The Forest Service (FS) has spent 20+ years and over $250 million developing multi-year plans for managing national forests. This report discusses the internal and external causes of inefficiency and ineffectiveness in the FS's decision-making process: the inadequate attention that the FS has given to improving the process; the lack of agreement, both inside and outside the agency, on how it is to resolve the conflicts among competing uses on its lands; unresolved interagency issues that transcend its administrative boundaries and jurisdiction; and differences in the requirements of laws that help frame its decision-making. Charts and tables.