Black Hills 

Resilient Landscapes Project

Transportation
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Transportation Report

Black Hills Resilient Landscapes Project

USDA-Forest Service

Black Hills National Forest

Submitted by: 

J. Craig Kjar, Transportation Consultant

Garden City, Idaho

Date: January 16, 2017
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Contents

Introduction........................................................................................................................... 1

Project Area Description....................................................................................................... 1

Purpose and Need ................................................................................................................. 1

Relevant Issues...................................................................................................................... 2

Proposed Action Summary ................................................................................................... 2

1. Fuel Reduction and Prescribed Fire........................................................................ 2

2. Enhancement of Non-pine Vegetation and Within-stand Diversity....................... 2

3. Pine Structural Stage (SS) Modification ................................................................ 3

4. Summary of Proposed Activities............................................................................ 3

Design Features..................................................................................................................... 5

Regulatory Framework ....................................................................................................... 11

1. Authority............................................................................................................... 11

2. Regulations........................................................................................................... 11

3. Other Authorities.................................................................................................. 11

Information Sources............................................................................................................ 12

Existing Transportation System.......................................................................................... 12

Proposed Transportation System ........................................................................................ 15

1. Road Activity and Cost......................................................................................... 16

2. Management and Maintenance............................................................................. 18

3. Desired Conditions............................................................................................... 19

Analysis Methodology........................................................................................................ 20

Analysis Assumptions......................................................................................................... 21

Forest Plan Compliance ...................................................................................................... 22

Effects................................................................................................................................. 24

1. Project effects to the road system......................................................................... 24

2. Motorized Recreation Effects............................................................................... 25

3. Public Safety......................................................................................................... 27

Cumulative Effects.............................................................................................................. 27

Monitoring .......................................................................................................................... 29

Bibliography ....................................................................................................................... 30
List of Figures

Figure 1. Potential New and Temporary Roads...................................................................... 17

List of Tables

Table 1. Management Areas and Acres.................................................................................... 1

Table 2. Summary of Proposed Activities................................................................................ 4

Table 3. Miles of Road by Jurisdiction................................................................................... 13

Table 4. Miles of National Forest System Road by Maintenance Level in BHRL ................ 13

Table 5. Miles of Road and Trail by MVUM Designation..................................................... 14

Table 6. New Road Construction............................................................................................ 18

Table 7. Cost Estimate for Project Roads............................................................................... 18

Table 8. Project compliance with Forest Plan ........................................................................ 22

Table 9. Roads and Motorized Trails Open to the Public in BHRL....................................... 26

Table 10. Monitoring .............................................................................................................. 29

Appendix A – Road Definitions and Descriptions

Appendix B – Effects Analysis

Appendix C – Road Cost Estimate
Introduction

This report presents information about an analysis of the portions of Black Hills National 

Forest transportation system affected by the Black Hills Resilient Landscapes Project

(BHRL). The report supports the Environmental Impact Statement.

Project Area Description

The project area includes National Forest System lands that are managed by the Black Hills 

National Forest within the areas designated by the Secretary of Agriculture under the 

amended Healthy Forests Restoration Act (HFRA, 16 U.S.C. 6591), excluding Inventoried 

Roadless Areas and certain management areas. The project area includes approximately 

1,098,000 acres of National Forest System lands. 

The project area includes the following management areas (MAs). 

Table 1. Management Areas and Acres

MA Emphasis Acres* Proposed 

activities

3.31 Backcountry motorized recreation 6,870 Fuels/hazard 

trees

3.32 Backcountry non-motorized recreation 8,948 Fuels/hazard 

trees

3.7 Late succession landscapes 18,484 Fuels/hazard 

trees

4.1 Limited motorized use and forest 

products

41,374 All

5.1 Resource production 558,520 All

5.1A Southern Hills forest and grassland 27,845 Fuels/hazard 

trees

5.2A Fort Meade VA Hospital watershed 3,299 Fuels/hazard 

trees

5.4 Big game winter range 388,950 All

5.43 Big game and resource production 10,083 All

5.6 Forest products, recreation, and big 

game

34,043 All

*MA acres in project area Total 1,098,425

Purpose and Need

The Black Hills National Forest is proposing actions to move landscape-level vegetation 

conditions in the project area toward objectives of the Forest Plan in order to increase

ecosystem resilience to insect infestation and other natural disturbances, contribute to public 

safety and the local economy, and reduce risk of wildfire to landscapes and communities. 
Page 2 Black Hills Resilient Landscapes Project Transportation Plan

Relevant Issues

Public comments resulted in the following issues relevant to the analysis.

1. Proposed timber harvest and fuel reduction could negatively affect scenery, particularly in 

combination with recent timber harvest and mountain pine beetle infestation. Indication 

of the project’s response to this issue is reflected by the degree of achievement of 

scenic integrity objectives.

2. The Proposed Action includes ground-disturbing activities that could increase 

noxious weed infestation. Added to the effects of a wide variety of past and ongoing 

activities, this could increase costs of weed treatment and displace desirable plant 

communities. Indicators of the project’s response to this issue include projected 

acreage of weed infestation and cost of treatment.

3. Timber harvest could reduce landscape-level structural diversity by creating or 

perpetuating large, monotypic stands. Indication of the project’s response to this issue 

is reflected by degree of progress toward Forest Plan structural stage objectives over a 

20-year time frame.

Proposed Action Summary

The Forest Service is proposing to conduct the following land management activities in the 

project area, starting in approximately 2018 and continuing for about 10 years.

1. Fuel Reduction and Prescribed Fire

To increase ecosystem resilience and reduce wildfire hazard to landscapes and communities, 

the proposal includes mechanical fuel treatments (up to 7,000 acres per year), prescribed fire 

(up to 10,000 acres a year), and hazard tree removal. Total acres implemented annually 

would depend on budget constraints and, for prescribed burning, weather conditions. Priority 

criteria for treatment include wildland-urban interface (specifically, within one-half mile of 

at-risk communities and within 300 feet of other private property) and areas adjacent to 

egress roads and critical infrastructure. 

Activities described in the following sections (precommercial thinning, removing 

encroaching pine, etc.) also would contribute toward fuel reduction goals.

2. Enhancement of Non-pine Vegetation and Within-stand Diversity

The project would cut encroaching pine from areas of hardwoods and grasslands. Pine and 

spruce removal from aspen stands would take place on up to 6,000 acres. On up to 30,900 

acres of pine stands, pine and spruce would be removed from aspen inclusions. Regeneration 

of declining aspen stands would occur on up to 4,000 acres. Pine removal from oak stands 

would take place on up to 5,400 acres. Pine would be cut from encroached grasslands on up 

to 14,200 acres. Uneven-age management would occur on up to 10,000 acres of SS 4A

stands.
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3. Pine Structural Stage (SS) Modification

These activities would occur in MAs 4.1, 5.1, 5.4, 5.43, and 5.6.

Overstory removal would occur on up to 185,210 acres of SS 4A stands. This treatment 

would decrease 4A and increase younger structural stages, which are generally below Forest 

Plan objectives. Precommercial and/or POL thin would occur on up to 25,000 acres per year 

to increase SS 3A and 3B and to promote growth toward 4B.

Patch cuts would occur on up to 1,300 acres in MA 4.1 and 600 acres in MA 5.6. This 

treatment would produce SS 1, which is below Forest Plan objectives in these MAs. Tree 

planting would occur on up to 5,000 acres per year in large burned areas in the southern 

Black Hills. Without planting, reforestation of these areas may require decades.

Mechanical site preparation would occur in open, mature pine stands on up to 4,000 acres in 

the western Black Hills where thick sod hinders establishment of pine seedlings. This action 

would expose soil, creating conditions favorable for establishment of pine.

4. Summary of Proposed Activities

Maximum activity acres and road miles are displayed in Table 2. The amount implemented 

may be less.
Page 4 Black Hills Resilient Landscapes Project Transportation Plan

Table 2. Summary of Proposed Activities

Fuel and hazard tree treatments

Mechanical and manual fuel treatments (shaded fuel break 

construction; thin, pile, and burn fuels; scatter, shred, or chip fuels; 

cut, lop, and scatter fuels); includes up to 4,000 acres of shaded 

fuel breaks with commercial removal

70,000 acres (7,000 acres 

per year)

Prescribed fire 100,000 acres (10,000 

acres per year)

Hazard tree treatments As needed and funded

Hardwood and grassland enhancement

Removal of pine/spruce from aspen stands 2,400 acres

Regeneration of aspen stands 4,000 acres

Removal of pine/spruce from aspen inclusions (possibly 

commercial) 22,500 acres

Removal of pine/spruce from aspen inclusions (non-commercial) 8,400 acres

Removal of encroaching pine from oak stands 5,400 acres

Removal of encroaching pine from grasslands 14,200 acres

Uneven-age individual tree selection or group selection

As stand conditions allow 

(max.10,000 acres, out of 

the 185,210 acres below)

Pine structural stage modification

Overstory removal

By management area:

MA 4.1: Approximately 7,670 acres 

MA 5.1: Approximately 129,890 acres 

MA 5.4: Approximately 41,210 acres 

MA 5.43: Approximately 250 acres

MA 5.6: Approximately 6,190 acres 

185,210 acres

Precommercial and/or POL thin 250,000 acres (25,000 

acres per year)

Patch cut

By management area: 

MA 4.1: 1,300 acres

MA 5.6: 600 acres

1,900 acres

Tree planting (MAs 5.1, 5.4, and 5.43) 5,000 acres

Mechanical site preparation 4,000 acres

Connected actions

Road construction – New NFSR 18 miles

Road construction – Temporary 39 miles 

Temporary roads on unauthorized routes 182 miles 

Road conversion (unauthorized to system) 20 miles (part of 182 miles above)

Road maintenance 2,500 miles (estimated)

Road reconstruction 375 miles (estimated)
Black Hills Resilient Landscapes Project Transportation Plan Page 5

Design Features

The following documents provide guidance for implementation of vegetation management 

projects and are incorporated by reference.

 BHNF Forest Plan, as amended (USDA Forest Service 2006a)

 Forest Service Handbooks and Manuals (directives; https://www.fs.fed.us/aboutagency/regulations-policies) 

 Black Hills National Forest 2003 Noxious Weed Management Plan (USDA Forest 

Service 2003)

 National Best Management Practices for Water Quality Management on National 

Forest System Lands (USDA Forest Service 2012b)

 South Dakota (SDSU 2003) and Wyoming (WSFD and WYDEQ 2006) Forestry Best 

Management Practices 

The above documents contain standard design features that apply to this project. These 

standard design features are not repeated in this document unless the proposal would in some 

way strengthen or clarify them. Parties responsible for implementation of proposed activities 

would coordinate activity layout and design with managers of affected resources.

All proposed activities would be implemented in accordance with the following projectspecific design features.

1. Noxious Weeds

a. Ground-disturbing and ground-exposing activities would generally be prohibited in 

the immediate area of noxious weeds identified as a priority species by the noxiousweed specialist on the relevant Ranger District. This measure also applies to invasive 

species new to the Black Hills. “Priority species” are noxious weeds that typically 

occur in relatively small infestations on a Ranger District and have a high potential 

rate of spread. “Immediate area” means the infestation site and a reasonable buffer if 

determined necessary by a noxious-weeds specialist. Operations may occur over 

snow and in other circumstances if practicable and as determined to be acceptable by 

a noxious-weeds specialist.

b. If infestations of priority weed species are discovered during project activities, 

ground-disturbing actions would cease within 50 feet of the infestation. A Forest 

Service noxious-weeds specialist would be consulted before activities are resumed. 

c. Herbicide application would not occur within 200 feet of fens. 

2. Scenery

a. Management would strive to maintain or create a variety of scenic conditions.

b. Treatment areas would be designed to maintain natural-appearing transitions between 

the treated area and adjacent stands, where possible. 

c. Width of highly visible fuel breaks would vary

d. Within 300 feet of federal, state, and county roads, recreation sites, and nonmotorized trails:

i. Log landing piles and other slash piles created using heavy equipment would be 

located to minimize effects on scenery visible from these areas. Piles would be 

placed as far from these roads and trails as possible without unreasonably 

constraining the vegetation management activity and would be burned or 
Page 6 Black Hills Resilient Landscapes Project Transportation Plan

otherwise removed in a timely manner.

ii. Disturbed areas (landings, temporary roads, skid trails, forwarder trails, etc.) 

would be returned to a natural appearance.

iii. Slash would be reduced to natural-appearing levels.

3. Forest Structural Diversity

a. Activities would not occur in late succession forest (SS 5) unless they would maintain 

or enhance late succession characteristics. Allowed activities would include broadcast 

prescribed fire, piling and burning fuels, and precommercial thin.

b. In management areas where mature, moderately dense to dense pine stands (structural 

stages 4B and 4C) are below Forest Plan objectives, these stands would not be treated 

in a way that changes overall stand structural stage except in shaded fuel breaks. Fuel 

managers and silviculturists would design shaded fuel breaks in SS 4B/4C stands in 

coordination with a Forest Service wildlife biologist. Other activities allowed in these 

stands would include manual and mechanical fuel treatments, prescribed fire, hazard 

tree removal, and precommercial thin. These stands are not potential CTAs. 

c. Potential CTAs are mature pine stands with canopy cover of mature trees ranging 

from 10 to 39 percent (SS 4A). Where canopy cover is at the high end of the range, 

transition to moderately dense, mature conditions (SS 4B) is likely to occur. 

Therefore, one-third of the stands with 35 to 39 percent canopy cover would be 

retained to provide future SS 4B. 

d. Silviculturists and wildlife biologists would assess open, mature pine stands (SS 4A) 

that possess field-verified late succession characteristics, including those of the open 

savannah type, and provide the District Ranger with a recommendation of whether 

treatment is needed and appropriate to move these stands toward late succession 

(SS-5). These stands may be potential CTAs. 

e. In MAs 5.4 and 5.43, no open, mature pine stands (SS 4A) with an average tree size 

of “very large” would be cut. In MA 5.1, no more than 24,000 acres of 4A pine stands 

with an average tree size of “very large” would be cut. These stands may be potential 

CTAs. 

4. Wildlife

a. When human life and/or property are not in immediate danger and when practicable, 

hazard trees with characteristics preferred by northern long-eared bat (large diameter, 

cavities/crevices, and/or loose bark) would not be removed during the bat’s maternity 

season (June 1 – August 15). 

b. Known northern long-eared bat maternity roost trees would not be cut or removed.

c. Management activities within 150 feet of a known northern long-eared bat maternity 

roost tree would be coordinated with a Forest Service wildlife biologist prior to 

implementation.

d. Annual surveys to determine if raptor (except bald eagle) nests are active would not 

occur prior to June 1 to avoid/minimize disturbance of breeding birds that may result 

in nest abandonment or reduced reproductive success.

5. Hydrology

a. No new, permanent roads would be constructed in Newton Fork, Slate Creek, 

Victoria-Rapid Creek, Headwaters Spring Creek, Newton Fork-Spring Creek, or 

Sheridan Lake-Spring Creek watersheds unless a Forest Service hydrologist 
Black Hills Resilient Landscapes Project Transportation Plan Page 7

determines that the road can be constructed without further decline in watershed 

conditions. 

b. The aquatic management zone (AMZ) is the area within 100 feet of each side of 

perennial and intermittent streams, 100 feet of wetlands, springs, and stream sinks, and 

100 feet of each side of ephemeral streams for 500 feet upstream from their 

intersection with perennial and intermittent streams. 

c. Construction of permanent and temporary roads would be minimized in AMZs 

associated with perennial and intermittent streams. Where road construction in these 

areas is necessary, transportation engineers and sale administrators would coordinate 

design and construction with a Forest Service hydrologist. Construction of roads and 

machine-created prescribed fire control lines would not occur in AMZs associated 

with wetlands (including fens), springs, or stream sinks. Mechanical site preparation 

would not occur in AMZs.

d. In AMZs associated with fens:

i. No wheeled or tracked equipment would enter the AMZ. 

ii. Treatment would be limited to manual felling of trees and would require 

assessment by a Forest Service botanist prior to implementation. All woody 

material would be removed from the fen manually, causing as little disturbance to 

soil and vegetation as possible. 

e. During timber harvest in AMZs not associated with fens:

i. Landings would not be placed in AMZs. Skid trails would not be placed in the 

inner half of the AMZ (0-50 feet from the stream, wetland, or spring). Skid trails 

may be placed in the outer half of the AMZ (50-100 feet from the stream, 

wetland, or spring) if long-term stream health and riparian ecosystem condition 

are maintained (riparian vegetation is protected, stream shading is protected, 

stream banks are protected, and no or minimal sediment reaches stream). Skid 

trails in the AMZ may not run parallel to the stream. A Forest Service hydrologist 

would be consulted regarding these skid trails and would monitor their effects. 

ii. Mechanized equipment may operate in AMZs if long-term stream health and 

riparian ecosystem condition are maintained (riparian vegetation is protected, 

stream shading is protected, stream banks are protected, and no or minimal 

sediment reaches stream). 

iii. AMZs around stream sinks would be protected during timber harvest and other 

ground-disturbing activities. 

f. Other:

i. Skid trails, temporary roads, landings, and slash would not be placed in 

ephemeral streams unless approved by a Forest Service hydrologist. 

ii. Ground-disturbing activities would avoid karst features by a minimum of 100 

feet.

iii. Spring Creek does not meet beneficial uses due to total suspended solids. 

Watersheds containing Spring Creek include Headwaters Spring Creek, Newton 

Fork-Spring Creek, and Sheridan Lake-Spring Creek. No new road crossings of 

perennial or intermittent streams would be constructed in these watersheds 

unless a Forest Service hydrologist determines that no or very minimal sediment 

would be added to the creek.

iv. Victoria Creek does not meet beneficial uses due to temperature. A Forest 
Page 8 Black Hills Resilient Landscapes Project Transportation Plan

Service hydrologist would review activities in AMZs in the Victoria Creek 

watershed during the design phase to ensure stream shading is not reduced.

v. Water body impairment is periodically reassessed by the States. If impairment 

status of a given water body changes during project implementation, a Forest 

Service hydrologist would determine whether additional protective measures are 

needed.

6. Soil disturbance assessments would be completed prior to mechanical site preparation. 

Soil disturbance assessments would also be completed prior to other activities when there 

are specific concerns regarding soils (high hazard rating for erosion, soil rutting, 

compaction, etc.).

7. To the maximum extent practicable, heavy equipment would be kept out of streams 

during fish spawning, incubation, and emergence periods to prevent the mobilization 

and/or input of sediment. Species-specific timing considerations and streams include: 

a. Finescale dace: June 1 through July 15. Cow Creek/Redwater Creek (upstream of 

Hemler Reservoir/Dam, Wyoming).

b. Mountain sucker: June 1 through July 15. In South Dakota: Battle Creek, Bear Butte 

Creek, Boxelder Creek, Castle Creek, Elk Creek, Flynn Creek, French Creek, Horse 

Creek, Meadow Creek, North Fork Rapid Creek, Rapid Creek, Slate Creek, Swede 

Gulch and Whitewood Creek. In Wyoming: Beaver Creek, Lytle Creek, and North 

Redwater Creek.

c. Brook/brown trout: October 15 through April 1 in coldwater streams as designated by 

the states of South Dakota and Wyoming.

d. Rainbow trout: April 15 through July 31. Castle Creek (upstream of Deerfield 

Reservoir)/South Fork Castle Creek.

8. Where it can be effectively implemented, conifers that would not be removed 

commercially from aspen clones would be partly cut, leaving the sections connected by a 

hinge three to four feet above the ground, to create a barrier to ungulates. If conifers are

not available to create a barrier, mature aspen may be hinged around the perimeter in the 

same manner. If insufficient trees are available or visual effects of this method would be 

unacceptable, temporary fencing may be installed to prevent browsing. 

9. For fuel reduction reasons, the primary yarding method in WUI and adjacent to open 

roads and critical infrastructure would generally be whole-tree unless prohibited to 

protect other specific resources. Away from these features, weed infestation potential, 

soil nutrient retention, and other resource factors would be considered when designating 

yarding method. 

10. Rare Plant Sites

a. Mechanical site preparation would not occur within 100 feet of known rare plant 

sites. 

b. If dust abatement is needed within 500 feet of fens or known rare plant sites, neither 

magnesium chloride nor calcium chloride would be used. 

11. Historic properties would be identified and managed as per stipulations in Section 106 of 

the National Historic Preservation Act or stipulations in programmatic agreements 

developed in collaboration with the Wyoming and South Dakota State Historic 

Preservation Officers and interested American Indian Tribes. Programmatic agreements 
Black Hills Resilient Landscapes Project Transportation Plan Page 9

provide alternate procedures (pursuant to 36 CFR §800. 14(b)) by which the BHNF will 

meet its National Historic Preservation Act Section 106 mandates regarding the 

identification of historic properties, determination of site significance, and assessment of 

potential adverse effects. These Programmatic Agreements also contain direction 

regarding consultation requirements, procedures in the event of unexpected discoveries or 

inadvertent effects, how to resolve disputes, and what process to follow in the event that 

adverse effects cannot be avoided. 

12. To meet Standard 1203 regarding aquatic organism passage, structures installed at roadstream crossings would: a) maintain a stream channel which is equal to or greater than 

the bankfull width of the adjacent upstream and downstream reaches, b) contain natural 

stream substrate throughout the length of the structure, and c) in the case of culverts, 

avoid perched outlets. 
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Black Hills Resilient Landscapes Project Transportation Plan Page 11

Regulatory Framework

The forest roads are subject to a system of laws, regulations and technical directives. Only a

few of those are applicable to this report.

1. Authority

These two laws provide the basic authorities for the roads discussed in this report:

The National Forest Roads and Trails Act of October 13, 1964, as amended (16 U.S.C 522-

538) authorizes road and trail systems for the National Forests. The act authorizes 

construction and financing of roads including imposition of requirements on road users for 

maintaining and reconstructing roads including cooperative deposits for that work. 

The National Forest Management Act of 1976 (16 U.S.C. 1608) directs that roads be 

designed to standards appropriate for their intended uses and requires revegetation of 

temporary roads authorized under a contract, permit, lease, or other written authorization 

within 10 years of termination of the written authorization. The written authorization can 

specify a shorter time.

2. Regulations

The following sections of the Code of Federal Regulations apply to roads for the purpose of 

this report.

Sale and Disposal of National Forest System Timber (36 CFR Part 223). These regulations 

govern road construction related to Forest Service timber sale appraisals and contracts.

Travel Management (36 CFR Part 212, Subparts A, B, and C). Subpart A of these 

regulations establishes requirements for administration of the Forest transportation system, 

including roads, trails, and airfields, and contains provisions for acquisition of rights-of-way. 

Subpart A also requires identification of the minimum road system needed for safe and 

efficient travel and for administration, utilization, and protection of National Forest System

lands and use of a science-based roads analysis at the appropriate scale in determining the 

minimum road system. Subpart B describes the requirements for designating roads, trails, 

and areas for motor vehicle use and for identifying designated roads, trails, and areas on a 

motor vehicle use map (MVUM). Subpart C describes the requirements for designating 

roads, trails, and areas for over-snow vehicle (OSV) use and for identifying designated roads, 

trails, and areas on an OSV use map (OSVUM). 

3. Other Authorities

Various sections of the Forest Service Manuals (FSM) and Handbooks (FSH) apply to road 

construction and management. These sections include FSM 7700 and FSH 7709 and FSH 

2409.

Construction specifications are developed using Federal Highway Administration standards

and Forest Service Supplemental Specifications. The construction specifications contain 

detailed requirements for the construction of each road.
Page 12 Black Hills Resilient Landscapes Project Transportation Plan

Information Sources

The following information was used in this analysis:

 Black Hills Forest-Wide Travel Analysis Report September 2007

 Black Hills Travel Management Plan Record of Decision May 7, 2010

 Black Hills Geodatabase Road Feature Class September 6, 2016

 Infra Roads Database September 6, 2016

 Black Hills National Forest Cost Estimating Guides for Construction and 

Maintenance

 Bureau of Labor Statistics Consumer Price Index – All Urban Consumers

 See the Bibliography for publications

Existing Transportation System

The existing transportation system of National Forest System Roads (NFSR) is a result of 

historic management and utilization of the forest. The forest has been extensively managed 

for timber production, grazing, mining, big game hunting, wildlife, insect and disease risk, 

fuels, and recreational uses that include hiking, horseback riding, mountain bike riding, 

hunting, off-road vehicle use, and snowmobiling. In addition, there are over 300,000 acres of 

non-federal land within the forest boundary that are accessed by the transportation system. 

The transportation system is subject to legal requirements for land ownership and right-ofway (ROW). The roads across the National Forest under the jurisdiction of others are issued 

permits or ROW to cross federal land under authorizations by Congress. Where the NFSR 

cross private land or land owned by other public entities, ROW must be obtained by the 

Forest Service prior to road construction. No road improvements can be made by the Forest 

Service on private land without a ROW. This restriction can limit access to portions of the 

forest if a ROW cannot be obtained.

Table 3 shows the categories of the road systems both inside and outside the forest boundary 

that provide a seamless transportation network for the surrounding area. Each system

maintains roads for public purposes, but not all roads are open to use by the public. State 

road systems are the major highways. The county road systems provide public access to 

private land and to the adjacent National Forest land. Local and private roads are managed by 

individuals or groups of individuals to provide access to private land and often exclude 

public use.
Black Hills Resilient Landscapes Project Transportation Plan Page 13

Table 3. Miles of Road by Jurisdiction

Jurisdiction Total Miles Miles in BHRL

National Forest System 5,226 4,831

Other Federal 2 2

State 755 219

County 746 441

Local 9 6

Private 594 381

Total 7,332 5,880

The NFSR provide long-term access for management activities including public use of the 

forest. There are five maintenance levels for NFSR commensurate with their design and 

function. The maintenance levels range from two-lane paved roads to single-lane native 

surface roads as defined in Appendix A.

In addition to the roads in Table 3, there are 1,420 miles (1,095 miles in BHRL) of

unauthorized routes that have been inventoried by the Forest Service. The unauthorized 

routes are not part of the system of roads maintained by any jurisdiction. The routes were 

traveled by vehicles at some time, but are not included in the minimum road system. The 

routes are not available for motorized use and have not been determined to be necessary for 

future management of the forest. Three possible reasons for these routes are:

 The routes are a result of many vehicles driving in the same place.

 The routes were roads at one time, but were closed in a way that allowed people to 

continue to drive on them.

 The routes were temporary roads constructed for removal of timber and never 

effectively rehabilitated and people continued to drive on them.

The NFSR are further categorized by maintenance level (ML). ML 1 roads are in storage 

until needed for future management and are closed to all motorized use. The ML 2, ML 3,

ML 4, and ML 5 roads are currently in use for management of the forest including public 

access. 

Table 4. Miles of National Forest System Road by Maintenance Level in BHRL

Maintenance Level Miles Percent

ML 5 0 0

ML 4 104 2

ML 3 489 10

ML 2 2297 48

ML 1 1941 40

NFSR Total 4831 ---
Page 14 Black Hills Resilient Landscapes Project Transportation Plan

The transportation system that is intended for public motorized travel was established by the 

Travel Management Plan Record of Decision (ROD) signed on May 7, 2010. The ROD 

designated certain roads and trails as open to public motorized vehicle traffic on lands 

administered by the Forest and also assigns a class of vehicle and season of use to these 

designated roads or trails in accordance with Travel Management Regulation 36 CFR 212 

Subpart B. Motorized trail designations in the ROD were the result of either changing an 

existing NFSR to a Forest System Trail, or converting an unauthorized route to a system trail. 

Some NFSR were also changed from the status of “highway legal only” to “mixed use” (also 

referred to as roads open to all motorized uses). Implementation began in December 2010 

with publication of the first Motorized Vehicle Use Map (MVUM). The current MVUM is 

dated January 1, 2017, and displays 3,045 miles of NFSR open to motorized travel by the 

public. An additional 658 miles of designated motorized trail, some of which is coincident 

with NFSR, are open to users with trail permits. Table 5 displays the current road and trail 

designations.

Table 5. Miles of Road and Trail by MVUM Designation

Designation

BHRL

Yearlong

BHRL

Seasonal

BHRL 

Total

BHNF 

Total

Roads Open to Highway Legal 

Vehicles Only

1555 848 2,403 2,556

Roads Open to All Vehicles 356 115 471 489

Trails Open to All Vehicles 61 93 154 154

Trails Open to Vehicles 50” or Less in 

Width (Wyoming)

0 72 72 72

Trails Open to Vehicles 62” or Less in 

Width (South Dakota)

203 144 347 347

Trails Open to Motorcycles Only 46 39 85 85

Total 2,221 1,311 3,532 3,703

Road conditions vary throughout the project area. In areas of active and recent timber sales, 

the roads meet maintenance standards due to the ongoing or recent maintenance activities by 

the timber purchaser. The Forest Service also performs or contracts road maintenance for 

ML-3 and ML-4 roads on an annual basis and on a portion of ML-1 and ML-2 roads on a 

five-year rotation. Any road may not meet maintenance standards if it has not received 

maintenance recently or there has been damage since the last maintenance. Segments of 

roads may be damaged easily because they are located in or across drainage bottoms or other 

wet areas. These road segments may not drain properly and may be contributing to sediment 

movement due to lack of recent maintenance of drainage features. Some road sections that 

cross drainages may not have a hardened surface or a proper design through the crossing and 

portions may have steep grades which will show evidence of road rutting and surface 

material loss. Numerous roads may have small-diameter trees growing within the roadway

clearing limits which restrict sight distance and road width. Roads that do not meet standards 

are identified by reports from forest employees, reports from the public, scheduled reviews, 
Black Hills Resilient Landscapes Project Transportation Plan Page 15

or other means and scheduled for maintenance or proposed for reconstruction in a future 

project.

Proposed Transportation System

The proposed transportation system for the Black Hills Resilient Landscapes Project would 

primarily use the existing transportation system. Where additional access is needed to 

proposed treatment areas there will be a choice to construct temporary roads or new NFSR. 

Any proposed NFSR would be reviewed to determine whether they should be included as 

part of the minimum road system informed by a travel analysis as required by Travel 

Management 36 CFR 212 Subpart A. Information used to determine the minimum road 

system will consider 1) support the proposed management activities and future transportation 

needs and 2) meet requirements for protection of resources as discussed in other specialist 

reports for this project. There are five activities proposed to provide the roads and 

improvements needed to access treatment areas:

 Maintenance of existing roads to continue their function as designed.

 Reconstruction of existing roads where necessary to meet design standards and 

resource protection requirements.

 Construction of new roads which become part of the minimum road system.

 Construction of temporary roads which are obliterated, and the area rehabilitated after 

use.

 Construction for conversion of unauthorized routes to the minimum road system.

Maintenance of the existing road system would be performed before, during, and after 

commercial treatments to assure the road system is functioning as designed. This assures the 

road would be safe for vehicle traffic, and the features that protect resources (such as 

drainage systems) are functioning properly. Road maintenance would be the responsibility of 

the purchaser and would be monitored by the Forest Service.

Reconstruction of some roads may be necessary to improve them to a standard that would

accommodate logging trucks and protect resources along the road corridor. Reconstruction 

can include work along the existing road prism such as surface improvements, road and 

curve widening, turnouts, drainage structures, or other features to improve safety. 

Reconstruction can also involve relocation of the road. Some reasons to relocate roads 

include: 1) protect resources (usually riparian) or 2) improve alignment or 3) correct trespass 

issues, or 4) slope stability. The relocations would be identified by specialists as the routes 

for each treatment area are determined. Road designs would take into account the individual 

resource needs.

Construction of new NFSR may be necessary to access some areas. Reasons to construct a 

new NFSR would include need for technical construction methods to protect resources, large

volume of timber to be hauled, resource protection requirements, or need to access the area

for future management after removal of timber. When a new NFSR is proposed, a travel 

analysis is required using all specialist input to inform the decision regarding whether a new 

NFSR is needed for the minimum road system. The analysis will be documented and will 
Page 16 Black Hills Resilient Landscapes Project Transportation Plan

supplement the 2007 Black Hills Travel Analysis Report. The decision to add new NFSR 

will be documented in the Forest Transportation Atlas Infra Database.

Temporary roads may be constructed to access areas where the terrain is flat or gently rolling 

on stable soils where resource concerns are minimal. Temporary roads are only for the 

project’s use and must be rehabilitated prior to closure of the project. Temporary roads

provide economical access to areas that require treatment, but do not require long-term 

access. Temporary roads would be obliterated and revegetated after use, including temporary 

roads built on unauthorized routes. Impact to resources would be minimized and mitigated in 

accordance with requirements of specialists as discussed in other Black Hills Resilient 

Landscapes Project specialist reports. 

Unauthorized routes within the treatment areas would be reviewed during analysis of road 

needs for the area. An unauthorized route alignment may be used when constructing a new 

NFSR or a temporary road. Unauthorized routes not used for this project would not be closed 

or obliterated as part of this project, but ground disturbing activity may obliterate the unused 

unauthorized routes or make them more difficult to locate after project completion.

1. Road Activity and Cost

Prior to using the existing road system for any project, it is necessary to review the condition 

of the road system and determine the amount of maintenance needed, as well as any 

reconstruction required to meet resource protection needs. For this project, detailed field

reviews by teams of specialists would be performed in preparation for implementing specific 

actions. Therefore, this analysis uses a projection of needs based on past performance of the 

road system. Maintenance and reconstruction activities were estimated based on historical 

information from timber sale and annual reporting records. The methods used and confidence 

in the estimate are discussed in Appendix C.

The project anticipates about 200 miles of new access for areas of the project that cannot be 

reached using the existing road system. To identify potential needs for new access, teams of 

specialists met at each District Office to identify areas without existing road access based on 

their knowledge of field conditions. Where it was known that no road access existed, the 

teams recommended either a new NFSR or a temporary road to access each area as displayed 

in Figure 1. The discussion favored use of temporary roads to minimize allocation of land to 

roads and to minimize the future maintenance costs of the road system.

The initial recommendation to consider a NFSR versus the preferred temporary road included

discussion of the transportation system most likely needed to accomplish long-term 

management objectives. The discussion included topics such as resource needs; location and 

construction requirements; long-term maintenance responsibilities; and obliteration needs, as 

well as continued reliance on Forest Road Program funding for maintenance costs. Table 6

displays the miles of proposed new access as well as the numbers and range of lengths of the

roads. The 18 miles of new NFSR includes 14 roads (6 miles) constructed in steep terrain to 

be used for cable logging. The teams recognized that the discussions were weighted toward 

constructing temporary roads and the miles of unauthorized routes converted to NFSR may 

be greater after all specialists have completed on-site investigations and a travel analysis is 

completed. 
Black Hills Resilient Landscapes Project Transportation Plan Page 17

Figure 1. Potential New and Temporary Roads
Page 18 Black Hills Resilient Landscapes Project Transportation Plan

Table 6. New Road Construction

Road Type Length 

Miles

Number Average 

Length *

Median 

Length

Minimum 

Length

Maximum 

Length*

New NFSR 12 23 0.51 0.44 0.10 0.91

New NFSR Cable 6 14 0.40 0.36 0.18 0.82

Temporary on 

Unauthorized Route ** 182 444 0.41 0.35 0.04 1.70

Temporary 39 139 0.28 0.26 0.02 1.18

*Of the 620 new roads, only 95 are longer than 0.6 mile and 15 of those are 1.0 mile or longer.

**Of the 182 miles, it is anticipated that up to 20 miles could be converted to new NFSR after field reviews and Travel 

Analysis are completed.

Field reviews of the road system during implementation may indicate the need for reductions 

or additions to the estimated mileages for new road construction. The notation in Table 6 for 

20 miles of conversion of unauthorized routes to new NFSR anticipates some unauthorized 

route locations may be determined to be necessary for long-term access to manage the forest. 

In those cases, the unauthorized route may be constructed as a NFSR if it meets the Black 

Hills Travel Analysis Report criteria for long-term access and would be cost effective for this 

project. As discussed above, the recommendation to construct a new NFSR requires 

additional travel analysis using all specialists input to inform the decision that a new NFSR is 

required for the minimum road system. There would be changes in allocation of actual 

project costs based on variations in the miles of NFSR required. This cost estimate 

anticipates 20 miles of new NFSR on unauthorized routes will be constructed to produce the 

worst-case cost estimate. See Appendix C for details of the road cost estimate summarized in

Table 7.

Table 7. Cost Estimate for Project Roads

Activity Miles Cost*

Maintenance 2,500 $3,000,000

Reconstruct 350 $2,100,000

New NFSR 38 $680,000

Temporary 39 $230,000

Temporary on unauthorized 162 $490,000

Total Cost $6,500,000

2. Management and Maintenance

The new NFSR would be used for long-term management activities in the project area, but 

would not be necessary for public access. Therefore, all the new NFSR for this project could 

be categorized as Maintenance Level 1 and closed to all motorized use after the project. The 

closure method used could be a ditch and berm, rock barrier, gate, or other method that 

discourages access. Generally, the least costly closure method would be selected unless user 

interest indicates more robust measures would be necessary.
Black Hills Resilient Landscapes Project Transportation Plan Page 19

Maintenance on system roads used for timber harvest would be the responsibility of the 

Purchaser/Contractor for the life of the Timber Sale Contract. Maintenance would include 

cleaning out silt from sediment collecting ponds and depositing it in upland locations;

keeping erosion control measures functioning by cleaning out any sediment collected in the 

structure and depositing it in upland locations; keeping all drainage structures and ditches 

clear and functional; eliminating erosion of cut and fill slope and roadway soils; removing 

roadway vegetation; and blading road surfaces.

Maintenance of the roads after conclusion of the proposed activity would be the 

responsibility of the Forest Service and would be performed on a five year rotation or sooner 

if a critical need to protect resources is identified.

3. Desired Conditions

The desired condition is to provide and maintain a safe, efficient, and economical 

transportation system that meets the purpose and need of the Project and future management 

activities.

Forest Plan (Phase II Amendment) desired future conditions, as applicable to the 

transportation system, are: 

 Management Area 3.31 – Backcountry Motorized Recreation Emphasis. Generally, 

few signs of people away from roads or trails are evident. There is little or no 

evidence of recent human activity or development. Overall, the landscapes of these 

areas are scenic and natural. Management provides for a variety of uncrowded, 

motorized recreational activities in areas that appear natural. Challenging off-highway 

motorized opportunities exist on area trails. This management area also may be 

suitable for non-motorized uses, such as hiking and photography. 

 Management Area 3.32 – Backcountry Non-Motorized Recreation Emphasis. This 

management area provides a backcountry setting with a high likelihood of solitude; at 

times, however, large groups of people may be present. A variety of uncrowded, nonmotorized recreational opportunities are provided. Old road beds may be evident, 

though rehabilitation efforts are probably underway to change their appearance. Old 

road beds may be used as part of a trail system. Roads currently maintained at level 3, 

4, and 5 will be downgraded to level 2 for administrative use.

 Management Area 4.1 – Limited Motorized Use & Forest Product Emphasis. An 

extensive road system is present, which is usually closed to motorized vehicles. Some 

main Forest Development Roads may be open most of the time for vegetation 

management activities. Most roads have native surfacing, which often includes 

grasses or other vegetation, unless they have been recently used by logging traffic. In 

such a case, the vegetation is likely worn down, and there may be disturbed areas due 

to maintaining drainage structures. 4.1-9102 Guideline: Motorized road travel is

limited to designated routes. Designated routes will vary over time based on the need 

to do vegetative management. Generally, the road system will be closed to motorized 

travel.
Page 20 Black Hills Resilient Landscapes Project Transportation Plan

 Management Area 5.1 – Resource Production Emphasis. Activities such as hunting, 

hiking, and biking occur along roads closed to vehicle traffic. Some roads and nearby 

areas are available for year-round motorized vehicle use. Some motorized vehicle 

use may be restricted for management area purposes. Logging traffic may be 

encountered throughout the year. 5.1-9102 Guideline: Motorized road travel is 

allowed where designated by a project decision.

 Management Area 5.1A – Southern Hills Forest & Grassland Area. Motorized travel, 

hunting, hiking, timber harvests, mining, and livestock grazing will be evident. 5.1A9102 Guideline: Motorized road travel is allowed where designated by a project 

decision. 5.1A-9104 Standard: Do not construct any new System roads in the Pilger 

Mountain area shown on page C-27 of the FEIS Appendix C.

 Management Area 5.2A – Fort Meade VA Hospital Watershed. Roads open for public 

travel in the Fort Meade Watershed are Forest Highway 26 and portions of the Forest 

Development Road 171 system. Non-motorized activities, like hiking and wildlife 

viewing, are provided.

 Management Area 5.4 – Big Game Winter Range Emphasis. Vehicle traffic is limited 

to only a portion of the total road network. Low standard roads are visible, but may 

be physically closed by barriers or seasonally closed by gates. Motorized road 

closures may be implemented, especially during winter months, particularly to 

minimize stress to wildlife, especially deer and elk. 5.4-207 Objective: Manage for an 

open road density of 1 mile of road per square mile or less for general-public travel 

between December 15 through May 15.

 Management Area 5.43 – Big Game and Resource Production. An extensive road 

system is present, but, except for the major routes, is usually closed to motorized 

vehicles. Most roads have native surfaces. Most of the local road surfaces are covered 

with grasses or other vegetation, unless they have been recently used to haul logs. In 

such a case, the vegetation may be worn down. Non-motorized recreational 

opportunities are provided, such as hiking, mountain biking, horseback riding, 

hunting, and cross-country skiing. 5.43-205 Objective: Manage for an open road 

density of 1 mile of road per square mile or less from December 1 to May 15.

 Management Area 5.6 – Forest Product, Recreation, and Big Game Emphasis. An 

extensive road system is present; except for major routes, motorized travel is 

restricted. Most roads have native surfaces. Most of the local road surfaces are 

covered with grasses or other vegetation, unless they have been recently used to haul 

logs. In such a case, the vegetation may be worn down. Snowmobiles use some 

routes. Non-motorized recreational opportunities are provided, such as hiking, 

mountain biking, horseback riding, hunting, and cross-country skiing.

Analysis Methodology

The actions associated with road activities were identified and a list of possible effects for 

each category developed. Road activities for this project would be maintenance, 
Black Hills Resilient Landscapes Project Transportation Plan Page 21

reconstruction, new construction, conversion of unauthorized routes, and temporary road 

construction. The result will be a revised minimum road system. The effects were divided 

into direct and indirect categories and are shown in Appendix B.

In addition to the project’s effects to the forest road system, there are other jurisdictions

(state, county, local, private) managing other portions of the road system within the Black 

Hills National Forest. Since this project analysis encompasses most of the forest, the 

activities of each of those other jurisdictions would be affected by the project and would

affect the project. A review of the activities that would be likely to occur on all portions of 

the road system revealed the likelihood of the project contributing to cumulative effects of 

activities by the Forest Service and other road jurisdictions. 

Analysis Assumptions

The following assumptions apply to this analysis:

 The majority of the road system would be adequate for this project. A few new roads 

may be needed for areas which have not been accessed previously.

 New NFSR would be subject to the Black Hills Forest-Wide Travel Analysis Report 

and any decision to add a road to the minimum road system would be informed by 

travel analysis.

 Road construction costs would tend to follow historic trends on the forest with costs 

subject to adjustment for inflation. The costs are estimated based on the Black Hills 

cost guides developed for appraisal of timber sales and adjusted using the Consumer 

Price Index for all urban consumers.

 Road maintenance needs would likely be similar to those encountered historically. 

 Road reconstruction needs are likely to be similar to those encountered historically. 

 Temporary bridges or other structures may be needed to cross drainages. Site review 

by specialists would be necessary for design of adequate crossing structures.

 Road construction contracts use Federal Highway Administration Standard

Specifications and supplemental specifications developed by the Forest Service. Use 

of these specifications would continue established procedures for complying with

resource protection and public safety requirements.

 Travel management designated roads would remain unchanged by the project, but 

would be subject to MVUM updates in a separate decision process. 

 Temporary roads would be obliterated to standard timber sale contract requirements

and recommendations of resource specialists where unique conditions require specific 

treatments.

 During implementation, there would be an opportunity to secure existing closure 

devices to protect the resource. Benefits of this action would eliminate motor vehicles 

from closed roads and areas of high quality winter habitat for wildlife.
Page 22 Black Hills Resilient Landscapes Project Transportation Plan

Forest Plan Compliance

Table 8 displays the road activity compliance with the Forest Plan.

Table 8. Project compliance with Forest Plan

Proposed Road Activities Forest Plan (Phase II Amendment)

Secure existing road closures Goal 1: Protect Basic Soil, Air, Water and Cave 

Resources, Objective 105: Prohibit motorized vehicle use 

in wetlands, wet meadows, and riparian areas, except at 

specified locations and times of year

Construct new system roads to 

access proposed commercial 

treatment for conventional and 

cable logging

Goal 3 – Provide for sustained commodity uses in an 

environmentally acceptable manner. The Forest System 

Roads would be maintained to facilitate both commodity 

and amenity uses of the forest, as well as administration 

and protection. Lands identified as suitable for timber 

production would require construction of some new local 

National Forest System Roads. Road density range would 

be between 2 and 5 miles per square mile

Closure and/or obliteration of 

unauthorized routes used for 

temporary access

Goal 3: Provide for sustained commodity uses in an 

environmentally acceptable manner, Objective 309: 

Provide the following changes to the National Forest 

System roads and two-track roads in support of longterm sustainable production of commodities:

Road Construction – 280 miles/decade

Road Reconstruction – 870 miles/decade

Road Obliteration – 140 miles per decade

Two-track Obliteration – 270 miles/decade

Maintain and reconstruct roads Goal 3: Provide for sustained commodity uses in an 

environmentally acceptable manner, Objective 310: 

Maintain the National Forest System Roads (NFSR) and 

prioritize capital improvements in accordance with Forest 

Plan direction and road management objectives

Relocation would move roads 

sufficiently far from streams or 

wetlands to minimize sediment 

discharge and use vegetative 

buffer strips or barriers to reduce 

sediment

STANDARD 1304 states: as opportunities arise, relocate,

or implement mitigation measures for roads, trails, watering 

tanks, and similar facilities currently located within the 

Water Influence Zone

Proper location and design of 

crossings would prevent restriction 

of expected flood flows and 

minimize sediment movement

STANDARD 1203 states: Design and construct all stream 

crossings and other in-stream structures to provide for 

passage of flow and sediment, withstand expected flood 

flows, and allow free movement of resident aquatic life

Reconstruct/realign existing roads 

to add and improve drainage 

structures, improve alignment, and 

stabilize the roadbed

STANDARD 1113 states: Construct roads and other 

disturbed sites to minimize sediment discharge into 

streams, lakes, and wetlands
Black Hills Resilient Landscapes Project Transportation Plan Page 23

Proposed Road Activities Forest Plan (Phase II Amendment)

Construction of temporary roads for 

one-time use and closure of such 

roads

STANDARD 9105 states: Construct temporary roads when 

there is a one-time need for a transportation facility. Return 

the road to vegetative production when the one-time need is 

fulfilled

Seed all disturbed areas 

immediately after road work is 

complete

STANDARD 1106 states: Stabilize and maintain roads and 

other disturbed sites during and after construction to control 

erosion. STANDARD 1110 states: Initiate re-vegetation as 

soon as possible, not to exceed 6 months after termination 

of ground disturbing activities. STANDARD 4306 states: 

Use certified noxious-weed-free seed, feed, and mulch.

Obtain Rights-of-Way to access 

areas restricted by steep terrain or 

private property

Goal 5 In cooperation with other land owners, strive for 

improved landownership and access that benefit both 

public and private landowners. Objective 503: Acquire 

approximately 25 rights of ways each year to improve 

Forest access

GUIDELINE 8101 states: Classify lands or interest in lands 

for acquisition where lands are valuable for National Forest 

System purposes based on the following: Section b states,

Where lands or rights-of-ways are needed to meet resource 

management goals and objectives.

Unauthorized routes used as 

temporary roads would be 

obliterated and revegetated after 

use.

STANDARD 1109 states: Reclaim roads and other 

disturbed sites when use ends, as needed to prevent 

resource damage. STANDARD 1105 states: Limit roads 

and other disturbed sites to the minimum feasible number, 

width and total length consistent with the purpose of specific 

operations, local topography, and climate.

New constructed roads and 

relocated roads would be located 

on flatter side slopes so the cuts 

and fills are not seen from major 

highways, recreational areas and 

facilities, and trails, local 

communities, and other high use 

areas.

GUIDELINE 5609 states: Highest priority for protection of 

scenic quality are those areas of heavy public use, such as 

scenic by-ways, major roads or trails, developed recreation 

sites, administrative sites, and backdrops for cities and 

towns.
Page 24 Black Hills Resilient Landscapes Project Transportation Plan

Effects

Under the No Action alternative, there would be no direct effects to the existing 

transportation system.

1. Project effects to the road system

Expanding the Road System. The project could add up to 38 miles to the NFSR minimum 

road system on the forest. Although that is a small amount compared to the 5,226 miles 

existing today, those 38 miles are short segments of road that would provide access to areas 

that are not currently accessible from the existing road system. The roads would be closed to 

the public after the project, but monitoring and maintaining those closures as well as all of 

the existing closures would be a factor in assuring illegal access does not occur. The 

additional NFSR miles would not increase open road density because all new NFSR would

be closed after use to be stored for future management activities. Overall road density would

not violate forest plan direction because the new NFSR would be scattered in stands with no

existing access.

Work on the Road System. Work on the roads (maintenance, reconstruction, construction) 

would have resource effects that would require consideration during design and execution of 

the work. The specific effects are described in other specialists reports such as soils, 

hydrology, archaeology, botany, invasive species, wildlife, and recreation (motorized 

recreation is discussed here). Effects of dust, noise, and increased traffic including large 

trucks would occur during the progress of the work. 

Cable Logging Roads. Some of the new NFSR would be constructed for cable logging to 

access timber in steep terrain. These roads would be susceptible to mass movement and slope 

erosion. As noted, site investigation and coordination of design with geologists and 

hydrologists would be critical in choosing location, alignment, and construction techniques to 

minimize potential problems. In addition, coordination with the Landscape Architect would

be necessary to minimize visual impacts of these roads.

Truck Traffic. The project would generate increased truck traffic on the road systems within 

the forest that would affect the quality of the gravel road surfaces and require additional 

maintenance, such as repairing washboards, potholes, and cattleguard approaches. Logging 

trucks are weighed at the mill which assures loads are consistent with road design weight 

standards. On native surface roads, maintenance would be required to repair ruts and damage 

to roadway drainage features like rolling dips, ditches, and outsloping. Mud tracked from 

native surface roads onto aggregate surface roads could contaminate and degrade the 

surfacing. The placement of rock approaches would mitigate this damage. Forest Service 

Road Damage Guidelines (FSH 2409.15 and Black Hills Supplement 7700-91-1) would be 

adhered to in order to limit road damage during hauling activities.

Road Surface Improvements. As the road surface is improved by maintenance and 

reconstruction, vehicle speeds and dust generation would likely increase on the roads.

Relocation of roads could improve sight distance which may result in increased speed and 

dust.
Black Hills Resilient Landscapes Project Transportation Plan Page 25

2. Motorized Recreation Effects

Public use of the transportation system is guided by the Travel Management Plan. The plan 

was developed in a public process and has a Record of Decision signed on May 7, 2010. 

Implementation of the plan requires publication of a Motor Vehicle Use Map (MVUM) valid 

for a specific period. The latest map was effective January 1, 2017. The MVUM displays 

designated roads and trails that are open to vehicle traffic including the class of vehicle and 

season of use. A permit system is used for trails open to motorized vehicles. 

Table 9 shows the current MVUM designations of road and motorized trail miles within the 

300,000-acre proposed BHRL treatment area (3,532 miles) and the miles that potentially will 

be used at various times during the project (2,344 miles). The most impact to these roads and 

motorized trails would be during timber harvest activities when there would be increased 

truck traffic, construction equipment operations, and additional vehicles using the roads. 

Road reconstruction and new construction activities may cause traffic delays. The roads and 

motorized trails may be closed to public use during active harvest periods, and even if not 

closed, the disruption to roads and motorized trails caused by the work would generally 

discourage recreationists from using the areas. The roads and motorized trails may also be 

closed to public use during periods of fuels treatments or precommercial thinning that use 

fire or mechanized equipment. While the potentially affected roads and motorized trails 

would be a significant percentage of the forest-wide system, not all of these roads and 

motorized trails would be affected at the same time. The project work would be distributed 

across several years and only occur during portions of those years. The effects of the project 

activities to public use would be similar, if not identical, to the patterns experienced from 

these forest management activities since the implementation of the Travel Management Plan. 

Motorized trails would be restored to pre-project condition when work in that area is 

completed.
Page 26 Black Hills Resilient Landscapes Project Transportation Plan

Table 9. Roads and Motorized Trails Open to the Public in BHRL

Designation BHRL Area Potentially Used Percent Used

Yearlong

Road Open to Highway Legal

Vehicles Only 1,555 1,030 66

Road Open to All Vehicles 356 296 83

Trail Open to All Vehicles 61 40 66

Trail Open to Vehicles 50” or Less 

in Width 0 0 0

Trail Open to Vehicles 62” or Less 

in Width 203 81 40

Trail Open to Motorcycles Only 46 3 7

Total 2,221 1,450 65

Seasonal

Road Open to Highway Legal

Vehicles Only 848 649 77

Road Open to All Vehicles 115 89 77

Trail Open to All Vehicles 93 43 46

Trail Open to Vehicles 50” or Less 

in Width 72 47 65

Trail Open to Vehicles 62” or Less 

in Width 144 65 45

Trail Open to Motorcycles Only 39 1 3

Total 1,311 894 68

The latest visitor use monitoring for the Black Hills National Forest was conducted in 2014. 

Monitored activities directly related to the road and motorized trail system are driving for 

pleasure, OHV (off-highway vehicle), and motorized trail use. Driving for pleasure was the 

third most frequently reported primary activity at 10.9 percent of responses. In addition, 32.5

percent of responses reported participating in driving for pleasure as part of other activities. 

The monitoring was designed to assure the respondents that did use portions of the system 

designated on the MVUM during their visit were included. It appears 8 percent of responses 

for main activity were directly related to the road and trail system for OHV (off-highway 

vehicle) and motorized trail use. OHV use was reported as an activity in 6.7 percent of 

responses, but only 4 percent cited it as the primary activity. Motorized trail activity was 

reported in 11 percent of responses with 4 percent reporting it was the primary activity. 

Therefore, a range of 8 to 18 percent of users could be affected as motorized recreation 

enthusiasts and up to 50 percent of visitors could be affected if their driving for pleasure and 

MVUM use coincided with areas where forest management activities were in progress. Due 

to the scattered activity of both the recreation and the forest management, a smaller 

percentage of these visitors may be affected, but it cannot be reliably quantified from the 

information available.
Black Hills Resilient Landscapes Project Transportation Plan Page 27

Physical changes to the trail system would be necessary during the project. Many of the trails 

are on converted NFSR that would be used temporarily during the project. Upon completion 

of the project, the NFSR would be returned to the pre-project trail condition. If a motorized 

trail is used for project access, the trail will be returned to the pre-project condition. There 

may be additional cost to the recreational trail system if different trail standard than the 

pre-project condition is desired.

3. Public Safety

During the project, traffic associated with the project would use roads of the many 

jurisdictions within the forest. The increased traffic from the project would include pickups, 

construction equipment, log trucks, equipment hauling trucks, water trucks, chip trucks, fire 

trucks, and road graders. This traffic would mix with residential, commercial, and 

recreational traffic on the roads. State and county roads are generally designed for user 

comfort with higher speeds and incorporate regulatory signs and warning signs to assist 

drivers. Forest roads would be designed for low speed traffic, have few warning signs, and no 

posted speed limits. In addition, designated forest roads would allow OHV traffic which has 

different characteristics than all of the other vehicles. Safety considerations would be

required to be included in road design for new and reconstructed roads. In areas with active 

road reconstruction and new construction, the use of temporary traffic control devices would 

be used to notify road users of the activity. Traffic control would comply with the Manual for 

Uniform Traffic Control Devices. Safety concerns identified in existing roads could be 

addressed by the project or by other road improvement program funding. MVUM designated 

roads and trails could also be closed to the public during periods of project activities that 

could endanger the public such as timber harvest, precommercial thinning, and prescribed 

fire.

Cumulative Effects

Cumulative effects analysis includes the NFSR transportation system on all lands within the 

project area and access roads outside the project area. The access roads outside the project 

area would be the transportation system for equipment taken to the project and products 

removed by the project, and would be a mix of NFSR, County, and State roads. The effects 

of the project will be spread across the transportation system over a 10-year period of 

operations which includes a series of activities within selected portions of the project area. 

Effects on roads within each portion of the project area would conclude as the project work 

ends for each activity. The access roads outside the project area may experience simultaneous 

use by several activities accessing different portions of the project area. These access roads 

are higher speed, higher volume roads because they are routinely used for several forest 

projects, public access to the forest, and access to multiple parcels of private land. The access

roads may be scheduled for rehabilitation or repairs due to the cumulative effects of project 

and non-project use for periods up to 3 years after the project is completed about 2028.

Road construction and reconstruction is an activity that occurs annually on the Black Hills 

National Forest and will occur within the project area annually. The effects of increased truck 

and equipment traffic of the proposed project could impact these other road activities. 
Page 28 Black Hills Resilient Landscapes Project Transportation Plan

 Routine Forest Service construction and maintenance projects would be needed to 

manage the road system for public safety and resource management. These projects 

would include road surface replacement, road surface grading, bridge and culvert

replacements, road relocation, and maintenance to culverts, cattleguards, drainage,

and other structures. The effects of these activities would be noticed by the public as 

traffic delays, short-term road closures, increased truck traffic, equipment on the 

roadway, etc. It is possible that multiple projects would be in progress in the same 

area. 

 County road projects could also occur annually. Bridge and culvert replacements, 

road realignment, road widening, resurfacing, maintenance grading, clearing trees in 

the right-of-way, intersection improvements, and other projects have all occurred in 

recent years in many of the counties. Projects in progress and planned for the next 

couple years indicate this activity would likely continue. 

 Both Wyoming and South Dakota publish a Statewide Transportation Improvement 

Program (STIP) outlining proposed projects for a 3- to 5-year period. The STIP is 

updated annually. The current plan extends through 2020 for work within the project 

area such as crack repair and chip seal; joint and spall repair; pavement replacement 

or improvement; striping and signing; bridge and culvert replacement; bridge 

rehabilitation; landslide repair; milling and asphalt concrete repair; grading and 

asphalt replacement; spot erosion repair; guardrail upgrades; shoulder repair;

approach grading; and turn lanes. This work would be scattered throughout the 

project area and would affect public use of the roads managed by the States which are 

also routes that would be used for activities related to the Black Hills Resilient 

Landscapes Project.

Each year landowners within the Black Hills National Forest make requests for initial 

construction and maintenance of access roads to private land. The requests are reviewed by 

resource specialists to determine appropriate routes, resource protection requirements, and 

road design. Because over 300,000 acres of private land are within the forest boundary

several requests are received annually. If access exists on NFSR routes, those routes would

usually be chosen. Construction of a new private road or a new NFSR with a right-of-way 

across the private land could also be possible.

Numerous large parcels of private land exist within the boundaries of the Black Hills 

National Forest. This land is attractive for residential subdivisions which support significant 

construction activity for road construction and structure construction as they are developed

and increase traffic, dust, and noise in the area. Project road activities adjacent to private 

developments would expand the area where traffic, dust, and noise would be generated.

The project proposed activities could add truck and equipment traffic and road construction. 

Forest management projects similar to the proposal have been occurring for decades. The 

proposed activities would be similar to historical activity in type and volume.
Black Hills Resilient Landscapes Project Transportation Plan Page 29

Monitoring

Implementation monitoring of road maintenance, reconstruction, and new construction 

activities would be accomplished through site inspections conducted by certified engineering 

and timber sale personnel to ensure contract specifications and road designs would be

implemented as described in the road and timber contracts. Measured and visual monitoring 

would determine physical effects, success of natural and enhanced revegetation, and to 

ensure traffic safety and compliance with state and federal laws.

Table 10. Monitoring

Resource Objective Timing Methodology Responsibility

Transportation 

system

Ensure adherence to 

contract and road 

design specifications 

during road 

construction, 

reconstruction, and

maintenance

Daily to weekly 

while operations 

are active

Site 

inspections

Transportation 

engineer

Temporary road 

system

Ensure temporary 

roads are obliterated 

temporary bridges 

removed and sites 

rehabilitated as 

required in contract 

documents

After timber sale 

implementation

Site 

inspections

Sale Administrator 

or Engineering 

representative

Road Closure

Assure road closure 

devices are installed 

where required

After all 

operations are 

completed

Site 

inspections

Sale Administrator 

or Engineering 

representative
Page 30 Black Hills Resilient Landscapes Project Transportation Plan

Bibliography

USDA-Forest Service. 2006a. 1997 Revised Land and Resource Management Plan for the 

Black Hills National Forest, As Amended by the Phase II Amendment. U.S. Department of 

Agriculture-Forest Service, Black Hills National Forest. Custer, South Dakota. March, 

2006. Available on-line at http://www.fs.fed.us/r2/blackhills/projects/planning/index.shtml

USDA-Forest Service. 2005a. Final Environmental Impact Statement for the Phase II 

Amendment to the 1997 Revised Land and Resource Management Plan for the Black Hills 

National Forest. U.S. Department of Agriculture-Forest Service, Black Hills National 

Forest. Custer, South Dakota. October, 2005. Available on-line at 

http://www.fs.fed.us/r2/blackhills/projects/planning/index.shtml

USDA Forest Service. (March 2010) Record of Decision – Black Hills National Forest 

Travel Management Plan. Custer, SD: Black Hills National Forest, United States 

Department of Agriculture - Forest Service.

USDA Forest Service. (March 2010) Final Environmental Impact Statement – Black Hills 

National Forest Travel Management Plan. Custer, SD: Black Hills National Forest, United 

States Department of Agriculture - Forest Service.

USDA-Forest Service, 2007a, Forest-Wide Travel Analysis Report, U. S. Department of 

Agriculture - Forest Service, Black Hills National Forest, Custer, South Dakota. September 

2007. Report available on-line at 

https://www.fs.usda.gov/Internet/FSE_DOCUMENTS/fseprd527395.pdf and Map available 

on-line at: https://www.fs.usda.gov/Internet/FSE_DOCUMENTS/fseprd527398.pdf

USDA Forest Service. (July 2016). Manual 7700 Transportation System, Chapter 10 Atlas, 

Records, and Analysis, Chapter 20 Development, and Chapter 30 Operation and Maintenance 

and Black Hills Supplement No. 7700-91-1.

USDA Forest Service. (April 1999), Handbook 2409.15 – Timber Sale Administration 

Handbook, Chapter 50, Specified Transportation Facilities, Black Hills Supplement No. 

2409.15-92-1.

USDA-Forest Service. (July 2014), Handbook 7709.56 – Road Preconstruction Handbook,

Chapter 10 Preconstruction Decisions, Chapter 20 Road Location, Chapter 30 Engineering 

Survey, Chapter 70 Plans, Specifications, and Estimates.

USDA-Forest Service. (November 2005), Handbook 2409.18 – Timber Sale Preparation 

Handbook, Chapter 40 Sale Plan Implementation and Appraisal

USDA Forest Service. (June 2000), Forest Roads: A Synthesis of Scientific Information,

edited by Gucinski, H., Furniss, M., Ziemer, R., and Brookes, M. United States Department 

of Agriculture - Forest Service.

U.S. Department of Transportation Federal Highway Administration (May 2012), Manual on 

Uniform Traffic Control Devices for Streets and Highways, 2009 Edition, Including Revision 

1 and Revision 2.

Code of Federal Regulations (annual edition). Title 36: Parks, Forests, and Public Property. 

Subpart A: Administration of the Forest Transportation System. Friday, July 1, 2016
APPENDIX A

ROAD DEFINITIONS AND DESCRIPTIONS
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A-1

Grid Maintenance ~ The condition of maintenance level 1 and 2 roads evaluated on a 5-year 

rotational grid pattern within the forest. Each grid is reviewed by a team of engineers and 

specialists the year prior to maintenance activities to determine the extent of road maintenance 

necessary. Maintenance work is specified and can be performed by force account or contractors.

Motorized Mixed-use road ~ Segments of National Forest System roads that are identified and 

signed as open to state licensed and unlicensed vehicles; generally more than 50 inches in width 

and usually, but not always, low maintenance roads with no high-speed traffic. 

Motor vehicle ~ Any vehicle which is self-propelled, other than: (a) a vehicle operated on rails; 

and (b) any wheelchair or mobility device, including one that is battery-powered, that is designed 

solely for use by a mobility-impaired person for locomotion, and that is suitable for use in an 

indoor pedestrian area (36 CFR 212.1). 

Motor Vehicle Use Map (MVUM) ~ A map reflecting designated roads, trails, and areas on an 

administrative unit or a ranger district of the National Forest System (36 CFR 212.1). 

Motorized mixed use ~ Designation of a National Forest System road for use by both highwaylegal and non-highway-legal motor vehicles (FSM 7700). 

Motorized trail ~ A travel way usually, but not always, less than 50 inches in width usually, but 

not always, available for use by all-terrain vehicles (ATV) and/or motorcycles. These travel

ways may also be made available to high-clearance four-wheel drive vehicles, and may also be 

used by bicycles, horses, and hikers.

Off Highway Vehicle ~ Any motor vehicle designed for or capable of cross-country travel on or 

immediately over land, water, sand, snow, ice, marsh, swampland, or other natural terrain 

(36 CFR 212.1)

Regulatory Signs ~ A sign that informs road users of selected traffic laws or regulations and 

indicate the applicability of the legal requirements. The signs are installed where the regulations 

apply and clearly indicate the requirements imposed. Compliance is required.

Warning signs ~ A sign that calls attention to unexpected conditions on or adjacent to a 

highway, street, or private road open to public travel, and to situations that might not be readily 

apparent to road users. Warning signs alert road users to conditions that might call for a 

reduction of speed or an action in the interest of safety and efficient traffic operation.

Road Types

National Forest System road (NFSR) ~ A forest road other than a road which has been 

authorized by a legally documented right-of-way held by a state, county, or local public road 

authority (36 CFR 212.1).

Unauthorized route ~ A road or trail that is not included in a forest transportation atlas and is 

not a temporary road or trail.
Appendix A

A-2

Temporary Road ~ A road or trail authorized by contract, permit, lease, or other written 

authorization, or emergency operation that is not intended to be part of the forest transportation 

system and is not necessary for long-term resource management. Temporary roads are 

rehabilitated after use by removing any culverts or temporary bridges, installing erosion control 

features, ripping or scarifying the template, placing woody material on the template, and seeding 

or planting appropriate vegetation.

Obliteration ~ The act of eliminating the functionality of a road or route and returning it to 

resource production. Work typically includes a combination of removal of drainage structures, 

roadbed scarification, moving material from fill to cut sections, erosion control, seeding, and 

planting of vegetation consistent with the surrounding area.

Road Classification

Arterial road ~ A National Forest System road that provides service to large land areas and 

usually connects with other arterial roads or public highways. 

Collector road ~ A National Forest System road that services smaller areas than an arterial road 

and that usually connects arterial roads to local roads or terminal facilities. 

Local road ~ A National Forest System road that connects a terminal facility with collector 

roads, arterial roads, or public highways, and that usually serves a single purpose involving 

intermittent use. 

Road Maintenance and Construction

Maintenance ~ No additional investment is expected for planned resource management 

activities. Identified maintenance would be performed.

Reconstruction ~ Work would be done to provide a usable facility for expected traffic and 

protect resources which are usually riparian areas, but could also be heritage, botanical, or any 

other resource. Relocation of some portions of roads is also expected. Expected costs range 

from $1,000 to $15,000 per mile.

Construction ~ New construction of roads may take place. Costs range from $10,000 to $20,000 

per mile. Costs range for construction/conversion of unauthorized route to forest system road 

from $1,000 to $15,000 per mile.

Road Damage Guidelines ~ USDA-FSH, 2409.15 – Timber Sale Administration Handbook, 

Chapter 50, Specified Transportation Facilities, Black Hills Supplement No. 2409.15-92-1.
Appendix A

A-3

Road Maintenance Level

Maintenance level (ML) ~ Defined in FSH 7709.58, 10, 12. 3 as the level of service provided 

by and maintenance required for a specific road. Maintenance levels must be consistent with 

road management objectives and maintenance criteria. Roads may be maintained at one level and 

planned to be maintained at a different level at some future date. The operational maintenance 

level is the maintenance level currently assigned to a road considering today’s needs, road 

condition, budget constraints, and environmental concerns. The maintenance level defines the 

standard to which the road is currently being maintained. The objective maintenance level is the 

maintenance level to be assigned at a future date considering future road management objectives, 

traffic needs, budget constraints, and environmental concerns. 

Maintenance level 1 road ~ Defined in FSH 7709.58, 10, 12. 3 as intermittent service roads 

during the time they are closed to vehicular traffic. The closure period must exceed one year. 

Basic custodial maintenance is performed to keep damage to adjacent resources to an acceptable 

level and to perpetuate the road to facilitate future management activities. Emphasis is normally 

given to maintaining drainage facilities and runoff patterns. Planned road deterioration may 

occur at this level. Appropriate traffic management strategies are “prohibit” and “eliminate.” 

Roads receiving level 1 maintenance may be of any type, class, or construction standard, and 

may be managed at any other maintenance level during the time they are open for traffic. 

However, while being maintained at level 1, they are closed to vehicular traffic, but may be open 

and suitable for nonmotorized uses. These roads have the following attributes: (1) vehicular 

traffic is eliminated, including administrative traffic; (2) physically blocked or entrance is Final 

Environmental Impact Statement 395 disguised; (3) not subject to the requirements of the 

Highway Safety Act; (4) maintenance is done only to minimize resource impacts; and (5) no 

maintenance other than a condition survey may be required so long as no potential exists for 

resource damage. 

Maintenance level 2 road ~ Defined in FSH 7709.58, 10, 12.3 as roads open for use by highclearance vehicles. Passenger car traffic is not a consideration. Traffic is normally minor, usually 

consisting of one or a combination of administrative, permitted, dispersed recreation, or other 

specialized uses. Log haul may occur at this level. Appropriate traffic management strategies are

either (1) discourage or prohibit passenger cars or (2) accept or discourage high-clearance 

vehicles. These roads have the following attributes: (1) low traffic volume and low speed; (2) 

typically local roads; (3) typically connect collectors and other local roads; (4) dips are the 

preferred drainage treatment; (5) not subject to the requirements of the Highway Safety Act; (6) 

surface smoothness is not a consideration; and (7) not suitable for passenger cars. 

Maintenance level 3 road ~ Defined in FSH 7709.58, 10, 12.3 as roads open and maintained for 

travel by prudent drivers in a standard passenger car. User comfort and convenience are low 

priorities. Roads in this maintenance level are typically low speed, single lane with turnouts, and 

spot surfacing. Some roads may be fully surfaced with either native or processed material. 

Appropriate traffic management strategies are either Encourage or Accept. Discourage or 

Prohibit strategies may be employed for certain classes of vehicles or users. These roads have the 

following attributes: (1) subject to the requirements of the Highway Safety Act and Manual of 

Uniform Traffic Control Devices (MUTCD); (2) roads have low to moderate traffic volume; (3) 

typically connect arterial and collector roads; (4) a combination of dips and culverts provide 

drainage; (5) may include some dispersed recreation roads; and (6) potholing or washboarding 

may occur. 
Appendix A

A-4

Maintenance level 4 road ~ Defined in FSH 7709.58, 10, 12.3 as roads that provide a moderate 

degree of user comfort and convenience at moderate travel speeds. Most roads are double lane 

and aggregate surfaced. However, some roads may be single lane. Some roads may be paved 

and/or dust abated. The most appropriate traffic management strategy is Encourage. However, 

the Prohibit strategy may apply to specific classes of vehicles or users at certain times. These 

roads have the following attributes: (1) subject to requirements of the Highway Safety Act and 

MUTCD; (2) roads have moderate traffic volume and speeds; (3) may connect to county roads; 

(4) culverts provide drainage; (5) usually a collector; and (6) may include some developed 

recreation roads. 

Maintenance level 5 road ~ Defined in FSH 7709.58, 10, 12.3 as roads that provide a high 

degree of user comfort and convenience. These roads are normally double-lane, paved facilities. 

Some may be aggregate surfaced and dust abated. The appropriate traffic management strategy is 

Encourage. These roads have the following attributes: (1) subject to the requirements of the 

Highway Safety Act and MUTCD; (2) highest traffic volume and speeds; (3) typically connect 

State and county roads; (4) culverts provide drainage; (5) usually arterial and collector; (6) may 

include some developed recreation roads; and (7) usually paved or chip-sealed. 
Appendix A

A-5

Road Standards

Road standards were determined by anticipated traffic, maintenance and traffic management 

implementation. Aggregate surfacing would be utilized on road sections to protect soils and 

provide a more stable surface on roads serving large areas of the Forest. Figure through Figure 

show typical road profiles for ML 1, ML 2, ML 3, & ML 4 roads.

ML 5 roads meet the design standard of roads under the State of South Dakota or county 

jurisdiction. Reconstruction activities would be evaluated as proposals are received from these 

agencies. Anticipated traffic, safety and land management needs would be considered.

Figure 1. Road Standard 1

These are minimum standard timber access roads and are usually closed after use (ML 1). 

Season of use would be curtailed due to soil stability and drainage problems, which are 

expected seasonally. Generally used on short (less than 1⁄2-mile) roads or roads with traffic 

restrictions or where timber haul is expected to be less than 1.0 MMBF per entry.

Features:

 Surface: native

 Turnouts: none

 Grades: sustained 10 percent; pitches 500 feet to 16 percent

 Curve widening: 400/R, maximum 4 feet

 Curve radius: 50 feet

 Drainage: rolling dips, low water crossings. Metal pipes and cut slope ditches are rarely 

used

cut slope

1: 1/4 - 1

running surface 12'

fill slope 

1:1 1/4 to 1 1/2

Clearing limit top of cut; 

minimum 2' from shoulder

Clearing limit toe of fill; 

minimum 2' from shoulder
Appendix A

A-6

Figure 2. Road Standard 2

Timber access road where soil stability problems are anticipated with expected timber volumes. 

Road may or may not have travel restrictions (ML 1 or ML 2). Used for roads expected to carry 

0.5 to 1.5 MMBF per entry.

Features:

 Surface: native, spot surfacing in deep unstable soils

 Turnouts: at critical safety features (crests of grades)

 Grades: sustained 10 percent, pitches 400 feet to 16 percent

 Curve widening: 400/R

 Curve radius: 50 feet

 Drainage: rolling dips, low water crossings, metal pipes at drainages, metal pipes with cut 

slope ditch may be used,

cut slope

1: 1/4 - 1 1/2

running surface 12'

fill slope 

1:1 1/4 to 1 1/2

Clearing limit 2' 

beyond top of cut

Clearing limit 2' 

beyond shoulder
Appendix A

A-7

Figure 3. Road Standard 3

This level of road standard is applied to roads where extensive timber haul is expected and where 

use may be important to maintaining logging continuity in the area or recreation roads where 

timber traffic is strictly regulated. Added safety features are needed for potential conflicts with 

mixed traffic. These are generally ML 3 roads that are designated open to travel (at least 

seasonally). 

Features: 

 Surface: aggregate where timber haul exceeds 3 MMBF reinforce deep unstable soils 

aggregate for user comfort of recreation access

 Turnouts: 1,500 feet maximum spacing

 Grades: sustained 8 percent, pitches 400 feet to 15 percent

 Curve widening: 400/R

 Curve radius: 75 feet

 Drainage: rolling dips, low water crossings, metal pipes at drainages, ditch at toe of cut 

slope where necessary to direct water to metal pipes

cut slope

1:1/4 - 1 1/2

running surface 12'

fill slope 

1:1 1/4 to 1 1/2

Clearing limit 2' beyond top of cut,

minimum 3' from shoulder

Clearing limit toe of fill;

minimum 5' from shoulder
Appendix A

A-8

Figure 4. Road Standard 4

These are usually ML 4 roads with high or medium traffic levels expected and user safety and 

comfort are the primary concerns.

Features:

 Surface: aggregate or asphalt

 Turnouts: inter-visible

 Grades: sustained 8 percent, pitches 300 feet to 12 percent

 Curve widening: 800/R

 Curve radius: minimum 100 feet

 Drainage: metal or concrete pipe or bridges

cut slope

1:1-3

running surface 14' minimum

fill slope 

1:1 1/4 to 1 1/2

Clearing limit 3' beyond top of cut,

minimum 5' from shoulder

Clearing limit toe of fill;

minimum 5' from shoulder
APPENDIX B

EFFECTS ANALYSIS
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APPENDIX B – EFFECTS ANALYSIS

Black Hills Resilient Landscapes Project

MAINTENANCE

Actions Direct Effects Indirect Effects

blading road

cleaning ditches

reshaping drainage structures

repair cattleguards and gates

repair signs, if any

noise

dust

smooth travel way

lower maintenance costs

increased user comfort

increase speed and dust

RECONSTRUCTION

Actions Direct Effects Indirect Effects

clearing and grubbing

slash disposal

bury stumps

excavation

install drainage structures

place embankment

place and compact roadbed

haul materials

realign road

culvert installation

place concrete mat

place aggregate

construct sediment basins

dust

visual changes

cost of implementation

increased traffic

increased noise

visual impacts

contaminate gravel roads with 

mud

smooth travel way

improve sight distances

lower maintenance costs

increase speed and dust

increase user comfort

CONSTRUCTION

Actions Direct Effects Indirect Effects

Clearing and grubbing

slash disposal

bury stumps

deck logs and haul offsite

excavation

install drainage structures

place embankment

place and compact roadbed

haul materials

plate roadbed

Erosion control

Construct sediment basins

noise

dust

visual changes

introduce new traffic

drainage changes

harden road surface

establish new traffic pattern

remove vegetation

dust from users

new source of noise

ease of access, more people

TEMPORARY ROAD

clearing

slash and stump scattering

deck logs and haul offsite

surface disturbance

install drainage structures

provisions for sediment

close road

scarify and reshape to natural 

terrain

reseed

install access deterrent 

measure

visual changes

noise

dust

drainage changes to NFSR

compacting and scarifying soil

unauthorized use

vegetationless corridor

erosion patterns change

direct drainage to NFSR
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APPENDIX C

ROAD COST ESTIMATE
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C-1

Road Cost Estimate

This appendix discusses the methods, assumptions, and unit costs used to develop the road 

cost estimate for this project.

Road costs include maintenance of the portion of the road system that is used for the project; 

reconstruction of roads that are in poor locations or are causing resource damage; and 

construction of new roads (both NFSR and temporary) needed to access the project area. The 

majority of these activities would be done to support the transportation of timber because the 

log truck traffic would produce the most wear and tear on the road system and would be the 

reason new roads are needed for this project. Other project activities such as fuels treatments 

and products other than logs (POL) and precommercial thinning could also require some road 

maintenance during the life of the project, but that maintenance would not be as extensive as 

required for the timber harvest traffic.

Methods

The reconstruction and maintenance needs were estimated using the average of two methods. 

The estimate identifies a magnitude for the reconstruction and maintenance needs, but is not 

intended to be an upper limit. Resource needs and funds available will be major factors 

determining the actual miles of reconstruction and maintenance.

 The first method reviewed 24 timber sale contracts for acres treated and road miles 

constructed and maintained as part of the timber sale contract. The miles per acre for 

each activity was developed as shown in Table 1. The timber contracts were awarded 

prior to 2012.

 The second method reviewed four years of annual reports for timber sale harvest and 

road construction and reconstruction. The result was a 4-year average miles per acre 

for each activity in Table 2. 
Appendix C

C-2

Table 1. Summary of 24 Timber Sales.

Acres Reconstruction Maintenance

Sale Name Treated (Miles) Miles/Acre (Miles) Miles/Acre

Gooseberry 3,722 2.70 0.0007 38.1 0.0102

Four Mile 4,015 0.81 0.0002 25.8 0.0064

Bullseye 285 0.14 0.0005 3.3 0.0116

Corral 1,714 5.83 0.0034 29.2 0.0170

Minnesota Box 2,482 8.69 0.0035 27.8 0.0112

Jewel 1,642 4.57 0.0028 23.1 0.0141

Elk Hay 1,495 2.44 0.0016 13.7 0.0092

Austin Spring 740 3.70 0.0050 22.1 0.0299

Wabash Resale 1,181 - 13.8 0.0117

Stovehole 250 - 1.4 0.0056

Palmer Gulch 1,822 2.42 0.0013 2.7 0.0015

Baldy 1,305 2.15 0.0016 20.6 0.0158

Seth 159 - 2.3 0.0145

Rockerville 120 - 0.6 0.0050

Hoo Doo 1,706 1.14 0.0007 15.9 0.0093

Pony 531 2.79 0.0053 10.3 0.0194

Woodchuck 568 1.15 0.0020 17.4 0.0306

Outlier 909 2.90 0.0032 21.8 0.0240

Felis 374 - 9.8 0.0262

West Rim 1,719 2.90 0.0017 42.2 0.0245

Raddick 1,636 4.80 0.0029 19.1 0.0117

Squid 1,375 3.90 0.0028 21.4 0.0156

Hip 613 - 18.4 0.0300

Short Draw 1,347 3.88 0.0029 35.8 0.0266

SUM 31,710 56.91 436.6

Miles/Acre 0.001795 0.013769
Appendix C

C-3

Table 2. Annual Road Accomplishment Report and Total Acres Treated.

Year Timber Harvested Reconstruction Maintenance

CCF Acres Miles Miles/Acre Miles Mi/Acre

2011 200,479 19,936 32 0.001605 327 0.016402

2012 240,251 27,175 62 0.002282 335 0.012328

2013 203,083 25,127 40 0.001592 321 0.012775

2015 206,157 20,920 46 0.002199 191 0.009130

Average 212,493 23,290 45 0.001932 294 0.012602

2014 Road data is not available.

The two methods resulted in miles per acre that were within 10 percent of each other which 

is probably due to the consistent volume of timber and extent of the existing road system 

(Table 3). The miles per acre used for the estimate was an average of the two methods.

Table 3. Average Timber Sale and Annual Methods.

Reconstruction Maintenance

Method Miles/Acre Average Variation Miles/Acre Average Variation

Sales 0.001795

0.001864 7.09%

0.013769

0.013186 9.26%

Annual 0.001932 0.012602

As shown in Table 4, the proposed 187,000 acres of commercial logging treatment was 

multiplied by the average miles per acre for each activity. The resulting distance was rounded 

and multiplied by the estimated cost per mile for that activity.

Table 4. BHRL Project Estimate – Road Reconstruction and Maintenance.

Activity Acres Miles/Acre Miles

Round 

Miles $/Mile Cost

Reconstruction 187,000 0.001864 348 350 $6,000 $2,100,000

Maintenance 187,000 0.013186 2,466 2,500 $1,200 $3,000,000

Reconstruction Estimate

Reconstruction costs were estimated to be about two-thirds of the construction costs for a 

new NFSR per mile. Reconstruction costs can vary widely depending on the reason for 

reconstruction. A high reconstructed cost per mile can occur when a road must be moved to 

avoid and restore wetlands and the relocation alignment requires extensive rock excavation. 

A low reconstruction cost per mile can occur if a road is rerouted to avoid an archaeological 

site and the new alignment is in gently rolling terrain on well drained, rocky soils. The 

reconstruction cost per mile used in this analysis was $6,000 per mile.
Appendix C

C-4

Maintenance Estimate

Maintenance costs for timber sales are estimated using the Black Hills Timber Sale Appraisal 

Worksheet. The results of the sale appraisal are then used in the preparation of the timber 

sale advertisement and contract. The worksheet is designed to estimate the purchaser’s road 

maintenance costs for a specific timber sale where many variables about the road system are 

known in detail. The worksheet is not intended for use in feasibility level estimates like this 

one. There are three primary components of the timber sale road maintenance estimate:

1. Pre-use maintenance is a contract requirement to return all system roads used for the 

sale to the maintenance standard for each road. The standard depends on the 

maintenance level assigned to the road. The pre-use maintenance would be the most 

general estimate of the three and is easily computed using a few basic facts (or in this 

case, assumptions) about the conditions the roads. Cost for maintenance per mile 

ranges from $234 for light maintenance to $584 for medium maintenance to $1,098 

for heavy maintenance. For this estimate, it was assumed that the costs averaged $600 

per mile.

2. During-use maintenance is a contract requirement to keep the road system in 

condition to support the traffic required to remove the timber. Heavy trucks and 

equipment could cause extensive damage to a road if maintenance to preserve the 

designed features of the road were not conducted. For example, damaged drainage 

features could leave the road wet and result in loss of surfacing, rutting, and damage 

to the subgrade which would be expensive to repair. Maintenance of the drainage 

features designed into the road would prevent that damage at a lower cost than a 

repair. This cost is normally estimated using the volume of timber being transported 

on the road, the maintenance level of the road, and length of the road used. None of 

these factors is known for this estimate. Therefore, an assumption must be made.

3. Post-use maintenance is a contract requirement to assure the road system used for the 

timber sale is left in a condition that preserves the design features that protect the road 

and surrounding resources. The cost is normally estimated in a similar manner as 

during-use maintenance. Once again none of the factors is known for this estimate so 

an assumption is necessary.

4. To address the unknowns in during-use and post-use maintenance with any degree of 

accuracy was not possible here. Historical total costs for these two components 

showed that they could be less than or greater than pre-use maintenance depending on 

the characteristics of the road system. Therefore, the estimate for the total of 

during-use and post-use maintenance for the purpose of this report was assumed to be 

equal to the pre-use maintenance of $600 per mile. 

The maintenance portion of the road cost estimate uses $1,200 per mile for the cost of all 

maintenance.

New Road – NFSR Construction

Construction cost for new National Forest System Roads (NFSR) was estimated using the 

Black Hills National Forest Cost Estimating Guide. The latest version was for the 2014 
Appendix C

C-5

construction season so estimates were indexed to January 2017. The Consumer Price Index 

(All Urban Consumers) adjustment was 3.04 percent. 

Cable logging roads are constructed with additional road width and curve widening to 

accommodate equipment and log decks. The cable road costs were estimated using a 14-foot 

road on slopes of 40 and 50+ percent. Using the 212 Linear Grading alternative method for 

new construction of 12-foot roads and adjusting for the wider roads, costs per mile were 

$24,750 and $38,530 for slopes of 40 and 50+ percent respectively (Table 5). The percentage 

of road for each slope was estimate to derive a weighted cost per mile for the 6 miles of cable 

road.

Table 5. NFSR Cable Roads, 14-Foot Road, 4-Foot Minimum Clearing, Blade Finish.

Ave % side 

slope $/Mile 2014 CPI Adjust $/Mile 2017 % of road Cost/Mile

40 Cable $24,020 3.04% $24,750 25

$35,085

50+ Cable $37,390 3.04% $38,530 75

The remaining 12 miles plus the 20 miles of unauthorized routes that may be needed as 

NFSR were estimated as 12-foot roads and assumed to be on ground with 30 percent slope or 

less (Table 6). Using the 212 Linear Grading alternative method for new construction of 12-

foot roads, costs per mile were $9,890, $12,350, and $17,510 for slopes of 10, 20 and 30 

percent respectively. The percentage of road in each slope category was estimated to derive 

a weighted cost per mile used for the remaining 32 miles of anticipated NFSR construction. 

The areas have not been accessed previously due in part to the steep slopes so a higher 

percentage is assigned to the steeper slopes. The total cost was rounded in the final step of

Table 7.

Table 6. 12-Foot Road, 4-Foot Minimum Clearing, Blade Finish.

Ave % side 

slope $/Mile 2014 CPI Adjust $/Mile 2017 % of road Cost/Mile

10 $9,600 3.04% $9,890 20

20 $11,990 3.04% $12,350 30 $14,438

30 $16,990 3.04% $17,510 50

Table 7. NFSR Construction Cost.

Road Type Miles $/Mile Cost Total Cost Rounded

NFSR 32 * $14,438 $462,016

$672,526 $680,000

NFSR (Cable) 6 $35,085 $210,510

*Includes 20 miles of unauthorized routes converted to NFSR and 12 miles of new NFSR
Appendix C

C-6

New Road – Temporary Road Construction

Construction cost for temporary roads was estimated by adjusting the cost estimates for new 

NFSR construction. Temporary roads are used to access landings with the least impact on 

natural resources. Temporary roads would be stabilized, drained and seeded after purchaser 

use to return the area to a more natural condition. Therefore, temporary roads would be used 

in relatively flat ground and could have fewer drainage structures and other features of 

NFSR. The cost was estimated to be $6,000 per mile which is about half of the cost of a 

NFSR in terrain with 20 percent side slope. Temporary roads that are constructed on 

unauthorized routes would cost less to construct because the unauthorized routes tend to be in 

favorable locations. The cost of construction of a temporary road on unauthorized route was 

estimated to be $3,000 per mile which is half of the cost of temporary road on new 

alignment. The total cost was rounded in the final step of Table 8.

Table 8. Temporary Road Construction.

Type Miles $/Mile Cost Rounded

New Temporary 39 $6,000 $234,000 $230,000

Temporary on Unauthorized Route 162 $3,000 $486,000 $490,000