[Federal Register Volume 71, Number 127 (Monday, July 3, 2006)]
[Notices]
[Pages 38022-38052]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 06-5967]
[[Page 38021]]
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Part V
Department of Agriculture
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Forest Service
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National Trail Classification System, FSM 2350, and FSH 2309.18; Notice
Federal Register / Vol. 71, No. 127 / Monday, July 3, 2006 /
Notices
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DEPARTMENT OF AGRICULTURE
Forest Service
RIN 0596-AC47
National Trail Classification System, FSM 2350, and FSH 2309.18
AGENCY: Forest Service, USDA.
ACTION: Notice of proposed policy and directives; request for comment.
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SUMMARY: The Forest Service is publishing for public notice and comment
proposed revisions to the agency's national trail classification system
(TCS), including the Trail Class Matrix and Design Parameters, and
proposed implementing directives. On May 13, 2005, the Backcountry
Horsemen of America filed a lawsuit against the Forest Service
challenging revision of the TCS without public notice and comment. In
an order dated March 29, 2006, the U.S. District Court found that the
Forest Service failed to provide public notice and comment as required
by the National Forest Management Act, 16 U.S.C. 1612. In accordance
with the Court's order, the Forest Service is publishing the proposed
revisions to the TCS and proposed implementing directives for public
notice and comment.
DATES: Comments must be received in writing by September 1, 2006.
ADDRESSES: Send written comments to Jonathan Stephens, National Program
Manager for Trails and Congressionally Designated Areas, USDA Forest
Service, Recreation and Heritage Resources Staff, 1400 Independence
Avenue, SW., Stop 1125, Washington, DC 20250; or by facsimile to 202-
205-1145. Comments also may be submitted by following the instructions
at the Federal rulemaking portal at http://www.regulations.gov.
All comments, including names and addresses when provided, will be
placed in the record and will be available for public inspection and
copying. The public may inspect comments received on the proposed TCS
and directives in the USDA Forest Service Headquarters in Washington,
DC, on business days between 8:30 a.m. and 4:30 p.m. Those wishing to
inspect comments are encouraged to call ahead at 202-205-1701 to
facilitate entry into the building.
FOR FURTHER INFORMATION CONTACT: Jonathan Stephens, Recreation and
Heritage Resources Staff, (202) 205-1701.
SUPPLEMENTARY INFORMATION:
1. Background
The Forest Service is responsible for managing 192 million acres of
National Forest System (NFS) lands. On these lands, approximately
133,000 miles of NFS trails are managed by the Forest Service. An NFS
trail is a forest trail other than a trail which has been authorized by
a legally documented right-of-way held by a State, county, or other
local public road authority (36 CFR 212.1). A forest trail is a trail
wholly or partly within or adjacent to and serving the NFS that the
Forest Service determines is necessary for the protection,
administration, and utilization of the NFS and the use and development
of its resources (36 CFR 212.1). Design, construction, operation, and
maintenance of NFS trails fall under the authority of Forest and
Grassland Supervisors.
In the early 1990s, the Forest Service began developing a new
information management process and database for inventorying and
managing NFS trail data. This process included identification of
national trail classifications and associated physical characteristics
of trails.
Development of Trail Classes
Since the mid-1980s, the Forest Service has been concerned that
there was no system for gathering consistent, comprehensive data on
real property inventory, facility conditions, program priorities, and
budget needs for Forest Service resources. Therefore, in 1991, the
Chief of the Forest Service directed managers of the Forest Service's
national trails program to develop a system for identifying real
property inventory, the condition of facilities, and the cost of
maintaining those facilities to standard and reducing maintenance
backlogs.
In 1991, the Forest Service established three categories for
classifying NFS trails based on their difficulty level. These
categories, which are enumerated in the Forest Service Handbook (FSH),
are most difficult, more difficult, and easiest. In addition, since
1991, the FSH has contained technical guidelines, called trail guides,
for specific types of uses, including hiking and pack and saddle stock
use. For each of the three difficulty levels, each trail guide contains
design, construction, and maintenance guidelines for the physical
characteristics of trails. The physical characteristics include maximum
pitch grade and length, clearing width and height, tread width, and
surface. The difficulty levels in the trail guides encompass trails
ranging from the least developed, which are typically steep or narrow,
to the most highly developed, which are typically wide with minimal
grades.
Trail management and use were (and still are) based on trail
management objectives (TMOs), as determined by the applicable land
management plan, travel management plan, and trail-specific decisions.
At the same time local managers identified a trail's management and
use, they identified the applicable difficulty level. Once managers
determined the applicable trail management and use and difficulty
level, applicable technical guidelines from the appropriate trail guide
could be identified.
Development of the National Trail Database
In 1994, the Forest Service implemented a trails module in
Infrastructure (Infra), the Forest Service's national database, which
operated on the agency's Data General (DG) computer system. The DG
Infra Trails Module provided a national repository for information
related to the inventory and management of NFS trails. The DG Infra
Trails Module included numerous trail attributes, including the three
difficulty levels and three new trail classes roughly based on a
trail's development scale: Way (minimally developed), secondary (native
surface with moderate level of development), and mainline (most
developed). However, these three trail classes did not correlate with
the difficulty levels in the FSH for categorizing the technical
guidelines for NFS trails.
In 1997, the Forest Service adopted Meaningful Measures (MM), a
spreadsheet system that tracked the condition of agency facilities,
including trails, and the cost of meeting national standards for those
facilities. The MM system included spreadsheets with data entry fields
identifying NFS trails as way, secondary, or mainline, using
definitions for those classes from the DG Infra Trails Module.
Revision of the DG Infra Trails Module
In 1994, the Forest Service reconfigured and updated the DG Infra
Trails Module to a new IBM system providing greater functionality and
user-friendliness and refined and expanded sets of data attributes.
Recognizing the inefficiency of having expansive amounts of related but
unintegrated information, in addition to the mounting confusion in
terminology, in 1998 the Forest Service identified the need to
integrate data from the MM system and the IBM Infra Trails Module. The
agency concluded that providing
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seamless functionality between the Infra Trails Module and the MM
spreadsheets would greatly improve agency efficiency and data accuracy
and consistency. Therefore, in 1998, the Forest Service determined that
a more uniform national trail classification system, applicable to both
the MM cost data and the Infra trails inventory data, would improve
information management and make the Infra Trails Module a truly useful
and effective tool for local trail managers.
In 1999, the Forest Service transitioned from the three way,
secondary, and mainline trail classes to five trail classes keyed more
precisely to the physical characteristics of NFS trails. The Forest
Service replaced the way, secondary, and mainline data fields in the MM
spreadsheets with data fields for the five trail classes. The 2000 MM
User Guide included a matrix of the five trail classes and a set of
physical characteristics of trails, including tread, immediate
environs, obstacles, signing, and constructed features. The MM User
Guide explained that ``[t]he five Trail Management Classes separate
trails into broad categories which help stratify the Trail System for
various projects including Infra inventory, Forest Planning Objectives,
Visitor Information, and helping to establish coefficients for MM
costing.'' From 1999 to 2001, these five trail classes were
incorporated nationwide in MM data requirements and costing efforts.
In 2000, the Forest Service formed the national Trails Development
Team (TDT) to improve the Infra Trails Module. The primary objectives
of the TDT were to integrate and build upon trail reference materials
to enhance trail inventory, tracking of trail condition and needs, and
accuracy and accountability of trail inventory and costing; to minimize
confusion and inconsistency in terminology, definitions, and
interpretation; and to improve the communication, quality, and utility
of trail data.
In revising the Infra Trails Module, the TDT refined five concepts
that are now collectively known as the ``Trail Fundamentals,''
including Trail Type, Trail Class, Managed Use, Designed Use, and
Design Parameters. The Trail Fundamentals provide an updated and more
effective means for consistently recording and communicating the
intended design and management guidelines for trail design,
construction, maintenance, survey, and assessment. This refinement
clarified the five Trail Classes and their associated terminology, and
integrated the trail class concept with technical guidelines, called
Design Parameters, for the design, construction, maintenance, survey,
and assessment of NFS trails. Relevant facts pertaining to development
of the Trail Fundamentals follow.
Trail Class
On June 15, 2001, the 1999 Trail Class Matrix was reformatted and
refined to include expanded descriptors for each category. Like the
previous three difficulty levels and 1999 Trail Classes, the 2001 Trail
Classes range from minimally developed (Trail Class 1) to fully
developed (Trail Class 5):
Trail Class 1: Minimal/Undeveloped Trail.
Trail Class 2: Simple/Minor Development Trail.
Trail Class 3: Developed/Improved Trail.
Trail Class 4: Highly Developed Trail.
Trail Class 5: Fully Developed Trail.
Each Trail Class has descriptors for the physical characteristics
of trails, including tread and traffic flow, obstacles, constructed
features and tread elements, signs, and typical recreational
environment and experience.
The 2001 Trail Class Matrix included three sets of additional
criteria specific to particular types of uses (motorized, snowmobile,
and water uses), which were applied in addition to the general criteria
in the five Trail Classes. In 2005, a fourth set of additional criteria
was added to the Trail Class Matrix for pack and saddle stock use. The
primary intent of the original sets of additional criteria was to
address considerations specific to those uses that were not addressed
by the general criteria. A secondary intent was to indicate the
applicability of each Trail Class to use types.
The agency is proposing to remove the four sets of additional
criteria because they duplicate the user-specific guidance in the
Design Parameters. The agency is proposing to include a new chart in
the FSH that shows the relationship between Trail Class and Managed
Use.
In addition, attached to the 2001 Trail Class Matrix is a chart
entitled, ``Trail Operation and Maintenance Considerations.'' While
these considerations are a useful tool for trail managers, they are not
part of the 2001 Trail Class Matrix or Design Parameters. Rather, they
are provided to assist managers in the development of trail
prescriptions, program management, and trail operation and maintenance.
The considerations offer a general starting point and will likely be
adapted locally to reflect site-specific financial limitations and
applicable district, forest, and regional circumstances. To clarify
this distinction, the agency is severing this chart from the Trail
Class Matrix and addressing its context and purpose in Forest Service
Manual 2353 and FSH 2309.18.
Managed Use
A Managed Use is a mode of travel that is actively managed and
appropriate on a trail, considering its design and management. There
may be more than one Managed Use per trail or trail segment. As
indicated by use of the word ``actively,'' the term ``Managed Use''
reflects a management decision or intent to accommodate a particular
use through trail design, maintenance, and management. As with the
previous classification system, the applicable Managed Uses of a trail
are based on the trail's TMOs. A trail's TMOs are determined by the
applicable land management plan, travel management plan, and trail-
specific decisions.
The concepts of Trail Class and Managed Use are interdependent.
Determining the desired development scale or Trail Class requires
consideration of the Managed Uses of a trail. Likewise, determining the
Managed Uses of a trail requires consideration of the development scale
of the trail. Therefore, the applicable Trail Class is usually
identified in conjunction with the Managed Uses of a trail.
Designed Use
The Designed Use is the Managed Use of a trail that requires the
most demanding design, construction, and maintenance parameters. The
Designed Use determines which design, construction, and maintenance
parameters will apply to a trail.
While there may be more than one Managed Use, there can be only one
Designed Use per trail or trail segment. For example, if a trail has a
Managed Use of Hiker/Pedestrian and Pack and Saddle, Pack and Saddle
would be the Designed Use or design driver because it requires more
stringent trail design, construction, and maintenance parameters.
As with the prior classification system, once the Trail Class,
Managed Uses, and Designed Use are determined for a trail or trail
segment, the corresponding set of technical guidelines or design
parameters can be applied.
Design Parameters
The Design Parameters were released agency-wide in 2004. The Design
Parameters are the technical guidelines for trail design, construction,
maintenance, surveying, and assessment, based on Designed Use and
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Trail Class. They reflect the dominant physical criteria that most
define the geometric shape of a trail, including tread width, surface,
grade, cross slope, clearing width and height, and turning radius. Some
of the variables in the Design Parameters identify a specific value,
while others identify a range of values. In the latter case, managers
are instructed to narrow the range, selecting the specific value that
best reflects the TMOs for the trail.
The Design Parameters do not indicate the types of uses that can
occur or are allowed on NFS trails, but rather establish general
guidelines for the design, construction, maintenance, survey, and
assessment of NFS trails, based on their physical characteristics and
Designed Use, as determined by preexisting management decisions. All
non-motorized uses are allowed on any NFS trail unless specifically
prohibited (motorvehicle use is covered by 36 CFR part 212, subpart B.
In addition, local deviations from any Design Parameter may be
established based on trail-specific conditions, topography, or other
factors, provided that the deviations reflect the general intent of the
corresponding Trail Class.
The Forest Service is proposing to replace the trail guides in the
FSH with the Design Parameters. The proposal would include Design
Parameters for Hiker/Pedestrian, Pack and Saddle, Bicycle, All-Terrain
Vehicle (ATV), Motorcycle, Cross-Country Ski, and Snowmobiles. In
addition, the agency is proposing to remove the barrier-free trail
guide because it has been superseded by the Forest Service Trail
Accessibility Guidelines.
2. Need for Proposed Directives
The Forest Service provides internal direction to field units
through its Directives System, consisting of the Forest Service Manual
(FSM) and Forest Service Handbooks (FSH). Directives provide guidance
to field units in implementing programs established by statute and
regulation. Forest Service directives establish agency polices for
delegations of authority, consistent definitions of terms, clear and
consistent interpretation of regulatory language, and standard
processes.
The Forest Service is proposing to revise the FSM and FSH to
incorporate the national Trail Classes, Design Parameters, and other
components of the Trail Fundamentals, along with pertinent definitions
and direction on use of these management concepts. Although the Trail
Fundamentals are national management concepts, they are applied and
implemented at the local level.
Summary of Proposed Changes to the Directives
The Trail Fundamentals--Trail Type, Trail Class, Managed Use,
Designed Use, and Design Parameters--are the cornerstones for trail
planning and management. The proposed directives would revise and
update the definitions in FSM 2353.05 and FSH 2309.18, section 05, to
include terminology applicable to the Trail Fundamentals. A new section
in the FSM and FSH would describe the Trail Fundamentals and how they
should be used for trail planning and management. The proposed
directives also would provide direction on how the Trail Fundamentals
should be applied at the local level. In addition, a new chart would be
included that shows the relationship between Trail Classes and Managed
Uses. The trail guides would be replaced with the seven sets of Design
Parameters (Hiker/Pedestrian, Pack and Saddle, Bicycle, All-Terrain
Vehicle, Motorcycle, Cross-Country Ski, and Snowmobiles). The Trail
Class Matrix, Trail Class and Managed Use Application Guide, Trail
Operation and Maintenance Considerations, and Design Parameters would
be included in the directives as exhibits. Modifications also would be
made to the FSM and FSH to reflect the direction in the Forest Service
Trails Accessibility Guidelines (FSTAG). Additional nonsubstantive
revisions would be made to the FSM and FSH to clarify and to remove
redundancy.
Section-by-Section Analysis of Proposed Changes
Proposed Changes to FSM 2353
2353.04g--Forest Supervisors. An additional responsibility for
Forest Supervisors would be added requiring the use of the five Trail
Fundamentals (Trail Type, Trail Class, Managed Use, Designed Use, and
Design Parameters) for the planning, management, and operation of all
NFS trails.
2353.05--Definitions. Definitions for the following terms would be
added alphabetically to FSM 2353.05: Design Parameters, Designed Use,
Managed Use, Trail Class, Trail Fundamentals, Trail Management
Objectives, and Trail Type. In addition, the definition for difficulty
levels would be revised to exclude trails with a Designed Use of Hiker/
Pedestrian because these trails are now addressed in the FSTAG.
2353.19--Trail Objective. The title of this section would be
changed to ``Trail Management Objectives.'' This section would be
modified to incorporate the identification and documentation of TMOs,
including the five Trail Fundamentals and travel management strategies.
2353.2--Types of Trails. This section would be renamed, ``Trail
Fundamentals,'' and would be revised to include direction on
identifying and applying the five Trail Fundamentals. The content of
existing FSM 2353.2 would be incorporated into the new sections on
Managed Use and Designed Use in FSH 2309.18, section 1.4, and the
reference to trail guides would be replaced with a reference to the
Design Parameters.
2353.21--Difficulty Levels. This section would be renumbered FSM
2353.3, and would be modified to state that trails with a Designed Use
of Hiker/Pedestrian are addressed in the FSTAG.
Proposed Changes to FSH 2309.18, Trail Management Handbook Zero Code
05--Definitions. Definitions for the following terms would be added
alphabetically to section 05: Design Parameters, Designed Use, General
Forest Area, Managed Use, Maximum Pitch Density, Short Pitch Maximum,
Target Grade, Trail Class, Trail Fundamentals, Trail Management
Objectives, and Trail Type.
The definition for difficulty levels would be modified to exclude
hiker/pedestrian accessible trail use because accessibility of hiker/
pedestrian trails is addressed in the FSTAG.
For consistency with current agency terminology, the definition for
``forest development trail'' would be replaced with the definition for
``National Forest System trail'' from 36 CFR 212.1. In addition, the
definition for ``forest trail'' from 36 CFR 212.1 would be added.
The definition for ``four-wheel drive way'' would be removed
because it is inconsistent with the definition for ``four-wheel drive
way'' in FSM 2353.05.
The definition for ``snow trail'' would be revised and included in
the definition for Trail Type.
Chapter One
1.2--Planning Concept. This section would be renamed, ``Planning'',
and would be amended to address identification and documentation of
TMOs.
1.4--Trail Fundamentals. This new section would identify the five
Trail Fundamentals. Current section 1.4, Analysis Process, would be
renumbered section 1.5.
1.41--Trail Types. This new section would address the intent and
application of Trail Types.
1.42--Trail Classes. This new section would address the intent and
application of the Trail Classes and
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would reference a new exhibit in the FSH containing the Trail Class
Matrix.
1.42, Exhibit 01--Trail Class Matrix. This new exhibit would
contain the Trail Class Matrix, which would contain several
modifications. Nonsubstantive modifications would be made to the
introductory paragraphs and to footnote 1 to enhance clarity and reduce
redundancy. Minor, nonsubstantive changes would be made to the text in
the bulleted item for tread and traffic flow in Trail Class 3 to
enhance clarity. Footnote 2 would be removed to reduce redundancy, as
the intent of this footnote is conveyed by the caveats ``often'' and
``typically'' in the bulleted text for Typical Recreation Environs and
Experience. The four tables containing additional criteria for pack and
saddle trails, motorized trails, snow trails, and water trails would be
removed. The intent of these tables was to provide additional
descriptors to address substantial differences based on use type that
are not addressed by the descriptors in the Trail Class Matrix. This
goal is accomplished more effectively through the Design Parameters,
which are keyed to use type, and through inclusion of a new exhibit
called, ``Trail Class and Managed Use Application Guide,'' which is
described below.
1.43--Managed Use. This new section would address the intent and
application of Managed Use and would reference the exhibit containing
the Trail Class and Managed Use Application Guide.
1.43, Exhibit 02--Trail Class and Managed Use Application Guide.
This section would include the Trail Class and Managed Use Application
Guide. This exhibit would be added to communicate more succinctly and
effectively the relationship between the Trail Classes and Managed
Uses, which was one of the objectives of the additional criteria in the
current Trail Class Matrix that are being removed.
1.44--Designed Use. This new section would address the intent and
application of Designed Use.
1.45--Design Parameters. This new section would address the intent
and application of the Design Parameters and would reference the
exhibits for the Design Parameters, which would replace the trail
guides (currently in exhibits 2.31a through d, 2.32a through b, 2.32d,
and 2.33a).
1.54--Opportunities and Constraints. Question number 11 would be
revised to replace the reference to difficulty levels with a reference
to Trail Classes. Per the FSTAG, the concept of difficulty levels is no
longer applicable to trails with a Designed Use of Hiker/Pedestrian.
1.55--Relation to Existing Facilities. Question number 4 would be
revised to replace the reference to barrier-free trails with a
reference to accessible trails in accordance with the FSTAG.
1.6--Establishment of Priorities and Management Requirements. A
sentence referencing the Operation and Maintenance Considerations in
section 1.6, Exhibit 01, would be added to the end of this section.
1.6, Exhibit 01--Trail Operation and Maintenance Considerations. An
exhibit entitled, ``Trail Operation and Maintenance Considerations''
would be added to section 1.6. This exhibit is based on the Operation
and Maintenance Considerations that are attached to the current Trail
Class Matrix. These considerations would be included in a separate
exhibit from the Trail Class Matrix because they are not part of the
Trail Class Matrix. Rather, they are merely a reference for trail
planning, management, operation, and maintenance.
1.7--Example of Planning Decisions in a Trail Plan. This section
would be renumbered section 1.8, and would be renamed, ``Considerations
for Trail Planning''. The four examples provided in this section would
be revised to include the concepts of Trail Class, Managed Use, and
Design Use. The third example would be revised to include a snow trail
only, rather than a snow trail combined with a standard/terra trail.
1.7, Exhibit 02--Summit District Trail Inventory. This exhibit
would be removed because it contains management concepts that have been
replaced by the Trail Fundamentals.
Chapter 2--Trail Development
2.03--Policy. This section would be revised to incorporate the
concepts of Managed Use and Designed Use.
2.21--Trail Management Objectives. This new section would address
TMOs, including the five Trail Fundamentals.
2.22--Difficulty Levels. This section would be replaced with the
Trail Classes being incorporated into the FSM and FSH.
2.23a--Locations. The title of this section would be changed to
``Trailhead Location,'' and the content would be modifed to incorporate
the concepts of development scale and Trail Class. Additionally, this
section would be revised to reflect current accessibility guidelines.
2.23b--Parking. The title of this section would be changed to
``Trailhead Parking,'' and a statement would be added to reflect
requirements for compliance with the FSTAG.
2.23c--Pack and Saddle Stock. The title of this section would be
changed to ``Pack and Saddle Stock Trailheads.''
2.23d--Barrier Free Design. This section would be renamed,
``Application of Forest Service Trail Accessibility Guidelines,'' and
redesignated section 2.23e. The content would be revised because the
current text has been superseded by the FSTAG.
2.23e--Snow Removal. This section would be renamed, ``Snow Removal
at Trailheads,'' and renumbered section 2.23d.
2.24--Accessibility for Facilities and Associated Constructed
Features Along Trails. This new section would address compliance with
accessibility guidelines for facilities and associated constructed
features along trails.
2.24--Wilderness Considerations. This section would be renumbered
section 2.25. The phrase in paragraph 8 would be replaced with the
phrase, ``to provide trail treads that do not exceed the tread widths
identified for wilderness areas in the Design Parameters. ''
2.3--Trail Construction and Maintenance Guides. This section would
be renamed, ``Design Parameters.'' A statement regarding the intent and
application of the Design Parameters would be added. The Design
Parameters would be listed in the order presented in the following
sections. A reference to Managed Use and Designed Use would be added in
the first sentence. The word ``guides'' would be replaced with the
phrase ``Design Parameters.''
2.31--Non-Motorized Trails. This section would be renamed,
``Standard/Terra Non-Motorized Trails.''
2.31--Hiker Trail Guide. This section would be renamed, ``Hiker/
Pedestrian Design Parameters.'' Paragraph 1, ``Design and Location
Considerations,'' would be revised to incorporate the concepts of
Hiker/Pedestrian Designed Use, Managed Use, and Design Parameters. In
the last paragraph, the phrase, ``mountaineering scramble trails''
would be replaced with the phrase, ``mountaineering scramble routes.''
In the next sentence, ``trails'' would be replaced with ``routes'' and
``hiker trail category'' would be replaced with ``Hiker/Pedestrian
category.''
2.31a, Exhibit 01--Hiker Trail Guide. This exhibit would be revised
and renamed, ``Hiker/Pedestrian Design Parameters.'' The following
changes would be made to this exhibit and all other Design Parameter
exhibits.
Nonsubstantive changes would be made to the introductory
paragraphs,
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bulleted text, and footnotes to enhance clarity and reduce redundancy.
``Target Range'' would be renamed ``Target Grade'' to clarify the
intent of this trail characteristic. The values for Target Grade would
be preceded by ``less than or equal to,'' rather than ``less than,'' to
reflect more clearly and accurately the continuum of Trail Classes.
Definitions would be added as footnotes for ``target grade,'' ``short
pitch maximum,'' and ``maximum pitch density.''
In addition, the value for short pitch maximum in Trail Class 5
would be preceded by ``less than or equal to'' and the value for
clearing height in Trail Class 5 would be preceded by ``more than or
equal to,'' so as to reflect more accurately the maximum or minimum
tolerance identified for accessible Hiker/Pedestrian trails in the
FSTAG.
2.31b--Pack and Saddle Trail Guide. This section would be renamed,
``Pack and Saddle Design Parameter,'' The last sentence in paragraph 1,
``Design and Location Considerations,'' would be replaced with the
sentence, ``For minimum bridge widths and railing heights, refer to FSH
7709.56b, section 7.69, exhibit 01, Trail Bridge Design Criteria.''
2.31b, Exhibit 01--Pack and Saddle Trail Guide. This exhibit would
be renamed, ``Pack and Saddle Design Parameters'' and would be revised
as discussed above regarding section 2.31a, exhibit 01.
2.31c--Mountain Bike. This section would be renamed, ``Bicycle
Design Parameters.'' The content of this section would be removed, and
the section would be reserved for updating at a later time.
2.31c, Exhibit 01--Mountain Bike Trail Guide. This exhibit would be
renamed, ``Bicycle Design Parameters,'' and would be revised as
discussed above regarding section 2.31a, exhibit 01. In addition, under
clearing height for Trail Class 1 and Trail Class 2, the erroneous unit
of measure of inches would be changed to feet.
2.31d--Cross Country Ski Trail Guide. This section would be
renamed, ``Cross-Country Ski Design Parameters,'' and renumbered 2.33a.
2.32--Motorized Trails. This section would be renamed, ``Standard/
Terra Motorized Trails.''
2.32a--Bike Trail Guide. This section would be renamed,
``Motorcycle Design Parameters.'' All references to ``bike'' or
``biking'' would be replaced with ``motorcycle'' or ``motorcycling.''
In the introductory text and third and eighth paragraphs of
paragraph 1, ``Design and Location Considerations,'' ``easiest trails''
would be replaced with ``Trail Class 4.'' In the fourth and fifth
paragraphs, ``easiest to most difficult'' would be replaced with
``Trail Class 4 to Trail Class 2.'' In the seventh paragraph, the
second sentence would be removed because this information would be
addressed in the Motorcycle Design Parameters. In the eleventh
paragraph, the second sentence would be replaced with a reference to
FSH 7709.56b, section 7.69, exhibit 01, Trail Bridge Design Criteria.
2.32a, Exhibit 01--Motorized Bike Trail Guide. This exhibit would
be renamed, ``Motorcycle Design Parameters,'' and would be revised as
discussed above regarding section 2.31a, exhibit 01. Additionally, the
tread widths for Trail Class 3 and Trail Class 4 switchbacks would be
preceded by ``greater than or equal to,'' instead of ``greater than.''
2.32b--All-Terrain Vehicles (ATV) Trail Guide. This section would
be renamed, ``All-Terrain Vehicle Design Parameters.''
2.32b, Exhibit 01--ATV Trail Guide. This exhibit would be renamed,
``All-Terrain Vehicle Design Parameters'' and would be revised as
discussed above regarding section 2.31a, exhibit 01. Additionally, the
tread widths for switchbacks for Trail Class 4 would be preceded by
``greater than or equal to,'' instead of ``greater than.''
2.32c--Four-Wheel Drive Way Guide. The content of this section
would be removed, and this section would be reserved for future
development because the content is no longer current.
2.32d--Snowmobile Trail Guide. This section would be renamed,
``Snowmobile Design Parameters,'' and would be renumbered section
2.33b.
2.33--Snow Trails. This new section would address snow trails.
Existing section 2.33, Special Trails, would be renumbered section
2.35.
2.33a--Cross Country Ski Trail Guide. This section would be
renamed, ``Cross-Country Ski Design Parameters. Paragraph 1,'' ``Design
and Location Considerations,'' would be revised to address snow trails
overlaying standard terra trails. Paragraph 1c, ``Height,'' would be
revised to reflect the clearing heights identified in the Cross-Country
Ski Design Parameters. Paragraph d, ``Bridges,'' would be revised to
replace the minimum bridge width with a reference to FSH 7709.56b,
section 7.69, exhibit 01, Trail Bridge Design Criteria.
2.31d, Exhibit 01--Cross-Country Trail Guide. This exhibit would be
renamed, ``Cross-Country Ski Design Parameters,'' would be renumbered
section 2.33a, exhibit 01, and would be revised as discussed above
regarding section 2.31a, exhibit 01. Additionally, the values for Trail
Class 3, Two-Lane Tread Width, Trail Class 3 and 4, Design Clearing
Widths, and Trail Class 2 and 3, Design Clearing Heights, would be
preceded by ``greater than or equal to,'' instead of ``greater than.''
The note regarding obstacles would be removed because it is self-
evident. The note regarding radius would be removed because it would be
addressed in the narrative section corresponding to this exhibit.
2.32d, Exhibit 01--Snowmobile Trail Guide. This exhibit would be
renamed, ``Snowmobile Design Parameters,'' would be renumbered section
2.33b, exhibit 01, and would be revised as discussed above regarding
section 2.31a, exhibit 01. Additionally, the values for Trail Class 3
and Trail Class 4, One-Lane Widths, Trail Class 2 through Trail Class
4, Two-Lane Widths, Trail Class 3 and Trail Class 4, Design Clearing
Widths, Trail Class 2 and Trail Class 3, Design Clearing Heights, and
Trail Class 4, Turning Radius, would be preceded by ``greater than or
equal to,'' instead of ``greater than.'' The note for obstacles would
be removed because it is self-evident. The note for radius would be
removed because it would be covered in the narrative section
corresponding to this exhibit.
2.33--Special Trails. This section would be renumbered section
2.35.
2.33a--Barrier-Free Trail Guide. This section would be renamed,
``Accessible Trails,'' would be renumbered section 2.35a, and would be
revised to address implementation of the FSTAG.
2.33a, Exhibit 01--Barrier-Free Trail Guide. This exhibit would be
removed because it has been superseded by the FSTAG.
2.33b--Interpretive Trail Guide. This section would be renamed,
``Interpretive Trails'' and would be renumbered section 2.35b. A
sentence would be added to the beginning of paragraph 1, ``Design and
Location Considerations,'' to indicate that interpretive trails usually
fall into Trail Class 4 or Trail Class 5, but may occasionally fall
into Trail Class 3, and have a Designed Use of Hiker/Pedestrian.
2.33c--Water Routes. This section would be renamed, ``Water
Trails,'' would be renumbered section 2.34, and would be reserved for
future development.
2.33d--Snowmobile Trail Guide. This section would be renamed,
``Snowmobile Design Parameters,'' and would be renumbered section
2.33b.
Chapter 3--Trail Preconstruction and Reconstruction
3.1--Preconstruction. In the first paragraph, ``hiker trail'' would
be replaced with ``Hiker/Pedestrian Trail''
[[Page 38027]]
and ``barrier-free'' would be replaced with ``fully developed.''
3.11--Reconnaissance. The first sentence of this section would be
revised to address Managed Use and Designed Use.
3.12b--Grade. In the sixth paragraph of this section, ``hikers''
would be replaced with ``Hiker/Pedestrians.'' In the ninth paragraph,
``any grade less than the maximum preferred grade for the trail type''
would be replaced with ``any grade within the range of target grades
identified for the Designed Use,'' and ``relate to the difficulty level
provided by the trail'' would be replaced with ``correlate to the
Designed Use and the Trail Class.''
Chapter 4--Trail Operation and Maintenance
The introductory paragraph would be modified to address the Trail
Fundamentals, TMOs, Trail Class, Managed Use, Designed Use, and the
Design Parameters. The reference to difficulty levels would be removed.
4.1--Trail Operations. This section would be revised to add Managed
Use to the first sentence. In the second sentence, the type of use
would be replaced with the managed and accepted uses.
4.13--Public Information. This section would be revised to add a
sentence at the beginning stating that general guidance on the
appropriate level and type of signage is contained in the Design
Parameters, and that specific guidance on these topics is contained in
FSM 7160, Signs and Posters, and EM-7100-15, Standards for Forest
Service Signs and Posters. Additional guidance on signs for accessible
trails is contained in the FSTAG, which is posted at http://www.fs.fed.us/recreation/programs/accessibility.
4.14--Signs. This section would be revised to include a reference
to the technical provisions for signs in the FSTAG.
4.22--Recording Maintenance. This section would be revised to
replace objectives with Trail Management Objectives and trail guides
with Design Parameters.
4.23--Maintenance Activity Groups. This section would be revised to
replace current assigned and planned guide with assigned Design
Parameters.
4.24--Exhibit 01. This exhibit, entitled Trail Log and Condition
Survey, would be removed, and this section would be reserved.
4.25--Condition and Prescription Surveys. This section would be
renamed, Condition Assessment and Prescription Surveys. The second
paragraph of this section would be removed and would be reserved. In
the third paragraph, ``management objectives'' would be replaced with
``Trail Management Objectives.'' In the third paragraph, item number 2,
``Planned Use of a Trail,'' the first sentence would be revised to
address Trail Class, Managed Use, Designed Use, and the Design
Parameters.
3. Regulatory Certifications
Environmental Impact
Section 31.12, paragraph 2, of FSH 1909.15 (67 FR 54622, August 23,
2002) excludes from documentation in an environmental assessment or
environmental impact statement ``rules, regulations, or policies to
establish Service-wide administrative procedures, program processes, or
instructions.'' The agency has concluded that the proposed revision of
the TCS and proposed implementing directives fall within this category
of actions and that no extraordinary circumstances exist which would
require preparation of an environmental assessment or environmental
impact statement (see Back Country Horsemen of America v. Johanns, No.
05-0960 (ESH) (D.D.C. March 29, 2006), slip op. at 16-18).
Regulatory Impact
The proposed revision to the TCS and proposed implementing
directives have been reviewed under USDA procedures and Executive Order
12866 on regulatory planning and review. The Office of Management and
Budget (OMB) has determined that the proposed TCS and implementing
directives are not significant. Accordingly, the proposed TCS and
implementing directives are not required to be reviewed by OMB.
Moreover, the proposed TCS and implementing directives have been
considered in light of the Regulatory Flexibility Act (5 U.S.C. 602 et
seq.). It has been determined that the proposed TCS and implementing
directives would not have a significant economic impact on a
substantial number of small entities as defined by the act because the
proposed TCS and implementing directives would not impose record-
keeping requirements on them; would not affect their competitive
position in relation to large entities; and would not affect their cash
flow, liquidity, or ability to remain in the market. The proposed TCS
and implementing directives would have no direct effect on small
businesses.
No Takings Implications
The proposed TCS and implementing directives have been analyzed in
accordance with the principles and criteria contained in Executive
Order 12630. It has been determined that the proposed TCS and
implementing directives would not pose the risk of a taking of private
property.
Civil Justice Reform
The proposed TCS and implementing directives have been reviewed
under Executive Order 12988 on civil justice reform. After adoption of
the proposed TCS and implementing directives, (1) all State and local
laws and regulations that conflict with the proposed TCS and
implementing directives or that impede their full implementation would
be preempted; (2) no retroactive effect would be given to the proposed
TCS and implementing directives; and (3) administrative proceedings
would not be required before parties could file suit in court
challenging their provisions.
Unfunded Mandates
Pursuant to Title II of the Unfunded Mandates Reform Act of 1995 (2
U.S.C. 1531-1538), which the President signed into law on March 22,
1995, the agency has assessed the effects of the proposed TCS and
implementing directives on State, local, and Tribal governments and the
private sector. The proposed TCS and implementing directives would not
compel the expenditure of $100 million or more by any State, local, or
Tribal government or anyone in the private sector. Therefore, a
statement under section 202 of the act is not required.
Federalism and Consultation and Coordination With Indian Tribal
Governments
The agency has considered the proposed TCS and implementing
directives under the requirements of Executive Order 13132 on
federalism and has determined that the proposed TCS and implementing
directives conform with the federalism principles set out in this
Executive Order; would not impose any compliance costs on the States;
and would not have substantial direct effects on the States, the
relationship between the Federal government and the States, or the
distribution of power and responsibilities among the various levels of
government. Therefore, the agency has determined that no further
assessment of federalism implications is necessary.
Moreover, the proposed TCS and implementing directives would not
have Tribal implications as defined by Executive Order 13175,
``Consultation and Coordination with Indian Tribal Governments,'' and
therefore advance consultation with Tribes is not required.
[[Page 38028]]
Energy Effects
The proposed TCS and implementing directives have been reviewed
under Executive Order 13211 of May 18, 2001, ``Actions Concerning
Regulations That Significantly Affect Energy Supply, Distribution, or
Use.'' It has been determined that the proposed TCS and implementing
directives would not constitute a significant energy action as defined
in the Executive order.
Controlling Paperwork Burdens on the Public
The proposed TCS and implementing directives do not contain any
record-keeping or reporting requirements or other information
collection requirements as defined in 5 CFR part 1320 that are not
already required by law or not already approved for use. Accordingly,
the review provisions of the Paperwork Reduction Act of 1995 (
44 U.S.C. 3501 et seq.) and its implementing regulations at 5 CFR
part 1320 do not apply.
Dated: June 26, 2006.
Dale N. Bosworth,
Chief, Forest Service.
4. Proposed Directives
The Forest Service organizes its directives system by alphanumeric
codes and subject headings. Only those sections of the FSM and FSH that
are the subject of this notice are set out here. The intended audience
for this direction is Forest Service employees charged with
administering the agency's trails program.
FOREST SERVICE MANUAL
FSM 2300--RECREATION, WILDERNESS, AND RELATED RESOURCE MANAGEMENT
FSM 2353--NATIONAL FOREST SYSTEM TRAILS
* * * * *
2353.04g--Forest Supervisors
* * * * *
2. Apply the Trail Fundamentals in accordance with FSM 2353 for
planning, management, and operation of National Forest System trails.
* * * * *
2353.05--Definitions
* * * * *
Design Parameters. Technical guidelines for trail survey, design,
construction, maintenance, and assessment that are based on Designed
Use and Trail Class.
Designed Use. The Managed Use of a trail that requires the most
demanding design, construction, and maintenance parameters and that
determines which design, construction, and maintenance parameters will
apply to a trail.
Difficulty Level. The degree of challenge a trail presents to an
average user's physical ability and skill, based on trail condition and
route location factors such as alignment, steepness of grades, gain and
loss of elevation, and amount and kind of natural barriers that must be
crossed.
* * * * *
Managed Use. A mode of travel that is actively managed and
appropriate on a trail, considering its design and management.
* * * * *
Trail Class. The prescribed scale of trail development,
representing the intended design and management standards of the trail.
Trail Fundamentals. The five concepts that are the cornerstones of
Forest Service trail management, consisting of Trail Type, Trail Class,
Managed Use, Designed Use, and the Design Parameters.
Trail Management Objective. Documentation of the intended purpose
and management of a National Forest System trail based on management
area direction and access management objectives.
Trail Type. A category that reflects the predominant trail surface
and general mode of travel accommodated by a trail.
* * * * *
2353.19--Trail Management Objectives
Manage each trail to meet the trail management objectives (TMOs)
identified for that trail, based on land management plan direction,
travel management plan direction, trail-specific decisions, and other
related direction. For each National Forest System trail or trail
segment, identify and document its TMOs including the five Trail
Fundamentals, Recreation Opportunity Spectrum classifications, design
criteria, travel management strategies, and maintenance criteria.
2353.2--Trail Fundamentals
Identify the five Trail Fundamentals for each National Forest
System trail or trail segment based on applicable land management plan
direction, travel management plan direction, trail-specific decisions,
and other related direction. Each Trail Fundamental is addressed in FSH
2309.18, section 1.4.
2353.3--Difficulty Levels
1. For trails with a Designed Use of Hiker/Pedestrian, refer to the
direction on signs in section 7.3.10 of the FSTAG.
2. For other trail uses, as deemed appropriate and based on Trail
Class, Designed Use, and other management considerations, use
difficulty levels to communicate to trail users what to expect when
using a trail and to broaden their recreation experience by introducing
various degrees of challenge. If used, difficulty level symbols may be
displayed on maps, brochures, and signs (see FSH 2309.18, ch. 2).
3. The three difficulty levels are:
a. Easiest. Requiring limited skill and involving limited challenge
to traverse.
b. More Difficult. Requiring some skill and involving some
challenge to traverse.
c. Most Difficult. Requiring a high degree of skill and involving a
high degree of challenge to traverse.
FOREST SERVICE HANDBOOK
FSH 2309.18--TRAIL MANAGEMENT HANDBOOK
Zero Code
Section 05--Definitions
Design Parameters. Technical guidelines for trail survey, design,
construction, maintenance, and assessment that are based on Designed
Use and Trail Class.
Designed Use. The Managed Use of a trail that requires the most
demanding design, construction, and maintenance parameters and that
determines which design, construction, and maintenance parameters will
apply to a trail.
Difficulty Level. The degree of challenge a trail presents to an
average user's physical ability and skill, based on trail condition and
route location factors such as alignment, steepness of grades, gain and
loss of elevation, and amount and kind of natural barriers that must be
crossed.
Forest Trail. A trail wholly or partly within or adjacent to and
serving the NFS that the Forest Service determines is necessary for the
protection, administration, and utilization of the NFS and the use and
development of its resources (36 CFR 212.1).
General Forest Area. National Forest System lands available for
recreational use, other than wilderness areas, developed recreation
sites, and administrative sites.
Managed Use. A mode of travel that is actively managed and
appropriate on a trail, considering its design and management.
Maximum Pitch Density. The maximum percentage of the total trail
length that falls within 5 percent (+/-) of the Short Pitch Maximum
Grade.
National Forest System Trail. A forest trail other than a trail
which has been authorized by a legally documented right-of-way held by
a State, county, or
[[Page 38029]]
other local public road authority (36 CFR 212.1).
Short Pitch Maximum, The steepest grade expected along the trail,
in lengths not exceeding 200 feet and not exceeding the Maximum Pitch
Density.
Target Grade. The trail grade expected over the majority (at least
90 percent) of the trail length.
Trail Class. The prescribed scale of trail development,
representing the intended design and management standards of the trail.
Trail Fundamentals. The five concepts that are the cornerstones of
Forest Service trail management, consisting of Trail Type, Trail Class,
Managed Use, Designed Use, and the Design Parameters.
Trail Management Objective. Documentation of the intended purpose
and management of a National Forest System trail based on management
area direction and access management objectives.
Trail Type. A category that reflects the predominant trail surface
and general mode of travel accommodated by a trail.
* * * * *
Chapter One
1.2--Planning
1. Many of the general objectives for trails are in the applicable
land management plan or in more detailed travel management decisions.
These decisions may lack the detail needed to guide field operations.
Analyze specific concerns to determine standards for a specific trail
or trail system, maintenance schedules, funding, management of trail
use, and priorities for construction and reconstruction.
2. Recognize the need for more detailed analysis when resource
conditions change, new recreation opportunities are discovered,
conflicts among uses arise, or new public issues emerge.
3. Consider trail management in the context of a land unit.
Establish and document trail management objectives and associated
management requirements by examining the interaction of resource
activities, recreation opportunities, and constraints of the area.
* * * * *
1.4--Trail Fundamentals
For each National Forest System trail or trail segment, apply the
Trail Fundamentals in accordance with FSM 2353.2 and FSH 2309.18,
sections 1.41 through 1.45.
1.41--Trail Types
1. There are three Trail Types applicable to National Forest System
trails:
a. Standard/Terra Trails: Trails which have a surface consisting
predominantly of the ground, and which are designed and managed to
accommodate use on that surface.
b. Snow Trails: Trails, as opposed to winter play areas or other
areas of concentrated public use, which have a surface consisting
predominantly of snow or ice, and which are designed and managed to
accommodate use on that surface.
c. Water Trails: Trails, as opposed to stretches of whitewater that
are managed for river-based recreation., which have a surface
consisting predominantly of water, which are designed and managed to
accommodate use on that surface, and which may include land-based
portages.
2. Trail Types are an inventory convention that allows managers to
identify trail-specific Design Parameters, management needs, and the
cost of managing the trail for particular uses or seasons.
3. There can be only one Trail Type identified per trail or trail
segment. Identify the applicable Trail Type for each National Forest
System trail based on applicable land management plan direction, travel
management plan direction, trail-specific decisions, and other related
direction.
4. When there is an overlap in Trail Types (such as, a snow trail
overlaps a standard/terra trail), inventory the trail under both Trail
Types in the Infra Trails Module.
1.42--Trail Classes
1. The five trail classes range from least developed (Trail Class
1) to most developed (Trail Class 5):
Trail Class 1: Minimal/Undeveloped Trail.
Trail Class 2: Simple/Minor Development Trail.
Trail Class 3: Developed/Improved Trail.
Trail Class 4: Highly Developed Trail.
Trail Class 5: Fully Developed Trail.
2. Trail Classes are an inventory convention used to identify
applicable Design Parameters and to determine the cost to meet the
National Quality Standards for trails.
3. Trail Class descriptors reflect typical attributes of trails in
each class. Trail-specific exceptions may occur for any Trail Class
descriptor, provided that the general intent of the corresponding Trail
Class is retained.
4. There is a direct relationship between Trail Class and Managed
Use: one cannot be determined without consideration of the other.
5. There can be only one Trail Class identified per trail or trail
segment.
6. Identify the applicable Trail Class for each National Forest
System trail or trail segment based on applicable land management plan
direction, travel management plan direction, trail-specific decisions,
and other related direction. The appropriate Trail Class should be
determined at the trail-specific level. Apply the Trail Class that most
closely matches the trail's TMOs.
7. See the Trail Class Matrix (FSH 2309.18, sec. 1.42, ex. 01).
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1.43--Managed Use
1. Managed Use indicates a management intent to accommodate a
specific use.
2. The Managed Uses for a trail are usually a small subset of all
the accepted uses on the trail (i.e., uses that are allowed unless
specifically prohibited). For example, on a trail that is closed to all
motorized use, but open to all non-motorized use, the Managed Uses
could be Hiker/Pedestrian and Pack and Saddle. The accepted uses,
however, would also include bicycles, llamas, and all other non-
motorized uses.
3. There can be more than one Managed Use per trail or trail
segment.
4. Identify the applicable Managed Use or Managed Uses for each
National Forest System trail or trail segment based on applicable land
management plan direction, travel management plan direction, trail-
specific decisions, and other related direction. Develop trails for a
variety of Managed Uses, such as hiking, horseback riding, and
motorcycling.
5. There is a direct relationship between Managed Use and Trail
Class: one cannot be determined without the other. Not all Trail
Classes are applicable to all Managed Uses. For guidance on the
potential applicability of each Trail Class to each Managed Use, see
FSH 2309.18, section 1.43, exhibit 01, Trail Class and Managed Use
Application Guide. The combinations presented in this matrix are
generally applicable agency-wide, although trail-specific exceptions
may occur.
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1.44--Designed Use
1. There is only one Designed Use per trail or trail segment.
Although a trail or trail segment may have more than one Managed Use
and numerous uses may be allowed, only one Managed Use is identified as
the design driver or Designed Use.
2. Determine the Designed Use for a trail or trail segment from the
Managed Uses identified for that trail.
1.45--Design Parameters
1. Design Parameters reflect the design objective for a trail and
determine the dominant physical criteria that most define its geometric
shape. These physical criteria include:
a. Design Tread Width.
b. Design Surface, expressed in terms of type and obstacles.
c. Design Grade, expressed as:
(1) Target Grade;
(2) Short Pitch Maximum; and
(3) Maximum Pitch Density.
e. Design Cross-Slope, expressed as a target range and maximum.
f. Design Clearing, expressed as width and height.
g. Design Turns, expressed as the radius.
2. Local exceptions to any Design Parameter can be established
based on specific trail conditions, topography, and other factors,
provided that the exceptions reflect the general intent of the
corresponding Trail Class.
3. The complete set of Design Parameters is contained in section
2.31a, exhibit 01, through section 2.33b, exhibit 01, of this handbook.
4. Based on the Trail Class and Designed Use for a National Forest
System trail or trail segment, identify the applicable Design
Parameters for that trail or trail segment. For a Design Parameter
expressed as a range of values (e.g., Design Tread Width, Design
Clearing Width, and Design Turns), identify a specific value applicable
to the trail or trail segment.
1.5--Analysis Process
* * * * *
1.6--Information Needs
* * * * *
1.64--Opportunities and Constraints
* * * * *
11. What Trail Classes does the trail system offer?
* * * * *
1.65--Relation to Existing Facilities
* * * * *
4. Are accessible trails in the area?
* * * * *
1.7--Establishment of Priorities and Management Requirements
1. In addition to Trail Class, Managed Uses, Designed Use, and the
Designed Parameters, consider the following when establishing
priorities and management requirements for trail projects:
a. Safety hazards to users.
b. Potential for or occurrence of resource damage.
c. Intensity of trail use.
d. Whether the trail is located in such a way as to affect or
benefit from other resource activities.
e. Preliminary cost estimates for construction or reconstruction.
f. Preliminary requirements for supplemental trailhead and other
trail-related facilities needed to complement the trail system.
g. Program funding, availability of volunteer support, and
scheduling of work.
h. Public desires.
2. FSH 2309.18, section 1.6, exhibit 01, Trail Operation and
Maintenance Considerations, offers general guidelines that assist in
developing trail prescriptions and in subsequent program management,
operation, and maintenance. The considerations are a general starting
point and will likely be adapted to reflect local financial limitations
and site-specific district, forest, or regional circumstances.
Exceptions may occur at the trail-specific, district, forest, or
regional level.
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1.8--Considerations for Trail Planning
1. The following section provides an example of a district trail
plan resulting from the analysis process. Section 1.8, exhibit 01,
illustrates the plotting of projects on a map; section 1.8, exhibit 02,
shows the incorporation of a trail plan into the district trail
inventory; section 1.8, exhibit 03, illustrates how a trail plan is
addressed in the budget process.
2. The following four trails in the trail plan illustrate how
safety, protection of wilderness values, availability of resources,
need for preconstruction, and availability to the user influence
priority, scheduling, and management requirements.
a. Big Rock Trail. This trail currently is managed for motorcycles,
with a Designed Use of Motorcycle. Motorcycle use on the trail is high
and increasing. The lower 5 miles meet the Motorcycle Design
Parameters, except for brushing out. The upper 5 miles are less than
standard and would require major reconstruction to meet the Motorcycle
Design Parameters. The trail falls into Trail Class 3. The area is
managed for a roaded natural experience. There are limited
opportunities for motorcycle trails in the area.
Analysis resulted in a decision to reconstruct the trail to meet
the Motorcycle Design Parameters for Trail Class 3, so as to provide a
high-volume, motorcycle trail consistent with the roaded natural
character of the area. Preconstruction is necessary for the
reconstruction.
b. Kawishiwi Trail. This is an unauthorized, four-wheel drive road
in a wilderness area. The trail use is low-volume, four-wheel driving
and moderate-volume hiking. The management goal for the area is to
eliminate illegal motorized use in this wilderness area and to
naturalize sections of the four-wheel drive way. Inadequate parking at
the trailhead is also a problem. If this trail were linked to the
Moraine Trail, a single trailhead could serve both trails.
Analysis resulted in a decision to close the route to vehicles and
to allow it to revert to a moderate-volume, Trail Class 3 trail.
Barriers to close the route are needed, and the parking facilities need
to be decreased in order for the trail to qualify as Trail Class 3.
Informational and regulatory signs are also needed. Actions are
identified to hasten the return of this trail to a more primitive
character. A short (1/3-mile) trail connecting the Kawishiwi Trail with
the Moraine Trail will be constructed to allow use of a common
trailhead. Planned use is consistent with the semiprimitive character
and wilderness designation.
c. Moraine Ski Trail. This trail currently is used for cross-
country skiing in the winter. Cross-country skiing on the trail is
increasing rapidly, but users complain of a 3-mile segment that falls
into Trail Class 2 on a long trail that generally falls into Trail
Class 3. Preliminary reconnaissance indicates that minor clearing of
brush and small trees has occurred and that marking of the trail is
necessary. A local nordic club has volunteered to help on the project.
This is one of few areas in this drainage where plowed roads provide
winter access.
Analysis resulted in a decision to change the Trail Class for the
3-mile section from Trail Class 2 to Trail Class 3. Increased
maintenance of those 3 miles will be required. Space is identified to
expand the parking area and provide adequate parking to the shared
trailhead with the Kawishiwi Trail. The desired recreation experience
is consistent with the semiprimitive, non-motorized character of the
area.
d. Meadows Trail. The District identified a need and opportunity to
construct a relatively short, interpretive hiking trail to provide day
hiking near a major campground.
Analysis based on estimated use resulted in a decision to construct
a high-volume, Class 4 trail designed and managed for hiker/pedestrian
use only. Other uses are prohibited. Planned use is consistent with the
roaded natural character of the area.
Chapter Two
* * * * *
2.03--Policy
In determining the Designed Use of a National Forest System trail
or trail segment, consider all Managed Uses that occur during all
seasons of use of the trail or trail segment.
* * * * *
2.21--Trail Management Objectives (TMOs)
Consider and incorporate trail-specific TMOs in the design,
development, maintenance, and condition assessment of all National
Forest System trails.
* * * * *
2.23a--Trailhead Location
1. Provide trailheads in locations that allow access to the
greatest number and types of trails. Match the development scale and
size of the trailhead facility to the carrying capacity of the area and
to the Trail Classes of the trails to be served.
2. Consider snow use as well as non-snow use where appropriate,
along with opportunities for using existing facilities. Other
considerations include pull-through parking for vehicles with trailers,
space for unloading trailers and stock trucks, and safety of vehicles
while unattended.
3. Use visual resource management principles to minimize the visual
impacts of a trailhead on trail users.
4. All constructed features must comply with the applicable
technical provisions of the Architectural Barriers Act Accessibility
Standards (ABAAS) or the Forest Service Outdoor Recreation
Accessibility Guidelines (FSORAG). The routes connecting trailhead
constructed features must comply with the technical provisions for
outdoor recreation access routes in the FSORAG. The FSORAG is available
electronically at http://www.fs.fed.us/recreation/programs/accessibility.
2.23b--Trailhead Parking
1. When space is available, consider separate parking facilities
for certain uses, such as horseback riding and hiking. Provide separate
facilities within walking distance of areas of concentrated public use,
such as campgrounds. Locate the trailhead next to the trail so that
non-highway-legal vehicles (for example, non-highway-legal motorcycles
and snowmobiles) are not forced to travel on roads that may be used
only by highway-legal vehicles.
2. When 5 or more designated parking spaces are provided at a
trailhead, they must comply with the technical provisions in the ABAAS
for accessible parking spaces.
2.23c--Pack and Saddle Trailheads
* * * * *
2.23d--Snow Removal at Trailheads
* * * * *
2.23e--Application of Forest Service Trail Accessibility Guidelines
(FSTAG)
Ensure that all new or altered trails with a Designed Use of Hiker/
Pedestrian that connect directly to a currently accessible trail or to
a trailhead comply with the Forest Service Trail Accessibility
Guidelines. The FSTAG is available electronically at http://www.fs.fed.us/recreation/programs/accessibility.
2.24--Facilities and Associated Constructed Features Along Trails
1. Associated constructed features along trails include shelters,
toilets, and other structures that provide support for trail users.
These associated constructed features must comply with the
[[Page 38037]]
FSORAG. Under the Forest Service's universal design policy, with few
exceptions, all new or altered facilities and associated constructed
features must comply with the technical provisions of the FSORAG or
ABAAS, rather than only a certain percentage of those facilities.
2. These associated constructed features must be designed
appropriately for the setting and in compliance with the FSORAG to
ensure that the facility can be used for its primary purpose by all
hikers, including hikers with disabilities. See the FSORAG for specific
technical provisions. This requirement applies but is not limited to:
a. Pit toilets With No Walls in a General Forest Area (GFA). The
total height of the toilet seat and the riser it sits on must be 17 to
19 inches above the ground or floor. A clear floor or ground space
complying with section 6.6.6 of the FSORAG must be provided adjacent to
the riser. Since walls are not provided, grab bars are not required.
b. Trail Shelters or Lean-Tos With Three Walls in a GFA. Where the
constructed finished floor elevation is above the ground, a shelter or
lean-to must be located so that at least one section of the floor on
the open side of the shelter or lean-to is 17 to 19 inches above ground
to facilitate transfer from a wheelchair.
2.25--Wilderness Considerations
* * * * *
8. To provide trail treads that do not exceed the tread widths
specified for a wilderness area in the Design Parameters.
* * * * *
2.3--Design Parameters
1. The Design Parameters reflect the design objective for a trail
and determine the dominant physical criteria that most define its
geometric shape. These physical criteria include tread width, surface,
grade, cross-slope, clearing width and height, and turning radius.
2. Although a variety of Trail Types, Managed Uses, and Designed
Uses are discussed in this handbook, not every administrative unit or
Ranger District must offer all Trail Types, Managed Uses, Designed
Uses, or any combination of them. Planning should determine specific
needs. A variety of other trail activities exists, including cave,
glacier, underwater, and dogsled opportunities. Regional Design
Parameters may be developed for these opportunities as needed. If a
particular activity becomes common, a national set of Design Parameters
will be developed.
3. The following sets of Design Parameters are included as exhibits
in sections 2.31 through 2.33:
a. Standard/Terra Trails: Non-Motorized
(1) Hiker/Pedestrian
(2) Pack and Saddle
(3) Bicycle
b. Standard/Terra Trails: Motorized
(1) Motorcycle
(2) All-Terrain Vehicle (ATV)
c. Snow Trails
(1) Cross-Country Ski
(2) Snowmobile
d. Water Trails
[Reserved]
2.31--Standard/Terra Trails: Non-Motorized
2.31a--Hiker/Pedestrian Design Parameters
1. Trails with a Designed Use of Hiker/Pedestrian generally require
less development than trails with other Designed Uses and offer maximum
opportunity to bring users close to nature. Tread width, clearing width
and height, alignment, and structures for crossing streams normally are
of a smaller scale.
2. On trails with a Designed Use of Hiker/Pedestrian, grades
leading to and away from switchbacks should not be less than 10
percent. Reduce the grade on the turn to less than 10 percent for a
distance of 5 to 6 feet. The radius of switchbacks for these trails can
be very tight, e.g., 2 feet to 4 feet. When needed, ensure the
prevention of cross-cutting by installing rocks, logs, native
vegetation, or other material.
3. When trails with a Designed Use of Hiker/Pedestrian cross wet
areas or streams, select routes that require the fewest structures. In
designing structures to cross wet areas, the tread, whether in the form
of stepping stones or flattened logs, should be at least 12 inches
wide. Set stepping stones no more than 24 inches apart.
4. Design bridges to prevent overloading, especially if they are
located in areas used by pack and saddle stock.
5. The upper limit for grade for trails with a Designed Use of
Hiker/Pedestrian reaches the lower limit for grade for mountaineering
scramble routes. These routes, which require the use of non-constructed
hand and toe holes or ropes, should not be included in the Hiker/
Pedestrian trail category.
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2.31b--Pack and Saddle Design Parameters
1. Trails with a Designed Use of Pack and Saddle are designed and
maintained to accommodate a wide variety of pack and saddle animals,
including horses, mules, donkeys, and burros. Some trails are simple
day-use bridle paths and others are built to accommodate long strings
of pack animals on journeys lasting many days. The combination of
shorter and longer trails affords opportunities for natural experiences
for the greatest range in user ability and knowledge.
2. Give special consideration to the care and safety of livestock
and their riders when locating trails with a Designed Use of Pack and
Saddle. If practicable, provide access to streams or lakes for stock
watering at intervals no greater than 10 miles. Notify users if water
intervals are excessive. Avoid locations near campgrounds or other
concentrated-use areas where dogs or loud noises could startle pack and
saddle animals. If the trail must cross highways or railroads, select
sites with adequate sight distance.
3. Consider the use of climbing turns if the terrain permits.
Design switchbacks with a curve radius that is as long as possible, but
no less than 5 feet. To discourage short-cutting, design grades of at
least 10 to 15 percent for a distance of 100 feet to and from
switchbacks. Consider using a rock or log barrier for a distance of 15
to 30 feet back from the turning point.
4. Clearing needs vary depending on whether trails are designed for
day rides or pack animals. Pack clearance normally is measured at a
point 30 inches above the center of the tread. Three feet on both sides
of the centerline is the minimum clearance for pack trails.
5. Additional widening is needed to accommodate pack clearance on
trails cut through solid rock on steep sidehills. Along a precipice or
other hazardous area, the trail base should be at least 48 to 60 inches
wide to be safe for both animals and riders.
6. Pack and saddle animals can cause severe wear and tear on the
trail tread, especially when soils are wet. When possible, locate
trails on stable soil types or on side-slopes where water can be
drained away. Gravel surfacing, turnpiking, or puncheon may be needed
on wet sections.
7. Fords are preferred to bridges for stream crossings, provided
the velocity and depth of the water are acceptable during the normal
season of use. Route the trail to natural fords, rather than building
fords. Generally, streams can be forded safely if they are less than 24
inches in depth. Construction of a ford requires widening the trail
base to at least 36-inches, removing large rocks, and leveling the
stream bottom to make a relatively smooth and level crossing. If
necesssary, widen the streambed to reduce depth and velocity to make
the ford viable. Ice buildup during late fall may be an important
factor to consider.
8. If a decision is made to build a bridge for pack and saddle
animals, select a bridge site with an adequate foundation for abutments
and stream piers. The bridge must have a load-carrying capacity equal
to the maximum number of loaded animals that can occupy it at one time
or the maximum anticipated snow load, whichever is greater. Design
railings to prevent packs from getting caught. For minimum bridge
widths and railing heights, see FSH 7709.56b, section 7.69, exhibit 01,
Trail Bridge Design Criteria.
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2.32--Standard/Terra Trails: Motorized
2.32a--Motorcycle Design Parameters
1. Generally, motorcycling on National Forest System lands is a
trail-based activity with an emphasis on the National Forest setting.
2. Avoid locating motorcycle trails on National Forest System roads
where state laws require motorcycles to be highway-legal vehicles.
3. Designate suitable closed roads as National Forest System trails
open to motorcycle use.
4. On Trail Class 4 trails, alignment is moderate, with no sharp
curves combined with steep grades. Novice riders may be subjected to
sharp curves, but not in combination with rough surfaces or steep
grades.
5. Trail alignment should exhibit increasing randomness as the
rating progresses from Trail Class 4 to Trail Class 2.
6. User needs for different distances and experiences can be
accommodated by providing cutoffs on a system of loop trails. An
experienced rider can ride approximately 50 miles in an average day.
Some riders can cover over 100 miles of trail. This travel normally
includes trails ranging from Trail Class 2 to Trail Class 4.
7. Favor drainage dips over water bars.
8. Use climbing turns, and avoid switchbacks whenever possible.
Design turns to minimize excavation and cutbank exposure.
9. For trails in Trail Class 4, locate turns on level ground or on
slopes of less than 6 percent. The minimum radius of a switchback is 8
feet. Tread width should be increased to 36 inches for switchbacks with
a 4-foot radius. On novice and intermediate trails, provide a 4 to 6-
foot barrier on the downhill exit of the switchback.
10. The radii of turns should vary depending on the speed of the
motorcycle entering the turns. The trail designer can slow the speed of
the motorcycle by decreasing the turning radius. The designer also may
increase the length of a trail in a limited area by increasing the
number of turns.
11. Hardening of switchback or climbing turns on sensitive soils is
recommended. Suggested hardening materials include concrete blocks,
soil, and cement.
12. For minimum bridge widths and railing heights, refer to FSH
7709.56b, section 7.69, exhibit 01, Trail Bridge Design Criteria.
Bridges should have a straight approach and should not change
directions. Special decking may be necessary to accommodate wheeled
vehicles.
13. Locate trail junctions so that no more than 2 trails intersect
at one point.
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2.33--Snow Trails
2.33a--Cross-Country Ski Design Parameters
1. Trails with a Designed Use of Cross-Country Ski are snow trails
that are designed specifically for winter travel. They may, however,
also coincide with or overlay a standard/terra trail that is managed
during the non-snow season of use. When this occurs, identification of
applicable Design Parameters should be based on consideration of both
the Designed Use identified for the standard/terra trail and the
Designed Use identified for the Snow Trail. Select the Design
Paramaters with the most demanding
[[Page 38045]]
design, construction, and maintenance requirements.
2. Opportunities to enjoy the natural setting are generally
enhanced in the winter, but should be considered under both winter and
summer conditions. Locate or review potential trail locations during
the winter months.
3. Locate cross-country ski trails where reliable snow conditions
exist for 2 to 3 months. Utilize topography to extend the period of
snow cover. Consider aspect, prevailing wind direction, shading, and
microclimate factors.
4. Avoid avalanche hazards. Consult with those knowledgeable of
local avalanche hazards before developing cross-country ski trails.
5. Avoid hazardous stream and lake crossings. Normally, six inches
of hard blue ice is considered safe for cross-country ski trails.
6. Avoid locating trails under dense canopies, especially in tall,
old-growth stands. The canopy intercepts much of the snowfall, and when
the air temperature rises, large chunks of snow fall on the trail.
7. Like downhill ski runs, cross-country ski trails are rated by
difficulty level: easiest, more difficult, and most difficult. Although
this is a relative rating, trails rated as easiest should always be
designed for novice skiers under normal snow conditions. Trails rated
most difficult should provide challenges but no unusual difficulties to
experienced skiers. More difficult trails will fall somewhere between
these two extremes.
8. Provide only sweeping curves on downhill sections. Locate
outruns to permit users to slow down before turning. A check-space in
midslope is desirable on long downhill runs. Alignment must correlate
with grade. Avoid sharp turns on snow trails.
a. Trail Width and Tread Considerations. On trails with a Designed
Use of Cross-Country Ski, widths vary depending on the terrain,
steepness of the trail, sharpness of curves, amount of use, and number
of tracks. On flat or gently rolling terrain (grades of up to 3
percent), single-track groomed trails are cleared to 6 to 8 feet wide,
and double-track groomed trails are cleared to 10 to 12 feet wide.
Steeper, uphill sections should include extra clearing width where
herringbone or sidestep skiing techniques might be used. The extra
clearing width should be one-half times the normal width, up to 14
feet. Downhill sections require extra widening commensurate with the
speed of the hill: the lower portions and runout require the most
widening, while the upper portions require less. Normally, a downhill
run is cleared to 1.5 times the normal width from approximately one-
third to two-thirds of the way down the hill. From two-thirds of the
way down to the bottom and through the runout, the trail is cleared to
twice the normal width.
b. Trail Length. Accommodate user needs for different distances and
degrees of challenge by providing cutoffs on a system of loop trails,
as follows:
------------------------------------------------------------------------
Half day Full day
Recommended lengths (mi) (mi)
------------------------------------------------------------------------
Easiest Trail................................... 3.2 6.4
Most Difficult Trail............................ 6.4 9.5
------------------------------------------------------------------------
c. Height. Clear overhead branches and obstructions the full width
of the trail to a height of 10 feet above the average peak season snow
depth.
d. Bridges. For minimum bridge widths and railing heights, see FSH
7709.56b, section 7.69, Exhibit 01, Trail Bridge Design Criteria. All
ski trail bridges must be designed to allow skiers to stop safely
before crossing and must provide adequate track width under maximum
snow cover. Bridges on groomed trails must accommodate the width of
grooming equipment.
e. Intersections. Approaches to intersections must have grades of 5
percent or less to allow for speed control. Clear intersections to a
diameter of twice the trail width.
f. Marking Standards. Cross-country ski trails should be marked so
that travelers unfamiliar with the trails can follow them during poor
weather conditions, with no tracks to follow, under relatively poor
lighting conditions. See FSH 7109.11, Sign Handbook, for guidance on
marking trails.
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2.34--Water Trails [Reserved]
2.35--Special Trails
2.35a--Accessibility
1. The Forest Service Trail Accessibility Guidelines (FSTAG)
provide guidance for maximizing accessibility of trails in the National
Forest System, while recognizing and protecting the unique
characteristics of their natural setting. Appropriate application of
the FSTAG will ensure
[[Page 38050]]
that the full range of trail opportunities continues to be provided,
from primitive long-distance trails to highly developed trails and
popular scenic overlooks. Application of FSTAG is not intended to
change the Trail Class or Designed Use prescribed for a trail. The
FSTAG is available electronically at www.fs.fed.us/reacreation/
programs/accessibility.
2. To ensure integration between this handbook and the FSTAG, a
synposis of application of the FSTAG to trails in the National Forest
System follows.
3. Refer to the FSTAG for direction on assessment, development, and
management of trails that are subject to the FSTAG.
4. The FSTAG applies to trails in the National Forest System that:
a. Are new or altered (an alteration is a change in the original
purpose, intent, or design of a trail);
b. Have a Designed Use of Hiker/Pedestrian; and
c. Connect directly to a currently accessible trail or to a
trailhead.
5. While trail designers and managers are encouraged to look for
opportunities where accessibility may be improved beyond those trails
where it is required, the uniqueness of each trail must be preserved.
The FSTAG contains conditions for departure and exceptions that apply
when application of a technical provision would cause a change in a
trail's setting or the purpose or function for which a trail was
designed.
6. The FSTAG probably will not apply to most portions of existing
primitive, long-distance trails. However, the FSTAG may apply to some
segments of those trails, such as where they pass through a more
developed area. The FSTAG contains exceptions that will prevent
accessibility from being pointlessly applied in a piecemeal fashion
along a trail when access between trail segments is not possible. The
FSTAG also contains requirements to provide accessibility to special
features where possible.
7. If materials need to be obtained from or manipulated on a sign
or kiosk, the sign or kiosk must be designed to meet the reach ranges
in 308 of the ABAAS.
8. In accordance with the Forest Service policy of universal
design, trail information must be provided in a manner that will permit
users to evaluate the appropriateness of a trail for their ability,
resources, and the type of trail experience they are seeking.
9. Signs must be posted at the trailhead of new or altered trails
and trail segments that fall into Trail Class 4 or Trail Class 5, as
well as at the trailhead of trails that have been evaluated for
accessibility. At a minimum, in addition to the standard information
including the name and length of the trail, these signs must include
the typical and maximum trail grade, typical and maximum cross-slope,
typical and minimum tread width, surface type and firmness, and
obstacles. These signs also should state that the posted information
reflects the condition of the trail when it was constructed or assessed
and should include the date of the construction or assessment.
10. Where more extensive trail information is provided (e.g., an
aerial map of the trail and related facilities), the location of
specific trail features and obstacles that do not comply with the
FSTAG's technical provisions should be identified and a profile of the
trail grade should be included.
11. The international symbol of accessibility, (the wheelchair
symbol), should not be used in trail signage.
12. Local managers have the discretion to decide whether to post
FSTAG signage on newly constructed or altered trails that fall into
Trail Class 1, Trail Class 2, or Trail Class 3.
2.35b--Interpretive Trails
1. While interpretive trails may be managed for a variety of uses,
they most often fall into Trail Class 4 or Trail Class 5, with a
Designed Use of Hiker/Pedestrian, but sometimes fall into Trail Class
3.
2. Interpretive trails offer access to areas with natural geologic,
historical, or cultural significance. They provide a recreation
experience to enrich visitors' understanding of the environment and
fulfill national forest management objectives through interpretation.
Consider providing interpretive trails in a wide range of forest
settings with maximum interaction between users and the environment.
3. An interpretive plan is recommended as the basis for development
of most interpretive trails. Interpretive plans vary in complexity and
scope, depending on the trail being developed. In developing an
interpretive plan, consider the following at a minimum:
a. Determine the audience to be reached. Invite user participation
in development of the trail.
b. Determine the specific objectives of the message.
c. Determine the appropriate media (for example, trail signing,
audio stations, or brochures) that are best suited to the message and
audience.
d. Evaluate all sites that provide the intended message and theme.
Consider population proximity, amount of expected use, adjacent
facilities and services, and general desirability of the area.
e. Evaluate what the area has to offer and what visitors want.
Develop the trail message to enhance visitors' knowledge.
f. Inventory the selected site to identify its limitations,
opportunities, and fragile areas. Inventorying may be accomplished by
developing a grid with parallel strips representing every 50 to 100
feet. On each strip the surveyor would note items of interest or map
items. These rudimentary maps then would be refined into a more
detailed map.
g. Use a multidisciplinary approach in developing an interpretive
plan.
4. Avoid critical wildlife habitats and other fragile, unusual, and
sensitive areas unless they can be adequately protected or conduct only
guided walks through these areas.
5. The standard interpretive trail is usually less than 1 mile
long. Additional shorter loops can be part of the longer section.
Interpretation of special areas can be provided on any trail.
6. Locate interpretive trails near population centers or near
heavily used national forest developments. However, locate the trail
area away from noise and distracting activities. Some distracting
conditions can be mitigated by a vegetation screen.
7. Select a route with a wide range of special features or one that
illustrates a single purpose (sometimes known as a theme trail). This
approach is preferred.
8. The following design criteria apply to most interpretive trails:
a. Design the message or theme of the trail to achieve management
objectives, develop user awareness, and promote enjoyment of the area.
b. Space stops to allow users to absorb ideas. Plan for
approximately 10 to 15 signs or stops per trail, with stops at least
200 feet apart. If more than 15 stops are planned, consider using
brochures.
c. Separate trailheads may be located within walking distance from
areas of concentrated public use, such as campgrounds.
d. Take special care in designing entry signs, registration
stations, brochure distribution boxes, and other signs to present a
positive image and a pleasant entrance experience.
e. Write the message at the educational and social level of the
anticipated users. Indicate in the message why the item is important.
Test stops and text on representatives of the
[[Page 38051]]
intended audience before final development. Redesign as necessary.
f. Do not interpret all items on the trail. Those items not
interpreted can be added later to vary the message. Consider a seasonal
approach, if possible.
g. Call attention to items to observe between stops, such as birds
and animals, by noting them on signs or in brochures.
Chapter 3--Trail Preconstruction and Reconstruction
3.1--Preconstruction
1. Preconstruction must begin early and must be completed prior to
construction. The scope of preconstruction depends upon the type of
facility being designed. A minimally developed hiker/pedestrian trail
may require less preconstruction than a fully developed trail.
Regardless of the level of development, the series of steps remains the
same and begins with reconnaissance.
2. Determine whether the FSTAG will apply to the trail being
constructed or reconsructed. If the FSTAG applies, it must be followed
from initiation of reconnaissance. See the Process Overview in Appendix
A of the FSTAG.
3.11--Reconnaissance
Reconnaissance includes identification and evaluation of
alternative routes and leads to selection of the best possible routes
and facility to meet established objectives for Trail Class, Managed
Uses, and Designed Use. Application of sound principles of trail
location, alignment, and grade will minimize future operation and
maintenance problems.
* * * * *
3.12b--Grade
1. Early reconnaissance and environmental analysis should provide
the range of preferred grades for a specific trail. The location of the
grade line on the ground is the most important element of trail
development: Trail grade influences the length of trail, level of
difficulty, and drainage and maintenance requirements. Therefore, grade
usually is the controlling factor for trail location. Undulate the
grade to provide natural drainage and variation and to eliminate long,
steady grades, which are tiring to the user.
2. A slight downhill grade is necessary to provide cross-drainage
and to provide grade undulations for drainage purposes. These sections
of grade must be designed to avoid excessively steep sections of trail
grade.
3. In areas where there is a potential for trail erosion, roll the
grade to create natural-appearing drainage dips at appropriate
intervals to divert water from the trail.
4. Spacing of drainage facilities to intercept water running down a
trail is influenced by soil type and grade, which affect water
velocity. Determine the appropriate spacing before locating the trail
and establishing cross drainage from rolling gradeline. Section 3.12,
Exhibit 02, shows spacing requirements for various soil types and grade
percentages.
5. Where soil types or tread-hardening techniques provide necessary
resource protection, steeper grades may be permitted.
6. Some trails with a Designed Use of Hiker/Pedestrian could have
runs of rock steps for 30 percent or more of the total trail length. A
trail could have some short, steep pitches to take advantage of an area
of hightly stable terrain that can be easily protected from erosion.
Use runs of steps for certain types of trails when grades between
control points would exceed either user comfort or soil stability.
7. Avoid flat grades where possible. Trails that must be located
through meadows, savannahs, and other low areas should be considered
for walkways, puncheon, or tread stabilization.
8. Increase grades 10 to 15 percent at approaches to switchbacks to
avoid cross-cutting by trail users.
9. A level-off grade should be located at the end of steep,
sustained grades. A level-off grade is any grade within the range of
target grades identified for the Designed Use. The length and grade of
the level-off section should correlate to the Designed Use and the
Trail Class.
Chapter 4--Trail Operation and Maintenance
Trail management objectives, including the five Trail Fundamentals,
provide the basis for developing trail operation and maintenance
strategies. In addition to the Trail Fundamentals identified for the
trail, some key considerations are expected amount, type, and timing of
use.
4.1--Trail Operation
Trail operation involves management of the type, volume, and season
of use for the Managed Uses of a trail to achieve its TMOs. Elements of
trail operation include monitoring the volume of use, the type of use,
and the effects of use on the TMOSs; implementing trail restrictions;
and informing users through guides and signs of the intended use for
each trail.
* * * * *
4.13--Public Information
General guidance on the appropriate level and type of signing by
Trail Class is provided in the Design Parameters. Specific direction on
signing and public information is contained in FSM 7160, Signs and
Posters, and EM-7100-15, Standards for Forest Service Signs and
Posters. Additional direction on signs for accessible trails is
contained in the FSTAG, which is available electronically at
www.fs.fed.us/reacreation/programs/accessibility.
* * * * *
4.14--Signs
Signs should follow the direction contained in FSM 7160, Signs and
Posters, and EM-7100-15, Standards for Forest Service Signs and
Posters. Additional direction on signs for accessible trails is
contained in Section 7.3.10 of the FSTAG.
* * * * *
4.22--Recording Maintenance
Maintenance shall be recorded as standard when a trail is
maintained in a manner adequate to meet its TMOs. Maintenance shall be
recorded as less than standard when some needed maintenance activities
are not performed, resulting in a trail that does not meet its TMOs.
Refer to the Design Parameters (chapter 2) to determine whether
maintenance is preserving the trail to a standard adequate to meet its
TMOs.
4.23--Maintenance Activity Groups
Five activity groups are described below, along with a list of each
maintenance activity. These maintenance activities (or others as
desired by local units) should be used to maintain trails based on
applicable Design Parameters. These maintenance activities are only a
suggested list; different lists may be developed at the regional,
forest, or district level.
4.25--Condition Assessment and Prescription Surveys
1. The condition assesment and prescription survey is the backbone
of maintenance management. Those who perform condition surveys must be
knowledgeable of the entire maintenance management process. The data
gathered and the decisions made during the condition survey provide the
information needed for subsequent trail management decisions. The
condition survey also may be used for scheduling and reporting work
accomplishments.
2. Review the TMOs for each trail prior to performing condition
surveys. TMOs are used in development of the
[[Page 38052]]
annual maintenance plan and generally include the following
considerations:
a. Requirements to protect adjacent resources or improvements, such
as streams, lakes, meadows, vegetation, scenic strips, viewing areas,
experimental forests, and facilities.
b. The planned use of the trail. The Trail Type, Trail Class,
Managed Use, Designed Use, Design Parameters, season of use, volume of
use, and trail restrictions and regulations are examples of the type of
information that must be known before conducting a condition survey.
Use this information to determine whether a trail is adequately
providing for planned use.
3. Condition surveys are conducted to provide current information
about the condition of all physical features that are of concern to the
trail manager. Prior surveys provide information to forecast work
requirements that are used in formulating the annual maintenance plan.
Examples of possible deficiencies that should be noted in condition
surveys include:
a. Inlets and outlets of culverts that are plugged.
b. Location of hazard trees.
c. Brushing growth within cleared limits.
d. Sluffing backslope.
e. Missing or damaged signs.
f. Subgrade failures.
g. Stone retaining wall failures.
h. Slide encroachment along the trail.
i. Trail tread erosion.
These surveys also provide data for reporting deficiencies and
corrective measures that can be used in planning reconstruction
projects.
4. The prescription survey identifies actions needed to correct the
deficiencies noted on the ground. A qualified person can prescribe the
action needed to correct the deficiency at the same time the condition
survey is made. Specific maintenance activities or tasks should be
noted in the survey.
5. A detailed condition survey may not be needed when trails are
opened in the spring. (opening trails in the spring normally only
involves removing logs and drainage maintenance). However, trail
inspectors need to identify and verify the type and extent of work
needed before dispatching crews or awarding contracts for trail
maintenance.
[FR Doc. 06-5967 Filed 6-29-06; 10:39 am]
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