Recreational Trails Program — Federal Gas Tax Grants for Trail Development

The Recreational Trails Program (RTP) — codified at 54 U.S.C. §§ 200701–200714 and administered by the Federal Highway Administration (FHWA) — is a federal grant program that apportions funds from the Highway Trust Fund to states for the development and maintenance of recreational trails. For the broader system of federally designated trails, see National Trails System., including both motorized (off-highway vehicles, snowmobiles, ATVs) and non-motorized (hiking, biking, equestrian, paddle sports) facilities. The program's funding derives from a dedicated portion of the federal fuel taxes paid by recreational off-highway vehicle users — specifically the gasoline excise tax collected on fuel used in off-highway recreational vehicles — creating a user-pays structure: the people who drive ATVs, snowmobiles, and off-highway motorcycles on trails fund, through their fuel purchases, a grant program that builds and maintains those same trails (and non-motorized trails as well). Annual apportionments have been approximately $89–105 million per year since the program was reauthorized in the Bipartisan Infrastructure Law (2021). States receive their share based on registered motorized recreational vehicles and submit project applications; a 30% motorized / 30% non-motorized / 40% diverse use spending split is required, ensuring the program serves all trail users rather than just off-highway vehicle operators. The RTP is administered by FHWA (a transportation agency) rather than NPS because it originated in the Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA) as part of the transportation bill, reflecting Congress's policy determination that recreational trails are part of the broader transportation and mobility infrastructure, not merely a recreation amenity.

Current Law (2026)

Legal Authority

• 54 U.S.C. § 200701 — Definitions: defines "recreational trail," "motorized recreational trail," "nonmotorized recreational trail," and "diverse use trail"; defines eligible applicants (government agencies, nonprofits with trail management responsibility)
• 54 U.S.C. § 200702 — Purposes: the purposes of the program are to provide and maintain recreational trails for both motorized and non-motorized recreational trail use; to protect the natural environment around recreational trails; to promote safety and environmental education for trail users
• 54 U.S.C. § 200703 — Apportionment: the Secretary of Transportation (acting through FHWA) shall apportion funds among the states based on the formula; funds are drawn from the Highway Trust Fund and represent the estimated fuel taxes paid by off-highway recreational vehicle users
• 54 U.S.C. § 200704 — Use of apportioned funds: states may use RTP funds for construction, reconstruction, and maintenance of recreational trails and trailheads; restoration of areas damaged by recreational trail use; educational programs; development of trail maintenance equipment
• 54 U.S.C. § 200705 — Motorized and nonmotorized spending requirements: not less than 30 percent of a state's RTP apportionment must be used for motorized trail projects; not less than 30 percent for non-motorized trail projects; the remainder for diverse use projects serving both
• 54 U.S.C. § 200706 — Matching requirements: federal share is 80%; state or local match is 20%; match may be in-kind (volunteer labor, donated materials) as well as cash
• 54 U.S.C. § 200707 — State recreational trail advisory committees: each state must establish a recreational trail advisory committee with representation from motorized and non-motorized trail users, land managers, and other stakeholders; the committee recommends projects for funding
• 54 U.S.C. § 200708 — Opt-out provision: a state that does not establish an RTP under this chapter may transfer its apportioned funds to other surface transportation programs
• 54 U.S.C. § 200709 — Federal agency projects: federal agencies (NPS, USFS, BLM, Corps of Engineers, FWS) may directly receive RTP funds for trail projects on federal lands
• 54 U.S.C. § 200710 — Trail restoration: funds may be used to restore natural surfaces and mitigate environmental damage caused by unlawful or improper use of motorized vehicles on non-motorized trails
• 54 U.S.C. § 200714 — Relationship to other laws: the program does not authorize the use of motorized vehicles in areas where such use is otherwise prohibited by law

How RTP Relates to Other Trail Funding Programs

The RTP is one of several federal programs funding trails; understanding the distinctions helps identify the right funding source for a given project:

The key RTP distinction: RTP funds come from off-highway vehicle fuel taxes — creating a user-pays linkage between OHV users and trail funding. This makes RTP unique among federal trail programs in its explicit tie to a specific user community's fuel tax contributions, and in its statutory requirement to allocate a minimum 30% to motorized trails (which generally cannot access LWCF or TAP funding).

Key Numbers

• $89–105 million: Annual RTP apportionment to states (IIJA authorization, FY2022–FY2026)
• 1991: Year of original RTP authorization (ISTEA); later reauthorized in TEA-21, SAFETEA-LU, MAP-21, FAST Act, and IIJA
• 30% / 30% / 40%: Required minimum allocations for motorized / non-motorized / diverse use trail projects
• 80% / 20%: Federal-to-state match ratio for most projects
• ~$1 billion: Cumulative RTP investment since 1991 inception
• All 50 states: All states participate in RTP (opt-out is available but rarely used)
• State advisory committees: Every state must have a trail advisory committee with representation from both motorized and non-motorized user groups — one of the few federal programs requiring this bipartisan trail-user governance structure

How It Affects You

If you are a trail user (hiking, biking, equestrian, paddling, OHV, snowmobile): RTP funds have built and maintained thousands of miles of the trails you use, including singletrack mountain bike trails, snowmobile corridors, equestrian routes, and multi-use paths. Trails funded through RTP are typically on public land (federal or state) or on easements held by public agencies or nonprofits. When you pay federal gasoline tax on fuel used in your ATV, snowmobile, or off-highway motorcycle, a portion funds this program — the user-pays rationale for OHV-community support of the RTP.

If you are a trail organization, land trust, or nonprofit managing trails: Nonprofit organizations that hold trail easements or manage trails on public land are eligible RTP applicants in most states. Your state's recreational trail coordinator (housed in the state transportation or natural resources agency) manages the application process. Key eligibility requirements: you must have responsibility for trail management on the relevant land; you must provide a 20% match; and your project must fall within the motorized/non-motorized/diverse-use spending categories. Grant amounts typically range from $10,000 to several hundred thousand dollars per project.

If you work in state transportation or recreation agencies: RTP funds flow to the state transportation agency, which then distributes them through the state's Annual Program Agreement process. The state recreational trail advisory committee is a required governance body — building and maintaining this committee is a federal compliance requirement. States that do not expend their apportionment within the required period must return funds to FHWA; states have strong incentives to ensure efficient pipeline management.

If you represent the OHV/powersports industry or community: The RTP is the primary federal program with a legal mandate to fund motorized recreational trails — a community that is often excluded from or underserved by general conservation and outdoor recreation programs that prioritize non-motorized uses. The 30% motorized minimum is a statutory floor; the OHV community has consistently advocated for maintaining this requirement in each reauthorization and opposing proposals to redirect RTP funds to exclusively non-motorized programs.

State Variations

All 50 states participate in RTP; state programs vary significantly:

• Colorado: One of the largest RTP programs by project count; strong OHV community and extensive public land trail networks; the Colorado Parks and Wildlife manages RTP distribution with its own advisory committee
• California: Large apportionment given registered OHV numbers; the California Off-Highway Motor Vehicle Recreation (OHMVR) Division administers RTP and coordinates with non-motorized user groups
• Michigan: Significant snowmobile trail network funded partially through RTP; snowmobilers represent a major component of motorized RTP spending
• Vermont: Relatively small apportionment but high engagement from both snowmobile and hiking/biking communities; Vermont's Recreational Trails Committee has been a model for bipartisan motorized/non-motorized collaboration
• Alaska: Large land area creates unique trail infrastructure needs; RTP funds remote trail projects that are critical access routes, not merely recreational amenities

Pending Legislation (119th Congress)

• Surface transportation reauthorization (2026): IIJA expires at the end of FY2026; the next surface transportation reauthorization will reset RTP funding levels, formula, and eligibility rules; OHV advocacy groups are pushing for increased funding and to preserve the motorized 30% floor; non-motorized advocates are pushing for increased non-motorized allocations
• Trail connectivity proposals: Legislation to fund multi-state trail corridor planning and closing gaps in major trail systems (e.g., the East Coast Greenway, the Great American Rail-Trail) would draw on RTP and TAP funding
• Motorized access on federal lands: Ongoing tension between OHV community access to federal land trails and wilderness/conservation designations that prohibit motorized use; RTP can only fund motorized trails where motorized use is legally permitted

Recent Developments

The Bipartisan Infrastructure Law (IIJA, Pub. L. 117-58, November 2021) reauthorized RTP through FY2026 at a significant funding increase — approximately $89 million in FY2022 growing to approximately $105 million by FY2026 — reflecting congressional interest in outdoor recreation infrastructure. IIJA also enacted broader outdoor recreation provisions (later consolidated in the EXPLORE Act of 2024) that complement RTP by expanding recreation inventory, gateway community support, and forest trail maintenance.

The COVID-19 pandemic created a major surge in outdoor recreation and trail use (2020–2022), with visitation records at trail systems nationwide. This elevated political interest in trail funding and generated increased demand for both motorized and non-motorized trail infrastructure. Trail maintenance backlogs — accumulated over decades of underfunding — became a political issue, and IIJA's RTP increase was partly a response to documented deferred maintenance at state and local trail facilities.