FOREST SERVICE MANUAL
MISSOULA, MONTANA
TITLE 7700 - TRANSPORTATION SYSTEM
Region 1 Supplement No. 59
Effective April 1982
7703 - POLICY. The following policy applies to all transportation system facilities in R-1 for
transportation planning, development, and operation. It applies equally to all new construction,
reconstruction, and maintenance of transportation facilities. All activity relating to the transportation
system from planning through operation shall utilize timely and systematic interdisciplinary
participation and the resulting decisions shall be documented (see FSM 1950). For those proposed
actions that meet the criteria set forth in NEPA, the Transportation System activities will be documented
in the Environmental Impact Statement (EIS). An approved EAR or EIS is required before
implementing any transportation system development.
Transportation system decisions are based on a number of factors, such as safety, environmental issues,
technical feasibility, economics, financial considerations, and legal constraints. Each factor shall be
considered in determining and selecting a course of action. Economics is frequently used to differentiate
between factors and to insure that the Government is making good investments. Economic assessment
is required in all phases of transportation system decisionmaking; however, economics shall not be
considered as the controlling factor in evaluating and selecting a course of action.
1. Transportation Planning. Transportation System Planning shall be integrated with, and shall
proceed simultaneously with, land management planning to assist in the development of realistic,
workable alternatives. Transportation plans and their relation to functional activities shall included as
part of any planning proposal.
Transportation planning shall be conducted at a level of detail consistent with the resource planning
objectives. It is imperative that compatibility be maintained within each level of planning. FSM 7710
and Regional supplements show the specific levels of transportation planning and the requirements for
each level.
2. Transportation System Development. Primary emphasis shall be to insure that transportation
facilities are developed to provide the level of service required to meet resource management needs.
Standards shall be determined in advance of location for the location, survey, design, construction,
maintenance, and operation of all system facilities. Criteria shall be established for short-term facilities
and the degree of engineering necessary.
The standards and criteria shall be established as a result of interdisciplinary participation. These
requirements apply to roads, trails, airfields, and other transportation system facilities as appropriate.
Construction activities on all transportation facilities shall be controlled during the operation by
inspection. All facilities shall be staked for construction. The method of staking and degree of
inspection shall be determined at the time survey and design standards are establisbed.
3. Transportation System Operation. All existing transportation system facilities shall be
operated to provide user safety, convenience, and efficiency of operations to accomplish the land and
resource management objectives of the Forest, and are coordinated with National and State-wide
transportation needs.
7704 - RESPONSIBILITY AND DELEGATIONS
7704.2 - Regional Forester. The parent text establishes the Regional Forester's and the Director of
Engineering's responsibility and authority for conducting all phases of transportation planning,
development, and operations in the Region. The Chief has delegated to the Director of Engineering the
specific authority to assure that all transportation and other engineered systems comply with the
technical requirements involving structural integrity, safety, and operational limits. To enable the
Director of Engineering to fulfill this responsibility through this Region's decentralized organization, the
Director of Engineering's additional authorities are:
1. To represent the Region to the various State Transportation Departments and the Federal
Highway Administration. The Director of Engineering will officially act for the Regional Forester.
Responsibility for day-to-day contacts on a project-by-project basis is delegated to the Forest Engineer.
2. To require that all transportation system activities are done with systematic interdisciplinary
participation in accordance with the land and resource management plans and FSM 7706.
3. To develop and maintain the transportation system component of the Regional Plan, and the
National Forest Transportation plans prescribed in FSM 7710.3.
5a. To selectively evaluate the cost-effectiveness and technical adequacy of engineering work.
b. Be responsible for Region-wide standards, and the coordination, and implementation of all
National Forest Transportation Systems.
c. Prepare annual and long-range transportation system programs for the Region.
d. Recommend, with participation by units of Administrative Management, Personnel
Management, and Forests; the ways and organizations in which transportation system activities can be
performed effectively, efficiently, and responsively either by force account, contract, other Federal or
State agencies, or cooperatively.
e. To develop Regional policy and standards for performance of engineering work.
6a. Recreation Management is assigned basic staff responsibility for development trails,
including segments of the National Trail System administered by the Forest Service. Engineering will
provide and be responsible for technical services, including survey, design, construction, and
maintenance.
b. Provide leadership for transportation system activities within the Region from involvement in
land and resource management planning through preconstruction and construction engineer-personal
contact, consultation, training, inspection, manual direction, and on-the-ground review and audit.
c. Make sufficient annual on-the-ground audits and reviews of all transportation engineering
activities to insure that facility planning, development, construction, and operation is in accord with
National and Regional policies.
d. Review all drawings and specifications for roads and structures in all Regional Forester and
Chief's timber sale contracts.
e. Review transportation development plans involving rights-of-way to be acquired or granted and
make recommendation thereon.
f. Make final acceptance inspection of all bridge construction and recommend acceptance to the
contracting officer or timber sale officer. The Director of Engineering may annually delegate this
responsibility by letter to Forest Engineers for minor bridges. Minor bridges are defined as single span
structures with a span length of 80 feet or less.
g. Review and approve technical engineering aspects of environmental statements, project criteria
and proposals, and engineering reports for transportation system projects which require Regional
Forester review of environmental statements.
h. Prepare Region-wide specifications or special project specifications for construction of road
and trail projects. In cooperation with Timber Management for timber sale contracts, prepare Regional
"C" clauses and review and approve special "C" clauses and special project specifications requested by
Forest Supervisors.
7. The Director of Engineering is responsible for providing Regional Policy and Standards for the
cooperative planning, development, and operation of transportation facilities with public transportation
agencies.
8a. Establish job performance requirements or certification criteria for engineering personnel and
implement the National Engineering Certification Program. Certify to the Regional Forester those
engineers, engineering technicians, and inspectors who are qualified as road and trail planners, locators,
surveyors, designers, construction engineers, Contracting Officer Representatives (COR'S), Engineering
Representatives (ER'S), construction inspectors, and engineering specialists.
b. Conduct Region-wide training sessions in selected transportation activites as needed.
c. Assist Forests in developing and conducting training.
d. Provide technical and professional staff for project design, or consultation in the design, of
special facilities, such as retaining structures, bridges, major culverts, and hydraulic structures for which
specialized expertise is normally not available on the Forest.
9. No additions.
7704.3 - Forest Supervisor. The following Regional Forester's responsibilities and authorities for
managing transportation system activities are redelegated to Forest Supervisors:
1. Coordinating and maintaining working relationships with counties, cities, and public agencies
with local offices within the Forest's area of influence.
2. Insuring that coordinating requirements for land and multiresource management are
incorporated in all transportation plans.
3. Approving additions to the Forest Development Transportation Plan except where reserved
elsewhere in the manual. Insure that Forest plans and inventories are updated annually to reflect all
additions made under this authority.
4.
Developing and implementing cost-effective programs for transportation planning,
development, and operation except where reserved in FSM 7710, 7720, or 7730, or where Regional
engineering coordination is necessary to assure consistency within the Region.
5. Planning, developing, and operating all elements of the Forest development transportation
system to fulfill the objectives of FSM 7702 and in accordance with standards established by the
Regional policy.
6. Enter into agreements with State, county, and others for cooperative planning, development,
and operation of transportation facilities, limited by the criteria and authorities listed in FSM 7713 and
7715 and FSH 1509.11.
7. Develop and maintain an adequate level of engineering skills to fulfill the objectives of FSM
7702.
8. Enter into memorandums of understanding that are uniquely applicable to the originating
Forest and in accordance with FSH 1509.11 and FSM 7715.
Forest Supervisors are responsible for providing the organizational capability and operating procedures
to assure:
a. The decisionmaking process for transportation system matters adequately considers and
utilizes the technical input of skilled specialists.
b. Qualified professional engineers, GS-11 or above, are directly responsible for technical
engineering aspects of the final transportation plan, road location, geotechnical investigation, design,
construction supervision, and operational limits of all transportation system roads.
c. There is a level of technical engineering review at a higher grade level than the level of
performance.
d. Engineers who have been assigned responsibilities for approving engineering work certify their
approval in writing and understand that such certification means they are assuring that all technical
requirements, structural integrity, safety, and operational limits for the project or work have been fully
complied with.
e. All decisions or other conditions which compromise the above certification are brought to the
attention of a professional engineer with the authority to resolve the technical problem or to the Forest
Engineer. If the Forest Engineer cannot resolve the problem, it must be brought to the attention of the
Forest Supervisor and Director of Engineering.
f. An accountability process is established and maintained that sufficiently samples and evaluates:
(1) the technical adequacy of all phases of transportation engineering work activities, (2) the overall
cost and efficiency of the engineering organization performing the work, and (3) the cost-effectiveness
of the engineering projects planned. The process shall include provisions for identifying opportunities
and implementing corrective measures.
To assist the Forest Supervisor in redeeming his responsibilities, the Forest Engineer shall be
responsible for technical adequacy of all transportation system activities on the Forest. The Forest
Engineer shall:
a. Provide leadership to the transportation system programs of the Forest from involvement in
land management planning through transportation planning, development, and operation.
b. Require that all transportation system activity is done with systematic, interdisciplinary
participation and in accord with the land management pland (see FSM 1950).
c. Prepare annual and long-range transportation system programs for the Forest. The programs
shall be fully coordinated with all other programs of the Forest and shall be recommended to the Forest
Supervisore concurrently with the other Forest programs.
d. Be responsible for coordination and implementation of all transportation systems planning and
programming on the Forest.
e. Develop and maintain transportation plans which adequately facilitate National Forest resource
administration, protection, management, and utilization in accord with land use plans.
f. Be responsible for the technical engineering of all transportation facilities designed,
consturcted, maintained, and operated on the Forest.
g. Develop and conduct training for engineering personnel within Regional and Service-wide
guidelines to qualify individuals for certification and career development.
h. Recommend for certification through the Forest Supervisor to the Director of Engineering each
person he deems qualified for road and trail planners, locators, suveyors, designers, construction
engineers, Contracting Officer's Representatives (COR'S), Engineering Representatives (ER'S),
construction inspectors, and A&E contractor representatives. Recommendations shall be based on
demonstrated ability and the satisfactory completion of requirement for certification.
i. Approve all designs, drawings, specifications, and estimates; conduct final inspections; and
make final audit and certification of quantities for road and trail projects on Forest, except roads in
Regional Forester's and Chief's timber sale contracts. Forests will transmit projects directly to the
contracting officer for advertising and award of formal road contract or to the Regional Officer Timber
Management Unit for Regional Forester's and Chief's sales. Approval of drawings and specifications for
roads in Regional Forester and Chief's timber sale contracts are limited to the Director of Engineering.
j. Recommend to the Forest Supervisor the criteria and degree of engineering necessary for
facilities other than those designated as Forest Development Transportation Facilities.
k. Review all special use and road use permits for transportation facilities prior to final Forest
approval.
To properly redeem the transportation system responsibilities the Forest Supervisor and Forest Engineer
need the cooperation and participation of the District Ranger. The District Ranger shall:
a. Participate in transportation planning on his District to assure that transportation planning is in
accord with land management plans.
b. Prepare a multiyear transportation development program, coordinated with other resource
development programs, to include cost estimates, economic analysis information, and timing schedules.
c. Provide land management criteria and prescriptions for determining construction standards and
participate in the determination of those standards.
d. Participate in planning system maintenance and operation.
7706.1 - Resource Coordination. Forest Development Transportation System activities shall be
coordinated with resource activities to meet management objectives for protection of National Forest
resources.
7706.11 - Water Resoures. National Forests in Region 1 make a major contribution to water resources
in Idaho and Montana. Man-cause water pollution and subsequent deterioration of water quality and
fish habitat, resulting from transportation activities, has long been recognized and documented as
environmental degradation. This must be reduced if proper stewardship of land and water resources is
to be realized. The primary concern for transportation activities shall be to minimize soil failures
(slumps and slides) and surface erosion. Surface erosion, from cuts, fills, and road surfaces, though
sometimes not as readily visible as slumps and slides, results in movement of large volumes of soil.
The basic philosophy for water resources management, with respect to transportation activities, is to
protect existing quality by utilizing qualified people and applicable methods.
The planning, development, and operation of all transportation systems and facilities shall be done so as
to:
1. Prevent soil failures associated with transportation system activities and adversely affect water
quality and fish habitat.
2. Eliminate activites that collectively produce unacceptable damage to water quality and aquatic
habitat. Unacceptable damage is when the degradation of water quality interferes with or becomes
injurious to existing or possible uses of water.
3. Improve physical conditions that, as a result of transportation development or operations, have
adversely affected water quality and aquatic habitat.
Each and every transportation system activity shall meet the following requirements:
1. Riparian vegetation shall be managed to comply with acceptable water quality standards in all
streamside transportation activities.
2. Erosion and sediment control procedures will be utilized in the development and operation of
roads and landings to prevent sediment of debris from reaching streams.
3. State and Federal water quality laws, regulations and policies, and Forest management unit
guidelines will serve as the basic standards against which success in preventing water pollution will be
measured.
4. Protect water quality, fish habitat, and soils by involvement of the appropriate specialists in the
areas under consideration.
5. Route planning and reconnaissance activities will include evaluations of geology and soils.
Such activities will be reviewed by a competent team, including Engineering, Geology, Soils, etc., who
will prepare recommendations for approval by the responsible Forest Service official.
6. Proposed transportation projects shall not be developed if water quality and fish habitat cannot
be protected.
7. If unacceptable water quality and fish habitat degradation occurs during transportation facility
construction, all reasonable avenues to correct the degradation will be pursued.
8. Onsite and offsite water management shall be considered in location and design of
transportation facilities to prevent accelerated soil erosion and desynchronization of water movements
(to mitigate offsite water impacts).
7706.12 - Watershed Protection and Management. All transportation planning, development, and
operation activities shall utilize the combined skills of Engineers, Geologists, Hydrologists, Soil
Scientists, and others to insure protection of watershed values.
1. All transportation facilities that are located in municipal watersheds shall conform to the
applicable criteria contained in FSM 2543.13.
2. Structural improvements in, or associated with, streams will be consistent with the
emvironment in respect to hydraulics, hydrology, recreation, and economics.
3. Structural measures for control of slide or sloughs shall be based on an analysis of alternate
routes, a complete soil investigation, and the recommendations of a qualified geologist and soils
engineer. The design of such structures shall be accomplished by a qualified structural engineer.
4. Channel changes shall be permitted only after analysis by an interdisciplinary team and
approval by Forest Supervisor.
5. Seeding, fertilizing, and mulching of cut and fill slopes shall be an integral part of any
development plan in soil types susceptible to surface erosion or channeling, and there is sufficient soil to
sustain growth. Followup measures will be planned to maintain vegetative cover.
6. Existing road cuts and fills which are supplying significant amounts of sediment due to lace of
vegetation, grass cover, or other causes, will have operation plans designed to control or eliminate such
sediment production. Measures considered may include revegetation and/or sediment control structures
such as filters, traps, basins, etc.
7. Short-run development economics will not take precedence over soil and water resource
protection needs.
7706.13 - Air Quality Protection and Management. Transportation planning, development, and
operation activities shall be coordinated with appropriate Forest Service fisheries and wildlife biologists,
and with other agencies as appropriate.
1. Wildlife management criteria shall be developed to guide location and design activities where
wildlife is a key activity.
2. Prior to the final location and design procedure, Forest Service fisheries and wildlife biologists
shall review and approve the drawings and specifications in their area of concern. Criteria contained in
FSM 2606.32 shall be met prior to any contract action.
7706.15 - Recreation. Location and survey activities shall be carried out in a manner that will not have a
detrimental effect on the area; i.e., blazing or painting of trees for reference or survey points will not be
accepted. All survey stakes, laths, flagging, and other engineering debris shall be removed after
completion of construction. Seeding, revegetation, or other restoration measures shall be included in all
roads activities in recreation areas.