FSM 2310 - USDA Forest Service

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                   FSM 2300 - RECREATION, WILDERNESS,
                        WO AMENDMENT 2300-90-1
                              EFFECTIVE 6/1/90


2310.1     Authority
2310.2     Objective
2310.3     Policy
2310.4     Responsibility
2310.41    Director, Recreation Management Staff, Washington Office
2310.42    Regional Forester
2310.43    Forest Supervisor
2310.44    District Ranger
2311.1     Recreation Opportunity Spectrum (ROS)
2311.11    Recreation Opportunity Spectrum Visual and Access Guides
2311.12    Recreation Opportunity Spectrum Subclasses

2312.02    Objective
2312.04    Responsibility
2312.04a   Director, Recreation Management Staff, Washington Office
2312.04b   Regional Forester
2312.04c   Regional Recreation Information Management (RIM) Coordinator
2312.04d   Forest Supervisor
2312.04e   District Ranger
2312.1     System Capability
2313.1     Recreation Coordination in Timber Sale Area Improvement (SAI)
2313.2     Recreation Use of Knutson-Vandenberg (K-V) Funds

2315       RECREATION INVENTORIES (Reserved)
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2310.1 - Authority. Recreation planning on National Forest System lands is an integral
part of Forest land and resource management planning as required by the Forest and
Rangeland Renewable Resources Planning Act (RPA) of 1974, as amended by the
National Forest Management Act (NFMA) of 1976, and described in 36 CFR 219 and
FSM 1920. The specific requirements of recreation resource planning are set forth at
36 CFR 219.21.
2310.2 - Objective. The objective of recreation planning is to inventory, analyze, and
propose levels and types of uses to meet the Nation's outdoor recreation needs as
established through RPA program and assessment, regional guides, and forest plans.
Specific objectives of recreation resource planning are to:
      1. Inventory existing and potential recreation opportunities, determine future need
for those opportunities, analyze the issues and current management situation, and
propose management activities to integrate the recreation needs of the public into
planning for other resource needs.

     2. Determine levels, standards, and types of recreation opportunities needed to
achieve recreation goals and resolve issues and concerns identified in FSM 2300, the
RPA program, regional guides, and forest land management resource plans.

     3. Collect, store, use, and distribute recreation resource inventory data to better
manage the resource and keep managers and the using public aware of the size and
diversity of the Forest Service recreation program.
      4. Coordinate with other Federal, State, and local agencies, and the private sector
in order to avoid competition with the private sector, duplication of recreation facilities
and programs, and land-use conflicts.

2310.3 - Policy. In addition to general planning policy presented in 36 CFR 219.1, FSM
1903, FSM 1920.3, FSM 1922.03, and FSM 2303:

     1. Use the Recreation Opportunity Spectrum (ROS) to establish planning criteria,
generate objectives for recreation, evaluate public issues, integrate management
concerns, project recreation needs and demands, and coordinate management

     2. Use the ROS system to develop standards and guidelines for proposed
recreation resource use and development.

     3. Use the ROS system guidelines to describe recreation opportunities and
coordinate with other recreation suppliers.
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     4. Recognize individual National Forests need not provide recreation opportunities
in each ROS class.

    5. Do not provide urban opportunities with appropriated or other public funds.
Channel urban class provided by private sector funds to private land if available.

2310.4 - Responsibility. This section contains specific recreation planning
responsibilities (FSM 1920.4, FSM 1921.04,
FSM 1922.04, and 36 CFR 219).

2310.41 - Director, Recreation Management Staff, Washington Office. The Director of
Recreation Management, Washington Office, shall ensure that recreation planning is
coordinated with other agencies and Washington Office Staffs involved in land and
resource management planning.

2310.42 - Regional Forester. The Regional Forester with the assistance of Recreation
Management Staff shall coordinate planning activities with external organizations and
other government agencies to establish Regional standards, and ensure the integrity of
the recreation resource in the Forest plan.

2310.43 - Forest Supervisor. The Forest Supervisor with the assistance of the Forest
Recreation Management Staff shall:

     1. Ensure that the recreation resource is integrated into the Forest plan.

     2. Monitor the implementation schedule.

     3. Ensure that Recreation Opportunity Settings (ROS) for recreation opportunities
are presented in the Forest plan.

     4. Assure the availability and accuracy of Forest recreation data.

      5. Recommend recreation representatives to the Forest Supervisor to serve on
interdisciplinary teams.

2310.44 - District Ranger. The District Ranger with the assistance of the District
Recreation staff shall coordinate recreation objectives and road standards (FSM
7721.22); coordinate with the Forest Engineering Staff to assure that access
management strategies are commensurate with recreation experience levels (FSM
7731); and establish and implement the recreation portion of the Forest plan
implementation schedule.

define outdoor recreation setting opportunities to:
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     1. Establish outdoor recreation strategies and supporting standards and

    2. Ensure the proper scale and design criteria of development as explained in
FSM 2330 and FSM 2340.
     3. Support tradeoff analysis of possible recreation opportunities and quality (36
CFR Part 219.21 and Part 219.26 and FSM 1922.12-15).
     4. Monitor the quality of recreation outputs and effects in Forest plan
implementation (36 CFR Part 219.11(d) as defined in each Forest plan).

     5. Identify, analyze, and display recreational access and travel needs and
2311.1 - Recreation Opportunity Spectrum (ROS). Use the Recreation Opportunity
Spectrum (ROS) system and the ROS Users Guide (U.S. Department of Agriculture,
Forest Service. ROS Users Guide. Washington, DC: U.S. Department of Agriculture,
Forest Service; 1982. 37p.) to delineate, define, and integrate outdoor recreation
opportunities in land and resource management planning (FSM 1922.15, item 2).
Recreation integration/coordination provides for integrated management prescriptions
and associated standards to deal with the recreation resource. ROS defines six
recreation opportunity classes that provide different settings for recreational use:
primitive, semi-primitive nonmotorized, semi-primitive motorized, roaded natural, rural,
and urban. Use ROS classes to describe all recreation opportunity areas--from natural,
undisturbed, and undeveloped to heavily used, modified, and developed. Apply the
criteria involving the physical, social, and managerial environments found in the ROS
Users Guide to delineate the different ROS classes of land. Urban class areas are not
normally an appropriate management objective for National Forest lands.
2311.11 - Recreation Opportunity Spectrum Visual and Access Guides. Exhibit 1
presents visual quality guides for each ROS class. Exhibit 2 presents access strategies
for each ROS class.


2311.12 - Recreation Opportunity Spectrum Subclasses. Each Recreation Opportunity
Spectrum class may be divided into subclasses to better reflect local or Regional
conditions. Regions using subclasses shall define subclasses clearly and coordinate
with adjoining Regions. Subclasses must fall within the six major classes for regional
and national data summarization.

Management is the computerized system for gathering and storing National Forest
recreation information for purposes of resource planning, management, and research.
FSH 2309.11, Recreation Information Management Handbook, describes this system in
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2312.02 - Objective. The objectives of the Recreation Information Management system
are to:
      1. Provide for collection, analysis, storage, and retrieval of data on all recreation
sites, areas, and trails of the National Forest System, including their location, capacity,
biological and physical characteristics and condition, and the levels and kinds of use
they support.
    2. Function effectively as the recreation resource subsystem in any Service-wide
management information system.
     3. Provide information for recreation input into the Forest land and resource
planning process in sufficient detail to enable land use planners to appraise tradeoffs
which may result from other land or resource use.
      4. Provide data for the preparation of budget requests and respond to the needs
of the Congress, the Office of Management and Budget, the Department of Agriculture,
and other government agencies.
     5. Provide data for State and local governments, the private sector, including
recreation industries, youth organizations, universities, and travel guide publishers.
2312.04 - Responsibility
2312.04a - Director, Recreation Management Staff, Washington Office. The Director,
Recreation Management Staff, Washington Office shall:
    1. Provide Service-wide leadership and direction for Recreation Information
Management activities (RIM) to ensure quality and uniformity of input and output.
    2. Extract supplemental output to meet unscheduled information needs of
Washington Office, Congress, and other external sources.
2312.04b - Regional Forester. The Regional Forester shall:
     1. Ensure that field personnel are trained in preparing, entering, and editing
Recreation Information Management data (RIM).

      2. Ensure that a Regional Recreation Information Management Coordinator (RIM)
is designated.
     3. Assure the availability of forest recreation data to the national database and to
non-Forest Service users.
2312.04c - Regional Recreation Information Management (RIM) Coordinator. The
Regional RIM Coordinator shall ensure the accuracy and completeness of RIM data
received from the Forest.

2312.04d - Forest Supervisor. The Forest Supervisor shall ensure that the Forest
Recreation Management Staff assembles, edits, corrects, and inputs Recreation
Information Management data into the RIM database on schedule.
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2312.04e - District Ranger. The District Ranger shall ensure that the District Recreation
Management Staff collects Recreation Information Management data accurately and
promptly, and transmits it to the Forest Recreation Management staff.

2312.1 - System Capability. The Recreation Information Management system is
designed to store, retrieve, and manipulate four types of data for any component of the
recreation resource. This data can be summarized by District, Forest, Region, State,
county, or other pertinent grouping. The four types are:

     1. Inventory.

          a. Existing site or area location, description, and condition.

          b. Existing facility or improvement by number, type, location, and condition.

     2. Location of construction, maintenance, and administrative needs.

     3. Measurement, analysis, reporting, and projection of recreation use.

     4. Topography, vegetation, and water relationships.

Place continuing recreation special-use permit data in the land use reporting system
(FSM 2790).

Knutson-Vandenberg Act of 1930, as amended, provides for the protection and
improvement of recreation opportunities through timber sale activities (FSM 6510 and
FSH 2409.19, Renewable Resource Uses for Knutson-Vandenberg (K-V) Fund

2313.1 - Recreation Coordination in Timber Sale Area Improvement (SAI) Plans.
Incorporate recreation-related objectives into timber sale area improvement plans.

2313.2 - Recreation Use of Knutson-Vandenberg (K-V) Funds. Consider the use of K-V
funds to protect and perpetuate visual resources, outdoor recreation activities and
cultural resources. See FSH 2409.19, Renewable Resource Uses for Knutson-
Vandenberg Fund Handbook, section 12 for criteria for recreation projects using K-V
funds and section 16, for examples of uses for K-V funds that meet recreation
operation, and maintenance of recreation facilities associated with lakes created by the
Federal Energy Regulatory Commission, Corps of Engineers, and Bureau of
Reclamation are the responsibility of the licensee.
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The Forest Service may take over area management, on a reimbursed basis, where
analysis establishes that this is the most efficient alternative for public service. Early
involvement by the recreation specialist in these projects is critical.
The Forest Service shall coordinate with other agencies on water resource
developments in the following situations:
      1. Where projects are located within or almost totally within the exterior
boundaries of units of the National Forest System, the Forest Service shall administer
the recreation resources, unless the constructing agency and the Chief of the Forest
Service mutually agree otherwise.
      2. Where projects involve only minor areas within National Forests, both the
development and administration of the recreation resource shall be the responsibility of
the constructing agency (or its designee) unless the constructing agency and the Chief
of the Forest Service mutually agree otherwise.
        3. When projects are not clearly in either of the foregoing categories, appropriate
facilities and services can be planned and implemented by both agencies. In the
interest of efficiency, the agencies may mutually agree that one or the other will
administer the entire recreation resource.
Agreements for joint management must consider:
        1. The jurisdiction of lands required for the water project above the conservation
      2. The impact of the water project on National Forest lands, recreation programs,
including recreation generated by the project and project-related roads.
        3. The capabilities of the agencies.

     4. The desirability of single-agency administration to avoid duplication of Federal
        5. The compatibility of the project with the Forest Plan.

     6. Recreation facility funding availability. (Again, construction and maintenance
funding are the responsibility of the licensee).

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