NATIONAL FOREST IMPROVEMENTS
The Need of Improvements. It is but natural, from their situation, that the National Forests represent pioneer conditions; conditions that one might expect to find in a wild, rugged, mountainous country. This was true to an extreme degree when the National Forests were first established and it is true in a very large degree even to-day, since the amount of time and money which it will be necessary to expend on the construction of improvements on the 155,000,000 acres of National Forests is something enormous. For a long time to come, then, the National Forests will need improvements in order to make them secure against fire and in order to make the resources, now locked up, available. Proper protection and the fullest use of National Forest resources depend mainly upon facilities for transportation, communication, and control. All parts of the National Forests should be accessible by roads and trails; there should be telephone communication between settlements and Forest officers' headquarters and with the lookout stations; and in most cases suitable living accommodations must be provided for the field force. For the fullest use of the forage resources, water for the live stock must be developed and range fences constructed; to reduce the hazard and the cost and difficulty of controlling forest fires, firebreaks and other works must be constructed.
Transportation Facilities. Adequate facilities for travel and transportation are of first importance. Steam roads, electric roads, and boat lines are utilized in the National Forest transportation system as well as the existing roads and trails. Added to this, new roads and trails are being constructed every year to complete the already existing network.
Figure 13. A forest fire lookout tower on Leek Springs Mountain. Eldorado National Forest, California.
The need for new roads and trails depends upon the number of them already existing, the value of the resources that it is necessary to make accessible, the fire liability, and the amount of unrealized revenues due to lack of transportation facilities. If valuable grazing land or timber land can be made accessible there is good reason for building a new road. In many cases roads and trails are built to facilitate the protection of large remote areas from fire. Such areas may have large bodies of valuable timber which if destroyed by forest fires would involve a heavy loss. Even aside from valuable timber on an area, it is absolutely necessary when a forest fire breaks out to get to it with men and fire-fighting equipment in the shortest possible time before it spreads. If the fire gets to be a large one, many men with provisions, tents, fire-fighting tools, and other equipment must be transported to the scene of the fire. Any delay in the transportation of these things may prove fatal and may result in an uncontrollable conflagration.
The transportation system that is proposed for a National Forest, if the one that exists is inadequate, is usually planned many years ahead. The ultimate or ideal system is always kept in mind so that every mile of road or trail that is constructed is made a part of it. If not enough money is available for a good road, a trail is built along the line of the proposed road. Later this trail is widened into a permanent road. The Engineer connected with each District Office usually has charge of laying out big road projects. A few miles of permanent, good, dirt road with good grade is always preferred to many miles of poor road with heavy grade and improper drainage. A road and trail system is planned for each National Forest which will eventually place every portion of the Forest within a distance of at least 7-1/2 miles of a wagon road. A pack-train can then transport supplies from the point to which they are delivered on the wagon road to any field camp and return in a single day.
In trail and road construction it is very often necessary to build bridges. Sometimes a very simple log bridge meets the need, but in bridging many large mountain torrents, which become very high and dangerous in the spring, large bridges are necessary. Cable suspension bridges and queen and king truss bridges are built where occasion arises for them, but only after being planned in detail and after the District Forester has approved their design and method of construction.
Figure 14. A typical Forest ranger's headquarters. Idlewood Ranger Station, Arapaho National Forest, Colorado
Very often navigable streams and lakes are used as a part of the transportation system on a National Forest. On the Tahoe National Forest in California launches are operated by the Forest Service on Lake Tahoe to patrol the region around the lake for forest fires. Ferries, boats, and launches belonging to private companies or individuals are used by agreement or if necessary are bought by the Service from the Improvement funds. Speeders, motor cars, and hand cars on railroads or logging roads are often used when an agreement has been made with the company. In this way railroads are made a part of the transportation system of the Forest.
Communication Facilities. The system of communication on the National Forests is scarcely less important than the system of transportation. This system includes telephone lines, signal systems, and mail service. The telephone system, as can be readily seen, is of the utmost importance for the transaction of all kinds of National Forest business. In case a Forest Ranger wishes to speak to his Supervisor about controlling a large fire, it makes a great difference whether he can talk to him over the telephone or whether he must send a messenger on horseback perhaps 60 or 70 miles. In the former case practically no time is lost, in the latter it would take at least two days for the messenger to reach the Forest Ranger, and in the meantime the fire would continue to rage and spread.
In the absence of a telephone system a signal system is used. The one probably used the most in forest fire protection work is the heliograph, by which code messages are sent from one point to another by means of a series of light flashes on a mirror. The light of the sun is used and the flashes are made by the opening and closing of a shutter in front of the mirror. Very often these heliograph stations are located on mountain tops in the midst of extremely inaccessible country. Where there are a number of these stations at least one is connected by telephone to the Forest Supervisor's office. When the Forest officer at the telephone gets a heliograph message about a certain fire he immediately telephones the news directly to the Forest Ranger in whose district the fire is located, or if he does not happen to be in direct communication with the Forest Ranger he notifies the Forest Supervisor, who then notifies the officer concerned. Of course it is all prearranged who should be notified in case a fire is reported to the heliograph man.
Figure 15. A typical view of the National Forest country in Montana. Forest Service trail up Squaw Peak Patrol Station, Cabinet National Forest.
Unfortunately it has been found that this system of communication is not satisfactory even under favorable conditions. This system depends upon direct sunlight; without it is useless. When there is much smoke in the air it is also of uncertain value. The heliograph system has perhaps reached its greatest development upon the California National Forest, but even here experience has shown that it is only a temporary makeshift and the plan is to replace it by a telephone system as soon as possible.
The Forest Supervisor, especially in his summer headquarters, depends directly upon the mail service for communication with the District Forester and the outside world. In many cases the fact that the Forest Supervisor has his headquarters in a small mountain community in the summer has made it possible for that community to receive a daily mail service or mail at least three times a week. When the Forest Supervisor becomes satisfied that mail service is desirable in certain mountain communities he investigates local settlers' needs for mail facilities; or he may coöperate with the people in the nearest village who are petitioning for mail service. Often his influence proves the deciding factor in getting it.
As I have said before, telephone communication is indispensable to fire protection and to quick and efficient methods of conducting National Forest business. Not only do Forest Service lines enter into the National Forest telephone system but all private lines are also made use of. By coöperative agreements with private companies the National Forest lines are used by private companies, in return for which private lines are used by the Forest Service. In this way a complete network of telephone lines is established connecting not only the Forest Supervisor with all his Rangers and his forest fire lookout stations, but also connecting each one of these with local communities and the large towns at a distance. Thus, when a forest fire occurs and the available local help is not sufficient to control the fire the telephone system is put to use to call help from the nearest villages and towns.
Figure 16. Forest Rangers repairing a bridge over a mountain stream. Arapaho National Forest, Colorado
Grazing Improvements. It is often necessary for the complete and economical use of the forage on a National Forest to coöperate with the local stockmen to develop range by constructing improvements. Water may have to be developed; fences, corrals, bridges, trails, and other works may have to be constructed. Often cattle belonging to different stockmen are grazed on adjacent areas which are not separated by natural boundaries such as rivers, ridges, or swamps. If there is no obstacle to prevent the cattle from drifting from one range into another, a drift fence is built, thus definitely separating one stockman's range from the other. Often good range would remain unused on account of lack of water altogether or on account of lack of water during the dry season only. In this case the Forest Service usually coöperates with the stockmen to provide water. Roads, trails, and bridges are often necessary to enable sheep and cattle to reach range lands.
Protective Improvements. Ranger stations, cabins, lookout stations, firebreaks and similar works are required to protect the forests from fire and are known as protective improvements. Buildings are constructed for the field force to afford necessary shelter and to furnish an office for the efficient transaction of business. Land is often cultivated for the production of forage crops and fences are built to insure necessary pasturage for live stock used by the Forest officers in their work. The buildings may be substantial houses to be used throughout the year or they may be merely such structures as will afford the necessary shelter and domestic conveniences for Forest officers in the summer. These summer camps are constructed where needed for the use of patrolmen, officers engaged in timber sale work or at such points as will serve the needs of officers traveling through the forest. Barns, sheds, and other small structures are constructed at the Ranger's headquarters when they are needed. Office buildings are also constructed for the use of Forest Rangers or for summer headquarters of the Forest Supervisor.
Figure 17. A forest fire lookout station on the top of Lassen Peak, elevation 10,400 feet, Lassen National Forest, California. This cabin was first erected complete in a carpenter's shop in Red Bluff, about 50 miles away. It was then taken to pieces and packed to the foot of Lassen Peak. On the last two miles of its journey it was packed piece by piece on forest officers' backs and finally reassembled on the topmost pinnacle of the mountain. Photo by the author.
Figure 18. Forest officers and laborers building a wagon road through trap rock. Payette National Forest, Idaho.
Appropriations for Improvement Work. The money for the construction of National Forest improvements is secured from various sources. The annual Forest Service appropriation usually carries a considerable sum for this purpose. In the fiscal year 1918 $450,000 has been appropriated for this work, which divided among the 147 National Forests gives an average only of about $3,000 per Forest. This is really a very small sum considering the size of the average National Forest. Fortunately there are other appropriations and funds and each year sees more money available for this most important work. Under the law 25 per cent. of the receipts are paid to the States in which the National Forests are located to be expended for roads and schools. The amount to be paid to the States in this way from the receipts in 1917 is about $848,874.00. By the acts of Congress organizing them as States, Arizona and New Mexico also receive for their schools funds an additional share of the receipts based on the proportion that their school lands within the National Forests bear to the total National Forest area in the States. The approximate amounts due on account of the receipts for 1917 are $42,844.80 to Arizona and $18,687.56 to New Mexico. Congress has also provided that 10 per cent, of the receipts shall be set aside as an appropriation to be used under the direction of the Secretary of Agriculture for road and trail building in National Forests in coöperation with state authorities or otherwise. The amount thus appropriated on account of the fiscal year 1917 receipts is $339,549.61. This added to the amount carried over from the 1916 receipts fund, $136,981.23, and the amount appropriated for improvements, in the regular Agricultural Appropriation Bill, $450,000.00, brings the total available for the construction of roads, trails, cabins, bridges, telephone lines, etc., on the National Forests for the fiscal year 1918 to $926,530.84.
There is still another fund recently appropriated which will enable roads and trails to be built on a very much larger scale than hitherto has been possible and will result in the rapid opening of forest regions at present practically inaccessible. The Federal Aid Road Act, passed by Congress in 1916, appropriated ten million dollars for the construction and maintenance of roads and trails within or partly within National Forests. This money becomes available at the rate of a million dollars a year until 1927. In general, the States and counties are required to furnish coöperation in an amount at least equal to 50 per cent. of the estimated cost of the surveys and construction of projects approved by the Secretary of Agriculture. The apportionment among the States is based on the area of National Forest lands in each State and the estimated value of the timber and forage resources which the Forests contain.
The total amount from all sources available for roads, trails, and other improvements on the National Forests during the fiscal year 1918 is therefore $1,926,530.84.