[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]



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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]
BILLING CODE 3410-11-P