United States Department of Agriculture National Strategy for a Sustainable Trail System

Forest Service FS-1095b November 2017 Cover. Tonto National Forest, Arizona (Courtesy photo by Simon Cox) Uinta-Wasatch-Cache National Forest, Utah (Forest Service photo) (Forest Utah Forest, National Uinta-Wasatch-Cache Message From the Chief The Forest Service manages the largest trail system in the country, collective priority. Based on input with unparalleled opportunities for people to discover their favorite from trail enthusiasts and from path to the Great Outdoors! Trails connect—they connect people Forest Service employees across with each other, with themselves, with their community, with their the country, we have identified six heritage, with their future, and with their public lands. areas of action for expanding our capacity and improving our Trails benefit individuals, families, communities, and society as a ways of thinking and doing. whole. People of all ages and abilities can get outside, have fun, Taking bold action in each of and explore trails on their public lands, and they can also help care these areas will broaden and for them. Doing all these things adds to the spiritual, mental, and strengthen our approach and physical health and well-being of people who use and enjoy their lead us toward collectively public lands. Trails also generate prosperity for the Nation: visitors delivering and stewarding a to the national forests and grasslands spend over $9 billion annually, sustainable system of trails. Service of the Forest Chief Tooke, Tony and outdoor recreation and tourism supports 143,000 jobs. We have already begun to push beyond how we traditionally think Our role at the Forest Service is to sustain a vibrant and healthy about, manage, and deliver access to public lands. This strategy system of trails, both now and for generations to come. Our goal is to aligns with the USDA Forest Service Strategic Plan: FY 2015– ensure America’s trails are ecologically sustainable and economically 2020 and builds upon the agency’s Framework for Sustainable viable and that people value and support their trails on public lands. Recreation. Forest Service program guidance also emphasizes the To achieve our goal, we are increasingly embracing and building trails strategy as an integral part of high-leverage action areas for upon the innovation and energy of partners, volunteers, friends, offering premier outdoor experiences. agency leaders, and employees—seeking out new relationships and new solutions. Over the next several years, we will embody these principles and carry out the actions outlined in this document to achieve a system With the passage of the National Forest System Trails Stewardship of sustainable trails. Join us! Together, we can ensure a lasting trails Act in November 2016, the time for bold solutions is now. We can legacy for generations to come. harness the energy, talent, and resources of the trails community by sharing stewardship—by making trails and trail management a TONY TOOKE Chief i Areas of Action:

Leader Intent: Cultivate 1 leadership desire for and commitment to a sustainable trail system.

Organization and Talent: Leverage an expanded and combined 2 workforce to increase stewardship capacity.

Relevancy: Connect with diverse 3 communities and trail users.

Sustainable Systems: 4 Collaboratively create and achieve a common vision.

Agency Processes and Culture: Maximize opportunities for effective 5 partnering and trail stewardship.

Information:Provide readily available, up-to-date, and credible trail 6 information.

ii A Call to Action ...... Information ...... Agency Processes andCulture ...... Sustainable Systems ...... Relevancy ...... Organization and Talent ...... Leader Intent ...... Areas of Action ...... Core Values ...... Sustainable Trail System ...... Strategic Intent ...... A Need for Change ...... At aGlance

24 18 16 14 12 10 22 20 8 6 4 1 iii Grand Mesa, Uncompahgre and Gunnison National Forests, Colorado (Courtesy photo by Big City Mountaineers/Devin Powell) Trails connect people with each other, their community, their heritage, and their public lands through an outstanding, valued, and sustainable system of trails.

—Trails Connect! National Initiative launched by the Forest Service in 2014

World-Class System of Trails u 158,600 miles of motorized and nonmotorized trails: 8 31,900 miles in designated wilderness 8 10,000 miles of national scenic, historic, and recreation trails u 84 million people annually recreate on National Forest System trails

Major Economic Contribution ofRecreation on National Forests and Grasslands u 143,000 jobs annually supported by recreation and tourism spending u More than $9 billion in annual visitor spending

iv Custer Gallatin National Forest, Montana (Courtesy photo by Karl Birkeland) by photo (Courtesy Montana Forest, National Gallatin Custer providing andmanagingasustainable system oftrails. future, theForest willincreasingly Service embrace ashared-stewardship approach in organizations (NGOs).Drawing from these valued partner resources now andinto the managed by local, state, federal, andtribalgovernments andby nongovernmental forest orgrassland. National Forest System trails also connect withmany miles oftrails trails annually, andmore than230millionpeoplelive within100milesofanational trails inthecountry. More than84millionpeoplerecreate onNational Forest System 158,000 milesofnonmotorized andmotorized trails—the largest managed system of Together withpartners, volunteers, andfriends,theForest manages more Service than member, shared steward, andkey provider ofaccessto publiclands. benefits ofoutdoor recreation. The agency embraces itsleadership roleasa community reach andexplore theselandsandenjoy themultiplehealth, wellness, andeconomic Well-located andwell-cared-for trails are avital way for visitors andcommunities to caring for peopleby connecting thelandandserving themwiththeirpubliclands. The Forest anagency Service, oftheU.S. Department ofAgriculture, iscommitted to A NeedforChange

1 Flathead National Forest, Montana (Forest Service photo by Roy Jacobson) Achieving a sustainable trail system presents several challenges. With To shift from an unsustainable trail system to a sustainable one, the limited funding, compounded by the rising cost of wildfire operations Forest Service will empower shared stewardship within the trails and the associated decrease of nearly 40 percent in nonfire community to invest in these world-class and diverse trails. personnel, the Forest Service faces a lack of capacity for managing A generation ago, nearly every ranger district had its own trail crew, trails on the ground and for building partnership synergies within the but that is no longer the case. The Forest Service will overcome a trails community. Additionally, visitor use is growing on many national significant reduction in field staff by moving from a model of “doing it forests and grasslands, current and potential trail users are searching all” to a model of shared stewardship in order to achieve mutual goals for more diverse experiences, and many people are disconnected and receive shared benefits. from nature due to an increased focus on technology and digital devices. The Forest Service must embrace these changes and refocus The National Strategy for a Sustainable Trail System establishes a set the way the agency connects people to their public lands. of core values that will guide the behaviors and efforts of the agency and its partners. It also commits the Forest Service to take action in six different areas to meet the challenges of achieving a sustainable trail system. These actions will be reflected in the agency’s annual program of work, and successes will be tracked by the Forest Service’s National Trails Board and in collaboration with partners.

The Forest Service will improve how it manages and provides sustainable trails by using this strategy as a catalyst for change over the next decade.

2 San Bernardino National Forest, California California Forest, National San Bernardino Krogh) Aaron by photo (Courtesy Shifting to a Model of Shared Stewardship ts, esor ts, Shifting from a model of the Forest Service attempting to “do it all” to meet the expectations and needs of trail y Joni o b users and stakeholders, to a model where the tional F ter Naaw ter

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form a collective community of stewards t Seresor

who provide support to and receive ce-Clear d)arackP orest PNe erz shared benefits from trails.

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* Including nongovernmental organizations (Court 3 Strategic Intent one ofAmerica’s greatest legacies. dedication to improve a world-class, diverse trail system as can usethisdocument to strengthen stewardship and employees, partners, volunteers, trail users, andfriends driven andlocally sustainable trail system model.Leaders, community have successfully embraced acommunity- the Forest itspartners, Service, andthegreater trails on themany examples from across thecountry where as awhole,toward shared solutions.This strategy builds many mindsandhandswillmove thetrails community, leader intent. Thecombined effort andmomentum of sustainable change where grassroots initiative meets inspire adifferent way ofthinking—anddoing—to create The strategic intent ofthestrategy isto embrace and 4

Dakota Prairie National Grasslands, North Dakota (Courtesy photo by Curtis Glasoe) Sustainable Change Leader-led change is often initiated with a high level of impact that may wane Change over time. Grassroots-led change often grows slowly, yet must be adopted by leadership to achieve lasting results. Sustainable change is cultivated where leader intent

Scope of ImpactScope meets grassroots initiative and both are infused with regular feedback and support. Time Leader-Led Change Grassroots-Led Change

Adapted from a diagram developed by Blake Leath (c) Copyright 1992-2016 Leath Group, LLC. Permission granted by leathgroup.com. Cibola National Forest, New Mexico New Forest, Cibola National Service photo) (Forest of Florida, Florida Forests National Friend) Sandra by photo (Courtesy Wyoming Forest, National Bridger-Teton Mary by ServiceCernicek) photo (Forest 5 Trail System Sustainable and cultural resources. their publiclandswhileprotecting natural and conserving backgrounds—to enjoy trails andusethemto connect to and invites peopleofallages andabilities—andfrom all and private interests. Thesystem inspires stewardship managed trails that are supported by amosaicofpublic planned, well-designed, well-constructed, andwell- It isaresilient system consisting ofawidearray of well- economic benefits. the-ground routes andassociated community health and physical andsocialresources comprised ofactualon- A sustainable trail system isaholistic network ofdiverse 6

Land Between the Lakes Recreation Area, Kentucky (Forest Service photo by Regina Roby)

El Yunque National Forest, Puerto Rico (Courtesy photo by Meckenzie Helmandollar-Powell) National forestsand grasslandshavemorethan158,000 miles of trails.Thatisahuge resource…ahugeopportunity… ecologically resilient, andeconomically viable. at thejunctionwhere trails are socially relevant andsupported, elements ofasustainable trail system. Sustainability isachieved Social, ecologic, andeconomic considerations are essential Three Spheres ofSustainability and ahugechallenge thatwecannotmeetalone. ­– Former Forest Chief, Service ThomasL.Tidwell 7

Mt. Hood National Forest, Oregon (Forest Service photo) 8 for allpeople,for many generations to come. systems apriorityandensuringpathways to publiclandsremain— values, we lay thefoundation together for makingsustainable trail values to guideourcollective efforts. Byadopting the following core our partners, volunteers, andfriendsto join usinadoptingthese At theForest we Service, are embracing seven core values andinvite Core Values

White Mountain National Forest, New Mt. Baker-Snoqualmie National Forest, Washington Hampshire (Courtesy photo by Northeast (Forest Service photo) Passage/Belson) Safety: We value the safety of trail users, volunteers, partners, and employees and are dedicated to performing our work safely and providing safe trail opportunities for all.

Sustainability: We value the land and will steward a trail system that is relevant to a changing society, is ecologically viable, and that can be sustained by current and potential partner, volunteer, and agency resources.

Commitment: We value the strong traditions, skills, and dedication of our partner, volunteer, and employee workforce and will foster continued growth through training and leadership opportunities. Access: We value the ability of everyone to connect to the outdoors and are committed to providing quality access through a variety of trail settings and opportunities. Inclusion: We value everyone—trail users, partners, volunteers, employees, and friends, regardless of age, ability, or cultural background.

Communication: We value the exchange of information that is up-to-date, accurate, widely available in multiple formats, and relevant to both trail users and those

involved in sustainable trail planning, design, and maintenance. Doten) by Bethany Service photo (Forest South Dakota Forest, Black Hills National Relationships: We value collaborative relationships and are committed to working across jurisdictional and cultural boundaries to maximize diverse skillsets and generate innovative approaches.

9 10 Areas ofActio aspiration Each area posesa action: In achieving asustainable trail system, we face sixareas that require available at http://www.gao.gov/products/GAO-13-618. Reduce Maintenance Backlogand EnhanceSystem Sustainability Forest Trails: Service Long-andShort-Term Improvements Could the 2013Government Accountability Office trail maintenance report: next decade. Theseactions alsoalignwiththe recommendations in Stewardship Challenge andinto ourannualprogram ofwork over the We willincorporate theactionsinto a10-Year Sustainable Trails and cannot beaccomplished allat onceorinsequence. change. We alsorecognize that many oftheactionsare inter-related aspirations will result in expanded capacity andon-the-ground and friends.We expect that progress toward achieving these change at alllevels oftheagency, aswell aswithpartners, volunteers, The aspirations andactions canbe scaled andadapted toinspire these aspirations. resources, we willexpand capacity andcreate thespaceto achieve shifting to amodelofshared stewardship, with combined energy and that transformation isthe capacity ofpeople, resources, andideas. By u u u u u u Information Agency Processes andCulture Sustainable Systems Relevancy Organization and Talent Leader Intent that isachieved through aseriesoffocused challenge that can betransformed into an n actions. Key to

Carson National Forest, New Mexico (Courtesy photo by Jesse Tremaine) 11 trail system. and commitment to asustainable Cultivate leadership desire for 12 Leader Intent for individuals andcommunities. stewards; andgenerating social,environmental, andeconomic benefits means for connecting people to theirpubliclands; fostering citizen Challenge: Aspiration: due to factors suchascompeting prioritiesanddecliningbudgets. Sustainable trail systems have notbeenapriority Agency andpartnerleaders seetrails asaprimary A sustainabletrailsystemstarts —Sam Commarto, District Recreation Officer, Klamath National Fores with leadership. t

Arapaho and Roosevelt National Forests and Pawnee National Grassland, Colorado (Courtesy photo by Francisco Miller) Chugach National Forest, Alaska San Juan National Forest, Colorado (Courtesy (Forest Service photo) photo by The Durango Herlad/Jerry McBride) 1.1 1.5 1.4 1.3 1.2 a sustainable system oftrails. national 10-Year Sustainable Trails Stewardship Challenge toward achieving partners, volunteers, andemployees to develop andimplement abold, anniversary oftheNational Trails System Actin2018asa catalyst, invite leadership incarrying outthisstrategy. Indian tribes,andotheragencies andentities—to contribute shared establishment ofamultipartnergroup— championed by NGOs,academia, Inspire Intent andCommitment: Actions Encourage Shared Partner Leadership: Establish Trails Group: Advisory Apply LeaderIntent Incentives: Implement 10-Year Trail Challenge: including theapplication ofassociated annualperformance expectations. demonstrating andchampioningleaderintent at alllevels oftheagency, stewardship ofasustainable trail system. employees, partners, volunteers, trail users, andfriendsto achieve shared the Chief oftheForest onemerging Service trail issues. Group comprised ofagency employees to give adviceandtimelyinput to

Develop incentives for Establish aTrails Advisory Inspire agency leaders,

Using the50th

Encourage 13 Organization and Talent

Leverage an expanded and combined

workforce to increase stewardship capacity.

Challenge: The current lack of capacity and adequate skillset at Michael Reavis) by vice photo the field level is limiting the Forest Service’s ability to effectively manage and maintain a sustainable trail system and to be a good Flathead National Forest, Montana Montana Forest, National Flathead Ser (Forest partner.

Aspiration: A combined workforce of skilled professionals, technicians, and conveners—comprised of agency employees, partners, and volunteers—is present, actively engaged, and committed to the stewardship of a sustainable trail system.

Chugach National Forest, Alaska Alaska Forest, National Chugach 14 Niebrugge) Ron by Service photo (Forest Apache-Sitgreaves National Forests, Arizona (Forest Service photo by Paul Schilke) 2.1 2.4 2.3 2.2 toward collaborative andinclusive trail stewardship. at alllevels to bothincrease field capacity and to shift temporary employees. and partnertrail program managers, technicians, and development opportunitiesandpathways for agency community by orchestrating recruitment and career Sustain andmaximize talent withinthecollective trails Sustain andMaximize Talent: coordination, and certifications. and techniques; andvolunteer/partner management, and fieldskills,includingtraditional andemerging skills program andinformation management; trail maintenance volunteers that includesthree basicelements: trail offer training for leaders, practitioners, managers, and Champion acollaborative approach to develop and Champion Integrated Training: employees andvolunteers. technical trail management andpartnership facilitation for Identify essential skillsand core competencies for Identify Essential Skills: Program: Evaluate andReorganize Trail Actions Evaluate and reorganize thetrails program

15 and trail users. Connect withdiverse communities Relevancy 16 Nation. partners have astrong unified voice and reflect thedemographics ofthe public lands,andrecognized for theirbenefits to society. Trail users and Aspiration: Challenge: disconnected from publiclandsandtrails inmany places. opportunities andemerging uses,peopleare becoming increasingly obsession withscreen time,as well asagrowing demand for new trail Dueto urbanization, changingdemographics, Trails are widelyvalued, enjoyed, usedto access

Santa Fe National Forest, New Mexico (Courtesy photo by Francisco Miller) Actions

Identify and Communicate Benefits: 3.1 Collaborate with public, tribal, and private partners— including academia and industry—to further identify and

It’s all yours. communicate the local and societal economic, health, and wellness benefits of trails and to encourage broader use and collective support.

Foster Cultural Relevance: Actively listen 3.2 to and engage diverse communities, including the next generation of trail users, to foster trail opportunities and networks that are accessible and relevant to their interests. Support Outdoor Recreation It’s all yours. Tread Lightly! Leave No Trace Center for Outdoor Ethics: www.LNT.org 3.3 Economy: Work with local communities, partners, and industry to understand and leverage how trail systems can support rural and urban economic health Engage and motivate future public land stewards and growth where appropriate and through strategically through programs like Leave No Trace, Tread targeted investments. Lightly!, and National Forest Foundation’s “It’s all yours” campaign. B uild upon Outreach and User 3.4 Ethics Programs: Build upon successful outreach and user ethics programs, including work done by partners and foundations, to engage and motivate future stewards of public lands. Expand Use of Service and Job 3.5 Corp Programs: Expand integration of 21st Century Conservation Service Corps, Job Corps, and similar youth and veteran programs to increase the benefits of trail stewardship. 17 Sustainable Systems common vision. Collaboratively create andachieve a 18 by trail users and communities. maintained, usedfor theirintended purpose,andvalued andsupported Aspiration: Challenge: created trails—drain agency resources. These unsustainable trails—and theproliferation ofunauthorized oruser- designed orlocated andare notbeingusedfor their intended purpose. economically sustainable, includingmany legacy trails that were notwell Many trails are notsocially, ecologically, and Trail systems are sustainably designed,well

Superior National Forest, Minnesota (Courtesy photo by Wilderness Inquiry) Flathead National Forest, Montana (Forest Service photo by Michael Reavis) Apache-Sitgreaves National Forests, Arizona (Courtesy photo by Simon Cox) 4.1 4.5 4.4 4.3 4.2 resources. make sure they are sustainable and supported by adequate stewardship Invite Trail Endowme Assess Proposed Trails: Implement 10-Year Stewardship Plans: Identify Sustainable Trail Systems: Create Shared Understanding Actions the needfor asustainable trail system. the desire for more opportunities for current andemerging trail useswith local trail groups to create ashared understanding ofhow to better balance carry outthisstrategy. funding sources, andinvite contributions to helpleverage resources to community to establish anational trail endowment, pursue nontraditional majority oftrails withassistance from partners andvolunteers. carry outregional-, forest-, ordistrict-level 10-year plansto steward the repurposing, realigning, ordecommissioning existing trails. design principlesandincludingpotential new trails and ways of across unitandjurisdictionalboundaries,incorporating contemporary identify socially, ecologically, andeconomically sustainable trail systems nt:

Evaluate new trail proposals to Advocate withtheNGOandpartner :

Invite national/regional/ Collaboratively

Develop and 19 Agency Processes and Culture

Maximize opportunities for effective partnering and trail stewardship.

Challenge: The Forest Service faces barriers, both perceived and real, to effectively partnering and managing sustainable trail systems. Coronado National Forest, Arizona (Courtesy photo photo (Courtesy Arizona Forest, National Coronado Woodhouse) International/Murphy Nogales by Aspiration: Agency leaders, employees, and partners collectively understand the intent and latitude of laws, regulations, and policies. They use streamlined processes and innovative methods to collaboratively partner in stewarding a sustainable trail system. Tonto National Forest, Arizona Arizona Forest, National Tonto Brandt) Mike by photo (Courtesy

20 Agency Processes and Culture Actions

Remove Barriers: Identify and overcome 5.1 real and perceived barriers to effective partnering and to using nontraditional funding sources, including providing improved communication, additional guidance for discretion in decision-making, and related training.

Provide Efficiency Tools: Identify and develop institutional tools that actively support 5.2 effective partnering—including technical guides, standardized templates, and readily available training materials.

Apply Cross-Program Integration: Identify opportunities to actively integrate between 5.3 agency program areas to meet trail restoration and stewardship objectives. Establish Community of Practice: 5.4 Collaboratively share successes,creative solutions, best practices, and tools through a trails community of practice and network of shared knowledge.

Pike and San Isabel National Forests & Cimarron and Comanche National Grasslands, Colorado Grasslands, Colorado and Comanche National & Cimarron Forests and San Isabel National Pike Rachel Franchina) by photo (Courtesy 21 and credible trail information. Provide readily available, up-to-date, Information 22 used by many people. Aspiration: Challenge: public orofForest fieldpersonnel Service andmanagers. available oreasilyaccessed,anddoesnotfullymeet theneedsof Trail information isincomplete, not consistently Trail information iscurrent, available, useful, and

Lake Tahoe Basin Management Unit, Nevada (Courtesy photo by Ben Fish) Kaibab National Forest, Arizona Custer Gallatin National Forest, Montana (Forest Service photo by Kevin Larkin) (Courtesy photo by Edward Klim) 6.1 6.2 6.3 and readily available trail spatial data. trail information onall Forest units,including accurate Service needs. efficiently meet public,partner, and agency trail information trail databases, requirements, andmanagement tools to Integrate Shared Data CollectionandUse: Actions Meet Data Standards: Improve Data Tools: contemporary approaches. the public,emphasizingopendata, citizen science,andother to collect andshare trail data andinformation that better serve With partners andtrail users, championanintegrated approach

Update andstreamline agency

Meet minimumstandards of 23 A CalltoAction 24

Chugach National Forest, Alaska (Courtesy photo by Abe Schmidt) practices fortheForestServicetrailsystemisnow. and ideas,improvecontemporarytrailmanagement The timetobuildonpastsuccesses,integratenewpartnerships obstacles before them. creativity andingenuity outweigh the are passionate anddedicated, their world are even greater. Whenpeople transform thelargest trail system inthe the opportunities to restore and Although thechallenges are great, achieve asustainable trail system. we can improve ourtrail program and challenges, andembracing change, shared values, acknowledging current external collaborators, buildingon By engaging withinternal and

point. together we have found alaunching we donothave alltheanswers, but souls, andcommunities. We know that continue to feed our hearts,minds, help, thisincredible legacy oftrails will or buildingrelationships. With your or offering resources, buildingbridges meeting room, offering yourenergy you can, whether onthetrail orina We invite you to joinushowever Let’s go! Back cover: Coronado National Forest, Arizona (Forest photo) Service Lolo National Forest, Montana (Courtesy photo by Damien Hoffman) http://www.fs.fed.us/recreation/programs/trail-management/strategy/index.shtml Visit theNational Strategy for aSustainable Trail System Web site: 25 In accordance with Federal civil rights law and U.S. Department of Agriculture (USDA) civil rights regulations and policies, the USDA, its Agencies, offices, and employees, and institutions participating in or administering USDA programs are prohibited from discriminating based on race, color, national origin, religion, sex, gender identity (including gender expression), sexual orientation, disability, age, marital status, family/parental status, income derived from a public assistance program, political beliefs, or reprisal or retaliation for prior civil rights activity, in any program or activity conducted or funded by USDA (not all bases apply to all programs). Remedies and complaint filing deadlines vary by program or incident. Persons with disabilities who require alternative means of communication for program information (e.g., Braille, large print, audiotape, American Sign Language, etc.) should contact the responsible Agency or USDA’s TARGET Center at (202) 720–2600 (voice and TTY) or contact USDA through the Federal Relay Service at (800) 877–8339. Additionally, program information may be made available in languages other than English. To file a program discrimination complaint, complete the USDA Program Discrimination Complaint Form, AD-3027, found online at http://www.ascr.usda.gov/complaint_filing_cust.html and at any USDA office or write a letter addressed to USDA and provide in the letter all of the information requested in the form. To request a copy of the complaint form, call (866) 632–9992. Submit your completed form or letter to USDA by: (1) mail: U.S. Department of Agriculture, Office of the Assistant Secretary for Civil Rights, 1400 Independence Avenue, SW, Washington, D.C. 20250–9410; (2) fax: (202) 690–7442; or (3) email: [email protected]. USDA is an equal opportunity provider, employer, and lender.