Accessibility Transition Plan for
Recreation Programs

Tongass National Forest, Alaska

Draft 8/18/04

Table of Contents

Introduction

The Tongass National Forest Accessibility Transition Plans for Recreation Programs identifies existing conditions of the Forest recreation programs and recommends strategies to meet accessibility guidelines within specific timeframes.  These transition plans will help ensure all Forest recreation programs are available for use by everyone, including people with disabilities.

Section 504 of the Rehabilitation Act of 1973, as amended, requires Federal agencies to provide access to their programs and activities to people with disabilities.  Several different design guidance documents have been developed to implement Section 504, as well as the Architectural Barriers Act of 1968 (ABA) and the Americans with Disabilities Act of 1990 (ADA).

Guidance used to determine overall program accessibility in the outdoor recreation setting includes the draft Forest Service Outdoor Recreation Accessibility Guidelines (FSORAG) and the draft Forest Service Trails Accessibility Guidelines (FSTAG).  Those are available at www.fs.fed.us/recreation/programs/accessibility. The ADA and ABA Accessibility Guidelines for Buildings and Facilities (ADAABAG) provides design standards for buildings on National Forests, such as visitor centers, cabins, restrooms, and recreational boating facilities and fishing piers and platforms.  ADAABAG (7/23/04) is also available online at www.access-board.gov/ada-aba.htm.  Some guidance on implementation of accessibility in communications media can be found in 36 CFR Part 1145, but this only addresses audio/visual media.  Regulatory guidance on accessibility with other media is still being developed.

The Tongass National Forest has eight recreation programs for which it provides developed facilities:

• Boating
• Cabin Rentals
• Camping
• Communications
• Fishing
• Hiking
• Picnicking/Day Use
• Recreation Special Uses

Although other recreation activities, such as hunting and Nordic skiing occur, there are currently no facilities developed primarily to support these activities.  Thus, they were not identified as separate recreation programs and were not specifically addressed in the transition plans.  It should be noted tidal fluctuations often affect accessibility of facilities, particularly for mobility – i.e. a cabin may be easily reached by a boat during high tide but a considerable distance from water at low tide.

In assessing the accessibility of these recreation programs, it is recognized that at many facilities, visitors are provided a variety of recreation experiences.  For example, campground visitors may come to fish and boat, as well as camp.  The Forest intent is that at locations where several activities take place, each is accessible to people with disabilities as the terrain and natural setting may allow.  All sites evaluated in this transition plan are listed in the Forest Service infrastructure database (INFRA).

Transition Plan Design

The transition plan for each program area begins with a narrative and is followed by a table of specific facilities or sites, organized by District.  Each of the 10 Districts is considered a separate entity in the plan to improve accessibility.  Tables include obstacles to accessibility and proposed or planned actions to make the facility accessible.  Target dates for completion have been estimated; actual accomplishment will depend on funding.

A District is considered to have an accessible program when any facilities are accessible for that program in that District.  Conversely, if a District lacks accessible facilities for a particular program, the program on that District is considered inaccessible.  In both cases, inaccessible facilities have been identified for renovation or replacement.  In addition, accessibility of all facilities will be improved as they wear out or become out-dated.

Finally, the Forest has not identified the need to develop facilities strictly for accessibility purposes if there are none for a particular program on a District.  The impetus for development of facilities to support a program in a geographic area that does not currently promote that program lies outside the scope of these accessibility transition plans.

Public Involvement

The focus of public involvement has been collaboration with interested parties, such as advocacy organizations for people with disabilities and recreationists with disabilities.  Additional outreach to interested parties occurred through sharing of the draft plan via:

• public notices in newspapers (name, dates)
• letters to interested organizations and individuals (dates)
• “open house” meetings (dates)
• the Forest website
• and one-on-one discussions with the public

Boating

There are 5 developed boating sites on the Forest located apart from developed camping, picnicking, or cabin sites (which are evaluated in those Program areas instead).  The remainder of the Forest boating program occurs at undeveloped locations.

The locations identified below have developed facilities and are included in the Forest INFRA database.  A boat boarding pier at a boat launch is considered accessible when the pier meets accessibility standards in the ADAABAG Guidelines for Accessible Boating Facilities.  In addition, each accessible boating site must include at least one accessible parking space and an Outdoor Recreation Access Route (ORAR) that links parking, boating facilities, and toilets per FSORAG.

Only 1 of the current developed boating facilities meet accessibility standards.  As existing facilities are renovated or replaced, each will be reconstructed to comply with ADAABAG standards.

Cabin Rental

There are 150 cabins and 29 shelters on the Forest, located primarily on fresh water lakes and along marine shores.  Most are very remote, with access only by float plane or boat.

A cabin is considered accessible when the cabin or shelter structure, all site amenities (furnishings, outbuildings, fire rings, docks, etc.), and associated access routes meet accessibility standards in ADAABAG and FSORAG.

10 Cabins on 7 Districts currently meet accessibility standards.  The accessibility target is at least one cabin on each District.  As cabins, shelters, and related facilities are renovated or replaced, each will be reconstructed to meet ADAABAG.  Access routes and related recreation experiences will meet FSORAG standards when renovation or reconstruction is required to protect resources, except where improvements would cause harm to natural features, change the nature of the setting, be inconsistent with the Forest Plan, or not be feasible due to terrain.  It is anticipated that at least 31 cabins will be accessible by 2010, including 21 that are scheduled to be renovated.

Camping

There are 21 developed campgrounds on the Forest, with facilities ranging from highly developed RV sites and flush toilets to remote tent pads with a table and fire ring.  Assessment of accessibility includes the primary activities associated with each site.

A campground is considered accessible when the camping sites, tables, grills, toilets, ORARs, and other site amenities meet FSORAG standards.

11 campgrounds currently meet accessibility standards; it is anticipated that 4 more campgrounds will meet accessibility standards by 2010.  Thereafter, as facilities are renovated or replaced, each will be reconstructed to meet ADAABAG. All constructed features provided in camp living areas (tables, grills, etc.) will be accessible.  The minimum number of accessible parking spurs provided at developed campgrounds will be consistent with FSORAG, based on the total number of campsites provided in each campground.  Access routes and related recreation experiences will meet FSORAG standards when renovation or reconstruction is required to protect resources, except where improvements would cause harm to natural features, change the nature of the setting, be inconsistent with the Forest Plan, or not be feasible due to terrain.  The target number of accessible sites is minimums; if conditions allow, more sites will be designed to accessible standards at each campground.

Communications

There are 27 communication centers on the Forest.  This includes the Southeast Alaska, Petersburg, and Mendenhall Glacier Visitor Centers, each of the District Offices, and various interpretive exhibits and sites (interpretive trails, fish pass sites, etc.).

Standards related to accessibility of media communications are not clearly defined.  The Forest Service is required to provide sufficient audio descriptions for all visual productions to enable the user to comprehend the content of the production (36 CFR Part 1145).  Providing information through a variety of media is the key to maximum accessibility - Forest units are encouraged to employ tactile, visual, and audio formats whenever possible.  In addition, information is to be designed for varying intellectual levels.

Each site was evaluated in regards to its potential use by people with mobility, vision, hearing, or learning disabilities.  Access to exhibits, literature, audio/visual materials, and interpretive programs were considered.  Accessibility of structures is assessed in the Cabin, Camping, or Day Use Programs.

Most sites currently meet access standards for mobility, with varying access to those with visual, hearing, or learning disabilities.  The availability of a staff member to read or describe brochures was considered acceptable for meeting visual accessibility.  Proposed actions generally include provision of large print brochures, audio tapes, and other adaptations.  With the exception of some remote sites, most communication media are scheduled to meet all access standards by 2010.

Day Use

There are 19 developed picnic areas on the Forest and 13 other sites, such as overlooks, wildlife observation areas, and hot springs.  Assessment of accessibility includes the primary activities associated with each site.  Where interpretive exhibits are present, only the accessibility of the facility housing the exhibit was considered.  Accessibility of the exhibits is assessed in the Communications Program.

A day use site is considered accessible when tables, grills, toilets, ORARs, viewing platforms, and other site amenities meet FSORG standards.

7 picnic areas and 5 other day use sites currently meet accessibility standards.  As developed picnic grounds and other day use sites are renovated they will be brought into compliance with FSORAG.  This will include replacement of toilets with accessible models that meet ADAABAG standards for buildings.  All constructed features provided in picnic areas (tables, grills, etc.) will be accessible.  The minimum number of accessible parking stalls provided at developed picnic grounds and day use sites will be consistent with FSORAG, based on the total number of parking stalls provided.   These standards will be applied except where improvements would cause harm to natural features, change the nature of the setting, be inconsistent with the Forest Plan, or not be feasible due to terrain.  By 2010, 10 more sites are expected to meet accessibility standards.

Fishing

There are 4 developed land-based fishing sites on the Forest apart from developed camping, picnicking, or cabin sites (which are evaluated in those Program areas instead).  The remainder of the fishing program occurs at undeveloped locations or from saltwater.

A land-based fishing opportunity is considered accessible when parking, fishing platform, and access routes meet FSORAG standards and ADAABAG Guidelines for Accessible Fishing Piers and Platforms.

2 fishing sites currently meet accessibility standards.  There are no current plans to construct new or modify existing fishing facilities.  However, as facilities are renovated or replaced, each will be reconstructed to meet ADAABAG.  Access routes will meet FSORAG standards when renovation or reconstruction is required to protect resources, except where improvements would cause harm to natural features, change the nature of the setting, be inconsistent with the Forest Plan, or not be feasible due to terrain.

Hiking

Of all the trails on the Forest, there are 34 "easy" trails, which cover 44.5 miles.  They vary in length, level of development, features, and attractions.  Due to extreme terrain limitations, only “easy” trails were considered in these plans.

Accessibility standards for trails are found in FSTAG.  The provisions of FSTAG apply to all new or reconstructed pedestrian trails that connect to a designated trailhead or another, accessible trail.  FSTAG identifies conditions of departure and limiting factors that determine the extent of the application of the accessibility provisions for each trail.

13 trails, or approximately 6.5 miles, currently meet accessibility standards.  Even though the others are categorized as "easy", many contain short sections of steep terrain or native muskegs.  Prior to any trail construction or reconstruction, an analysis will be completed to determine the application of accessibility standards for that trail's design.

Recreation Special Uses

There are X recreation-based special use permits on the Tongass National Forest.  Permit types range from lodges to outfitter/guides leading clients on fishing, hiking, or kayaking adventures.  Permit holders operating under special-use authorization from the Forest Service are required to comply with both the Americans with Disabilities Act of 1990 (ADA) and Section 504 of the Rehabilitation Act of 1973.  Implementing regulations for Section 504 applicable to recreation special-use permit holders are located in 7 CFR 15.  The regulation basically states that permittees may not discriminate against qualified persons with disabilities who want to make use of their services and/or facilities.

These same regulations also describe a variety of methods a permittee may use to comply with requirements.  Accessibility is to be provided unless the cost to do so would be an undue financial burden for the permittee, based on the cost of the retrofit in comparison with the profit generated by the business.  A permittee needing to retrofit facilities would be asked to write a transition plan to make the facilities usable. 

Under the ADA and Section 504, a person with a disability cannot be denied participation in a permittee program that is available to people who do not have disabilities, unless the person with a disability is not qualified to participate.  The concept of being qualified applies to all people, with or without a disability.  After defining “Essential Eligibility Criteria” to qualify people to participate in the program, the permittee must apply those criteria to all people prior to participation in that program.  These criteria must be based on functional requirements of the activity that the permittee offers; the Accessibility Guidebook for Outfitters/Guides Operation on Public Lands offers guidelines outfitters/guides can use to identify Essential Eligibility Criteria.

The Tongass National Forest plans to continue working with permittees to ensure they understand their responsibilities and the market benefits of providing accessible programs and facilities.   Forest staff will provide an overview of the Accessibility Guidebook for Outfitters/Guides Operation on Public Lands, as well as an overview of the applicable laws and regulations.  Compliance with the requirements will be monitored through on-going administration of special use permits.  In cases where transition plans are required of permittees, Forest personnel will assist the permittee in their preparation.  Transition plans will be included as a component of the annual operating instructions for permittees.  The target date for implementing these actions is 20XX.

Contributors

This report was prepared by Forest Service employees of the Recreation Solutions Enterprise Team, in cooperation with the following Tongass Forest personnel.  These individuals were instrumental in collecting the information contained in this report: