steps to safely resume and maintain operations in response to the
COVID-19 pandemic to ensure its workforce was safe, healthy, and available to meet the
public’s needs. FS developed a guidance and protocols 3 document as a framework to take actions
to return to regular operations. According to FS officials, guidance was disseminated to the
regional offices, national forests, and ultimately to the recreation sites for implementation. The
objective was to mitigate conditions while also being responsive to FS operational needs
identified within the localized areas (see Figure 3).

Figure 3: Forest Service’s Communication Flow.

Further, the regional offices we sampled established individual COVID-19 task forces which
encompassed varying levels of authority and expertise. For example, we identified a task force

3
United States Department of Agriculture Forest Service Guidance and Protocols to Implement the USDA
Reopening Playbook, May 2020.

INSPECTION REPORT 08801-0001-22 5
that communicated regularly with its national forest officials to ensure implementation of
prevention measures based on the COVID-19 guidance. In addition, we identified that FS
officials also tracked the number of COVID-19 cases among employees.

We did not find any indication that the measures FS developed and communicated were not
implemented timely.

6 INSPECTION REPORT 08801-0001-22
Scope and Methodology
We conducted this inspection to determine the prevention measures FS implemented at
recreation sites because of the COVID-19 pandemic and whether those measures were
implemented within established timeframes. We performed fieldwork from May 2021 through
March 30, 2023.

Our inspection scope covered the period of March 27, 2020, through March 31, 2021. We
conducted fieldwork remotely with the FS Washington Office and the following FS regional
offices and national forests:

Selected Three of Nine FS Regions Selected Two National Forests per
Region
Pike-San Isabel National Forests &
Cimarron and Comanche National
Region 2 – Rocky Mountain Region
Grasslands
White River National Forest
Lake Tahoe Basin Management Unit
Region 5 – Pacific Southwest Region
Inyo National Forest
Chattahoochee-Oconee National Forest
Region 8 – Southern Region
National Forests in North Carolina

To identify our sample, we non-statistically selected the regional offices and associated national
forests with the highest volume of recreation site visits per year. 4 We made our determination
based on the consideration that the greater the number of visitors to the national forests, the
greater the risk of exposure to the COVID-19 virus and the need for prevention measures to be
implemented.

To accomplish our inspection objectives, we:

• Obtained and reviewed the applicable laws, written policies, procedures, and other
guidance to gain an understanding of the actions FS took to mitigate FS employee and
public exposure to the COVID-19 virus at recreation sites.
• Interviewed agency personnel from the Washington Office, regional offices, and national
forests through videoconferencing and email communication.
• Assessed agency actions through review of FS’ written responses to our questions
related to (1) the development and implementation of policies and procedures to mitigate
exposure to COVID-19 at recreation sites, (2) communication of the mitigation efforts to
staff, and (3) oversight.

We conducted this inspection in accordance with the Council of the Inspectors General on
Integrity and Efficiency’s Quality Standards for Inspection and Evaluation. These standards

4
To determine the regional and national forest site selections, we used the 2019 National Visitor Use Monitoring
(NVUM) National Report, which identified the annual visitation estimates by region.

INSPECTION REPORT 08801-0001-22 7
require that we obtain sufficient, competent, and relevant evidence to provide a reasonable basis
for our conclusions based on our inspection objectives. We believe that the evidence obtained
provides a reasonable basis for our conclusions.

8 INSPECTION REPORT 08801-0001-22
Abbreviations
CARES Act ............................Coronavirus Aid, Relief, and Economic Security Act
COVID-19..............................coronavirus disease 2019
FS ...........................................Forest Service
FY ..........................................fiscal year
NFS ........................................National Forest System
OIG ........................................Office of Inspector General
PPE.........................................Personal Protective Equipment

INSPECTION REPORT 08801-0001-22 9
Learn more about USDA OIG
Visit our website: https://usdaoig.oversight.gov/
Follow us on Twitter: @OIGUSDA

How to Report Suspected Wrongdoing in USDA Programs

Fraud, Waste, and Abuse
File complaint online: https://usdaoig.oversight.gov/hotline

Monday–Friday, 9:00 a.m.– 3:00 p.m. ET
In Washington, DC 202-690-1622
Outside DC 800-424-9121
TDD (Call Collect) 202-690-1202

Bribes or Gratuities
202-720-7257 (24 hours)

In accordance with Federal civil rights law and U.S. Department of Agriculture (USDA) To file a program discrimination complaint, complete the USDA Program Discrimination
civil rights regulations and policies, the USDA, its Agencies, offices, and employees, Complaint Form, AD-3027, found online at How to File a Program Discrimination Complaint
and institutions participating in or administering USDA programs are prohibited from and at any USDA office or write a letter addressed to USDA and provide in the letter all of
discriminating based on race, color, national origin, religion, sex, gender identity (in- the information requested in the form. To request a copy of the complaint form, call (866)
cluding gender expression), sexual orientation, disability, age, marital status, family/ 632-9992. Submit your completed form or letter to USDA by: (1) mail: U.S. Department of
parental status, income derived from a public Agriculture, Office of the Assistant Secretary for Civil Rights, 1400 Independence Avenue,
assistance program, political beliefs, or reprisal or retaliation for prior civil rights ac- SW, Washington, D.C. 20250-9410; (2) fax: (202) 690-7442; or (3) email: program.intake@
tivity, in any program or activity conducted or funded by USDA (not all bases apply to usda.gov.
all programs). Remedies and complaint filing deadlines vary by program or incident.
USDA is an equal opportunity provider, employer, and lender.
Persons with disabilities who require alternative means of communication for pro-
gram information (e.g., Braille, large print, audiotape, American Sign All photographs on the front and back covers are from USDA’s Flickr site and are in the
Language, etc.) should contact the responsible Agency or USDA’s TARGET Center at public domain. They do not depict any particular audit, inspection, or investigation.
(202) 720-2600 (voice and TTY) or contact USDA through the Federal Relay Service
at (800) 877-8339. Additionally, program information may be made available in
languages other than English.

File and source

File: covid19-forest-service-recreation-sites.pdf
Size: 2,208,974 bytes
SHA-256: 89de5c6889ad83b400225bda539612a4d7dcc20ae04bd12cefb60612b7f57f27
Our copy: covid19-forest-service-recreation-sites.pdf
Original: usdaoig.oversight.gov