VIII. Common Challenges for Partnerships
Reimbursement of Travel Expenses
The Forest Service may pay for a partner's travel expenses if there is a direct benefit to the agency. To demonstrate direct benefit, the following issues should be addressed in a justification statement. The justification statement should include:
- Purpose of the trip as it relates to Forest Service programs.
- Proposed itinerary, including mode(s) of transportation.
- Statement of direct benefit or service to be rendered to the agency.
- How the benefit or service will be formally documented, such as in a written report or oral presentation.
- With whom the non-government personnel will interact to accomplish the service or benefit rendered.
- Total cost to the agency, including per diem, transportation, and incidental expenses.
Individual travel authorizations can be approved at the local Forest level by the fiscal officer using travel document AD 202. Only the AD 202 is necessary for payment of travel expenses.
The Difference Between Volunteers and Partners
It is important to note that the Forest Service does not have to register partners as volunteers, and there is no need to enter into a Forest volunteer agreement. In the example in the sidebar, the executive director will not be attending the meeting as a Forest Service volunteer but as an employee of a nonprofit organization. However, there may be situations where an individual should be treated as a volunteer instead of a partner. An example is when a Forest sends an individual to a customer service training session to prepare this person to become a docent at a Forest Service Visitor Information Center. Travel of volunteers falls under the federal travel regulations. FSM 1833.5 discusses travel and incidental expenses for volunteers.
Is a Contract Appropriate?
In some cases, the Forest Service contracts for the service individuals will provide at events, workshops, or for projects. In these arrangements, individuals make their own travel arrangements and are reimbursed for their expenditures as part of their contracts. In some situations, contracts can be less costly in terms of the time required to prepare and process justification statements and AD 202s. Contracts less than $2,500 do not have to be done competitively.
There is a national rural community coordinator meeting being held in another state. A local Forest Service unit wants the executive director of a community-based organization to attend so that she can take part in group discussions and bring back innovative ideas generated by the participants. To reimburse her for travel expenses, Forest Service staff would prepare a justification statement addressing the seven points shown above. The fiscal officer would then complete the AD 202. There would be no need to enter into a new agreement to specifically cover this trip.
Use of Government-Owned Vehicles by Non-Federal Partners
There may be occasions for the Forest Service to consider providing government-owned vehicles for use by non-federal parties as part of their contribution to a partnership. Due to liability considerations, the decision to do so must be weighed carefully. An Interim Directive (ID 1580-2004-2) issued in May, 2004, allows for this use as long as all the following conditions exist:
- The Forest Service and the non-federal party have a legally binding written agreement (such as a Cost Share Agreement or other statutorily authorized agreement) in which the use of a government-owned, leased, or rented vehicle is specified as part of the Forest Service's contributions.
- The government-owned, leased, or rented vehicle will be used for official Forest Service activities only and in accordance with the terms of the agreement.
- Only properly licensed and qualified drivers will operate the vehicles.
- Drivers have completed a defensive driving course within the last three years.
- Drivers have received and read a copy of the Driver Operating Guide, EM-7130-2, available in Forest Service offices.
- The non-federal partner maintains and provides proof of comprehensive liability insurance. The policies must cover at least $250,000 per occurrence for bodily injury and property damage.
- Drivers must comply with Executive Order 13043 detailing appropriate seatbelt use.
Although liability insurance reduces the risk to the Forest Service, it does not eliminate it. The line officer must decide if the level of risk to his or her unit is an acceptable one and proceed accordingly. If the risk outweighs the benefit, then other arrangements should be made for vehicle use. If the risk is manageable, but the activity itself involves, for example, transporting large numbers of people in a government-owned van or bus, then requiring a higher level of liability insurance may be prudent.