The Problem

Sediment from roads, farms, construction sites, logging, and a host of other sources is the largest single contributor of pollution of the state's waters. With the growing environmental awareness of the 1970's and 1980's, most point source pollution (pollution that has a particular entry site such as a factory's smokestack or pipe) sites have been under strict regulation. With the decline of point source pollution problems, non-point source pollution (pollution generated over a broad area instead of originating from an identified source) has become a growing concern.

Pennsylvania's roads are a great example of non-point source pollution. There are hundreds of thousands of miles of road in Pennsylvania. Pennsylvania also has the largest network of rivers and streams in the United States with the exception of Alaska. Unfortunately, this network of streams becomes an all to convenient disposal area for road runoff. Traditional thinking in road maintenance has been to get water off of the roads and into streams by the quickest means possible. This practice results in thousands of tons of sediment, not to mention what is being carried with it, being deposited into the state's streams.

Effects of Sediment

The presence of sediment is a natural and necessary part of a healthy stream. The addition of excess sediment, however, can cause great harm to the aquatic ecosystem. Here are some of the effects of excess sediment:

• Disruption of natural stream order and flow
• Damage to fish species through direct abrasion to body and gills
• Loss of fish spawning areas due to the filling in of gaps in stream beds
• A breakdown in the aquatic food chain as sediment suffocates small organisms living in the streambed
• Accelerated filling in of dams and reservoirs
• A change in the water composition in the Chesapeake Bay and other estuaries

Trout Unlimited Involvement

Trout Unlimited (TU) is a nationwide organization of conservation-minded anglers interested in promoting coldwater fisheries not only for fishing, but for the health of the watersheds themselves. They have local chapter in most states. The Pennsylvania chapter of TU first brought the problem of unpaved road runoff into the spotlight in 1991. TU sportsmen in Centre County's Black Moshannon State Forest were the driving force behind the developing grassroots effort to reduce sediment pollution from dirt and gravel roads.

Creation of the Task Force on Dirt and Gravel Roads

The Task Force on Dirt and Gravel Roads was created in 1993 to investigate, research and document the significance of sediment and dust, as well as other forms of water pollution resulting from dirt and gravel road maintenance practices. This private-public partnership enlisted members representing nonprofit organizations, businesses and local, state, and federal government agencies. This unique and extensive collaboration of public and private entities brought an extremely broad range of knowledge and experience to the Task Force. Included in the Task Force were representatives from:

• Trout Unlimited
• PennDOT
• PA DEP
• PA DCNR
• Penn State University
• PA Fish and Boat Commission
• USDA/NRCS
• PA Game Commission
• US Forest Service
• Pennsylvania State Association of Township Supervisors

The Task Force on Dirt and Gravel Roads was awarded the 2000 Governor's Award for Environmental Excellence. Click here for more details.

Inventory of Protected Watersheds

One of the largest obstacles facing the Task Force was the lack of documentation on the magnitude of sediment pollution from unpaved roads in Pennsylvania. With no money or staff, any kind of an inventory was virtually impossible. Trout Unlimited again took action.

In the summers of 1996-1998, volunteers from TU went out at their own expense and drove thousands of miles of roads in an effort to identify pollution sites on Pennsylvania's dirt and gravel roads. TU inventory volunteers simply recorded locations where roads were adversely impacting a stream and filled out a simple survey card for each site (see survey card here). Their efforts were concentrated on Pennsylvania's protected watersheds. These watersheds, designated as either High Quality (HQ) or Exceptional Value (EV), are special protection watersheds throughout the state. They include many drinking water reservoirs, cold water fisheries, and other important watersheds where it is imperative to maintain the health of the streams (click here for map).

The efforts put forth by the volunteers resulted in the identification and assessment of over 900 sites in protected watersheds statewide. (See enlargement of map to right). These sites became the basis for creating the Dirt and Gravel Road Maintenance Program.

Section 9106 of the PA Vehicle Code

The Task Force achieved its goal when a law (Section 9106 of the PA Vehicle Code) was enacted establishing the Pennsylvania State Conservation Commission's Dirt and Gravel Road Maintenance Program, recognizing dirt and gravel roads as a distinct form of permanent roadway with unique standards and requirements for construction and environmental protection.
As envisioned by the task force, and lauded as an example of desirable new government by the Pennsylvania 21st Century Environment Commission, the Dirt and Gravel Road Maintenance Program contains the following key characteristics:

• Local control over projects and decision making;
• Education and training;
• Simplified grant applications; and
• Private-public partnerships.

The Task Force's work helped to correct an overlooked major source of pollution in Pennsylvania's waters: sediment from publicly owned dirt and gravel roads. As a result, the Commonwealth of Pennsylvania now has a program that significantly improves the rural road network-the crossroads for agriculture and tourism, two of the state's leading industries. The task force continues today in an advisory capacity to the Dirt and Gravel Road Maintenance Program it helped to create.

The Dirt and Gravel Road Maintenance Program

The Dirt and Gravel Road Program was created in 1997 and received it's first funding allocation in the fall of 1998.  The foundation of the program lies in its administrative simplicity and common sense approach to road maintenance.  To date, over $21 Million have been distributed to local road-owning entities for road improvements. 

Key facts on the Dirt and Gravel Road Maintenance Program:

• Stresses use of site-specific, long-term solutions to prevent pollution, not “band-aid” fixes.
• Minimal administration at the state level insuring that 98% of money goes to conservation districts.
• Emphasis on informed local control that puts the decision-making process and power at the local level, but assures adherence to program values with centrally coordinated education and technical assistance.
• Environmentally sensitive maintenance of unpaved roads. “Chip-sealing” or paving is not funded.
• Over 17,000 miles of public unpaved road (forestry roads not included) have been inspected and over 11,000 “worksites” where road runoff enters a stream have been identified by conservation districts.
• A computerized GIS system is used for project tracking and central reporting with minimal paperwork.

How the Program Works

There are three levels of activity in the Dirt and Gravel Road Maintenance Program.

State Level

The State Conservation Commission (SCC) administers the program at the state level and reports to the PA Legislature of an annual basis.  The SCC allocates money to conservation districts once a year.  Allocations are based on verified need.  Districts do not submit applications. The Center for Dirt and Gravel Road Studies plays a major role in the functionality of the program at the state level.  Other outside groups provide advisory support.

County Level

Pennsylvania's 65 conservation districts administer the program at the county level.  They receive allocations from the SCC on an annual basis.  With the help of a local Quality Assurance Board (QAB), they play the most vital role in the program including:

• work directly with applicants to develop plans for projects
• assist with logistics of project work whenever possible
• keep track of records of projects in their county using GIS system
• through the QAB, they develop a prioritization ranking incoming applications
• through the QAB, they decide which project will be funded each year
• conduct project inspections after site work is completed 

Local Level

In most cases, local municipalities such as townships and boroughs, are the end beneficiary of the program.  Municipalities who own and are responsible for their maintenance can apply to their local conservation district for funding.    To be eligible to apply for funding, an official from a municipality must attend a free 2-day training on environmentally sensitive maintenance (ESM) for unpaved roads.  This training attempts to explain some basic environmental principles and introduces some new techniques and ideas in unpaved road maintenance.  In most cases, municipal officials are the ones who actually complete the project work, although some prefer to contract it out.   Other entities such as the PA Game Commission, county parks, and others are involved, but to a very minor degree.  

Program Accomplishments

As of the end of 2008, contracts for work on 1827 worksites totalling 983 miles have been completed under the Dirt and Gravel Road Program..  Assessment surveys have identified over 16,500 worksites on more than 17,ooo miles of unpaved public roads that have been inspected.

In Bedford County, 53 worksites have been addressed totalling nearly 30 miles of unpaved road. Project funds expended for road work total $378,606.52 with township in-kind contributions of $186,814.73 or 43.2%

The Center for Dirt and Gravel Road Studies

Created in 2001, the Center for Dirt and Gravel Road Studies is contracted by the PA SCC to provide services to the program. Located on Penn State's University Park Campus in State College, PA.  Center staff provides many services for both the SCC and conservation districts including:

• Development and delivery of a 2-day ESM eligibility training for program participants
• Technical assistance to districts on specific project
• Conducting field days where specific maintenance techniques are demonstrated throughout the state
• Creation and maintenance of the customized GIS system used by conservation districts to track projects
• Compilation and delivery of an annual summary report detailing program status on a yearly basis
• Creation of reference material for distribution to conservation districts and program participants
• Providing a general help desk for administrative, GIS, and project specific questions
• Creation and delivery of an annual workshop where all conservation districts are invited
• Assisting in planning and implementation strategies to develop the future direction of the program

The center has also begun to expand beyond simply a component of the Dirt and Gravel Road Program.  New projects and funding from sources such as the State Bureau of Forestry and PennDOT's Transportation Enhancement Program have broadened the scope of the center's work.  The center also participates in the design and implementation of research projects on a variety of topics related to unpaved roads and the environment from dust generation, to aggregate mixes, to runoff calculations.

Future Directions

he Dirt and Gravel Road Maintenance Program shows no signs of slowing down.  The annual $4 million allocation has no expiration date and projects will exist well into the 21st century.  The center will continue to provide support to the program while endeavoring to better understand how unpaved roads relate to our environment.