Subject Code: 

1. Purpose. Much of the land being surface mined for coal, particularly in the 

eastern United States, was woodland or forestland prior to being mined. 

However, past regulatory emphasis under SMCRA has been on achieving land 

stability which has resulted in smoothly graded, compacted mine soils and the 

establishment of aggressive vegetative ground covers to control erosion. This 

type of reclamation has lead many mine operators and landowners to choose 

agricultural land uses dominated by grasses and forbs, despite the lack of 

agricultural infrastructure in many areas, over those that include trees. Trees that 

are planted in smoothly graded areas with heavy vegetative ground cover are 

unlikely to survive or thrive. The few that do survive are often stunted. Such 

areas have little potential for supporting healthy productive forests. The 

significant forest fragmentation resulting from these conventional reclamation 

practices has led to reduced carbon sequestration, loss of wildlife habitat, 

increased flood potential, loss of forest products, etc. The purpose of this 

Directive is to lay out OSM’s role in reversing this trend. OSM will promote 

reforestation where existing forests were removed by mining and, when practical, 

encourage forest establishment after reclamation wherever coal is mined. 

2. Summary of Changes. This is a new Directive. 

3. Definitions. 

a. Forestry Reclamation Approach. A scientifically based method of 

reclaiming surface coal mines to increase tree survival and growth and to expedite 

the establishment of forest habitat through natural succession. The five steps of 

the Forestry Reclamation Approach (FRA) are: 

(1) Create a suitable rooting medium for good tree growth at least four 

feet deep and comprised of topsoil and/or the best available material. 

TSR - 16 

Transmittal 

Number: 

 931

U.S. DEPARTMENT OF THE INTERIOR

OFFICE OF SURFACE 

MINING RECLAMATION 

AND ENFORCEMENT 

DIRECTIVES 

SYSTEM 

Date: 

6/10/08

Subject: Reforestation of Title IV and Title V mined lands 

Approval: Brent Wahlquist Title: Director
(2) Limit any grading of the rooting medium established in step one in 

order to avoid/limit compaction. 

(3) Use ground covers that are compatible with growing trees. 

(4) Plant two types of trees - early succession species for wildlife and 

soil stability, and commercially valuable crop trees. 

(5) Use proper tree planting techniques. 

 b. Commercially valuable crop trees. Timber species, native to the area, 

selected for their commercial market value and their ability to serve as a seed 

source for further establishment of the trees. 

c. Early succession species. Tree and shrub species, native to the area, 

selected for their ability to survive in the open conditions commonly found on 

newly reclaimed mine sites and their ability to support wildlife and soil 

improvement. 

d. Non-compacted rooting medium. The top layer of soil or soil-substitute 

materials (four feet or more in depth) that has been placed with little or no grading 

in order to avoid compaction. For sites already compacted, ripping the soil 

surface should be employed to reduce compaction. 

e. Ground covers compatible with growing trees. Because groundcover 

species compete with tree seedlings for light, water and nutrient resources and 

provide habitat for animals that feed on tree seedlings, groundcover should be 

limited to that necessary to control erosion. Aggressive species should not be 

used for groundcover. Ground cover for erosion control can also include organic 

and inorganic mulches, tree stumps and roots, and non-erodible rock fragments. 

4. Policy. Forests constitute a unique and highly valuable resource, both 

ecologically and economically. It is OSM policy to promote reestablishment of 

forests on Title IV and Title V mine sites by addressing the technical, regulatory, 

and cultural barriers to successful reforestation of mined land. 

The OSM will encourage the widespread and routine planting of native highvalue trees on reclaimed coal mined lands throughout forested areas of the United 

States that will restore the uses and ecosystems provided by forests prior to 

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mining. In doing so, OSM will promote using reclamation practices that increase 

the survival rates and growth rates of planted and volunteer trees and expedite the 

establishment of forest habitat through natural succession. Such reclamation will 

enhance compliance with statutory mandates to restore affected land to a 

condition capable of supporting potential land uses that were present prior to any 

mining (section 515(b)(2)), and establishment of a diverse, effective and 

permanent vegetative cover capable of self generation and plant succession 

(section 515(b)(19)). 

Mine reclamation using proper techniques will restore healthy and productive 

forests that minimize soil erosion, remove carbon dioxide from the atmosphere, 

provide wildlife habitat (including supporting ecosystems favored by endangered 

species of the interior forest, such as migratory birds and bats) support diverse 

plant species, and help conserve water resources and reestablish riparian habitats. 

Additionally, reforestation of coal mined land can provide important recreational 

areas for hunting, hiking, camping, mountain biking, etc. 

Before an Asian blight destroyed the American chestnut tree throughout its 

natural range in the first half of the twentieth century, it was the monarch of the 

eastern deciduous forest with enormous ecological and economic value. Because, 

the coal fields from Mississippi to Pennsylvania coincide with much of that 

natural range, reclamation of surface mined land provide a unique opportunity for 

reintroducing blight resistant strains where they may serve as vectors for 

spreading this magnificent tree. OSM will promote, with all interested partners, 

the use of reclaimed mine lands as sites for the reintroduction of the American 

chestnut throughout its natural range. 

5. Responsibilities. 

a. The Assistant Director, Program Support (AD, PS) is responsible for 

ensuring that NTTP courses are consistent with the policy in this directive. 

b. The Regional Directors are responsible for actively promoting land uses at 

Title V mine sites that include planting trees, using proper techniques, where the 

land was forested prior to mining, particularly where OSM is the Regulatory 

Authority. They will also encourage reforestation of Title IV sites. In fulfilling 

these responsibilities, they will actively promote partnerships with states, 

industry, landowners, academic experts, and other interested parties at local, state, 

and regional levels. 

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c. The Division Chief responsible for technical support within each regional 

office will develop and maintain, in coordination with the Regional Technology 

Transfer Team, a regional strategy for reforestation success. This should include 

building partnerships with academic institutions within the region to promote the 

development and application of best technologies in reforestation. 

d. Field Office Directors/Field Division Chiefs (FODs) are responsible for 

promoting reforestation efforts with their assigned states, including Arbor Day 

events, education initiatives with Regulatory and AML personnel on proper 

reforestation techniques, building partnerships, etc. to address the technical, 

regulatory, and cultural barriers to successful reforestation in each state. 

6. Procedures. 

Reforestation should be accomplished employing science-based techniques. The 

Forestry Reclamation Approach (FRA) defined in this Directive is such an 

approach. Because application of the five general principles in FRA has 

demonstrated successful tree growth and survival, they should be used to the 

extent possible. As the science of reforestation of mined land evolves, these 

principles may be further refined. 

A significant barrier to successful reforestation is the long-standing perception of 

what good reclamation should look like. It is not always a smoothly graded 

surface with heavy groundcover. A non-compacted growth medium for trees is 

usually rough and sometimes rocky. Reclamation of this nature may not be 

aesthetically pleasing in the short term, leading to cultural barriers that prevent 

people from accepting the use of the FRA in reclaiming mines. However, the 

science behind the FRA has proven that it is superior for establishing healthy and 

productive forests. 

Employees at all levels within OSM will actively work together to overcome the 

cultural barriers to the FRA and inform mining companies, equipment operators, 

regulatory authorities, AML Programs, and landowners about the benefits of this 

proven practice. Such an endeavor requires significant communication in a wide 

range of forums. 

a. OSM will continue to promote national, regional, state and local, 

reforestation initiatives that educate the industry, regulatory authorities, and 

public on the benefits of forests and of using FRA on reclaimed mines. 

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b. The principles of the FRA should be included in mining permits in Federal 

program States where the approved postmining land use requires the planting of 

trees or shrubs. Further, OSM will encourage operators and landowners to select 

a postmining land use that includes trees. Additionally, OSM will encourage 

State Regulatory Authorities to promote land uses that include tree planting and 

include FRA provisions in those permits. 

c. OSM will promote partnerships with reforestation researchers and 

practitioners in the scientific community and elsewhere. OSM will support and 

seek the latest research, data, and best management practices that continue to 

define the FRA and its application under differing field conditions. OSM will 

continue to take an active role in identifying reforestation research needs so that 

unique mining operations, special soil conditions, special reforestation problems, 

etc. are adequately and timely addressed by researchers and practitioners. 

d. OSM’s National Technical Training Program (NTTP) will support this 

national policy and the procedures for reforestation of Title IV and Title V mine 

sites by incorporating the principles of the FRA in its reforestation and soils and 

revegetation courses, including regionally-oriented courses. 

7. Reporting Requirement. None 

8. Effect on Other Documents. None 

9. References. 

 

a. Angel, P., V. Davis, J. Burger, D. Graves, C. Zipper. 2005. The 

Appalachian Regional Reforestation Initiative. U.S. Office of Surface Mining. 

Forest Reclamation Advisory Number 1. 2 p. (available from 

http://arri.osmre.gov/). 

 

b. Burger, J., D. Graves, P. Angel, V. Davis, C. Zipper. 2005. The Forestry 

Reclamation Approach. U.S. Office of Surface Mining. Forest Reclamation 

Advisory Number 2. 4 p. (available from http://arri.osmre.gov/). 

c. Vories, K., C. and D. Throgmorton. 1999. (eds.). A Technical Interactive 

Forum on Enhancement of Reforestation on Coal Mine Land. USDOI Office of 

Surface Mining and Coal Research Center, Southern Illinois University at 

Carbondale. 248p. (available from 

http://www.mcrcc.osmre.gov/PDF/Forums/Reforestation/contents.pdf). 

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d. Vories, K., C. and D. Throgmorton. 2002. (eds.). Proceedings of the 

Market-Based Approaches to Mined Land Reclamation and Reforestation: A 

Technical Interactive Forum. May 15-16, 2002. Fort Mitchell, Kentucky. 

USDOI Office of Surface Mining and Coal Research Center, Southern Illinois 

University at Carbondale, Illinois. 153 p. (available from 

http://www.mcrcc.osmre.gov/PDF/Forums/MarketBasedReforest/TOC.pdf). 

10. Effective Date. Upon Issuance 

11. Distribution. By electronic format. 

12. List of Appendices. None 

13. Contacts. Assistant Director, Program Support

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