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HomeMy WebLinkAboutAddenda - RFP - P982 BOBCAT RIDGE TRAIL DESIGN AND CONSTRUCTON (26) 2309.18,4 Page 1 of 21 FSH 2309.18 - TRAILS MANAGEMENT HANDBOOK WO AMENDMENT 2309.18-91-2 EFFECTIVE 11/8/91 CHAPTER 4 - TRAIL OPERATION AND MAINTENANCE Trail management objectives establish the parameters for developing trail operations and maintenance strategies. Some of the key parameters are the trail type, difficulty level, the appropriate trail guide, and expected amount, type, and timing of use. 4.1 - TRAIL OPERATION. Trail operation involves management of the type, volume, and season of trail use to achieve the desired trail management objectives. Elements of trail operation include: monitoring the volume of use, the type of use, and the effects of use on the trail management objectives; implementing trail restrictions; and informing the user through guides and signs of the use that is intended for each trail. 4.11 - Monitoring Use. Monitor type and volume of trail use to determine if trail management objectives are met. Use the resulting data to direct trail maintenance planning. The type and volume of use can be monitored in a number of ways. 1. Established Traffic Counter Stations. Photoelectric cell counters, photographic counters, inductive loops, compression counters, and visual counts are the types of trail counter stations presently in use. 2. Trail Registers. Ask trail users to sign a trail register. Although user compliance may vary widely at different locations, estimate the percentage of users who register using visual counts. 3. Records of Permits Issued. Study issued permits to gather information about the general use of an area. 4. Trailhead Use. Check the number and types of vehicles parked at trailhead to gather information about volume and type of traffic using the trail. Trailers used for hauling trail stock, trail bikes, and the like indicate the type of use. 5. Tread Wear. Study imprints and tread wear on trails to gather information about the volume and types of use. 4.12 - Managing Trail Use. Restrict traffic on trails to meet trail management objectives, where traffic exceeds safe use levels, when there is significant user conflict, when unacceptable resource damage is occurring, or when excessive operation and maintenance costs are resulting from the volume, type, or season of use. Develop restrictions to fit the situation. For example, seasonal closures during wet seasons may eliminate high tread maintenance costs. Other situations may warrant year-long restrictions. Use advisory or regulatory techniques to impose needed restrictions. Advisory techniques are preferred because they are more likely to receive a positive reaction from the recreationists. However, they may not work and the regulatory restrictions must then be imposed. 4.12a - Advisory Restrictions. Advisory restrictions include such items as posting of notices to get user cooperation and strategic use of brushing, fallen trees, rocks, or other natural features to encourage the desired use pattern. Signing should be positive and communicate a Good Host image. Avoid negative signing such as "Stay on Trail" or "Don't Crosscut Switchback." 4.12b - Regulatory Restrictions. Use 36 CFR 261.55 to regulate use. The requirements for writing orders and posting notices are in 36 CFR 261.50 and 36 CFR 261.51, respectively. Public involvement prior to issuing a prohibition normally will aid in enforcement of the prohibition. Notices of restrictions are shown on maps as well as in news releases, recreation reports, and in other media. Use personal contacts to gain user understanding. Closing a trail to a specific mode of travel is usually not enforceable unless the area surrounding the trail is also closed to that mode of travel. For example, if a trail is closed to motorized vehicles, the general area restrictions under 36 CFR 261.56 are most appropriate. 4.13 - Public Information. When appropriate, employ both offsite and onsite information techniques to aid proper trail management. When trail difficulty level is defined, describe it at the trailhead on bulletin boards and in trail guides, brochures, and travel management maps (FSM 1600). Public information techniques for trails should: 1. Convey the Host image when regulating use. Emphasize where to go instead where one should not go; what can be done rather than what cannot be done. 2. Display an array of recreation opportunities so the users may choose what they prefer. 3. Use public information techniques to assist users in understanding resource management objectives. 4. Provide simple, accurate, and current data about trails and appropriate activities. 5. Encourage private sector cooperation in guidebooks, the media, and educational systems. 6. Use unique and imaginative methods to encourage trail use. Examples include trail dedications, trail-of-the-month features, outfitter guides, and trailhead facility development. 7. Indicate all seasonal activities available in order to establish desired use patterns. Winter visitors may consider returning in the summer if a desired activity is recommended. 8. Use international symbols with Forest Service identification rather than regulatory signs. 4.14 - Signs. Signs should follow the general guides outlined in FSH 7109.11, chapters 30 and 50, and in the "Sign and Poster Catalog." 4.2 - TRAIL MAINTENANCE. The purpose of maintenance is to preserve the trail and related facilities to meet established objectives. 4.21 - Maintenance Management Process. The Forest Service Trail Maintenance Management System is a method to plan, schedule, perform, and evaluate the maintenance activities necessary to ensure the safety, protection, proper administration, and appropriate use of the forest trail system (ex. 01). 4.21 - Exhibit 01 SEE THE PAPER COPY OF THE MASTER SET FOR SECTION 4.21 - EXHIBIT 01 4.22 - Recording Maintenance. Maintenance shall be recorded as standard when a trail is maintained in a manner adequate to serve established objectives. Maintenance shall be recorded as less than standard when some needed maintenance activities are not performed, resulting in a trail that does not fully serve established objectives. Refer to the trail guides (chapter 2) to determine whether maintenance is preserving the trail to a standard adequate to serve the established objectives. 4.23 - Maintenance Activity Groups. Five activity groups are described below, along with a list of each individual maintenance activity. These maintenance activities (or others as desired by the local units) should be used to maintain the trails to the current assigned and planned guide. These maintenance activities are only a suggested list; different lists may be developed at the Regional, Forest, or District level. 4.23a - Tread Maintenance. Activity Code Activity Work Unit 960 Loose Rock Removal Linear Foot or Mile 961 Rock and Root Removal Linear Foot or Mile 962 Slough and Berm Removal Linear Foot 963 Slide Maintenance Linear Foot 964 Cement Treated Surface Repair Linear Foot 965 Bituminous Surface Repair Linear Foot 966 Snow Trail Grooming Linear Foot or Mile 967 Borrow Cubic Foot 4.23b - Drainage Maintenance. Activity Code Activity Work Unit 970 Routine Drainage Maintenance Mile 971 Maintain Water Bar Each 972 Maintain Rock Culvert Each 973 Maintain Stream Fords and Gully Crossings Each 974 Maintain Drainage Dip Each 4.23c - Trailway Maintenance. Activity Code Activity Work Unit 980 Logging Out Linear Foot, Mile, or Each 981 Brush Cutting Linear Foot or Mile 982 Danger Tree Removal Each 983 Litter Cleanup Linear Foot 984 Slope Revegetation Linear Foot 4.23d - Structures. Activity Code Activity Work Unit 990 Maintain Rock and Log Barrier Linear Foot 991 Rock, Log, or Timber Retaining Wall Facial Square Foot 992 Maintain Trail Turnpike Linear Foot 993 Trail Puncheon Repair Linear Foot 994 Fence and Gate Repair Each 995 Bridge Maintenance Each 4.23e - Traffic Services. Activity Code Activity Work Unit 997 Sign Repair (field) Each Site 998 Sign Replacement Each Site 999 Cairn Installation and Repair Each 4.24 - Trail Log. Prepare a trail log for each trail. The log is an inventory of physical features within or adjacent to the trails and is prepared to the level of detail necessary to make the required trail management decisions. The log is drawn up once and is usable until the inventoried features are modified, replaced, or removed. Inventoried items include: Type of Terrain Retaining Wall Intersection Fence Ground Cover Puncheon Section Bridge Sign Side Slope Percent Turnpike Section Drainage Dip Milepost Trailbed Width Rock Section Water Bar Cairn Grade Drainage Ditch Culvert Gate Surfacing and Depth Stone Barrier Stream Ford Vista Switchback Barricade Underdrain Climbing Turn Turnout Gully Crossing An example of a trail log is shown on the left side of exhibit 01. Data are usually recorded to the nearest foot by measuring with a cyclometer. Measurement starts from the beginning terminus of the trail, with the beginning and ending termini easily identified on the ground. Trail markers, such as milepost markers, and other prominent items aid in establishing the on-the-ground location of trail log information. The trail log is the working tool for the condition survey. It becomes part of each individual trail folder and is used to update the trail inventory. 4.24 - Exhibit 01 SEE THE PAPER COPY OF THE MASTER SET FOR SECTION 4.24 - EXHIBIT 01. 4.24 - Exhibit 01--Continued SEE THE PAPER COPY OF THE MASTER SET FOR SECTION 4.24 - EXHIBIT 01. 4.25 - Condition and Prescription Surveys. The condition survey is the backbone of maintenance management. The person who performs the condition survey must be knowledgeable about the entire maintenance management process. The data gathered and the decisions made during the condition survey provide the information needed for subsequent decisions. The condition survey may also be used for scheduling and reporting work accomplishments. The right side of exhibit 01, section 4.24, provides an example of a trail condition survey. Review the management objectives for each trail prior to performing the condition surveys. These objectives are used in the development of the annual maintenance plan and generally include the following considerations: 1. Requirements to protect specific adjacent resources or improvements, such as streams, lakes, meadows, vegetation, scenic strips, view areas, experimental forests, facilities, and the like. 2. Planned use of the trail. The season of use, difficulty level, type and 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 the planned use. Condition surveys are conducted to provide up-to-date information about the condition of all physical features that are of concern to the 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 the following: 1. Inlets and outlets of culverts that are plugged. 2. Locations of hazard trees. 3. Brushing growth within cleared limits. 4. Sluffing backslope. 5. Missing or damaged signs. 6. Subgrade failures. 7. Stone retaining wall failures. 8. Slide encroachment on trailway. 9. Trail tread erosion. These surveys also provide data to make an account of deficiencies and corrective measures that can be used in planning reconstruction projects. The prescription survey identifies actions 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. The prescription may be designated by referring to a specific maintenance activity and maintenance specification. A detailed condition survey may not be needed during the springtime opening of trails. However, trail inspectors are needed to verify the type and extent of work needed before dispatching crews or awarding contracts. Opening trails in the spring normally involves logging out and drainage maintenance. 4.26 - Annual Trail Management Plan. The annual trail management plan is based on historical maintenance requirements, the most current condition survey, a knowledge of the projected use of the trail, and a continuing evaluation of the need for certain trails. The proposed annual trail management plan lists the total requirements for maintaining the trail system to the desired standards. When the final budget and staffing advice is received, the proposed plan is finalized to reflect those allocations. Where reductions are required, the priority criteria established in the condition survey provide valuable information about maintenance activities to defer. The following criteria are normally used in establishing priorities for trail maintenance work. 1. Priority 1. Maintenance activities that would correct an unsafe condition relative to management objectives. 2. Priority 2. Maintenance activities that minimize unacceptable resource and trail damage. 3. Priority 3. Maintenance activities that fully restore the trail to the planned design standard. In addition, a change in the method of accomplishment (contract, force account, volunteer, or contributed labor) may be necessary. The annual trail management plan may contain the following items: a. A Trail System Operation Listing (ex. 01). b. A Project Trail Maintenance Listing (ex. 02). c. An Annual Trail Management Summary (ex. 03). 4.26 - Exhibit 01 Trail System Operation Listing Proposed Plan X Financed Accomplished Sheet 1 of 1 Made by Jones Date 10/79 District Park Forest Lake FY 79 Work Activity Unit Quantity Unit Cost Total Traffic Management Plan Each 1 300 $ 300 Trail Logs Mile 20 100 2,000 Condition Surveys Mile 100 50 5,000 Maintenance Planning & Scheduling Each 1 200 200 Maintenance Programming (2-3 yrs. in advance) Each 1 200 200 Traffic Counting Sites 2 300 600 Trail Inventory & Map Each 1 200 200 Trail Sign Inventory Each 1 200 200 Cost Accountability & Reporting Each 1 200 200 Performance Review Mile 20 20 400 Supervision M.Y. .25 30,000 7,500 TOTAL COST $16,800 4.26 - Exhibit 02 Project Trail Management Listing Proposed Plan X Financed Accomplished Sheet 1 of 1 Made by Jones Date 10/9/79 District Park Forest Lake FY 79 Total Method of Trail Name Trail No. Station No. Mi Cost Performance Bear Creek 01W03 0-530 10 $ 1,000 Force Account S lide Canyon 13W16 0-630 12 1,200 Force Account Burnt Creek 12W06 20-73 1 200 Volunteer Bear Lake 11W12 0-100 2 400 Force Account Gold Springs 01W16 0-106 2 4,300 Force Account Tampa Pass 15W22 53-630 11 500 Volunteer Spring Creek 09W18 0-1060 20 10,000 Contract Lava Dunes 12W08 0-220 4 500 Fire Crew Mill Falls 13W14 0-96 2 5,000 Contract Logging Out 14W16 10 0 User Jays Lake 12W36 0-40 1 300 Older American TOTAL $25,700 4.26 - Exhibit 03 Annual Trail Management Summary FY 85 Management Unit Park R.D. Proposed X Financed Accomplished MIH Average Code Description Miles Cost/Mile Total 762 Operations 200 $ 84 16,800 763 Adequate 104 100 10,400 764 Inadequate 96 160 15,300 TOTAL 200 $212 42,500 4.27 - Methods of Accomplishment. Normally, the manager has three basic means to accomplish the work: force account, contracting, and volunteers. Use the budget process to plan for accomplishing work regardless of the method utilized. The following matrix (ex. 01) displays some factors to consider in deciding which type of work force to use in completing the project. Volunteer programs like "adopt-a-trail" can lessen the financial dilemma faced by trail managers. Managers should also take advantage of contributed funding and other force account crews, such as fire crews. Individual users and user groups, such as outfitters and clubs, will often assist if they are aware of maintenance needs. Use the same quality standards for all methods of accomplishment. However, be aware that the production rates may vary considerably between methods. Guidance and supervision by a qualified Forest Service employee or experienced volunteer supervisor will usually be required to achieve quality work. The guidebook "Working with U.S. Forest Service Volunteers" is a good reference for managers interested in working with volunteer groups. Develop cooperative agreement opportunities to the fullest extent possible. Parties to agreements must meet periodically to insure a good working relationship is maintained under the agreement. Reference 2(c), 7h, and 11 of the National Trails System Act of 1968, as amended. Contracting trail maintenance is a practical solution. However, contracting is not a cure-all for accomplishing trail objectives. Carefully analyze contracting advantages and disadvantages for each situation. Contract limitations should not be underemphasized, nor should contractor capabilities be overrated. Consider the Forest Service's ability to produce effective specifications and to provide the required contract administration. 4.27 - Exhibit 01 Methods of Accomplishment Force Individual Volunteer Factor Contracting Account Volunteer Organization Cost - - + + Training - 0 - - Supervision and 0 + - - Contract Administration Control (timing, + + - - adherance to standard, adjustment of standard) Benefit to Government: + positive 0 benefits offset disadvantages - negative 4.28 - Work Scheduling, Accomplishment Reporting, and Performance Review. 4.28a - Work Scheduling. Scheduling is the process of working within given limits to determine the most effective and economical use of manpower, equipment, tools, supplies, and time to accomplish a goal. Develop a schedule for the items listed in the financial trail system operation listing and the financial project trail maintenance listing. Plot the schedule on a time chart to obtain an overall view of the maintenance workload (ex. 01). Prepare Forms FS-1900-3, Individual Annual Work Plan, for each project or aggregate of projects and use Form FS-1900-4, Project Work Plan, for management control purposes. 4.28a - Exhibit 01 SEE THE PAPER COPY OF THE MASTER SET FOR SECTION 4.28a - EXHIBIT 01. 4.28b - Accomplishment Reporting. Refer to section 4.22, "Recording Maintenance," for general information about reporting trail maintenance accomplishments. 1. Force Account. Accomplishment by force account crews may be recorded on the condition survey form. The force account crew should record actual time spent on each maintenance activity as compared to the time estimated by the person who made the condition survey. This type of procedure will provide valuable information for future programing and cost estimating. 2. Contract. Payment documents will provide the records for recording accomplishments by contract. Inspection while work is in progress and daily diaries will provide data useful for future programs and cost estimates. 3. Volunteer. Volunteer groups should use and record their accomplishments on condition surveys in the same manner as force account personnel. At the end of the fiscal year an accomplishment report must be prepared on the annual trail management summary. A trail may be reported as maintained to standard even though no work was performed, provided the trail was maintained to the desired level. 4.28c - Performance Review. Maintenance and management personnel should review a sampling of trail maintenance work to evaluate performance. The condition survey, maintenance specifications, letters from users, and other sources of information should be assessed during the field inspection. The performance review may reveal some needed changes in the maintenance management process. The performance review is not considered complete until recommended changes have been implemented. 4.29 - Special Considerations. Some types of trails require special techniques of operation and maintenance. 4.29a - Wilderness Areas. Within wilderness areas, maintenance should complement management objectives and maintain or gradually improve/restore the quality of the natural environment. Occasional logs or obstructions that will not cause detouring may be left in the trail to aid in creating a more natural appearance. Low-growing vegetation will be allowed to grow close to the trail. 4.29b - Pack and Saddle Trails. Pack and saddle animals can be injured by poorly maintained structures such as bridges, puncheon, corrals, and hitchracks. Routine maintenance should include the removal of loose nails, telephone wire, barbed wire, jill pokes, and large splinters from these facilities. Routine cleanup of the trailhead facility should include the removal and disposal of manure to prevent the pollution of surface water and minimize fly problems. 4.29c - Snow Trails. 1. Cross-Country Ski Trails a. Pre-Season. Once a good vegetative cover is established, trails used exclusively as snow trails will need very little maintenance to prevent erosion. Establish vegetation as soon as possible where severe cuts or leveling occur during trail construction. b. Snow Season. Where the trails are groomed, packing is necessary early in the snow season to establish a firm base. On groomed trails, a snowfall of more than 2 inches may require reestablishment of the track. With heavy use, a trail will develop snow waves (moguls), ruts, and holes that will require grading, packing, and resetting of tracks. Thaw and freeze cycles may cause ski trails to become hazardous and require grading and resetting of the track. Snowmobiles or snowpackers may be used to pack trails. A special ski trail tracksetter can be used to grade trails and establish the parallel tracks. Restrict groomed ski trails to skier use only. Dogs, horses, and snowmobiles should not be allowed on groomed trails and should be discouraged from using other heavily used cross-country trails. The manager may want to consider some trails for dogsledders. 2. Snowmobile Trails a. Traffic Management on Snow-Covered Roads. A variety of techniques, used singly or in combination, can be used to manage traffic on trails. b. Shared Use of Roads. Some roads are designated snowmobile trails with a general management objective of allowing snowplowing and log haul use during weekdays and snowmobile use during the weekends. For effective management, timber sale contacts should reflect this situation. It may be necessary to erect snow gates. c. Roads Designated as Snow Trails. Some roads are designated as snowmobile trails with a general management objective of prohibiting all wheeled vehicles during certain months. Snowplowing is also prohibited. These roads, which often are groomed trails, generally are located in heavy snow and heavy snowmobile use areas. Wheeled traffic is restricted through CFR/Federal regulation. d. Roads Closed to Snowmobiles. Carefully locate, sign, and mark closure devices. Use "Snowmobile Area Closed" signs on highway approaches to parking areas. The point of physical closure should ideally be located along the entrance road to the parking lot (between highway and lot) and be visible to the driver prior to turning onto the entrance road. A turnaround should be provided immediately before the gate. Determine the need for notices and other information at the gate and post according to Forest Service policy and public need.