http://www.epa.gov/owow/nps/gravelroads/sec1.pdf

They do lot's of pile moving here as well. All they roads here have been graded flat and have high shoulders. My favorite is page 23 where they talk about the many instances that manual labor with a shovel may be required to finish the job!   Our grader driver (like your's he is in no way an operator) hasn't been out of the cab during working hours in years.  He wouldn't know which end of the shovel to grab!  I've cleaned most of the culverts on the mile north of my house by hand, they had silted nearly filled closed over time  and our local driver doesn't do that kind of work, or cut trees out of the ditch, cut or spray this thistle's, or fill in ruts.