I live inside the Ocala National Forest, so see some of the road conditions you mention. We have everything from a major state highway to paved and numbered "Forest Roads" and to totally unimproved forest roads that are just emergency access for fire fighting. Some also provide access to "unimproved camping areas", and those can be pretty rough. But realistically, isn't that what "unimproved" means? Sure the fee areas get at least a bit more maintenance, but that is what the fees help to provide. There is no free lunch - somebody has to pay for road maintenance, either fees or tax dollars.