2013 Forest Service Outdoor Recreation Accessibility Guidelines (FSORAG)

1.0 APPLICATION

The Forest Service Outdoor Recreation Accessibility Guidelines (FSORAG) and the Forest Service Trail Accessibility Guidelines (FSTAG) are the legally enforceable standards for use on the National Forest System for the facilities and features addressed in those guidelines. They have been updated to incorporate the supplement to the Architectural Barriers Act Accessibility Standards, the Outdoor Developed Area Accessibility Guidelines (ODAAG), developed by the Architectural and Transportation Barriers Compliance Board (U.S. Access Board).

While they incorporate the U.S. Access Board’s ODAAG they also ensure the application of equivalent or higher guidelines, in order to comply with other existing Forest Service policies, including universal design, as well as agency terminology and processes.

The FSORAG and FSTAG became the National Forest System’s legal standard for all applicable facilities on May 26, 2006 with the final Federal Register publication of Forest Service Manuals 2330 and 2350. As stated in the Federal Register, these guidelines will be updated periodically to ensure they remain equal to or a higher standard than other guidelines and standards applicable to Federal agencies under the Architectural Barriers Act.

The FSORAG provides guidance for maximizing the accessibility of outdoor recreation areas in the National Forest System, while protecting the unique characteristics of their natural setting.

All facilities and features addressed in the FSORAG that are constructed or altered within the National Forest System shall comply with the FSORAG. Such facilities include but are not limited to camping facilities, picnic areas, viewing areas at overlooks, beach access routes, outdoor recreation access routes, and other constructed features associated with outdoor recreation areas in the National Forest System.

Construction or alteration of all facilities within the National Forest System that are not addressed in the FSORAG or FSTAG shall comply with the applicable requirements of the Architectural Barriers Act Accessibility Standards (ABAAS).

Trails within the National Forest System shall comply with the Forest Service Trail Accessibility Guidelines (FSTAG), which are available at http://www.fs.fed.us/recreation/accessibility/

Boating and fishing facilities, swimming pools, play areas, sports arenas, miniature golf courses, and amusement parks, which are referred to as "recreation facilities" are addressed in Chapter 10 of the ABAAS (http://www.access-board.gov).

These guidelines do not apply to maintenance work (routine or periodic repair of existing trails, recreation sites, or facilities).

Where existing individual site furnishings are altered or replaced, the floor or ground surface under or around them is not required to be altered solely because an accessible furnishing has been placed in that site. While the new or altered furnishing  must be accessible the clear floor or ground space shall not be required to comply with surface and slope requirements until the surface and slope alteration is the focus of work in that site.

1.1 Conditions for an Exception.

Where one or more of the following conditions exists in an outdoor recreation area, an "exception" provided in the guidelines for that specific technical requirement can be used where that condition exists. The exception shall not be used on the portion of the feature where the condition does not exist. If no exception is provided for the technical requirement, no exception is allowed. All other appropriate design options should be considered before applying the exception.

Condition for an Exception 1. Where compliance with the technical provision is not practicable due to terrain.

Condition for an Exception 2. Where compliance with the technical provision cannot be accomplished with the prevailing construction practices.

Condition for an Exception 3. Where compliance with the technical provision would fundamentally alter the function or purpose of the facility or the setting.

Condition for an Exception 4. Where compliance is precluded by the:

• Endangered Species Act (16 U.S.C. §§ 1531 et seq.);

• National Environmental Policy Act (42 U.S.C. §§ 4321 et seq.);

• National Historic Preservation Act (16 U.S.C. §§ 470 et seq.);

• Wilderness Act (16 U.S.C. §§ 1131 et seq.); or

• Other Federal, State, or local law the purpose of which is to preserve threatened or endangered species; the environment; or archaeological, cultural, historical, or other significant natural features.

1.2 Definitions.

Alteration of a recreation site, building, or facility.

A change to a portion of a recreation site, building, or facility that is addressed by the accessibility guidelines and that affects or could affect the usability of the site, building, or facility.  Alterations include, but are not limited to, remodeling, renovation, rehabilitation, reconstruction, historic restoration, change in surface of circulation paths or vehicular ways, changes or rearrangement of the structural parts or elements, and changes or rearrangement in the plan configuration of walls and full-height partitions. Normal maintenance, reroofing, painting or wallpapering, or changes to mechanical and electrical systems are not alterations unless they affect the usability of the building or facility.

Beach Access Route.

A continuous, unobstructed path designed for pedestrian use that crosses the surface of a beach or that leads from a pedestrian access point to the high tide level at tidal beaches; mean high water level at river beaches; or the normal recreation water level at lake, pond, and reservoir beaches.

Beach Nourishment.

A process by which sediment (usually sand) is added to a beach. An entity is not required to expend more than 20% of the costs of a beach nourishment project to provide a beach access route.

Camp Shelter.

A small structure typically enclosed on three or all four sides, with a roof or overhang. Camp shelters are often located on trails.  Camp shelters are not cabins, which are typically larger and are required to comply with ABAAS section 806 for transient lodging where short term accommodations are provided.

Camping Facility.

A site, or portion of a site, developed for outdoor recreational purposes that contains camping units. 

Camping Unit.

A discrete area within a campground with a persons at one time capacity (PAOT) of 5 that usually includes a camp living area, a parking spur, and one or more constructed features such as a picnic table and a cooking or campfire area.

• Camp Living Area. The area in a camping unit that contains constructed features, such as picnic tables, grills, fire rings, utilities, and other related elements, and may be located adjacent to or near a parking spur. 

• Parking Spur. The space in a camping unit that is designed for vehicular access and parking and that includes a driveway and vehicle parking area.

• Driveway. The section of a parking spur connecting the road accessing a campground and a vehicle parking area.

• Vehicle Parking Area. The section of a parking spur where camping vehicles, such as cars, motorcycles, vans, recreational vehicles, and trailers, are parked.

• Multiple Camping Unit. A camping unit that can accommodate more than 5 PAOT.  A double camping unit accommodates 10 PAOT.  A triple camping unit accommodates 15 PAOT.  A camping unit with a PAOT of 20 or more is a group camping unit. 

Circulation Path.

An exterior or interior way of passage provided for pedestrian travel. 

Clear Floor or Ground Space.

The minimum unobstructed floor or ground space required to accommodate a single, stationary wheelchair and occupant.

Developed Recreation Site.

A recreation site that has a development scale level of 3, 4 or 5 on the Recreation Site Development Scale in Forest Service Handbook 2309.13,10– Exhibit 01.

Essential Container.

A trash, recycling, food storage, or other animal-resistant container.

Outdoor Constructed Feature.

A constructed element provided at an outdoor recreation site such as a picnic table; fire ring; pedestal grill; tent pad; bench; trash, recycling, or other essential container; fireplace, woodstove, water hydrant or pump, telescope or periscope; pit toilet; or outdoor rinsing shower.

Outdoor Recreation Access Route (ORAR).

A continuous, unobstructed path designed for pedestrian use that connects constructed features in a campground, camping unit, picnic area, at a trailhead or other recreation site where modifications are provided for visitor convenience and comfort.

Pedestrian Access Points to a Beach.

A location developed as an entry point to the beach for pedestrians. Access Points include parking facilities that serve beaches, dune crossings, and stairways or ramps leading from boardwalks, walkways, or parking spaces to the beach.

Picnic Facility.

A site, or portion of a site, developed for outdoor recreational purposes that contains picnic units.

Picnic Unit.

An outdoor space within a picnic area or facility that is designed and constructed for picnicking and that contains one or more constructed features such as picnic tables, grills, and other related elements.

Pit Toilet.

A primitive outhouse consisting of a toilet riser over a hole dug into the ground or receptacle to receive and naturally decompose human waste.  Pit toilets are provided primarily for resource protection and are only constructed at recreation sites with a Recreation Site Development Scale level of 2 of less. A pit toilet riser may or may not be surrounded by walls and may or may not have a roof.  A pit toilet may be permanently installed or may be moved from one location to another as the pit is filled or the area becomes severely impacted from use.  Waste may be disposed of directly into the pit or may be composted.

Practicable.

Practicable in this context means the work can be completed within the limits of the applicable Conditions for an Exception and results in a useful improvement for all.

Protruding Object.

A constructed feature such as a sign that overhangs an ORAR, beach access route, trail, resting interval, or passing space between 27 inches (685 mm) and 80 inches (2030 mm) above the travel surface.  Accessibility guidelines for protruding objects do not apply to natural elements such as tree branches and rock formations.  However, safety regulations or Forest Service construction and maintenance standards may define clear space and limit overhangs of natural protruding objects.

Provisions.

The sections of accessibility guidelines and standards that explain what is required for specific situations and facilities (parking, picnic tables, trails, etc.)

Recreation Site.

An area that is improved, developed, or otherwise identified for recreation and that has a development scale of 0, 1, 2, 3, 4, or 5 (See Forest Service Handbook 2309.13, Chapter 10 – Exhibit 01. [sic]

Reconstruction.

This term is not used in Federal accessibility guidelines or the FSORAG and FSTAG, even though it is used frequently by folks who work in recreation and trails. For the purposes of the FSORAG and FSTAG, actions are categorized as construction, alteration, or maintenance.

Scoping Requirement.

Specifications of where, when, and how much of a constructed features detailed in the accessibility guidelines technical requirements must be met in order to be in compliance with the guidelines. 

Slope.

The incline of a surface. 

• Cross Slope. The difference in elevation from edge to edge of an ORAR, trail, or beach access route measured perpendicular to the direction of travel.  This may be expressed as the percentage of change in elevation or as a ratio of vertical distance to horizontal distance. The percentage is shown in parentheses in these guidelines.

• Running Slope (Grade). The difference in elevation of a section of an ORAR, trail, or beach access route measured parallel to the predominant direction of travel.  This may be expressed as a ratio of vertical distance to horizontal distance or as the percentage of change in elevation.  The percentage is shown in parentheses in these guidelines.

Surface.

The top layer of ground on a recreation site, ORAR, trail, or beach access route.

• Firm. A firm surface resists deformation by indentations. During the planning process, firmness must be evaluated for noticeable distortion or compression during the seasons for which the surface is managed, under normally occurring weather conditions.

• Stable. A surface is not permanently affected by expected weather conditions and can sustain normal wear and tear from the expected use(s) of the area, between planned maintenance.

Technical Requirements.

The specific numbers, conditions, and measurements that are required to be achieved (percent that must comply, dimensions, reach ranges, grades, trail width, etc.). 

Tent Pad.

An outdoor space designed and constructed for setting-up and securing tents.

Tent Platform.

An outdoor space designed and constructed for setting-up and securing tents that is elevated above the ground surface.

Trail.

For purposes of the FSTAG and FSORAG, a trail is a pedestrian route developed primarily for outdoor recreational purposes.  A pedestrian route provided primarily to connect elements, spaces, or facilities within a site is not a trail; it is an outdoor recreation access route (ORAR).

Trailhead.

For purposes of the FSORAG and FSTAG, a trailhead is an outdoor space that is designated by an entity responsible for maintaining or administering the trail to serve as an access point to the trail.  The junction of two or more trails, or the undeveloped junction of a trail and a road, is not a trailhead.  

Vehicle Parking Lot.

An area specifically intended for parking of more than two motor vehicles, usually divided into multiple designated parking spaces. 

Viewing Area.

An outdoor space developed for viewing a landscape or point of interest such as a mountain range, a valley, or a waterfall.

Wheelchair.

A 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.  A person whose disability requires use of a wheelchair or mobility device may use a wheelchair or mobility device that meets this definition anywhere foot travel is permitted (36 CFR 212 .1, Forest Service Manual 2353.05 and Title V, Section 508c, of the Americans with Disabilities Act).