TITLE:  Forest ServiceÂSierra Nevada Forest Plan Amendment brochure and video materials, B-302992, September 10, 2004
BNUMBER:  B-302992
DATE:  September 10, 2004
**********************************************************************
   B-302992

   September 10, 2004

   The Honorable Richard W. Pombo

   Chairman

   Committee on Resources

   U.S. House of Representatives

   The Honorable Greg Walden

   Chairman

   Committee on Resources

   Subcommittee on Forests and Forest Health

   U.S. House of Representatives

   Subject: Forest Service*Sierra Nevada Forest Plan Amendment brochure and
video materials

   This responds to your request for our legal opinion regarding the Forest
Service's use of appropriated funds to produce and distribute a brochure
entitled "Forests With a Future:  Protecting Old Growth Trees, Wildlife
and Communities in Sierra Nevada."  Specifically, you asked whether the
use of appropriated funds for the brochure constitutes a violation of the
prohibition on using funds for publicity or propaganda purposes enacted in
the Consolidated Appropriations Act of 2004, Pub. L. No. 108-199, Div. F.,
Tit.A VI, SA 624, 118 Stat. 3, 356 (2004).  You also asked whether the
Forest Service's contract with a private company, OneWorld Communications,
Inc. (OneWorld), to assist with the production and distribution of the
brochure violated

   5 U.S.C. S 3107, which prohibits the use of appropriated funds to pay a
publicity expert without authorization from Congress. 

   To respond to your request, we wrote to the Department of Agriculture
(USDA) requesting factual information and its legal justification for its
use of appropriations to produce and distribute the brochure.  Letter from
Susan A. Poling, Managing Associate General Counsel, GAO, to Nancy S.
Bryson, General Counsel, USDA, MayA 11, 2004.  In response to our letter,
we received a copy of a legal memorandum written by Ms. Bryson to Mark E.
Rey, Under Secretary, Natural Resources and Environment, USDA, Apr. 23,
2004 (Bryson Memo).  This memorandum explained USDA's legal justification
as to why the brochure at issue here did not violate the publicity or
propaganda prohibition and other anti-lobbying prohibitions of the annual
appropriations act.[1]  Letter from Nancy S. Bryson, USDA, to Susan A.
Poling, GAO, May 13, 2004.  On May 27, 2004, we received a supplemental
response from Mr. Rey (Rey Response).  This response provided answers to
the specific questions we posed in our May 11 letter, documentation
evidencing the contractual relationship between the Forest Service and
OneWorld, and video material.  We met informally with Forest Service
officials, including Mr. Rey, on June 18 (June Meeting) to clarify the
answers provided in both responses and to develop further the factual
record.   On July 8, 2004, we received additional documentation from
Forest Service officials (July Response), including written communications
between OneWorld and the Forest Service evidencing the business
relationship between them.     

   As we explain below, the Forest Service did not violate the publicity or
propaganda prohibition nor did it violate section 3107.  The written and
video materials provide the administration's view of the Forest Service's
thinning policy on preventing catastrophic forest fires; while the Forest
Service policy is controversial, the materials explaining the policy do
not constitute prohibited publicity or propaganda.  Furthermore, OneWorld
was not acting as a "publicity expert" within the meaning of section 3107
when it assisted the Forest Service in the production of materials to help
explain its thinning policy to the public.  This opinion does not address
the soundness or advisability of the policies addressed in the brochure
and video at issue herein.

   BACKGROUND

   The Sierra Nevada Forest Plan Amendment

   Under federal statute, the Secretary of USDA must maintain land and
resource management plans for each unit of the National Forest System.
[2]  16 U.S.C. S 1604.  The Secretary also must revise these plans every
15 years or sooner if conditions in a forest unit have changed
significantly.  16 U.S.C. S 1604(f)(5).  After approximately a decade of
reevaluation of the land and resource management plan for the Sierra
Nevada Forest region, the Forest Service issued the Plan Amendment.[3]  On
JanuaryA 12, 2001, the Forest Service released its record of decision
(ROD) for the Sierra Nevada Forest Plan Amendment providing the management
direction for national forests in that region.  ROD, Jan. 12, 2001 (2001
ROD), available at http://www.fs.fed.us/r5/snfpa (last visited August 27,
2004). 

   The 2001 ROD identified that a primary concern in creating forest
management policy is the uncertainty of forest management activities on
the wildlife habitat.  See 2001 ROD at 21, 22.  With regard to reducing
the risks of catastrophic forest fires, the ROD focused on perpetuating
old forest conditions and habitats for species associated with old
forests.  2001 ROD at 36-37.  Fire reduction techniques involved the
setting of controlled fires and "understory thinning," or removal of trees
less than 12 inches in diameter.[4]  Id. at 36.  The ROD proposed more
aggressive fire treatment in urban wildland intermix zones but called for
more restraint in fire management in areas outside the intermixed zones. 
Id. at 21.  The 2001 ROD directives called for the Forest Service land
managers to implement initiatives to sustain old forest species while
considering necessary action to protect human life and property from the
effects of wildfires.  See 2001 ROD, App. A at 1.

   After considering numerous appeals from the public, the 2001 ROD, and the
accompanying final environmental impact statement (EIS), the reviewing
officer affirmed the 2001 ROD and EIS.  Decision for Appeals at 1, Nov.
16, 2001.  He expressed concern, however, over the continued fire
catastrophes occurring in California at that time.  Without choosing
another alternative fire management strategy, the reviewing officer's
decision highlighted other possible alternatives that may more
successfully suppress the unusually high fire activity in California.  Id.
at 3.  The alternative plans treated forest areas more aggressively with
increased thinning of trees and controlled fire.  2001 ROD at 19 to 21. 
Although the reviewing officer affirmed the 2001 ROD, he instructed the
regional forester to reevaluate the plan in light of the increased fire
activity and to consider more flexibility for aggressive fire protection
treatment.  Decision for Appeals at 4.[5]

   Pursuant to the reviewing officer's directive in the 2001 appeal order,
the regional forester established a team to evaluate further the Plan
Amendment.[6]  Bryson Memo at 1.  The work of the evaluation team
eventually culminated in Management Review and Recommendations and a
Supplemental Environmental Impact Survey (Supplemental EIS).  See id.; see
also ROD at 3, Jan. 21, 2004 (2004 ROD).   After public comment on the
Supplemental EIS, the regional forester replaced the 2001 ROD with a new
ROD issued on January 21, 2004.  As noted in the text of the 2004 ROD, the
proposed changes to the Plan Amendment reflected the primary goal of
reducing the risk of catastrophic forest fire to local communities.  2004
ROD at 3.  The 2004 ROD found that the 2001 ROD did not provide adequate
solutions for reducing the threat of wildfire.  In particular, the 2004
ROD noted that using controlled fire was too risky in the current state of
the Sierra Nevada forests and the proposed thinning activities were too
meager.  2004 ROD at 5.  Instead, the 2004 ROD proposed more thinning of
larger trees in more remote areas.  See 2004 ROD at 9.  It also discussed
the commercial aspects of allowing the removal of larger trees, but
retained a limit on trees not larger than 30 inches in diameter.  See
id.   The 2004 ROD chose an alternative management scheme that used
thinning, salvage, and fire to meet its goals.  See id. at 16.  It
asserted that this method would continue to preserve the 2001 ROD
objectives of preserving old forest ecosystems; however, it acknowledged
the method would change the current forest landscape by reducing density
and regenerating shade intolerant species.  Id.

   Contract with OneWorld

   With the Forest Service's growing concern over the media reaction to the
release of the 2004 ROD, the Forest Service launched a media "campaign"
with the objective of creating "a favorable public atmosphere for the
[ROD] by presenting early and accurate messages and quick and direct
responses to those who oppose [it]."  Statement of Work for Sierra Nevada
Framework Media Relations Strategy and Action Plan (Statement of Work) at
1.  The Forest Service expressed concern that after the release of the
Management Review and Recommendations in March 2003, and the Draft
Supplemental EIS in June 2003, a "generally negative, distrustful tone
[had] been established in the media and by some persuasive stakeholders .
. . ." Id.   

   To meet its objectives, the Forest Service contracted with OneWorld,[7]
which the Forest Service described as a marketing/advertising/public
relations/media firm.  Rey Response at 1.  The contract required OneWorld
to provide the following products and services:  strategy development and
management, creation of brochure, other written products, short video and
power point presentations, review of existing Forest Service B-roll film,
update of website to include new information regarding the plan, and
training on improving interview and presentation skills.  See generally
Statement of Work, Jan. 5, 2004.  Forest Service officials explained to us
that, by the time OneWorld began providing services to aid in the media
campaign, Forest Service had already devised language for a brochure for
their contractor's review and that OneWorld provided editorial services to
make the brochure easier to read.  June Meeting; July Response.  In
essence, according to the Forest Service, OneWorld assisted in the
rewriting of the brochure to turn scientific and technical language into
text that could be more easily understood by the public and individuals
without technical expertise in the management of forest health.  Id.

   Brochure

   In response to your request, we analyzed the brochure that was provided to
us with the Rey Response.[8]  The brochure consists of six pages and two
inserts that discuss forest fires, methods to reduce forest fires, the
Forest Service plan to implement these methods, and the effects upon the
ecosystem and wildlife in the Sierra Nevada.  The brochure contains
pictures of forests and forest fire, sketches, graphs, and maps relaying
both basic information and statistical analysis.  The title page proclaims
that the Forest Service is engaging in "[a] Campaign Against Catastrophic
Wildfires" and includes the phrase:  "Forests with a Future."  The
brochure's title, "Protecting Old Growth Trees, Wildlife and Communities
in the Sierra Nevada," describes the stated purpose of this campaign.  In
addition to the campaign declaration and brochure title, the Forest
Service/USDA seal is prominently displayed in the bottom right hand corner
of the first page of the brochure and the two inserts.

   The brochure states that the Sierra Nevada forests face increasingly
catastrophic fires and that conditions are deteriorating because the
forests have become too dense over time.  The reader is told that
historically the Sierra Nevada forests had fewer trees and underbrush,
which allowed for "good fire" to clean the forest floor, and that today's
denser forests are at risk for catastrophic wildfires.  To illustrate the
increased density in the forests, the Forest Service included a series of
photographs depicting the increasing density of a forest from 1909 until
1989.  The first picture in the series, a picture of trees and tree
stumps, shows a forest that had recently been logged.

   The brochure tells the reader that if no action is taken, the effect of
wildfires will be devastating to the surrounding communities.  The text
states that in order to protect communities and wildlife "the forests of
the future must become more like the forests of the past."  The brochure
claims that, in addition to safeguarding communities, the management
methods will have a positive impact on indigenous wildlife.  As an
example, the brochure indicates that the decrease of wildfires resulting
from the management methods will double the amount of old growth trees in
the California Spotted Owl habitat.

   The brochure notes several methods to reduce the risk of devastating fire,
including controlled burns, removal of underbrush and thinning.  The
brochure says that thinning is necessary due to the current overgrown
conditions in the Sierra Nevada forests.  The reader is told that in
addition to returning the forests to this historic state, the cost of
thinning 20-to-30-inch-diameter trees will be offset by $80 million of
revenues generated by tree removal.  The brochure states, however, that
only a selected few 20-inch to 30-inch trees will be removed.  

   The brochure mentions that the Plan Amendment forms the basis of the
Forest With a Future Campaign.  The brochure directs the reader to a web
site, www.fs.fed.us/r5/snfpa, to obtain the ROD and Supplemental EIS.  On
the back side of the brochure, readers are asked to get involved with the
Fire Safe Council and work with community organizations to identify
resources available to undertake the thinning methods and other
activities.  At the end of the brochure, the Forest Service asks readers
to learn about taking action and not to confuse thinning operations with
logging operations of a decade ago.  To that end, readers are directed
again to the "Forest With a Future" and the Plan Amendment websites for
further information.

   Forest Service printed 20,000 brochures.  Rey Response; June Meeting.  The
Forest Service publicly presented these brochures at a news conference to
announce release of the ROD.  The Forest Service forwarded packages of the
brochures to the county supervisors of the 11 national forests and two
research stations in the Sierra Nevada Region.  Each of these recipients
received 1000 brochures. Rey Response, Specifications at 3.   Forest
Service officials told us that county supervisors may have forwarded this
material to other groups and individuals in their region.  The brochures
were also distributed internally to Forest Service employees and provided
to members of the public requesting the information.  June Meeting.

   Video material

   In addition to the printed brochure, OneWorld prepared a script for a
video presentation and B-roll film of footage related to the national
forests and the dangers of forest fires.  OneWorld edited this script and
B-roll into a 10-minute video presentation and created a separate tape
with select B-roll footage.

   Forest Service officials told us that the video presentation was shown
only during the press conference announcing the 2004 ROD and was not used
in any other capacity.  The video presentation lasts approximately 10
minutes.  The presentation begins with an image containing the Forest
Service seal and then the words "The Sierra Forest Must Endure."  The
beginning images show the devastating effects of wildfire in the forests
and to communities.  The audience is told that the forests of today are
overgrown and dense unlike the forests of the past.  Some of the same
photographs that were displayed in the brochure are displayed in this
video to show the increased forest density.  The video does not show the
1909 photograph.  Animation compares the effects of fire in less dense
forests and the effects of "crown" fire occurring in more dense forests. 
The presentation notes that thinning and controlled burning are necessary
to lessen the risk of catastrophic fire.  The presentation asks for a
public commitment to the "Forest With a Future" Campaign.  The final image
tells the audience that the video was based upon the 2004 ROD, and
identifies the websites for more information regarding the Plan Amendment
and the supporting documentation. 

   Forest Service officials told us that the B-roll footage was available to
local television stations from which they could create their own news
reports.  June Meeting.  The

   B-roll film provides various video and audio shots of forest fires,
firefighting efforts, various species of wildlife, and a group of
scientists discussing solutions to protecting communities from wildfires. 
Forest Service did not provide any script with the B-roll nor did it
provide suggestions for creating a news story for television stations to
air to television audiences.

   DISCUSSION

   The Forest Service told us that it used appropriated funds from its Timber
Management and Land Resource Management funds for fiscal year 2004 to pay
for the production and distribution costs of the brochure and the video
materials, including payments to OneWorld.  Rey Response at 2.  These
funds were appropriated in the Department of the Interior and Related
Agencies Act, 2004, Pub. L. No. 108-108, 117A Stat. 1241 (Nov. 10, 2003). 

   Publicity or Propaganda Prohibition

   The Forest Service's use of fiscal year 2004 funds appropriated from Pub.
L. No. 108-108 is limited by the governmentwide restriction on using
appropriated funds for publicity or propaganda purposes.  Specifically,
this restriction provides:  "No part of any appropriation contained in
this or any other Act shall be used for publicity or

   propaganda purposes within the United States not heretofore authorized by
the Congress."  The Consolidated Appropriations Act of 2004, Pub. L. No.
108-199, S 624, 118A Stat. 3, 356 (Jan. 23, 2004). [9]

   We have recognized that the prohibition restricts materials that are
self-aggrandizing, covert as to source, and purely partisan in
nature.[10]  See generally B-302710, May 19, 2004; B-302504, March 10,
2004.  The brochure and video at issue here do not consist of messages
that could be characterized as self-aggrandizing. They do not attempt to
persuade the public as to the importance of the Forest Service and/or one
of its officials.  Cf. B-212069, Oct. 6, 1983 (Office of Personnel
Management's press release informing the public of the Administration's
position on pending legislation was not self-aggrandizement where there
was no attempt to persuade the public of the importance of the government
agency). 

   Furthermore, it is clear that the brochure and the video presentation do
not constitute covert propaganda.  Because the Forest Service and USDA
emblems and names are prominently displayed on the cover, the government
source is clear to the audience and to readers.  Cf. B-302710 (Department
of Health and Human Services' materials constituted covert propaganda
because the materials failed to identify the government source to the
entire target audience).  The B-roll, which the Forest Service only
distributed for local news stations to use as video for stories created by
those news organizations, was also clearly identified to the news station
source, the target audience of the B-roll film. See id.  (B-roll film
disseminated by the Department of Health and Human Services did not
constitute covert propaganda because the audience of this material was the
news stations, who were aware of the source of the materials). 
Accordingly, neither the brochure nor the video materials are covert
propaganda for purposes of determining whether the Forest Service violated
the publicity or propaganda prohibition.

   To be characterized as purely partisan in nature, the brochure and video
materials must be found to have been "designed to aid a political party or
candidates."  Ba**147578, Nov. 8, 1962.  It is often difficult to
determine whether materials are political or not because "the lines
separating the nonpolitical from the political cannot be precisely
drawn."  Id.; B-144323, Nov. 4, 1960.  An agency has a legitimate right to
explain and defend its policies and respond to attacks on that policy.

   B-302504, March 10, 2004.  It is sometimes difficult to differentiate an
agency's dissemination of information in exercising this legitimate right
to explain and defend its policies from dissemination activities that are
for purely political reasons. 

   B-130961, Oct. 16, 1972 (Letter to Representative Richardson Preyer).  A
standard we apply resolving this struggle is that the use of appropriated
funds is improper only if the activity is "completely devoid of any
connection with official functions."  Ba**147578, Nov. 8, 1962.  We do not
raise any objection to the use of appropriated funds if an agency can
reasonably justify the activity as within its official duties.  See
B-144323, Nov. 4, 1960.

   As noted above, Forest Service officials told us that the decision to
create a brochure and other video materials was based in part upon a
desire to better inform the public about the very complicated issue of
fire management and protection from catastrophic wildfire.  The statute
creating the USDA authorizes the USDA to disseminate information "on
subjects connected with agriculture . . . ."  7 U.S.C. SA 2201.  As
explained in the Background section of this opinion, the Forest Service,
an agency of USDA, is required to devise land resource and management
plans for each unit of the National Forest System.  See 16 U.S.C.
SA 1604(f)(5).  The Plan Amendment is a plan created under the statutory
authority of the Forest Service.  Providing the public with information
about the Plan Amendment, particularly in a form that the public can
easily understand, certainly falls within the scope of USDA's specific
statutory authority to provide information to the public on "subjects
connected with agriculture."  7A U.S.C. SA 2201.  The Plan Amendment
includes the 2004 ROD, Supplemental EIS, and the final EIS from 2001,
which together consist of more than 500 pages replete with technical
terminology and addressing land resource information in addition to fire
management and wildfires.  The Forest Service produced a brochure and
video materials to explain some the policies put forth under the Plan
Amendment and the supporting documentation, including the 2004 ROD. [11]

   Also, as noted above, work order papers and other documents provided to us
reveal that the Forest Service designed the brochure and video materials
to rebut negative media attention surrounding the policies put forth in
the 2004 ROD.  The Forest Service has a legitimate right to defend its
policies.  The Forest Service was well aware of the opposition to its
proposed policy changes.  Various environmental and other public-interest
groups attacked these policies when introduced by the Healthy Forest
Initiative.[12]  Public comments on the EIS, for example, demonstrate
concern over the impact on wildlife habitat if the Forest Service were to
increase the number of larger trees that it might remove.  The Forest
Service's production of the brochure and video materials to explain and
defend its fire management policies does not violate the publicity or
propaganda prohibition. 

   The materials are not comprehensive and do not explain all the positive
and negative effects of the thinning policy central to its new fire
management policies.  Indeed, these materials discuss the possible
positive results without discussing the negative impact that such policy
could have on the environment or wildlife habitat.  For example, the
brochure mentions the positive impact that decreasing the forest fire
threat could have on the indigenous wildlife, but contains no information
regarding the threat aggressive forest management will have on these
creatures' natural habitats. 

   The fact that the materials do not present both the negative and positive
consequences, however, does not render them purely partisan in violation
of the publicity or propaganda prohibition.  On the contrary, our recent
cases have recognized that restricting all materials that arguably have or
are perceived as having some partisan content would hinder the legitimate
exercise of the agencies' authority to inform the public of its policies,
to justify its policies, and to rebut attacks upon its policies.  See,
e.g., B-302504, March 10, 2004.  Accordingly, while the brochure and video
materials may provide only information that supports the Forest Service's
view of the need for more aggressive thinning and tree removal, this does
not render the material purely partisan in violation of the publicity or
propaganda prohibition.

   Finally, we note that much controversy surrounds the strip of photographs
in the brochure depicting increasing density in a forest from 1909 until
1989.  The photographs fail to acknowledge that the forest pictured is not
part of the Sierra Nevada nor that the first picture taken in 1909 had
been recently logged.[13]  The text preceding the strip of photographs
leaves the reader of the brochure with the impression that the 1909
picture is the "natural" state of the forest.  That text reads: 

   "Historically the forests of the Sierra Nevada had fewer trees and less
underbrush.  When wildfire came, it burned low and slow, removing small
vegetation and *cleaning' the forest *floor.' This kind of fire was a
natural part of the ecosystem, helping old growth trees to survive . . .

   We need future forests more like past forests.

   [t]here should be open stands of large trees . . .

   Restoring the entire forest to its former safer state, with fewer trees
and less underbrush, would be a gargantuan task."

   The Forest Service has claimed that this series of photographs was
intended to illustrate increasing density over time and did not intend to
deceive the public by representing the first picture of the series as a
natural state of the Sierra Nevada in 1909.  See Rey Response at 2.  In
later versions of the brochure, the Forest Service has clearly identified
that the pictures were not pictures of the Sierra Nevada and their purpose
was to exhibit increased density of the forests over the time period
mentioned.[14]  Indeed, in the original version of the brochure, the
pictures are labeled "Increasing Density" and the brochure does not state
that the 1909 picture was a "natural state" of the Sierra Nevada forests. 
Although the Forest Service could have been more careful in its labeling
of the pictures to eliminate any inference that the logged 1909 forest was
a more natural state of the forest, the Forest Service's failure to do so
does not constitute a violation of the publicity or propaganda
prohibition.  The Forest Service's explanation and the remedial measures
taken in the second printing of the brochure support its assertions that
the series of photographs was intended only to exhibit increased forest
density over time.

   Section 3107*Publicity Experts

   You also asked us to determine whether the Forest Service violated section
3107 by hiring OneWorld to assist with production and dissemination of
materials related to its "Forests With a Future Campaign."  As stated in
the work orders and supporting materials provided by the Forest Service,
the Forest Service hired OneWorld, a public relations firm, to make the
technical language of the ROD and the Plan Amendment easier for the public
and media to understand.  See Rey Response at 1.

   Section 3107 provides that  "[a]ppropriated funds may not be used to pay a
publicity expert unless specifically appropriated for that purpose."  5
U.S.C. S 3107.  This restriction applies to the use of all appropriated
funds, including the appropriations used to produce and distribute the
brochure and video materials at issue here.[15]  Section 3107 was enacted
in 1913 and has not been amended. 

   The statutory language of section 3107 focuses on paying a "publicity
expert."  Notwithstanding the fact that the Forest Service describes
OneWorld as a public relations specialist, our determination of whether
OneWorld qualifies as a "publicity expert" for purposes of section 3107 is
based upon the meaning of "publicity expert" as used in the law.  Our case
law has rarely addressed a challenge to agency expenses for information
dissemination activity under section 3107.  Our cases have noted
difficulty in applying the provision due to the lack of definitional
guidance in the statute and the need to protect an agency's right or duty
to inform the public regarding its activities and programs.  See B-139965,
Apr. 16, 1979 (noting the lack of definitional guidance in sectionA 3107);
A-82332, Dec. 15, 1936 (noting that what later became section 3107 was not
intended to restrict legitimate informational activities).  Given the
absence of definitional guidance in the statute, we look to the
legislative history of the provision to ascertain what Congress meant to
prohibit when it passed what is now section 3107 in 1913.  We find the
legislative history particularly illuminating. 

   When Representative Gillett introduced this bill, he expressed that his
intention was to prohibit the employment of someone "simply as a press
agent" without specific authorization from Congress.  50 Cong. Rec. 4409
(1913).  Floor debates revealed that supporters intended not necessarily
to prohibit employing someone whose duties were "as a press agent," but to
prohibit the use of press agents "to extol or to advertise" the agency or
individuals within the agency.  50 Cong. Rec. at 4410 (comments of
Representative Fitzgerald, chairman of committee that reported the
bill).   Importantly, the floor debates clearly revealed that the
provision was not meant to prohibit legitimate information dissemination
regarding agency work or services.  When some Members expressed concern
that the provision may affect the hiring of experts to "mak[e] our farm
bulletins more readable to the public and more practical in their
make-up," supporters indicated that such bulletins and the hiring of
individuals to make the bulletins more readable would not be restricted by
its passage.  Id. at 4410 (statement of Representative Lever).  Moreover,
supporters of the proposed legislation specifically clarified that it
would not prevent the USDA from providing the public with information
regarding its work.  Id.

   In our view, the legislative history establishes that section 3107 was not
to be applied to impede the legitimate informational functions of the
agencies.  As we discussed earlier, agencies have a legitimate right to
disseminate agency products and information about agency policies.  As the
legislative history of section 3107 suggests, this includes the right to
establish mechanisms to enable the dissemination of information, which
today would include, for example, mechanisms such as internet web sites
not envisioned in 1913.  Nor do we read section 3107 to prohibit the use
of appropriated funds to pay press agents and public affairs officers to
facilitate and manage the dissemination of agency information.  Instead,
what Congress intended to prohibit with section 3107 is paying an
individual "to extol or to advertise" the agency, an activity quite
different from disseminating information to the citizenry about the
agency, its policies, practices, and products. 

   Given the above discussion, in our opinion, section 3107 does not apply to
the contract or payment between the Forest Service and OneWorld.  Although
as a public relations firm OneWorld provided more than just editorial
services in creating more readable documents, OneWorld's services did not
go beyond making the policies put forth in the Plan Amendment documents
more accessible and understandable to the public and media.  According to
documents that the Forest Service provided to us, OneWorld advised the
Forest Service concerning the best methods and language to put forth the
policies announced in 2004 ROD.  See July Response, Memo from OneWorld. 
OneWorld also identified ways to explain this policy more effectively to
special interest groups within the population. See id. at 3-4.  

   The tools available to disseminate information have changed drastically in
the 91 years since the enactment of section 3107.  Indeed, we have changed
from a nation relying predominately upon the written word to one engaged
in instant communication through broadcast, satellite, and internet
communications.  The work orders made available to us clearly show that
Forest Service hired OneWorld to help communicate to the public the 2004
ROD policies and conclusions and to advise the Service on how to utilize
effectively the available media resources.  Since OneWorld's services did
not go beyond making the Forest Service's complicated and technical policy
discussions more understandable to the public, section 3107 does not apply
to prohibit the payment to OneWorld for services rendered.  

   CONCLUSION

   The Forest Service production and distribution of the brochure and video
materials regarding the Plan Amendment and the 2004 ROD did not violate
the publicity or propaganda prohibition of the Consolidated Appropriations
Act of 2004, Pub. L. No. 108-199, Div. F, Tit. VI, S 624, 118 Stat. 3
(2004) or 5 U.S.C. S 3107.  The materials produced by OneWorld for the
Forest Service did not constitute self-aggrandizement, covert propaganda,
or purely partisan materials, in violation of the publicity or propaganda
prohibition.  While the materials did not provide a balanced picture of
the positive and negative aspects of the thinning policies as portrayed in
2004 ROD and supporting documents, the Forest Service was authorized to
disseminate such materials under its information dissemination authority
and in defense of its own policies.  We also find that OneWorld was not
acting as a "publicity expert" as defined by section 3107 when it assisted
the Forest Service with producing materials to help explain its
controversial thinning policy to the general public.

   Anthony H. Gamboa

   General Counsel

   Enclosures

   ------------------------

   [1] In a footnote, Ms. Bryson concluded also that the Forest Service did
not violate the prohibition on paying for a publicity expert under 5
U.S.C. S 3107.  She determined that, because section 3107 is closely
related to the publicity or propaganda prohibition, the memorandum's
analysis supports the conclusion that the brochure is not in violation of
that section.

   [2] A land management and resource plan includes the creation of three
analytical documents:  (1) a management plan, (2) an environmental impact
statement (EIS), and (3) the record of decision (ROD).  See 36 C.F.R. S
219.12(j).  The process of creating these documents involves analysis of
data by a team of individuals in various relevant professional disciplines
and public comment.  See generally  36 C.F.R. SA 219.10.  The ROD details
the Forest Service's policy regarding the information contained in the EIS
and management plan.  See 36 C.F.R. S 219.12(j). All citations are to the
Forest Service's 1982 planning regulations, under which the Plan Amendment
was developed.  See 2004 ROD at 20.

   [3] Forest Service officials told us that the process for amending the
Sierra Nevada Forest Plan began in 1993.  June Meeting.

   [4]  The 2001 ROD did not limit thinning only to 12-inch-diameter trees. 
It allowed for removal of 20-inch-diameter trees, depending upon the
makeup of the area undergoing treatment.  2001 ROD at 37.

   [5]  Under regulations applicable to the Plan Amendment development
process, the Under Secretary may review appeals decisions.  36 C.F.R. S
217.17.  Under Secretary Rey did not review this decision and returned the
Amendment to the regional forester for action pursuant to the instructions
in the appeal decision.  June Meeting.

   [6] While the Forest Service was reevaluating the 2001 ROD, President Bush
announced his administration's new policy on the national forests and the
protection of surrounding communities from devastating forest fire, the
Healthy Forest Initiative (Initiative).  See Healthy Forests:  An
Initiative for Wildfire Prevention and Stronger Communities, Aug. 22,
2002, available at www.fs.fed.us/projects/hfi/background (last visited
August 27, 2004).  This new policy introduced aggressive fire management,
including techniques of thinning, planned burns, and forest restoration. 
See Initiative at 2. 

   [7] At the time the Forest Service entered into a contract with OneWorld,
OneWorld was  a contractor listed on the General Services Administration
(GSA) Schedule of Contractors for providing document conversion services. 
GSA Schedule e-Library, Schedule 36, available at
http://www.gsaelibrary.gsa.gov (last visited June 4, 2004).   Although GSA
maintains schedules describing more general public relations services,
OneWorld is not listed on these schedules.  Forest Service officials told
us that they believed that OneWorld was listed as a contractor for general
public relations work.  Under its contract with OneWorld, the Forest
Service paid OneWorld $89,642.14.  See Rey Response, Billing Statement,
February 9, 2004.

   [8] The Forest Service revised and was in the process of distributing the
revised brochure at the time that we were developing the record to respond
to your request.  Forest Service officials told us that they revised the
brochure in response to criticism regarding the labeling of photographs as
discussed later in this opinion. We have enclosed copies of both
brochures.

   [9]  Public Law 108-108, itself, does not prohibit the use of appropriated
funds for publicity or propaganda purposes.  The language of the publicity
or propaganda prohibition in Pub. L. No. 108-199, however, applies to
funds appropriated in "this or any other Act."  Pub. L. No. 108-199,
118A Stat. 3, 355 (2004) (emphasis added).  Accordingly, the prohibition
applies to appropriations enacted in Pub. L. No. 108-108.

   [10] We have not rejected the notion that a communication could be so
misleading or inaccurate as to violate the prohibition; however, to date,
we have not been presented with any such communication. We are not
confronted with such a communication in this case.   

   [11] This opinion does not evaluate the accuracy of the analysis or the
conclusions put forth in those documents. 

   [12] See note 6.

   [13] A close examination of this photograph reveals stumps in the
background.  This series of photographs has been used in several other
reports regarding forests and fire management in a larger size, including
GAO.  See, e.g., GAO, Western National Forests: A Cohesive Strategy is
Needed to Address Catastrophic Wildfire Threats, GAO/RCED-99-65
(Washington, D.C.: April 2, 1999).  

   [14] The Forest Service provided us an updated version of the brochure it
is distributing to its regional offices.  We were told that the Forest
Service changed the labeling of the series of photographs when alerted to
the controversy noted here.  See note 8.

   [15] The Forest Service told us that the funds used to pay OneWorld and
the costs associated with producing and distributing the brochure and
video materials were appropriated in the Department of the Interior and
Related Agencies Act, 2004, Pub.A L. No. 108-108, 117 Stat. 1241 (Nov. 10,
2003).