R6 Supplement FSM-7730-2007-2
EFFECTIVE DATE .June 8, 2007
DURATION: This supplement is effective until superseded or removed. / 7733
Page 1 of 13
FSM 7700 – Transportation system
Chapter 30 – operation and maintenance
/ Forest Service Manual
pacific northwest region (region 6)
portland, oregon

fsM 7700 – TRANSPORTATION SYSTEM

chapteR 30 – OPERATIONS AND MAINTENANCE

R6 Supplement No.: 7730-2007-2

Effective Date: June 8, 2007

Duration: This supplement is effective until superseded or removed.

Approved:Liz Agpoa
Deputy Regional Forester / Date Approved: June 5, 2007

Posting Instructions: Supplements are numbered consecutively by title and calendar year. Post by document; remove the entire document and replace it with this supplement. Retain this transmittal as the first page(s) of this document. The last supplement to this title was R6 FSM Supp. No. 7730-2007-1 to FSM 7731.

New Document / 7733 / 12pp
Superseded Document(s)
by Issuance Number and Effective Date / R6 Supp. 7730-2005-1 to 7733 / 11 pp

Digest:

7733.3 / Changes the chapter numbering from 7733 to 7733.3
7733.31 - / Provides direction for assessment and implementation planning
7733.33 - / Provides direction on setting priorities for treatment and clarifies the term active projects.
7733.34 - / Ties management actions to regulations under 36 CFR 212.52 for high priority road segments

table of contents

7733 - SAFETY PROVISIONS ON NATIONAL FOREST SYSTEM ROADS

7733.02 - Objective

7733.03 - Policy

7733.04 - Responsibility

7733.04c - Forest Supervisor

7733.05 - Definitions

7733.3 - Roadside Danger Tree Management

7733.31 - Roadside Danger Tree Assessment Methodologies

7733.32 - Strategies for Danger Tree Management on Roads.

7733.33 - Roadside Danger Tree Priorities

7733.34 - Management Actions

7733.35 - Required Training

7733- SAFETY PROVISIONS ON NATIONAL FOREST SYSTEM ROADS

7733.02 - Objective

Provide consistent USDA Forest Service, Region 6 policy concerning operation of roads. Establish policy and guidance for managing danger trees along National Forest system roads, including references for danger tree identification and hazard exposure.

7733.03 - Policy

  1. Danger trees will be managed for safe use of the transportation system by all users. Safety is the predominant consideration in road operation and maintenance and takes priority over biological or other considerations.
  2. Identification of danger trees will be performed by a qualifiedperson.
  3. The hazards along road segments identified ashigh priorityin R6 FSM 7733.33will be mitigated according to R6 FSM 7733.34.

7733.04 - Responsibility

7733.04c- Forest Supervisor

  1. Ensure that a qualifiedperson is available to assess danger trees and to mitigate hazards associated with danger trees along roads.

7733.05 -Definitions

For the purpose of this policy, the following terms are synonymous:

-Danger tree.

-Hazard tree (previously used terminology).

Danger Tree. A standing tree that presents a hazard to people due to conditions such as, but not limited to, deterioration or physical damage to the root system, trunk, stem, or limbs and the direction or lean of the tree (FSH 6709.11, Glossary).

Exposure Duration. The length of time that a person is within a potential failure zone. There are three exposure classifications:

-Intermittent. Includes traffic driving by a defective tree.

-Short. Traffic that stops for a short duration (usually < 15 minutes) along a road. This includes intersections, scenic vista pull offs, etc.

-Long. Traffic that is stationary for longer periods of time such as in parking lots.

While a road may have intermittent exposure to any one person, the frequency of exposure to traffic collectively needs to be considered. Roads with higher traffic volumes have a higher frequency of intermittent exposure thanroads with lowertraffic volumes.

Failure Potential. The probability that a tree will fail, which primarily is a function of tree condition. There are three types of failure potential as described in Step 2 of the Field Guide for Danger Tree Identification and Response:

-Low.

-Likely.

-Imminent.

Potential Failure Zone. The area that could be reached by any part of a failed tree (See Step 3 in Field Guide for Danger Tree Identification and Response). It’s generally defined as a circle with a radius of 1 ½ times the tree height or dislodged tree segment plus additional distance for ground slope and tree lean.

Road Maintenance Levels. See FSH 7709.58, Section 12.3 for definitions.

Qualified Person. A person trained to identify danger trees in accordance withthe Field Guide for Danger Tree Identification and Response.

7733.3 - Roadside Danger Tree Management

7733.31 - Roadside Danger Tree Assessment Methodologies

Assessment of danger trees will be done in accordance with the following publications:

  1. Danger trees along roads within developed recreation sites will be classified using Long-Range Planning for Developed Sites in the Pacific Northwest: The Context of Hazard Tree Management, Harvey, R.D.Jr, and Hessburg P.F. Sr, 1992.
  1. Danger trees along roadsoutsidedeveloped recreation siteswill be classified using theField Guide for Danger Tree Identification and Response, Toupin, R. and Barger, M., 2005.

7733.32 - Strategies for Danger Tree Management on Roads.

  1. Apply management strategies as outlined in FSM 7733.04 to provide for the safe operation and use of roads. Minimum road system needed for safe and efficient use of the National Forests is identified in 36 CFR 212.5.
  2. Assessment and mitigation of danger trees along roads are integral to road maintenance planning. Frequency of danger tree assessment is dictated by site specific situations, e.g., traffic volume and Road Management Objectives (RMOs), forest health, burned areas, localized weather events, etc. Conduct assessment for danger trees in conjunction with other work, such as condition surveys, safety audits, watershed restoration projects, timber sale/stewardship projects, and informal inspections.
  3. Assessment Planning - Due to limited funding, a limited number of roads can be evaluated during any given year. To prioritize roads for evaluation, conduct a danger tree assessment. The purpose of the assessment is to rank roads that are being considered for evaluation according to when they will be evaluated. The ranking is to be based on traffic volume and exposure duration(R6 FSM 7733.33). The assessment will be documented.
  4. Implementation Planning - After a road segment is evaluated and classified, a program of work for mitigating the danger trees will be developed and implemented (R6 FSM 7733.33).
  1. Because of limited funding, pursue other funding or treatment sources such as:
  2. Class C chain saw certification training program.
  3. Title II funding.
  4. Commercial timber sale program- Salvage sale or KV funding may be appropriate to use before sale preparation activities commence.
  5. Watershed restoration projects – include felling of trees as a source of woody material if needed for the project
  6. Other funding sources, as appropriate
  7. The National Environmental Policy Act (NEPA) analysis for proposed road construction and reconstruction projects should include dangertree removal as a connected action, and over the life of the road, as a reasonably foreseeable action (including identification criteria and actions). Effects should be disclosed per 40 CFR 1500-1508 and FSH 1909.15. If a road will be closed after a project activity, effects of intermittent opening and thus danger tree management should be included.
  8. Fully utilize existing categorical exclusions in FSH 1909.15 for treatment of danger trees. Most danger tree clearing guidance falls under:
  1. Chapter 31.12, Subsection 4 - Repair and maintenance of roads, trails, and landline boundaries. Project/Case file or Decision Memo are not required
  2. Chapter Part 31.2, Subsection 13 - Salvage of dead and/or dying trees not to exceed 250 acres and 14-Commercial and non-commercial sanitation harvest of trees to control insects or disease not to exceed 250 acres. Project/Case file and Decision Memo are required.
  1. Compliance with the Endangered Species Act (ESA) is required. Close the road if it’s high priority (R6 FSM 7733.33) and danger trees can’t be felled because of a clear ESA compliance concern such as an active nest tree. Danger trees must be felled if there is no discretion to close the road to traffic and the road is identified as high priority. Check if a local programmatic biologic opinion exists that covers this activity.
  2. Contact the Forest Heritage specialist if needed when considering felling of danger trees as there may be a need for additional mitigation to protect cultural assets.
  1. There is more time to plan and execute cost efficient danger tree management programs on road segments identified as medium or low priority. Conduct appropriate planning for management of danger trees along these roads in a timely manner so that alternatives can be analyzed for efficient treatment such as through the commercial timber sale program.
  2. For roadson National Forest System lands managed by other jurisdictions (state, county, etc.), address danger tree management in the easement language or in a Memorandum of Understanding (MOU). Include language for removal of danger trees that are outside of the easement that could reach the travel way or clear zone. Review language in the applicable easement or MOU to determine if NEPA analysis is required.
  3. Timber Sale Contracts, Stewardship Contracts, Road Use Permits – Road systems used by administrative personnel to prepare contracts and permits will be safe for employees to use. It may be necessary to treat roads used for ingress/egress for preparation work to proceed. Consider creating a separate salvage sale if large quantities of danger trees exist along haul routes which have recoverable value.

Haul routes shall be treated for danger trees in pre-haul, during, and post haul maintenance activities so that haul routes are safe for use by purchaser/permittee. Include maintenance specification T-854 for roads authorized for use and include an estimate of the cost of danger tree felling in the maintenance appraisal.

  1. Maintenance Level 3-5 Roads (Joint Use Roads) - Share the cost of danger tree mitigation based on percentage of traffic count attributable to each party’s use (R6 FSH 7709.58, 13). Clearly identify shares and performance responsibilities within the maintenance appraisal.
  2. Maintenance Level 2 Roads - Purchaser/Permittee is responsible for all mitigation of danger trees on haul routes on these roads because administrative and recreation use is minimal (R6 FSH 7709.58, 13).
  1. Public Works Contracts, Special Use Permits - Address mitigation of danger trees in appropriate provisions and clauses as needed.
  2. Wildfires
  3. Agency Administrators shall direct suppression teams to fell danger trees along roads, within their delegation of authority. Fell trees that are judged to be a dangerforfire suppression activities. Suppression teams will leave the road system in a condition that is safe for Burned Area Emergency Response (BAER) teams to conduct their assessments.
  4. Agency Administrators shall direct BAER teams to assess danger trees along roads with their delegation of authority. Apply for BAER funds to fell danger trees along roads during assessment, emergency stabilization, and monitoring activities (FSM 2523 and FSH 2509.13) Fell trees that have a likely or imminent failure potential if their potential failure zone intersects any road associated with BAER projects or assessments. Normally, only those treatments within one year are warranted, but because of the need to maintain the emergency treatments and the required monitoring of the treatments, a three year time frame must be considered at the time of original assessment (FSM 2523.2). BAER teams will have at least one qualified person to assess danger trees.
  5. The use of area closures while allowing employees/contractors/permittees to enter the area during only “low” winds is not supported in the scientific literature. It is not yet possible to predict when imminent failure potential trees may fail as a function of wind speed.
  6. Roads should be left in a condition without trees that have an imminent or likely failure potential if the failure zone will intersect the traveled way or clear zone after suppression and emergency rehabilitation efforts are complete.
  7. Promptly start planning for commercial removal of danger trees along medium and low priority roadsif suppression and BAER activities have not mitigated the hazard and roads will remain open to administrative, commercial, or public traffic. Target removal of danger trees to within two years after suppression. Consider preparing a separate danger tree mitigation salvage sale after wildfires, to mitigate danger trees along roads and clearly link the removal of products to mitigation of the hazard.
  8. Plan for recurrent mitigation of danger trees in road maintenance plans in post-fire areas. Close the road if lack of funding does not allow felling of danger trees along high priority roads (R6 FSM 7733.33).

7733.33-Roadside Danger Tree Priorities

There is insufficient funding to treat danger trees along the entire transportation system. Therefore, developing priorities is necessary to ensure limited resources are allocated towards roads with the highest risks.

Road or road segments will be prioritized for treatmentbased on three primary variables - traffic volume, length of exposure, and tree failure potential. These variables taken together describe the risk to people using the road. Those road segments that receive more use will have higher priority for treatment than those that receive less use. Road segments that carry similar traffic volumes can be prioritized based on length of exposure (Priority Within Road Segment in R6 7733.33 exhibit 1). For example, road segments where people stop and congregate (short and long exposure durations),have a higher risk than those where traffic is passing by (intermittent exposure duration).

Operational maintenance level has been used as a surrogate for traffic volume, sinceactual traffic volumes are rarely available. It is important to remember that roads within operational maintenance level 3-5 can carry differing amounts of traffic. Those roads that carry greater than 50 Seasonal Average Daily Traffic (SADT) are those of primary concern regardless ofmaintenance level.

Assign a priority to the road segment in question as shown in R6 7733.33, Exhibit 1.

7733.33, Exhibit 1, Page 1
Roadside Danger Tree Priorities[1]
Facility / Exposure Duration / Failure Potential / Road Segment
Priority / Priority Within RoadSegment
Areas where people stop and congregate such as:
  • Interior roads of developed recreation sites[2]
  • Parking areas
  • Active projects/contracts along the road where work is stationary such as culvert replacement and bridge construction.
  • Intersections along operational maintenance level 3-5 roads
  • Scenic vistas, geologic points of interest, where people are encouraged to stop
Areas along roads with higher traffic volumes such as:
  • Operational maintenance level 3-5 roads not within intersections. Limited sight distance areas should be evaluated closely, as trees that have failed and are in the traveled way in these areas may be a surprise to drivers.
  • Haul routes during commercial use – Operational maintenance levels 2-5. Level 2 roads are included because of elevated traffic volume during commercial use.
/ Long
Short
Intermittent but High Frequency / Imminent / High / Highest

Lowest

,2

7733.33, Exhibit 1, Page 2
Roadside Danger Tree Priorities[3]
Facility / Exposure
Duration / Failure Potential / Road Segment
Priority / Priority Within RoadSegment
Areas where people stop and congregate such as:
  • Interior roads of developed recreation sites2
  • Trailheads & parking areas
  • Active projects/contracts along the road where work is stationary such as culvert replacement and bridge construction.
  • Intersections along operational maintenance level 3-5 roads
  • Scenic vistas, geologic points of interest, along roads where people are encouraged to stop
Areas along roads with higher traffic volumes such as:
  • Operational maintenance level 3-5 roads not within intersections
  • Haul routes during commercial use – Operational maintenance levels 2-5. Level 2 roads are included because of elevated traffic volume during commercial use.
/ Long
Short
Intermittent but High frequency / Likely / Med / Highest

Lowest
Areas with low traffic volumes such as:
  • Operational maintenance level 2 roads
/ All / Imminent or Likely / Low

7733.34- Management Actions

Roadsegments identified ashigh priorityconstitute a considerable adverse effect on public safety (36 CFR 212.52(b)2) and thus require prompt action. The level of exposure is time-critical and action is not to be delayed to accommodate commercial removal of trees.

Acceptable actions are:

  • Eliminate danger trees for which the potential failure zone includes any portion of the traveled way or clear zone. Schedule work to eliminate danger trees in the areas of highest exposure first.
  • Close the road segment if the hazards can not be eliminated

Roads identified asmedium to low priority are not considered time critical. Strategies utilizing the sale of forest products may be employed to mitigate roadside danger treesalong these roads.

Trees may move from likely to imminent failure potential rapidlydepending on tree condition. Therefore, roads may move from medium to high priority and require prompt action as included in this section.

7733.35- Required Training

Forest supervisors are responsible to ensure that at least one qualified person is available to conduct danger tree assessments. Minimum training shall be:

  • Have completed the class on implementation of the Field Guide for Danger Tree Identification and Response.

If a qualified person is not available and a high priority roadis encountered, the hazards mustbe mitigated in the same manner as in R6 FSM 7733.34.

[1] Applies only to where a trees potential failure zone intersects the traveled way or clear zone of a road. This table does not apply along trails or around buildings.

[2] Interior roads in campgrounds will be evaluated using “Long-Range Planning for Developed Sites in the Pacific Northwest: The Context of Hazard Tree Management”, Harvey, R.D.Jr, and Hessburg P.F. Sr, 1992

[3] Applies only to where a trees potential failure zone intersects the traveled way or clear zone of a road. This table does not apply along trails or around buildings.