QGIS is an open source GIS program that can be used to georeference  maps 
and, with some manipulation, make them available as layers in OsmAnd.  
See Akkana Peck's discussion re: QGIS here 
<http://shallowsky.com/blog/mapping/osmand-making-overlay-maps.html>, as 
well as in posts on this forum here 
<https://groups.google.com/forum/#!searchin/osmand/qgis/osmand/bG1SGGNYxYI/hAuVhJrCCAAJ>.
 
The program MAPC2MAPC also provides this capability under the Windows OS. 
My video on the topic is here <https://www.youtube.com/watch?v=Y_fekLfcUOc>.

Regarding using overlay vs. underlay: I think this is a matter of how you 
want to combine the two layers for a composite view.  In both cases, the 
slider determines the transparency of the upper layer.  If you use 
underlay, the upper layer is the OpenStreetMap vector map, and setting 
"Show polygons" on or off determines whether the raster map below shows 
polygon-like objects (like lakes) without the vector map interfering. 
Whereas with the overlay, the upper layer is a raster map, and no such 
selection is possible.  Hence in most cases, I think that the underlay map 
the more useful to start with.  

On Tuesday, May 28, 2019 at 8:55:51 PM UTC-7, Luke wrote:
>
> I'm glad it works for you.
> What is the QGIS method?
>
>
> On Tuesday, May 28, 2019 at 5:23:26 PM UTC-7, Akkana Peck wrote:
>>
>> Luke writes: 
>> > One feature that I had been missing from Osmand for a long time - and 
>> > others in the US I'm sure would agree - is the ability to display the 
>> land 
>> > use areas and what areas are national forest/BLM/etc. 
>> > I finally found a way to get it to download and show the public domain 
>> BLM 
>> > maps! The steps are documented here: 
>> > 
>> https://howtotrainyourrobot.com/adding-blm-land-use-maps-to-osmand-on-android/
>>  
>> > 
>> > This is handy but I noticed that lakes seem to not show when BLM map is 
>> the 
>> > underlay. Perhaps a conflict, or a bug? 
>>
>> Bart Eisenberg writes: 
>> > In the Underlay menu, is Show polygons on? 
>>
>> I just tried Luke's excellent tutorial. Thank you, Luke! It works 
>> beautifully, and is a lot easier and more general than the QGIS method 
>> I posted a few weeks ago. 
>>
>> And I tried Bart's tip for reservoirs, which worked (thanks to you 
>> too!) but only after some fiddling. By default, the underlay map has 
>> Base Map Transparency of 100%, and if I turn on Show Polygons, I see 
>> the base (offline vector) map, including reservoirs, but the BLM 
>> land use map disappears. But if I set Base Map Transparency to 50% 
>> *and* turn on Show Polygons, I can see both reservoir and land use. 
>> I can also see both if I use it as an Overlay (which I guess always 
>> shows polygons? It doesn't have an option for that) rather than an 
>> Underlay map -- though the first time I tried it as an Overlay it 
>> didn't show and I'm not sure why. 
>>
>> Are there any arguments in favor of underlay vs. overlay, or are 
>> they pretty much equivalent? 
>>
>> I don't suppose there's an option to download map tiles only when 
>> on wi-fi? I couldn't find anything like that in the Online Maps 
>> Settings, though there is a checkbox where I could temporarily turn 
>> off updates. 
>>
>>         ...Akkana 
>>
>

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