RReeccrreeaattiioonn TTrraaiill SSttrraatteeggyy
2006 - 2010
Draft Two – March 2006
Recreation Trails:
• Help people to achieve leisure benefits – relaxation, escaping, social interaction, experiencing nature • Help people to achieve specific goals – physical activity / health and fitness, challenge, skill improvement or training • Help to link people to places – home to school to work to shops to parks or playgrounds or natural environments – reducing reliance on motor vehicles • Help people to better appreciate and care for the natural environment • Help to bring visitors to the area – increasing business growth and economic development • Increase the lifestyle and well being benefits for residents while making West Tamar more attractive for new residents and visitors alike.
“Trails” is a broad definition that includes Tracks and Footpaths
Acknowledgements
This Recreation Trail Strategy has been prepared through a partnership between the West Tamar Council and Sport and Recreation Tasmania. Prepared by Linton Kerber (Sport and Recreation Tasmania) for the West Tamar Council, with assistance by Michele Saville, recreation officer (West Tamar Council).
Disclaimer
All due care has been taken in the preparation of this document to encompass what is known of best practice in recreation trail planning for local government in Australia. This report should be seen as a starting point for strategic and coordinated recreation trail provision by the West Tamar Council. On its own, this report is not the end point in achieving the outcomes listed in the strategy. Therefore it can be expected that ongoing research, auditing of trails, community consultations and discussions/decision making will need to occur to achieve these outcomes. Anyone using this document should use reasonable care in interpreting the information beyond its intended use. The West Tamar Council should not be held responsible for any such interpretations or extended use of the material.
C o p y r i g h t
Printed and published in Australia by the West Tamar Council, 2006. Intellectual property is shared between the West Tamar Council and Sport and Recreation Tasmania as a partnership in the preparation of this document.
Enquiries or comments on the contents of this document should be directed to: The General Manager West Tamar Council West Street (PO Box 59), Beaconsfield, TAS 7270 – phone 6383 6350 (or Eden Street Riverside – phone 6323 9349)
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CONTENTS EXECUTIVE SUMMARY...... 6 1 INTRODUCTION...... 14 1.1 What are recreation trails?...... 14 1.1.1 Track ...... 14 1.1.2 Trail ...... 14 1.2 Trail activities ...... 15 2 THE REASONS FOR RECREATION TRAILS...... 16 2.1 The benefits of trails ...... 16 2.1.1 Individual and community benefits...... 16 2.1.2 Economic benefits...... 16 2.1.3 Environmental and cultural benefits...... 17 2.1.4 Disbenefits...... 17 3 DEMAND FOR RECREATION TRAILS...... 19 3.1 Socio-demographics...... 19 3.2 Participation research...... 21 3.2.1 Physical activity research...... 21 3.2.2 Sport and recreation research...... 22 3.2.3 Proviso in using sport and recreation participation statistics ...... 22 3.3 Generic participation information ...... 23 3.3.1 Motivations ...... 23 3.3.2 Travel ...... 24 3.4 Trail activities - summary ...... 24 3.4.1 Walking...... 24 3.4.2 Cycling...... 25 3.4.3 Horse riding ...... 25 3.4.4 Water trails ...... 25 3.5 Participation summary and issues...... 26 3.5.1 Social and recreational trends: Implications for Council ...... 27 4 OUTDOOR RECREATION RESEARCH...... 29 4.1 Summary ...... 31 4.2 Recreation opportunities and settings ...... 32 4.2.1 Recreation settings...... 32 4.3 Recreation succession ...... 33 4.4 Carrying Capacity...... 34 4.4.1 Limits of acceptable change...... 35 4.4.2 Social acceptance for management interventions ...... 35 4.5 Tourism and trails ...... 36 5 BACKGROUND ON RECREATION AND TRAIL PLANNING ...... 37 5.1 Purpose and need for a recreation trail strategy...... 37 5.2 Stakeholders in recreation trails ...... 37 5.3 Community consultations to date ...... 38 5.4 Existing strategies with recommendations for trails ...... 38 5.5 Local government and recreation planning ...... 39 5.5.1 A role for council in recreation trail planning ...... 40 5.5.2 West Tamar Strategic Opportunities Report (2005)...... 40 5.5.3 Local government and active communities...... 42 5.5.4 Active Living and Social Equity ...... 42
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5.5.5 Local Government planning authority ...... 43 5.5.6 West Tamar planning scheme ...... 44 5.5.7 West Tamar Bike Plan ...... 44 5.6 Factors influencing trail planning ...... 45 5.7 Issues for trail planning...... 47 5.8 Aims of local government recreation planning...... 48 6 KEY ISSUES AND OUTCOMES FOR TRAIL DEVELOPMENT IN WEST TAMAR...... 49 6.1 Strategy aims and outcomes ...... 49 6.1.1 Aims: ...... 49 6.1.2 Outcomes:...... 49 6.2 Principles for development ...... 50 6.3 Environmental analysis: key issues and outcomes...... 51 6.3.1 Integrated planning and development...... 51 6.3.2 Participation and utilisation ...... 52 6.3.3 Sustainability ...... 53 6.3.4 Standard of provision and management capacity...... 55 6.3.5 Community involvement and partnerships...... 56 6.3.6 Key issues and outcomes for trail development in West Tamar...... 58 6.4 Matrix for the analysis and development of trails ...... 59 6.5 Priorities for development – scope of activities ...... 61 6.5.1 Benefits and capacity to manage ...... 62 6.5.2 Socio-demographics ...... 62 6.5.3 Activities ...... 63 6.5.4 Settings...... 64 6.5.5 Quality experiences...... 64 6.6 Additional notes - settings ...... 64 6.7 Additional notes – quality experiences ...... 66 7 EXPLANATION – USING THE MATRIX...... 68 7.1 Demand/needs analysis ...... 68 7.2 Supply / existing and potential ...... 69 7.3 Issues analysis...... 69 7.4 Implementation...... 72 8 TRAIL CLASSIFICATIONS & STANDARDS...... 73 8.1 Walking Tracks ...... 73 8.2 Bicycles...... 73 8.2.1 Mountain Bikes...... 74 8.3 Horse Riding ...... 74 8.4 Kayaking and canoeing ...... 74 8.5 Multi-Purpose Trails...... 75 8.6 Classification System for the Northern Region ...... 75 8.6.1 Comment –review of the Northern Region system ...... 75 8.7 Summary – recommendations for Council regarding standards/classification...... 77 9 GUIDELINES FOR MANAGEMENT ...... 79 9.1 Australian Standards ...... 79 9.1.1 Australian Walking Track Standard...... 79 9.2 Ausroads Guidelines ...... 79 9.3 Trails SA – South Australian Recreation Trail Strategy...... 79 9.4 International Mountain Bike Association resources ...... 80
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9.4.1 The minimum tool rule (Mountain biking)...... 80 9.4.2 Threats to quality experiences: Conflict ...... 81 9.4.3 Sustainable trails...... 84 9.4.4 Sharing trails ...... 86 9.4.5 One way trails...... 87 9.4.6 Single track...... 88 9.5 Commercial licensing and organised groups ...... 88 9.5.1 Adventure Activity Standards (AAS) ...... 88 9.6 Risk management...... 91 9.6.1 Guidelines for risk management ...... 91 9.6.2 Public liability...... 92 9.7 Community development ...... 93 9.8 Marketing and promotions ...... 94 9.8.1 Social marketing...... 94 9.8.2 Promoting trails ...... 95 9.8.3 Interpretation ...... 96 9.9 Active environments...... 97 9.10 Sea Kayaking ...... 97 9.11 Tasmanian Parks and Wildlife Service ...... 98 9.11.1 Bushwalking ...... 98 9.11.2 Fact sheets ...... 98 9.11.3 If You’re Making Tracks, Make Them Carefully ...... 98 9.11.4 Cruisin’ without bruisin’...... 99 9.11.5 On Yer Bike! ...... 99 9.11.6 Minimal Impact Mountain Biking Means Respect ...... 100 9.12 Equestrian...... 100 9.13 Natural resource management ...... 100 9.13.1 Statement from the Aboriginal Community ...... 101 10 APPENDIX ...... 102 10.1 Draft P&WS walking track classification system...... 102 10.2 South Australian trail classification system ...... 107 10.2.1 South Australian Trails MTB and Equestrian classifications...... 109 10.3 Track classifications – hierarchy of settings and experiences...... 116 10.4 West Tamar Bike Plan (1997) ...... 124 10.5 Walking track inventory – Parks and Wildlife Service...... 128 10.6 Tamar Valley Open Space Strategy (2004) ...... 129 10.6.1 Guiding principles...... 129 10.6.2 Classification of open space in the Tamar Valley ...... 130 10.6.3 Typology Definitions ...... 130 10.6.4 Hierarchy of open space ...... 131 10.6.5 West Tamar Council Current Situation...... 132 REFERENCES ...... 135
5 Executive summary
EXECUTIVE SUMMARY Introduction The West Tamar area is a great place to live and visit. The area is well endowed with beautiful beaches, Tamar River views and estuary wetlands with abundant wildlife, hills, forests and places of cultural and heritage significance. It’s no wonder that West Tamar’s population is increasing, as more people wish to enjoy the lifestyle benefits of our unique environment. Recreation trails can build on these lifestyle and visitor opportunities, increasing the value of the area for residents and visitors alike. Recreation trails make an important contribution to the health and wellbeing of individuals, communities and the environment across Australia. The benefits of trails include social, health, protection and enhancement of natural and cultural environments and economic benefits from day visitors and tourists. Recreation trails create an important link between economic prosperity, environmental sustainability, and quality of life – liveable communities that are desirable to residents. There is increased recognition of the benefits of trails particularly in increasing moderate and regular physical activity for health, and in connecting people to places by alternative methods of non- motorised transport. The provision and enhancement of recreation trails offers much to increase our incidental activity – by creating more ‘active environments’ in our urban and residential settings. Recreational walking is the most popular sport and recreation activity in Australia and Tasmania. Cycling and bushwalking are also highly popular activities –these and other trail activities are highly popular in association with West Tamar’s unique natural assets. Recent regional trail strategies such as the Northern Tasmanian Regional Recreation Trail Strategy and Cradle Coast Recreation Trail Strategy have endorsed similar principles to state strategies in Victoria, South Australia and Western Australia. These have provided the impetus for West Tamar to look at local trail issues and to plan to maximise the benefits that recreation trails can offer.
What is a trail? A trail can be a corridor, route or pathway with strong linkages with the natural environment, open space networks and cultural heritage. Unlike a track, a trail does not need to involve a continuous surface feature. It may just be an identified route with perhaps a start and finish, and some markers in-between. This broad definition allows us to include water-based trails and a wider variety of activities including cycling, kayaking and canoeing, 4WD, sailing, horse riding and trails for people with disabilities. It also allows us to include tourism and touring activities as well – where the trail user can select a variety of different routes while still following the recognised ‘trail’. Trails include what are more commonly known – ‘tracks’ - land-based, easily identifiable routes or pathways – where the surface is distinguishable from the surrounding landscape. Trails can also include footpaths – where a specific path is identified as a route between identified common public features (i.e. between schools, shops, parks or playgrounds and residential areas).
6 Executive summary
Trail Planning The evidence from the literature review and existing research is clear, that recreation trails are in high demand. Council has had many requests for new trails to be developed – to meet the needs of walkers, joggers, cyclists and others – to create more active environments and to increase tourism and economic development. There are however many aspects of the existing trail system that can be improved through enhancements to trail design, linkages between trails and other community assets and attractions, consistent trail policy, management marketing and support for ongoing development of recreation trails. With this high demand comes the need to adequately coordinate and plan for recreation trail provision. This will assist in assuring that Council/Community resources are efficiently used, and that participation experiences and therefore recreation trail opportunities are maximised. There is also a high level of importance attached to the planning and coordination of recreation trails for the significant benefits they provide. Strong research evidence supports the need to increase community levels of regular, moderate physical activity. One of the most targeted approaches is in recreation trail provision: maximising opportunities for active recreation, active living and active alternatives to transport to increase levels of physical activity. This Recreation Trail strategy is part of the implementation of Council’s 2002 Sport and Recreation Strategy, and has been guided by generic recreation planning principles and practices.
When the idea of a trails strategy was first proposed the generic questions relating to trail development were initially summarised as:
• Why do we need trails? • Who uses trails? • What kind of experience are we trying to create? • Who has responsibility to provide trails? • How do we plan, develop and manage trails within finite resources? • How do we make decisions regarding priorities for trail development?
Preparation of this report This report has been prepared predominantly through a literature review, and from information and knowledge previously gained through Council’s involvement in the development of the Northern Tasmanian Regional Recreation Trail Strategy. 9 The approach has also taken account of information available from Sport and Recreation Tasmania, the Parks and Wildlife Service, and many recreation trail strategies being developed by state and local government authorities across Australia. This report provides a clear position for Council to guide the future development of recreation trails based on a literature review of current world and Australian best practice and research. However it does not preclude community input – the next phase for development is to prepare a public process for discussion and further development. With this in mind, it is intended that this process will further develop the quality and effectiveness of the strategy and its approach. Further auditing/mapping and community consultations are expected to refine the Council’s recreation trail strategy – with a final document to encompass a shared Council/community approach with identified trail priorities and related expenditure.
7 Executive summary
Strategy aims and outcomes The Trail Strategy is intended to enhance Recreation Trail opportunities and quality experiences in the West Tamar area. It will also assist Council in the efficient and effective use of resources, maintain environmental quality and prevent unplanned development. The Trail Strategy will build the capacity of the community and Council to understand and deal with recreation trail issues. It will provide a tool for Council to analyse and assess existing and new trail projects to meet the needs of the community.
Principles for development The following are high-level, generic principles that are relevant to recreation planning across the municipality. These principles have been adapted from contemporary recreation planning information across Australia. They now supersede the Council’s existing principles as prepared in the 2002 Sport and Recreation Strategy, as a natural updating of policy for Council. • Access for All • Beneficial Outcomes • Diversity, Quality and Safety • Continual Improvement • Sustainability • Multi-use and Efficiency • Community Building and Social Capital • Community Health • Partnerships and Shared Responsibility • Organisational Capacity
Challenges and opportunities There are a range of barriers to a Council-coordinated, planned framework for the development of recreation trails in West Tamar. These include institutional impediments within government, negativity and cynicism, competing priorities within Council and the community, and opposition from non-trail users - who may have no substantial regard for the benefits of recreation trails. Failure to adopt a strategic, planned and coordinated approach is possibly the worst-case scenario. Continuance of the current ad-hoc approach to provision should not be an option. However, successful implementation will require substantial Council and community resources, a commitment to improving the current methods of recreation provision, and preparedness to challenge misperceptions regarding trail development and management. These are substantial issues to resolve. The following information is a summary of the main report. This information is presented to assist in further discussions and consolidation of a strategic approach to recreation trail development in West Tamar. There are limits in what can be achieved – Council cannot develop trails for all users, everywhere. Recreation trail planning is as complex as it is resource intensive. Council is also not the only provider of recreation trails, so coordination will require extensive consultations with other trail stakeholders.
8 Executive summary
Key issues and outcomes for trail development
Summary:
• Development of consistent Council policy that coordinates trail planning Integrated and development. planning and development • Development of an assessment process that guides and prioritises projects and resources.
• Determine a rationale for a staged approach to trail development, based on a benefits approach to provision. . i Participation • Provide a focus on quality experiences to meet trail users needs – and utilisation recognising that “One trail does not suit everybody” • Focus on promotion and marketing initiatives to maximise participation and use of existing resources.
• Begin by building on existing trail initiatives before developing new initiatives. • Focus on economically and environmentally sustainable development: Sustainability ii with consideration of limited Council and community resources. • Consider the retention and conservation of open spaces, trail corridors and ‘special places’ for future generations.
Standards of • Build the capacity of the Council to understand and manage aspects of provision and trail planning and provision. management • Develop consistent standards and classifications for trail activities that capacity are consistent across the region.
• Focus on capacity building strategies for community participation and Community partnerships in all aspects of trail planning, construction, maintenance involvement and management and partnerships • Seek opportunities for partnerships between various government, business and community groups to develop and resource trails
For a full version of this information, please refer to ‘Environmental analysis’, section 6.3.
i Refer to priorities for development – scope of activities ii Economically sustainable development refers to ‘Life cycle costing’ – including long term maintenance and management as well as initial development costs.
9 Executive summary
Explanation of the Matrix Council required a process for the identification, selection, analysis and development of trails to meet the desired needs of the community. The following table provides a list of the key questions facing council with respect to any new or existing trail development proposal. This table aims to help clarify the use of the Matrix for trail development.
Matrix process explained
Key to using the Matrix Implications Demands analysis
Why do we need trails? There are some commonly agreed Answer these questions Who will use the trails? priorities for the development of trails – by defining what the based on research and available 1 What types of activities? trail will achieve, for information. What settings? whom and how. Refer to the priorities for Matrix Column 1 What kind of experiences development – scope of activities. are we trying to create?
Supply analysis
Do we already have Avoid duplication. We must have an overview of enough trails? A trail proposal must existing trails before we can identify 2 Are there any gaps (in what either fit a gap in supply, gaps in supply (and duplication). we need)? or add quality to existing Council inventory: Activities, settings, supply Can we better use what we experiences and classifications for already have got? Matrix Column 2 various trails.
Issues analysis
What additional issues Individual trail proposals must be considered for the must address these trail/s to be successfully issues. Some are critical The strategy provides guidance on 3 planned, designed, to the success of a significant issues that will impact on constructed, used and proposal the viability and/or success of trails managed? Matrix Column 3
Implementation
What process is actually used within Council to discuss and determine Council will require a process to which trials will be Sufficient information discuss trail proposals, select good developed? must be collected and 4 initiatives, and budget for them. presented to Council. How will trail issues be This will need to be open and considered and resourced Matrix Column 4 transparent to the community. amongst wider whole-of- Council issues and priorities?
10 Executive summary
Matrix for the analysis and development of trails 1) Demand 2) Supply 3) Issues analysis 4) Implement Benefits & needs analysis Existing and potential Issue Issue
1. Benefits analysis 1. Existing trails 1. Land tenure (jurisdiction) and Reject option • Individual, community • Inventory legislation/ regulations • Totally rejected • Economic , environmental • Use classification 2. Environmental & cultural (not feasible or tion 2. Socio-demographics systems impacts needed) • Age & gender profiles 2. Potential trails 3. Standards and guidelines OR • Disability and special • Identification process 4. Management guidelines ( Limits ceptreject or
basedon supply • Reject with an needs basedon demand • Use classification of acceptable change, conflict option for future • Participant demand systems management, & codes of conduct , development. (participation figures) • Consider future demand promotion . Ensure that • Catchment size & location and enhancing the 5. Life cycle costing . (Including retention & access diversity of opportunities. Construction, management and /protection of the 3. Activity 3. Gap analysis of supply maintenance and signage) recreation • Length & difficulty, skill and demand 6. Partnership support (community, opportunity levels • Use chart or table land managers, resource trail exists. (inventory style) to easily 5. Setting providers) Accept option see gaps 7. Risk audit (including public and • Population centres. 1.Responsibility • Links to ‘special places’ – 4. Alternative solutions user safety) natural settings. 8. Community/social issues & 2.Resource • Alternative trail options, impacts 6. Quality experiences services, promotions to 3.Timeframe • Safety, standards, achieve similar results. 9. Facilities and infrastructure & sustainability, sharing, • Use what exists rather access diversity, threats/conflict. than build new if suitable. 10. Disability and special needs
11. Resources available. External Consider action planning for successful implementa sources, council budget, volunteer Consider final issues analysis and decision to ac Consider priorities for the development of trails
Consider priorities for the development of trails support. For a full explanation of terms – refer to the main report.
11 Executive summary
Priorities for development – scope of activities Council has determined to use a wide definition of ‘trails’ to ensure that ‘whole-of-community’ recreation opportunities and experiences are considered in this planning. However, the focus for development in the short term may be limited by Council’s capacity to plan, develop and maintain trails. There are natural limitations in funding, land ownership and community capacity – all impacting on the preferred ideal of a holistic and diverse network of trails for all people - all activities. This does not suggest that long term planning should not be undertaken for the future provision of trails. It is especially important to consider future land requirements for open space and trail provision now – before the opportunities are lost forever. With respect to existing research, Council has determined that there should be priorities for development according to patterns of participation and identified needs in the community. The scope for initial development by Council will be focused on:
• Trails in areas directly managed by Council. • Trails that provide clear benefits to the community (individual, community, economy, and environment): that are also environmentally and economically sustainable. • Trails that provide physical activity benefits from participation: namely recreational walking, cycling and bushwalking as the most popular trail activities as an initial priority. • Trails that provide for groups at risk of low levels of physical activity due to barriers to participation: i.e. socio-economically disadvantaged groups, older adults, and people with disabilities. iii • Trails that are within our residential areas – that help to provide ‘active environments’ as part of good town planning. Preferably leafy and green routes, they provide commuting routes between homes and shops, schools, parks and work. Walking, cycling and small wheeled vehicles are well suited to these trails – and they integrate with the existing footpath and road networks. • Trails that are ‘special places’ iv close to population centers. They are easily accessible and relatively isolated and natural (as best they can be close to urban settings). • Trails that are ‘special places’ further from population centers. These are more isolated and natural – this is their primary appeal to users. West Tamar is particularly suited to these trails. • Trails that provide quality experiences: trails that take account of user motivations and therefore meet people’s desired experiences by careful planning and management.
Note: • These priorities are not meant to be prescriptive. However, there is solid evidence to support this approach. Alternatives may be suggested that, with strong evidence and analysis, still generally follow the principles and assessment process prepared in this strategy. • While tourism (economic development) is a benefit worth pursuing from recreation trail provision, it is not a current or immediate recommendation for development. However, flow- on benefits for tourism are likely to occur from the focus described above, and should be considered.
iii There are recommendations for groups at risk of low participation – requiring additional support. Refer to the main report for details. iv ‘Special Places’ refers to trail locations desired by the community. They are relatively isolated (quiet and remote) and natural (few modifications and management interventions). Refer to the main report for details.
12 Executive summary
Action plan Councillor workshop Completed
Draft 2 Report Completed March 2006
Council endorsement – draft 2. April 2006
Internal Council work Audit of existing known trails
• Desktop supply/issues Mapping and database/inventory development analysis Consultations with Parks and Wildlife Service • Confirmation of classifications Consultations with adjacent Councils and trail standards and signage Consultations with NRM and other groups • Limited trail surveys Analysis of trail condition and likely expenditure Prepare classification systems and endorse standards Prepare standardised signage and promotional approach Analysis of trail supply (gap analysis) State walking track strategy review Participate in the review of the ‘great short walks’
review (consider outcomes from the supply analysis) Councillor workshop Summary of supply/issues analysis
Council meeting Endorsement for next stage – community consultations Community consultations and Promotion of strategy principles and intended
feedback outcomes Feedback on trail supply and condition audit – all activities. Identify new opportunities or issues Internal Council work Collate community feedback and new information
Update trail inventory. Issues analysis Priorities for development prepared Councillor workshop Internal process to discuss outcomes from
community consultations. Consideration of recommendations and priorities Endorsed Council position prepared Community endorsement Public process to confirm and endorse
recommendations Council meeting Council meeting to endorse recommendations Council / community implementation Development of trail partnerships (key projects)
Source additional funding for trails Prioritise Council budget and trail development / maintenance processes
13 1: Introduction
1 INTRODUCTION 1.1 What are recreation trails? Across Australia there is a wide variation in the use of the terms ‘tracks’ and ‘trails’. To help provide a common understanding it is important to define these two terms and how they relate to the focus of this strategy. At the moment many strategies for local government across Australia focus on tracks. This however can limit integrated planning and wider trail based recreation opportunities for the community. The term ‘trail’ includes a wider variety of activities and settings – it is aimed at being all- encompassing.
1.1.1 Track A track is a land-based feature – with an identifiable surface route or pathway – that helps you to distinguish it (the track surface and route) from the surrounding landscape: so that you can actually follow it. Tracks might have a variety of surfaces, and might suit a variety of land based activities. They can be short or long, easy or difficult. Regular use of a track will often ensure that it retains a visible difference from the adjacent environment – without the need for additional materials. For example: walking, jogging, cycling tracks. 4WD, quad bike or trail bike tracks, equestrian tracks etc.
1.1.2 Trail Firstly, trails include tracks. However, the broader definition allows us to incorporate quite a variety of activities, settings and various mixes of different activities. A trail can be a corridor, route or pathway with strong linkages with the natural environment, open space networks and cultural heritage. 1 Trails, like tracks, will take us somewhere. They can involve a journey – a start, a finish, and some travel (movement – by some manner or method) in between. Unlike a track, a trail does not need to involve a continuous surface feature. It may just be an identified route with perhaps a start and finish, and some markers in-between. This broad definition allows us to include water-based trails and a wider variety of activities including cycling, kayaking and canoeing, 4WD, sailing, horse riding and trails for people with disabilities. It also allows us to include tourism and touring activities as well – where the trail user can select a variety of different routes while still following the recognised ‘trail’. Some trails may be difficult to distinguish. For example: the use of water trails may leave no trace, and may have few discernable markers. The trail route may follow the edges of the river or waterway, or be an area of water with a number of interest points. The trail may be mapped or a frequented route – it may follow a linear feature like a reef or other attractions.
Proviso: While the broader definition of trails helps to include a wider variety of recreational opportunities for the community, there should be no expectation that Council can start developing the ideal trail network now. There are limits in what can be achieved – Council cannot develop trails for all users, everywhere. Recreation trail planning is as complex as it is resource intensive. And Council is only one provider of trails – there are state departments and other organisations that also provide trails for the community.
14 1: Introduction
1.2 Trail activities Using the widest definition of trail activities, the following possibilities apply: • Walking . This can include recreational walking, dog walking (often also associated with open space areas for the dog to run freely), pram walking, fitness walking or social walking. It can also include bushwalking, with many categories for this determined by remoteness, setting, distance etc. Popular walking trails might include routes to link Riverside with the shopping and schools, the Tail race park and fitness track, the Supply River track, Swan point to Gravelly Beach tracks etc. Popular bushwalking trails might include Notley Fern gorge, Holwell Gorge and Narawntapu National park. • Running or jogging . Any trail can be used for running or jogging, but competitive cross-country events require specific areas that are not covered by this strategy. • Cycling . Road cycling (fitness or competition/training using road/racing bikes), mountain bike (Recreational, Cross Country, Downhill, North Shore, Trials or jump parks), BMX, touring (Usually a hybrid recreation bike that may be a mix of mountain bike and road bike features, as well as panniers or a trailer), or commuters (using the bike as a means of alternative transport). Reclined cycles and hand propelled cycles are becoming more popular also. It is important to note the popularity of the West Tamar for road training and recreational riding – linking Riverside to Legana, to Rosevears Drive and Gravelly Beach. • Small wheeled vehicles (non-motorised). Including scooters, in-line skates and skate boards. The current Australian Road Rules notes the importance of these vehicles as alternative means of transport, especially for young people. They are therefore legitimate forms of transport with access to footpaths and roads (with restrictions in some circumstances). • Disability access requirements . People with disabilities may require tracks or paths that are specifically designed for wheelchair, mobility impairment (eg: trip hazards for frames or crutches) or vision impaired access. Consideration should be given to the relatively high percentage of people with disabilities in our community (22.3% for Tasmania) 2 – and their rightful and varied recreational trail needs. • Equestrian . Horse trails generally for recreational riding. • Tourism trail activities or touring routes. Eg: The Trail of the Tin Dragon, Tamar Wine Route etc. • Water based trails can include any recreational water craft such as canoes and kayaks, motor boats (and water skiing), sail boats, jet skis, sail boards etc. These may be on the sea, inland rivers and estuaries. • Off road recreational motor vehicles . This can include four wheel drives (4WD’s), all terrain vehicles (ATV’s – i.e. quad bikes), and motor cycles (i.e. Trail bikes). • Underwater trails. There is potential for snorkelling or SCUBA diving trails, especially considering the recent attention provided to the significance of diving areas at the head of the Tamar River. Trails SA provides underwater diving trails – with significant tourism benefits. • Train or tram. Although West Tamar Council has no rail networks, there is a common movement across Australia called Rail Trails: converting old rail tracks to tracks for walking, cycling, horse riding etc. • Air trails: as with a water based trail, the route can be for air travel with identification points for users to follow. On a larger scale, the possibility is for light aircraft trails around the state, or flying areas (only loosely associated with being a trail) for gliding, hand gliding, or paragliding. The latter only requiring access (take off) and exit points (landing) with some associated infrastructure. • Other . If we take a lateral position to include any movement through space, then what other forms could possibly be included in the future? I.e. Web trails (eg: using web cams placed throughout the municipality, as a tourism trail?), hovercraft, ski and ski-do (common, but not in West Tamar!). What other forms of travel will be used in the future, and what other methods can we use to describe the discernable points that reference a trail? (i.e.: bird migration trails, whale trails, karst trails etc).
15 2: The reasons for recreation trails
2 THE REASONS FOR RECREATION TRAILS
Any strategy must determine a case for recreation trails. This should consider the outcomes provided by trails – described next by ‘benefits’ of trails. It should also consider the demand for trails – a consideration of participation statistics and user demographic characteristics. These factors should complete the picture of recreation trails – their significance and importance in an Australian and Tasmanian context – with specific relevance to West Tamar.
2.1 The benefits of trails A benefits approach to recreation planning is becoming a standard for recreation planning strategies across Australia. This approach helps to establish the purpose of provision and defines the outcomes to be achieved. It is certainly a move away from past practices that have focussed on facilities and related expenditure. Obviously this is inadequate in actually determining the level of opportunities provided to individuals and communities, or the efficiency or effectiveness of those opportunities in meeting actual needs.
2.1.1 Individual and community benefits Recreation trails provide opportunities for people to be physically active. Adequate levels of physical activity have been shown to benefit individual health in the following ways 3: • Reducing the risk of all-cause mortality (Various factors). • Cardiovascular disease prevention. • Diabetes prevention and control. • The primary prevention of some cancers. • Injury prevention and control. (i.e.: injurious falls to the elderly). • The promotion of mental health.
The most effective fitness routines are moderate in intensity, individualised and incorporated into our daily activities. Cycling and walking can both accomplish this, and at the same time provide mobility. 4 Trail activities provide low cost participation options for members of the community. Trails are easily accessible to people of all abilities, regardless of age, gender and possibly cultural differences. Trail experiences can help to connect people and places. Experiences can often become an intangible asset that directly relates to the human and social wealth of our society: assisting in social pride and identity, fostering social behaviour and community cohesion. Trails foster cooperative community partnerships between landowners, local government, state government, community groups and advocacy groups. Trails can provide green/leafy commuter transport routes that are aesthetically pleasing, shady and cooler in summer, and induce more people into social environments. Increased social interactions has actually been proven in reducing trail user conflicts – as people become more tolerant of others activities and recreational needs. 58
2.1.2 Economic benefits There is significant Tasmanian, Australian and international evidence to suggest that trails can generate tourism visits and spending. This spending can assist local businesses in either direct or associated services: food and accommodation, trail activities and equipment, trail construction and maintenance etc.
16 2: The reasons for recreation trails
Participation in trail activities can increase population health outcomes – reducing the impost on the health budget, increasing worker productivity and absenteeism. 3 ‘Alternative transport’ trail activities can also reduce the need for car parking spaces (road and vehicle infrastructure) etc. There are also strong connections between active environments and economic viability. Reducing traffic noise, traffic speeds and vehicle generated air pollution can increase property values. Tourists are attracted to areas that are more scenic and amenable to walking and cycling. Walkable streets are good for retail areas and subsequent sales. And a reduction in pollution from vehicles increases the marketability of areas: to tourists, residents, potential businesses – attracting investment and economic prosperity. 5 In 1998/99, total Australian household expenditure on bikes was $44.6 million. 6 Over the 2002/03 period, bike sales (all bikes) increased 29% over the past 12 month period. 7
2.1.3 Environmental and cultural benefits Commuter trails can decrease use of polluting forms of transport – reducing problems associated with noise, smog and the greenhouse effect. The Cradle Coast Tracks Strategy 29 identified: • Trails provide opportunities for the community to experience natural and cultural environments. • Trails help to protect the adjacent environments by localising impacts and ‘managing’ visitor impacts. • Trails provide for educational and interpretive information: increasing environmental and cultural awareness and appreciation. • Trail networks increase community ownership and assists in preserving natural and cultural values. • Trails provide opportunities for community participation in conservation, weed eradication and revegetation work.
Trails can increase commuters’ use of non-polluting forms of alternative transport that reduce greenhouse gas emissions and air pollution. 29 Leafy and green commuter routes can increase the look and amenity of residential areas, raising property values and increasing the ‘liveability’ of areas. 29 Transportation by bicycle is the most energy efficient mode of transportation, and generates no pollution except in its manufacture. Cycling is often the fastest mode of transportation from door to door for distances up to 10km in urban areas. 4 Short distance motor vehicle trips are the least fuel efficient and generate the most pollution per kilometre. These trips have the greatest potential for being replaced by cycling and walking. Reducing motor vehicle trips will mitigate ozone depletion, the greenhouse effect, ground level air pollution, photochemical smog, and noise pollution. 4
2.1.4 Disbenefits Disbenefits is a commonly used term in recreation planning that comes from a benefits approach. The key in trail planning is to maximise the benefits, while reducing or correctly ‘managing’ the potential disbenefits (negative aspects or impacts). It follows that there may be ‘disbenefits’ from some aspects of provision. For example, there may be disbenefits: • Off road recreational vehicles can negatively impact on the enjoyment of others, and can be damaging to the environment. i.e. Trail bikes create noise close to residential areas, jet skis disturb the enjoyment of people seeking quiet experiences, and trails can spread the root rot disease ‘Phytophthora’ and noxious weeds. • Injuries are a disbenefit from some activities, considering the personal and economic impacts of these injuries.
17 2: The reasons for recreation trails
• An over-emphasis on tourism development can have a negative impact on recreation experiences for local users, who will move to alternative places and activities to avoid crowding or negative experiences. • The over-provision in one particular area may divert Council and community resources to the extent that other areas are neglected and alternative opportunities are negated.
Planning . Community and Council resources can be wasted on trails that are not used because of poor planning (inadequate understanding of user needs, poor design/location/construction etc). Poor planning can also lead to ‘recreation succession’ – where users are dissatisfied with the recreation trail experience and seek their desired experience somewhere else. I.e. an over- emphasis on tourism can negatively impact on local user’s satisfaction. Design, location and construction . Inappropriate techniques can increase overall construction and maintenance (often the most expensive over time) costs, and lead to loss of quality. They can also lead to environmental problems related to either the trail itself or the impacts from users. For example, the spread of weeds, pests and disease (i.e. phytophthora – a ‘root rot fungus’). Management . Inappropriate management techniques can lead to increased user conflicts (between users, and between users and council/neighbours etc). It can also lead to inappropriate user behaviours – impacting on other users experiences or in damaging the environment or the trail itself. Activities . There are some disbenefits from the activities themselves that should be considered in planning and management responses. Off road motorised vehicles have more significant environmental impacts than walking and cycling activities (I.e. pollution and environmental degradation). Although not related to trails, there are health/cost disbenefits from some sporting activities: i.e. the injury costs from Australian Rules Football or Rugby.
18 3: Demand for recreation trails
3 DEMAND FOR RECREATION TRAILS
The previous section discussed the value of recreation trails for the benefits they provide. There is also a need to quantify the number of people who participate in trail activities – to determine some characteristics of their participation so that provision can be targeted in its approach – meeting trail users needs, maximising participation and therefore the benefits from trail provision. There are several important types of information required to understand demand: • How many people participate - in what types of activities? • Where do people want to go to participate in these activities? • What do people want to experience at this place, during this activity?
A range of information can assist us in understanding some of the answers to these questions. This will include: • Analysis of recreation trends and issues. • Analysis of socio-demographic material. • Analysis of sport and recreation participation research from public surveys (i.e.: Australian Bureau of Statistics, Australian Sports Commission and Sport and Recreation Tasmania surveys). • Analysis of physical activity research – this differs from sport and recreation research. • Analysis of outdoor recreation research – including specific activity information, recreation settings and preferences, and open space planning. • Analysis of social trends and issues – indicating future directions • Community consultations. • Research into contemporary recreation planning and management information.
3.1 Socio-demographics Recreation preferences are often determined by such factors as age, cultural background, income and access to private and public transport. Information about these factors can provide a background to likely demand, within the study area, for specific recreation facilities, programs and services. Trends in demands can be identified by comparing population characteristics with national socio-demographic data.
The Victorian Municipal Recreation Planning Guide suggests common elements for community profiling as 8: • Total population. The size of the population has an impact on the potential demand and the likely capacity for a community to financially support particular types of provision. Unlike major capital cities, West Tamar may not have the critical mass in numbers to provide high quality infrastructure, services and programs in all population centres. Therefore West Tamar may need to accept subsidisation of some activities to ensure a diversity of opportunities, and alternative methods of delivery to reduce costly overheads. All Northern Tasmanian council areas except George Town and Flinders Island indicated population growth over the period 1976 to 2003. The highest rates of growth have been in Meander Valley and West Tamar councils. This growth has been largely due to the urban growth in areas closely linked to Launceston: Prospect, Hadspen, Riverside and Legana. Therefore, while the recent population figures suggest a decline in Launceston’s population, the reality is that the wider urban areas of ‘greater’ Launceston are increasing. 10 The Northern Tasmanian Region features slow growth of approximately 1% per annum from 1971 to 1991, and an approximate increase of 0.5% from 1991 to 1996. The Northern Tasmanian
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Integrated Transport Plan (2003) refers to Australian Bureau of Statistics projections for the region being a fall to 129,000 by the year 2017, a decrease of 4%. 9 West Tamar’s population has seen a rise of 12.7% in the urban areas and a decline of 6.3% in the rural areas between 1991 and 2001. 9 This trend is expected to continue. Approximately 90% of the Northern Tasmanian Regional population lives in urban districts. This is evident in West Tamar (91%), Launceston (95%) and George Town (84%) in the Tamar Estuary area. 55 The Northern Tasmania Regional Recreation Strategy 2002-2007, and the Australian Bureau of Statistics, suggest an ageing of the population for northern Tasmania. For example, the median age was 21.4 years in 1971, 34 years in 1996 10 , and 36 years in 2001. 11 • Population density and spatial distribution identifies the number of potential users within the study area and will assist in determining the likely financial viability for particular types of provision. It is important to note that people do not consider municipal boundaries when they select and travel to recreation opportunities. West Tamar has a range of population centres. Starting with Riverside (in close proximity to Launceston as a large population centre), all major centres are located on the West Tamar Highway. It is likely that a focus on trails in and around these population centres would maximise participation. • Age and gender are basic indicators of people’s likely sport and recreation preferences and their physical ability to participate in certain activities (i.e.: based on age). Although it is important to note generalisations with respect to age and gender for the purpose of planning, it is equally important to avoid stereotypes to ensure that appropriate opportunities to the community are provided without discrimination. • Cultural background may affect the demand for certain types of facilities and services. It may also restrict people from participating in certain programs because of lack of confidence in communicating (i.e. English is not the common language) or because of differing cultural values, cultural/religious constraints and language barriers. • Household / disposable income affects a person’s (family’s) ability to pay for certain types of activities and participation. Groups with lower incomes have difficulty paying for privately run recreation programs and facilities and may be more dependent on low-cost or subsidised services. • Tenancy. Whether families or individuals are renting, paying off a mortgage or own their home will often determine the amount of money they have to spend on recreation. Tenancy can also affect the length of time people stay in the area, as people renting houses tend to move more often than home owners. This can affect services that require a more stable base to remain viable. • Mobility (proximity to public transport and car ownership) is a significant factor in determining the ability of people to move inside and outside of their local area to use facilities and services. A less mobile population, one that tends to stay in the one home for a considerable number of years, has a better knowledge of locally available recreation resources. People who move residency may have a geographically broader pool of potential opportunities. People restricted to public transport are restricted to service hours and frequency and by transport routes. • Household composition can have considerable influence on recreation choices and the ability to access facilities and services. Single parents are often disadvantaged due to low income and lack of child care. Recreation opportunities may only be available to them if it is low cost, in close proximity, and associated with either child care or shared participation. Older adults with a limited income living on their own may be more reliant on home-based services, such as mobile libraries. People with disabilities will have quite specific needs relative to their personal situation. • Types of homes people live in can determine the range of home based sport and recreation opportunities that they may provide for themselves. Inner city or tenancy residents may require more open space than those people with larger backyards. • Academic qualifications (level of schooling or education levels) can affect the demand for quality and range of facilities and services. A movement of professional people into a traditionally working class area will significantly influence recreation pursuits that are sought locally. These
20 3: Demand for recreation trails
may be privately based, as this group usually has a greater capacity to pay for recreation, or quite diverse and not focussed on traditional sporting (rosters and team based) competitions. • Employment and unemployment are indicators of ability to pay and types of services required, and time available to participate. The employment status of a population, or a section of the population, such as young females, will influence recreation preferences and demands of such a group.
3.2 Participation research. There are two principle forms of research available to assist in understanding participation: - physical activity research and sport and recreation research. Because these two forms of research differ, it is important to understand the differences and various conclusions that can be made from them. It is unfortunate that there is no commonly agreed, central source of information to validate participation figures. Council cannot simply use one source – and develop a policy position from there. The only appropriate method is to carefully review and analyse a variety of information sources – and prepare a policy position and rationale from this.
3.2.1 Physical activity research. Most current Australian physical activity research is limited to studying leisure time physical activity, but this represents a small amount of the total energy expended by people each day. Most physical activity research is focussed from a health perspective: primarily because as a society we are concerned about the declines in health of Australians that is clearly linked to declines in physical activity. 3 Overall, the analysis of research suggests that physical activity participation in Australia has decreased in recent years and remains low: only 57% of the Australian population met the criterion for sufficient physical activity in 2000. As a result, National Physical Activity Guidelines have been established to help to promote minimum levels of physical activity. Bull et al (2004) 3 suggest that adequate levels of physical activity have been shown to benefit individual health in the following ways: • Reducing the risk of all-cause mortality. • Cardiovascular disease prevention. • Diabetes prevention and control. • The primary prevention of some cancers. • Injury prevention and control. (i.e.: injurious falls to the elderly). • The promotion of mental health.
Unfortunately, there are clear relationships between reduced levels of physical activity and some sections of the Australian community. Bull et al (2004) 3 suggest the following groups are in this category: • Women are 20% less likely to report leisure time physical activity than men, especially married women and those with children at home. • Older adults. • People with lower levels of employment and education. • Single parents and children of single parents. • People who do not speak English at home. • Indigenous Australians. • People lacking appropriate social support mechanisms. • People with a disability.
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A benefits based approach to recreation, that recognises the value of physical activity for individuals and communities, should demonstrate clear priorities on improving participation. The research suggests that we must address the decline in physical activity amongst our community. If we also take an equity or equal opportunity approach, then we should be supporting those people who have high needs. Current research has a range of recommendations that can be implemented in our communities, with a specific role for local government in creating environments for physical activity, and advocacy, leadership and coordination. There are a range of resources available from which to determine a range of strategies to suit the diversity of experiences for specific communities.
3.2.2 Sport and recreation research Research in this area has been fragmented and ad-hoc in its approach for some time 12 . As a result, it is impossible to make comparisons between the three primary research sources available for Tasmania. These are; • The Australian Bureau of Statistics (ABS), • The Australian Sports Commission (ASC), incorporating the ‘Exercise Recreation and Sport Survey’ (ERASS) and • Sport and Recreation Tasmania (SRT) (previously published under the agency name ‘Office of Sport and Recreation Tasmania) These sources of information vary considerably in their assessment of overall participation rates, which raises serious questions regarding the validity of using ‘absolute’ figures for participation, and whether such measures for participation should even be used. 12 It is impossible to make direct comparisons (in figures) between various reports as they all use differing methods for collecting and analysing statistics.
Prior to the ERASS reports, there were two main categories within sport participation research: • Sport & physical activity • Organised sport. Many previous sport and physical activity surveys have focussed predominantly on organised sport, and involved a limited list at that. More recently, recreation activities have been included. The ERASS reports have attempted to recognise the importance of recreation participation by including wider fields of activities. Sport and Recreation Tasmania also considered this important issue in also incorporating a wider field of recreation activities. Analysis of this information suggests that there are declines in traditional sport participation. I.e. regular (frequent and structured) participation in a sport through a club roster or competition, or via school based competitions. However, the nature of participation has changed significantly in our society. A more recreation focussed basis of participation is now evident (unstructured or non- organised activity): so it is important to find areas of common agreement in the research that can guide our understanding and management decisions. 13
3.2.3 Proviso in using sport and recreation participation statistics The discrepancies between survey results suggest that no single source can be touted as the most valid measure. Instead, careful analysis of areas of agreement between sources, use of physical activity research and trends research can uncover a realistic picture of participation. The following figures (statistics) used reflect a consensus view from various reports – rather than relying on one particular report. The aim in using these figures is to show relative accuracy (across various reports) rather than absolute accuracy in any one particular (absolute) figure. For example: the SRT survey of 2002 14 showed recreational walking participation in Tasmania at 52.5% - while the ERASS report of the same year indicated walking at 30.3% 15 . The principle to be taken from this is that both surveys show recreational walking as the highest participation activity. Relative to other activities – walking is almost 2 times higher in proportion to the 2 nd most popular activity. It would be inappropriate to rely on the absolute figure of 52.5% - just as it would to rely on 30.3%.
22 3: Demand for recreation trails
3.3 Generic participation information • The majority of the population, who participate in physically active sport and recreation, participate in unstructured recreation activities as opposed to traditional sport (structured or coordinated sport –with regular training and rostered competition) • Non-organised activity accounts for 68.3% of participation. 14 • Recreational walking, bushwalking, and cycling are all activities with good representation in all age groups indicating lifelong appeal. 14 • The 8 most popular activities according to two survey sources (SRT 14 and ERASS 15 ) are:
Table 1: Comparison between participation research sources
SRT – 2002 ERASS 2004 ERASS 2004 (Northern Tasmania) (Tasmania) (Australia) Rec walking 52.5 Walking (other) 41.5 Walking (other) 39.0 Swim/diving 21.6 Aerobics/fitness 14.8 Aerobics/fitness 17.1 Fishing 21.0 Swimming 11.9 Swimming 16.5 Golf 13.4 Cycling 9.7 Cycling 10.5 Bushwalking 13.3 Bushwalking 8.7 Tennis 8.4 Cycling 10.5 Running 6.7 Running 8.3 Gym based fitness 10.1 Golf 6.4 Golf 7.9 Tennis 9.3 Netball 5.2 Bushwalking 5.2
• Almost twice as many women as men participate in recreational walking, with both bushwalking and cycling having greater male participation. 14 • Gender participation generally follows stereotyped expectations. Women are significantly more involved in activities that do not involve strong physical exertion or mechanical equipment. 16 • ERASS collects information from across Australia on the frequency, nature and type of activities undertaken by persons aged 15 years and over for exercise, recreation and sport during the 12 months prior to interview. ERASS suggests that over the last 4 years participation in walking in Tasmania has increased at a significant rate from 110,100 participants in 2001 to 155,100 in 2004, an increase of 45,000 participants. Over the same period bushwalking in Tasmania has increased at a similar rate from 25,300 to 32,400 participants, an increase of 7,100. Recreational cycling also continues to grow in terms of participation. In 2001 there were 24,700 participants in Tasmania and by 2004 this number had increased by 50% to 36,400 participants. 17
3.3.1 Motivations • Data indicates that 55.9% participate for health and fitness, 30.2% for fun, 21.5% for social reasons, and 20.9% for relaxation. These motivations were reasonably consistent across all age groups. (note: this is not specific to trail activities) 14 • The dominant motivation for recreational walking, bushwalking, cycling was fitness/health/exercise (82%, 31.1%, 73.7% respectively) with relaxation and fun/enjoyment being the other main motivations. 14 • The dominant motivation for horse riding was fun/enjoyment 62.7%, relaxation 35.8% and competition 13.4%. 9 • Participation in activities was also affected by the age of the participant. The youngest age group (15-17) showed more interest than other groups in camping, bicycle riding, water activities, and abseiling or rock climbing. Driving two-wheel drive and four wheel drive vehicles and using motorised watercraft were more popular amongst the 18-24 year olds.
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The 25-39 age group participated in picnics relatively more often than other age groups. Walking and nature study was more popular amongst the 40-54 year olds, whilst the 65+ age group had a lower percentage of participation than other age groups in every activity. 16 • This lower participation rate amongst the oldest age group, however, was offset by their frequency of participation. Those older people who did participate in an activity participated, on average, more frequently than any other age group in a number of activities, including camping, horse riding, driving other vehicles, and abseiling or rock climbing. This frequency might be a result of a decrease in commitments: by far the largest constraint on increased participation that was reported by participants was being too busy and having no time. However, this constraint was particularly pertinent to the 25-39 and 40-54 age groups. This result has implications for an increased demand of outdoor recreation as the population ages. 16
3.3.2 Travel • A significant proportion of residents travel outside their municipal area to participate in recreation activities. This is determined by proximity to opportunities, where distance, cost and limited opportunities are barriers. 9 • The importance of local facilities is evident with data indicating a large proportion of people don’t travel for recreational walking (89.9%) or cycling (74.2%). 14 • The recreational trail activities with highest levels of travel outside the local council area were bushwalking 86.2%, and horse riding 67.2%, compared to recreational walking 11.9%, cycling 22% and running/jogging activities 36.5%. 9 • The main reasons for travelling outside the LGA are for the nature of the environment (28.1%), Competition (26.4%), better quality facilities (22.9%), closer to participate in another area (20.6%), social reasons (15.6%), and that there are no facilities in the LGA for their chosen activity (12.2%). The SRT report also has more information specific to activities, with the most travel outside of the LGA undertaken for lawn bowls, bushwalking, AFL football, fishing and golf. 14
3.4 Trail activities - summary
3.4.1 Walking • Nationally, walking is the most popular of 50 different recreational activities. 1 • Walking is marginally dominated by females (55%). 1 • Whilst all ages participate in walking and cycling, substantially more walkers are aged over 40 years (48%) compared with cyclists (35%). 1 • 71% of recreational walkers participate at least weekly. 1 • 11% of walkers participate in an organised club or group activity. 1 • Fitness/health/exercise is the dominant motivation for recreational walking (82.9%), followed by relaxation (17.6%) and fun/enjoyment (15.6%). 9 • Bushwalking has a more varied spread of motivations, with fitness/health/exercise (40.2%) still the highest, followed by fun/enjoyment (31.1%) and relaxation (27.6%). This perhaps suggests that bushwalkers are more varied in what they want. 9 • Recreational walking. Ill health (56.3%) is the major reason why people discontinue this activity, with only 20.8% of people citing age as the reason (same percentage as ‘no time’). It suggests that recreational walking is popular and easy for older adults. 9 • Bushwalking. 32.7% of people indicated they discontinued because of lack of time, followed by family commitments (20.4%). 9
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3.4.2 Cycling • Over one third (37%) of the Australian population consider themselves to be cyclists, with increases expected to continue (general cycling). 1 • Cycling ranked 7 th nationally in the most popular of the 50 different recreational activities. 1 • 36% of cycling trips per annum (1996) were for recreation and social reasons. This is increasing, as is the number of cycling trips. 1 • Cycling is dominated by males (59%). 1 • 35% of recreational cyclists participate at least weekly. 1 • Only 8% of cyclists participate in an organised club or group activity. 1 • For cyclists, fitness/health/exercise is again the highest motivation (73.7%), with fun/enjoyment second (25.9%). 9 • Cycling. Age (31.4%) was the most common reason for discontinuing, followed by lost interest (20.9%). 9 • 80% of all the bikes sold today are mountain bikes 18 . • An Australian Bureau of Statistics survey 19 estimated in 2000 there were 15,300 mountain bikers in Tasmania (4.2%). • Wildside MTB attracts between 250 - 300 participants who ride cross country trails from Cradle Mountain to Strahan. Over half of the competitors and their support crews come from mainland States or overseas and contribute significantly to the local economies on the race route. • Based on Tourism Tasmania Tasmanian Visitor Surveys over the last five years, it is estimated that between 12,850 and 15,950 visitors cycled or rode a bike off-road during their time in Tasmania 20 . This represents about two to three per cent of visitors per year, over the past five years. • For a current summary on mountain biking, refer to Sport and Recreation Tasmania, ‘Mountain Biking in Tasmania: a summary of current trends and future opportunities (2005)’. www.development.tas.gov.au/sportrec . This document importantly differentiates between various forms of mountain biking: cross country, downhill, north shore and jump parks.
3.4.3 Horse riding • Horse riding is the 9 th most popular sporting activity for Australian women. 1 • Almost half (45%) of recreational horse riders participate in a club or group environment. 1 • 32% of recreational horse riders participate at least weekly. 1 • Participants in horse riding show a wide variety of responses. Fun/enjoyment is highest (62.7%), and then comes relaxation (35.8%). Competition rates highly at 13.4%, but naturally does not include trail users. 9 • Horse riding. Age was the most common reason for discontinuing (25.4%), and lack of time was next (22.0%). 9
3.4.4 Water trails • Detailed information about participation characteristics is limited in respect to scuba diving and recreational canoeing. 1 • Recreational canoeing and scuba diving have been popular activities for many years and is increasing in popularity. 1 • Approximately 5% of recreational canoeists are members of Canoe S.A. 1 (There are no statistics for Tasmania to determine a comparison).
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3.5 Participation summary and issues • While ERASS figures have been used to suggest that there are increases in general sport and recreation participation, this has been stated as an increase in walking and some targeted sports participation programs (i.e. Auskick). 21 Any singular use this material should be questioned: how have surveys been prepared, how has information been collected and collated – and does this information truly reflect regular or sustained ‘participation’? • Professor Veal of the University of Technology, Sydney 12 , suggests that there are serious questions regarding the collection and use of sport and recreation research. Overall participation rates may provide a relatively accurate ranking of activities (noting that absolute figures will vary between different survey methods), but it may tell us nothing regarding the equity of access to recreation opportunities across all section of the community. 12 • What is more compelling is a general agreement in physical activity research 3 and some sport and recreation surveys 21 , that in general, the majority of Australians are not exercising enough to achieve a health benefit. The ERASS Trends report (2001 – 2003) suggests that 77% of Australians over 15 years of age fit this description. 21 • The low rate of participation in moderate and regular physical activity (to achieve a health benefit) is a major concern for governments and communities across Australia. Any strategies to target increases in participation across the wider community should be broad based – and especially reflective of the high rates of popularity of unstructured recreation activities. • Hogan and Norton (2000) 22 suggest that despite large increases in funding for elite sport (especially for National, commonwealth and Olympic teams and athletes), there is no evidence to suggest that elite sport success or media coverage positively influences general public participation rates. There is evidence to suggest that this has a positive impact however on Australian pride and social identity. Therefore, there should be a clear understanding that increasingly targeted approaches to developing elite sport have little or no impact upon participation by the general population. Instead – targeted and localised approaches are the most significant. 3 • As the most popular recreational activities are non-structured, non club based activities; recreation providers (i.e. State and Local government) may need to look at recreation planning priorities to reflect local community demand and supply. There are clear relationships between low levels of participation and distinct groups within our community. If we take an equity based or opportunity approach, then there is a clear need to identify and support participation opportunities for high needs groups. • The nature of recreation participation is changing continually with a developing society. It is not possible to go back to the 1960’s. Partnerships between local and state government and with industry stakeholders are necessary to plan for current and future provision. 23 • Research is clearly suggesting that establishing ‘active communities’ is a critical area of concern for local government. This involves the careful design of the environment so that it is conducive to physical activity. This requires a clear integration of local government planning schemes with recreation outcomes in mind. 3, 24 • There is a growing body of evidence that suggests that local government needs to take a more directed approach in recreation planning and provision for its community. Leadership and coordination are key issues that need to be addressed, as recreation providers cannot be left to dictate demands towards inefficient and ineffective ways of meeting wider community needs. 25 • Recreation policy outcomes should be as public and accountable as health and education policy outcomes. Increasing child and adult obesity should be linked closely to exercise and recreation policy, and evaluation of such policies should question current low levels of regular physical activity. 12
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3.5.1 Social and recreational trends: Implications for Council Changes within Australian society are influencing the way in which people allocate their time and resources between work, family life, friends and leisure. Some of the more noticeable changes that are evident and closely related to recreation trails are listed below. Not surprisingly, these broad social, cultural and economic changes can often have far-reaching impacts on community recreation interests, involvement and management responses. Some of the trends are likely to influence future demands by the community for recreation opportunities, and the manner in which local government deals with them. The following points have been summarised from Marriott (2003), 26 Carroll (1995), 27 and the Office of Sport and Recreation Tasmania (2002) 14 • Changing employment structures, trading hours and work hours means that people are wanting more unstructured / flexible recreation opportunities to fit around their lifestyles and available discretionary income. Increasingly this does not fit with regular and structured sports participation and the commitment that it often requires. • The increasing gap between high and low income earners (decreasing middle income group) is described by the ‘Gini Index’: 28 a measure of the inequality of income distribution. This suggests that recreation provision needs to take account of the diversity of experiences required by the population: especially accounting for those in the community who have less access to a suitable range of experiences. • With the growing diversity of opportunities, and with the increasing dichotomy between those who can and cannot afford or gain access to these opportunities, there are increasing problems of alienation and disadvantage in communities. Social equity and access principles are becoming more prevalent in local government as communities demand greater diversity of opportunities for these groups. • A change in the make-up of our communities means greater cultural diversity and an ageing of the population. Again this supports diversity in provision, and the extension of activities that are easily accessible (physically, geographically and economically) and provide opportunities for low and moderate intensity physical activity. • Increasingly, people are becoming more aware of appropriate standards of service, and are demanding greater accountability from local government in relation to quality. This suggests that provision should be well planned and distributed, and provided/maintained according to Australian Standards where they are available. • There has been an overall increase in litigation and therefore a focus on risk management approaches to minimise the legal risks to Councils. Unfortunately this pressure has meant that many councils may have avoided risks by reducing the recreational activities that they could potentially provide. Recent changes in legislation suggest that councils can continue to provide recreation opportunities with less fear of litigation, following an appropriate risk management procedure. • A community focus on health and well being is reflected in people’s choices regarding recreation opportunities. Recreational walking and cycling are very popular as they are flexible to suit people’s lifestyles and budgets, and offer medium intensity activities that are excellent in increasing personal fitness. • There has been an increase in people wanting to associate and recreate outdoors. This has led to increased pressure to provide suitable outdoor venues, including parks, trails and residential areas that are conducive to activity (eg: ‘Active Communities’). This has also seen an expansion in the growth of outdoor and nature based tourism. • Therefore, there is growing interest in sustainable, low impact, low energy use and environmentally appropriate activities such as walking, cycling, and kayaking. There is also a desire for bushland conservation, the establishment of wildlife corridors and interpretive trails for recreational use that reflects increasingly sophisticated methods of natural resource management. • There have been significant advances in technology and related recreation products and activities. Mountain bikes are now very popular and affordable to a large section of the community. The range of kayaks has extended, and increased promotions have seen an expansion in personal ownership. Generally the population has a wider selection of more
27 3: Demand for recreation trails
technical equipment with which to participate in (predominantly unstructured – outdoor related) activities. • The range of equipment has provided alternatives that respectively create challenges for recreation managers. The growth of recreational vehicles has created increased pressures on the environment and a need to better manage the resource and work with user groups. The growth in jet skis has created problems associated with public safety and conflicts with other water users: again requiring management interventions. • There has been significant growth in global media coverage, electronic entertainment and computer based information. Therefore the population is more aware of recreation issues, standards/legislation/policies and developments across the world. This impacts on their desire for products and services, and their demands for quality and accountability. • There has been growth in extreme and adventure recreation activities. This means that providers need to consider the implications in regards to providing diversity, the extremes which some groups will participate in activities, and the management responsibilities of local government without inappropriate controls.
28 4: Outdoor recreation research
4 OUTDOOR RECREATION RESEARCH
The South East Queensland – Outdoor Recreation Demand Studies of 1998 and 2001 16 provide valuable research and recommendations on desired experiences for trail activities. This material is possibly the most advanced in Australia and very credible in specifically focusing on appropriate outdoor recreation planning techniques. The following points in this section are from this research. The studies involved research into people’s motivation for participating in outdoor recreation activities. It described motivation as being either intrinsic or extrinsic. Intrinsic motivation is the state in which an individual engages in the activity because of the inherent rewards of the activity itself. I.e.: riding a bike or going for a walk, simply because it they are enjoyable things to do. Often this is termed as leisure outcomes – to relax etc. Extrinsic motivation is the state in which the individual has another goal in mind: they are riding the bike or walking to get fit (extrinsic goal), or to compete in a race, improve their skill or speed (extrinsic goals) etc. The difference here is where the individual engages in thinking about another goal than the activity itself – the activity is only a means for achieving that goal.
Table 2: SEQ outdoor recreation demand study. Motivations
Leisurely (intrinsic) Sightseeing, looking, learning, unwinding, escaping, relaxing, experiencing peace and quiet (but may still involve hard exertion).
Goal focussed (extrinsic) Fitness, skills improvement, test equipment, challenge, conquering nature.
Competitively (extrinsic) Maximum distance, minimum time, fastest, most accurate, most difficult, training for competition.
Leisure was found to be the main motivation for outdoor recreation activities: and these activities were predominantly intrinsic in their character. Competition was not a major motivation in outdoor recreation activities. This is significant in its difference to sport based participation – a focus on extrinsic benefits. However, sport based participation shares a leisure outcome, to have fun. Due to the increasing population, there is a greater demand for urban development (and related facilities and infrastructure) that is placing pressure on natural areas close to urban sites. This was seen by participants in the study as a threat to their quality experiences: related to the devaluing of the characteristics of the setting. There was a significant increase from the 1998 study, with more people participating in totally natural sites compared to very natural sites. This overall trend suggested that the population is seeking more natural experiences, which aligns with other available research (refer to trends material earlier in this report). The majority of people live in urban areas. A general trend is that these people have busy lifestyles and therefore a limited amount of time to participate in leisure and recreation activities. With population growth and the expansion of urban areas, natural sites are becoming scarce. This means that very natural and totally natural sites close to urban areas are crucial to participation in outdoor recreation activities. The study presented a strong argument to support the retention of sites for future participation needs: ensuring that a diversity of sites will support participation for health and well being benefits. An increasing population carries with it an increasing demand for housing, industry, roads and infrastructure – all of which require the sacrifice of bushland. It must also be understood that the natural environment is a non-renewable resource. Once modified, it is usually impossible to successfully return a natural area to its pre-impact condition. Batt (2000, p4) 70 concluded, “If we wish to continue to have the opportunities for outdoor recreation that we currently enjoy and if we wish to retain some options for new outdoor recreation demands in the future, we have no choice other than
29 4: Outdoor recreation research to preserve and skilfully manage the remaining available areas.” Skilful management is also required to control the process of recreation succession, whereby sites become so impacted by recreational use that they are no longer attractive to their users. In this manner, many recreational opportunities are lost. There is some discrepancy between people’s understanding and perceptions regarding the differences between ‘somewhat natural landscape’ and ’totally natural landscape’ settings (Table 3). This relates to a potential conflict between what users like about a particular setting (i.e.: remote, isolated, natural, quiet etc) and their desire to have more infrastructure (i.e.: toilets, payphones, rangers etc). These users may not understand that the management inputs they want for the area, will ultimately devalue the very experience they desire. This suggests that there may be a lack of understanding amongst the general public, regarding the attributes that make an area ‘special’ according to its landscape classification, and how modifications will actually impact on desired experiences. Land managers will need to understand this discrepancy: by understanding and implementing a ROS based approach (incorporating limits of acceptable change) and not simply accepting potentially uninformed comment on how these areas should be developed.
Table 3: SEQ Outdoor Recreation Demand Study, Landscape settings. 16
A somewhat natural landscape is close to suburbs or cleared farmland, which is accessible by conventional Somewhat natural landscape vehicles or vessels, has buildings highly visible and other people are usually present. (Equivalent to landscape classes 5&6)
A very natural landscape is away from suburbs and cleared farmland, which may be difficult to access by vehicles or Very natural landscape vessels, has few built structures visible and few other people present. (Equivalent to landscape classes 3&4)
A totally natural landscape is far from suburbs and cleared farmland, which has no access by vehicles or vessels, there are Totally natural landscape no built structures visible and little or no evidence of other people. (Equivalent to landscape classes 1&2)
As a barrier to participation: “No time/too busy” is the most likely constraint that prevents people from participating in outdoor recreation activities. Equipment becomes more important in the case of four- wheel driving, other driving activities, and using motorised watercraft. The issue of a lack of time for recreation was discussed extensively during the workshops as a major constraint on people’s recreation. This constraint also impacts on the recreational settings that are used, in that people often lack the time to access the more remote settings that they would like to use. For this reason, participants stressed the importance of the provision of local, easily accessible spaces that are retained in as natural a condition as possible.
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The study identified the following comments and concepts from participants in consultations:
Table 4: SEQ Outdoor Recreation Demand Study (2001). Special places. 16
Remoteness, not easily accessible, opportunity to Special places (the ideal) be alone, totally natural (no facilities)
Endless, observation of animals, naturalness, beauty, Benefits from visiting natural places tranquillity, freedom, quality time with family, escape, away from television.
Constraints on participation Time, family, money, health/disability
Sharing, pushed out (urban encroachment), overuse, Threats to natural areas speed of other users, vandalism, litter, crowding, noise.
Better management, restrict access, and provide variety Need for: /diverse settings and experiences. Need for local special places.
Local special places (quick fixes – close Local, accessible, safe, facilities, ease of preparation, to residential locations) organised, cater for disabilities, information
4.1 Summary To meet the demand for outdoor recreation now, and in the future, areas with these attributes (diversity of settings) need to be identified, protected from land use decisions that may make them unavailable for recreation, secured for outdoor recreation use and managed to ensure continued quality, quantity and diversity. To achieve this, outdoor recreation must – like agriculture, mining, conserving nature, forestry, water catchment management, maintenance of indigenous cultures, industrial development or residential development – be recognised as a significant and legitimate land use. This recognition needs to be expressed through land use decision making, local and regional planning, service delivery across all levels of government and in the community and private sectors.
Important information from the SEQ Outdoor recreation demand study 16 suggests: • For walkers, the landscape setting where activities are primarily undertaken: 66% preferred somewhat natural, 26% very natural, and only 8% totally natural. • Preferences are clearly for locations close to home, due to busy lifestyles (the lack of time to travel to settings away from home). This closely aligns with popularity of somewhat natural settings – more likely to be close to home and residential (developed) areas. • There is significant research to suggest that motivations are also important in determining demand. Physical activity and participation research indicates that trails in urban areas are in demand, due to the extrinsic motivation of health and fitness (physical activity). Any trail strategy must take this into account and a primary focus. • With information combined from the SEQ study, it can suggest that wherever possible, combine as many natural features in and around urban centres for trail networks based on the majority of participant needs. • The SEQ study also suggested that people are significantly attracted to ‘special places’ – that can be characterised by being isolated, quiet, relatively unmodified etc. An overall recommendation from the study is to protect these settings from inappropriate management decisions that will detract from these characteristics. I.e.: wherever possible, maintain natural setting characteristics.
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• This contradicts the basis of the Cradle Coast recommendations 29 : where they are promoting a high degree of trail modification in natural areas, to make them easy, short, highly modified etc. This comes back to a careful analysis of retaining an appropriate diversity of experiences – not unduly modifying natural settings, and understanding location factors as they relate to the needs and demands of the population.
4.2 Recreation opportunities and settings Researchers believe that people who participate in outdoor recreation activities do so because they hope to gain certain rewards or outcomes. These outcomes consist of a wide variety of experiences such as solitude, challenge, being with friends or family, testing skills, experiencing nature, and others. What experiences are desired vary a great deal across activities, among people participating in the same activity, and even within the same individual or different outings. In fact, recreationists are often seeking to satisfy multiple desires in a single outing. Comparing this research with the previous information from the South East Queensland Outdoor Recreation Demand Study (2001) 16 , suggests that recreation behaviour is primarily leisure oriented, can be goal-directed, but is always undertaken to satisfy desires for particular experiences. The quality of these experiences is often measured in terms of users’ overall satisfaction. In a perfect world, land managers could provide nearby, high-quality opportunities for every type of experience trail users might possibly seek. This is rarely possible, of course. Limited budgets, limited amounts of land, and the sheer number of users with different preferences make it impossible to perfectly satisfy all the people all the time. Flexibility, compromise, and common courtesy on the parts of all users are necessary to maximise the opportunities for high-quality experiences for everyone. 30 Traditionally, recreation provision was focussed on facilities. A focus on facility provision alone is likely to miss the identification of opportunities necessary to meet the diverse needs of the community. The basic assumption of a ‘Recreation Opportunity Spectrum’ (ROS) 31 approach to provision is that quality recreation experiences are assured by providing a diversity of experiences, catering for various tastes and user group preferences. The recreation opportunity based approach aims to match setting attributes with preferred recreation experiences. Careful analysis of the recreation opportunity needs to identify three separate elements: 32
• Participation in desired activities. • Use of specific settings. • The achievement of a particular recreation experience.
4.2.1 Recreation settings Recreation settings are a result of the combination of biophysical, social and managerial attributes of a place in which recreation takes place.
Biophysical • Terrain • Type of access to and within • Number and type of built structures present • Plant community • Animal community • Smells caused by natura features (eg: flowering plants, rain, dying algae after floods) • Sounds caused by natural features (eg: water falls, surf, bird song, wind) • Area of available landscape/seascape
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Social • Total number of people present • Activities of the people who are present • Sounds caused by machinery and the activities of people • Smells caused by machinery and the activities of people • Number of people in the social group to which a person belongs and their behaviour.
Managerial • Ownership and management arrangements for a site • Set of regulations / rules / bylaws operating at a site • Landscaping and facility design and standards • Frequency of interaction with onsite enforcement, educational, management and maintenance staff • Number and obtrusiveness of signs The following table is a summary example of how the Ministry of Forests, British Columbia, uses this methodology to describe their recreation settings. The Tasmanian Parks and Wildlife Service have used these three attributes in their descriptions of walking track classifications for the World Heritage Area.
Table 5: ROS polygon delineation factors 33
Remoteness Naturalness Social Experience Distance from road – Motorised use – degree of Solitude/self reliance – approximate distance from the motorised use within the area opportunity to experience nearest road (km). (includes off-road, boat and air solitude, closeness to nature, access vehicles) self-reliance and challenge.
Size – approximate size of the Evidence of humans – on the Social encounters – number of area (ha) ground evidence of restrictions interactions with others and and controls, facility expected party size. development, site modifications and site or trail degradation.
4.3 Recreation succession Throughout Australia and overseas, setting diversity has been shown to be reduced by recreation succession. Recreation succession is the process by which the quality or condition of recreation settings deteriorate and/or change as a consequence of the impacts of recreational use and/or the actions of management. This is the main outdoor recreation issue, especially in the high growth areas of the state where the demand for outdoor recreation is highest. 34 Recreation succession ultimately causes a change in the participants who use a particular site and/or the types of recreation activities, which can be undertaken there. It can occur at a specific site or across large areas. Recreation succession occurs when the quality or character of a recreation setting changes beyond the tolerance of existing users. New users who are tolerant of the new condition replace those displaced by the changes. In turn, the new users generate impacts which change the inherent character of the site or management attempts to mitigate or control the impacts by a range of means including access restrictions and site hardening. 35 The result of recreation succession is that particular recreation activities or particular styles of recreation activities are displaced from where they once occurred. This has less significance while suitable new sites are available. But for some activities in some areas (eg: nature trail walks close to
33 4: Outdoor recreation research home) the supply of new sites is already exhausted. In effect, recreation opportunities (i.e. the opportunity to undertake a particular recreation activity in a particular recreation setting) are lost through recreation succession. 35 This is no minor matter. In some communities, people who have chosen particular locations to live because of the recreation opportunities provided from the natural or undeveloped character of those locations, can have their lives (not just their lifestyles) disrupted by recreation succession. Professor Trevor Sofield 35 suggests applying the concept of ‘limits of acceptable change’ (LAC) to assist in understanding the desired quality of an experience and how management actions (and other impacts) might disrupt these experiences. This will assist in determining the mix of experiences in one area – providing that displaced users have opportunities somewhere else.
4.4 Carrying Capacity Professor Sofield’s paper ‘Is the glass half empty. No, it is half full’ (2002) 35 discusses the concepts of Carrying Capacity and Limits of Acceptable Change (LAC). These concepts are important in discussing recreation opportunities and recreation succession. Carrying capacity is a concept that has gained prominence in land management agencies in America. It can be defined as ‘…the total supply of visitor opportunities to be accommodated in a given area before unacceptable impacts occur. ’35 There are two primary fields of investigation into carrying capacity, where capacity relates to numbers of visitors and the range of opportunities provided: • Ecological Carrying Capacity. Environmental impacts. • Social-psychological Carrying Capacity. Social impacts on the recreation experience. Original studies attempted to determine a relationship between the level of use and the level of impact. But these impacts were difficult to identify and predict, so research moved away from attempting to determine an appropriate number of users (inputs), to looking at acceptable changes in the environment and recreation experience (outputs). Frameworks for assessing carrying capacity included: • Limits of acceptable change (LAC) • Visitor Impact Management (VIM) • Visitor Experience and Resource Protection (VERP) • Tourism Optimisation Management Model (TOMM) All these frameworks identified the fact that impacts were inevitable. Rather than any focus on visitor numbers, the focus should be on acceptable standards for managing the level of impact. It is therefore important to consider that limits on numbers is not the same as carrying capacity, and that the concept of carrying capacity is open to interpretation according to the dynamics of the environment itself. Professor Sofield 35 notes: In short, a complex mix of objectivity and subjectivity govern differential perspectives on what is and is not acceptable capacity. Haas (2002, p2) suggests that decision science, which encourages consideration of a multiplicity of perspectives, can ‘enrich and lead to more effective and better decisions’ although paradoxically it can also ‘be an obstacle and inconvenience to efficient decision making’: and he advocates recreation and tourism managers engaging ‘in a broader dialogue of divergent perspectives in search of convergence in understanding carrying capacity’. Carrying capacity can be increased or decreased by management action: it is not an inherent, fixed value of the land. It can be diminished by unregulated overuse or enhanced by thoughtful management . Capacity is a fundamental administrative decision which ideally should be based on a reasonable level of certainty about impacts (good science) combine with sound professional judgement (Haas, 2002). In considering carrying capacity: Intensity of visitation is a poor predictor of impact. Most damage occurs with initial visitation and very few numbers. The type of visitor and season may be more significant in understanding what is happening rather than the amount of use.
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For example: 200 educated cavers may have less impact in Kubla Kahn cave (Northern Tasmania) than 10 uneducated cavers who take flash photographs, handle and trample delicate formations. Equally, cultural differences will have an effect on individual perceptions of ‘crowding’, ‘wilderness’ or ‘nature’. Professor Sofield 35 suggests …that carrying capacity is a flawed concept because in any given situation the range of variables to be taken into account negates the ability to determine a single magic number. However, it is equally obvious that some sites do require management of visitation numbers because any visitation, no matter how small, will result in some change. It is therefore suggested that application of concepts such as Limits of Acceptable Change, where managers combine the results of science with value judgements about the desired quality of the experience, provide a way forward where the interests of both visitors and protected areas can be brought into a satisfactory relationship.
4.4.1 Limits of acceptable change The following information is contained as a summary from Stankey et al, (1990) in Sofield (2002). 35 There are four major components to the LAC process: • The specification of acceptable and achievable resource and social conditions, defined by a series of measurable parameters. • An analysis of the relationship between existing conditions and those judged acceptable. • Identification of management actions judged to best achieve the desired conditions. • A program of monitoring and evaluating management effectiveness.
9 Steps of the LAC Process • Identify area concerns, issues. • Define and describe opportunity classes. • Select indicators of resources and social conditions. • Inventory resource and social conditions. • Specify standards for resource and social indicators. • Identify alternative opportunity class allocations. • Identify management actions for each alternative. • Evaluate and select an alternative. • Implement actions and monitor conditions. Professor Sofield 35 suggests: It is the condition of the area and not visitor numbers that is the focus of LAC. There is broad agreement that any decision about use will favour certain users and certain types of experiences (Schreyer 1979, cited in Cole 2001), and this underlines the value of science that helps managers make decisions about which users and experiences to favour in their area. In order to lessen discrimination against one or more types of visitors/experiences, the need is to locate the decision making process within the context of a large system perspective such as the ROS (Recreation Opportunity Spectrum). A decision to give preference to one user group over another is less discriminatory if the other user group is given preference somewhere else.
4.4.2 Social acceptance for management interventions Sofield 35 suggests that there are three important conditions prevalent in Australian society that indicates a general willingness to listen to rational reasons for managing LAC and carrying capacity (provided in context of an example on North Stradbroke Island). • The first is the general adoption of environmental ethics within the broader community. Many people in Australian society are accepting of the need for environmentally friendly forms of recreation activity and behaviour.
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• The second is the political significance of the environmental movement in Australia, with ‘Greens’ playing a major role in both state/territory and federal politics. This political influence means that difficult decisions regarding protection of sensitive areas are a focus of public attention. Local environmental groups are now instrumental in monitoring adverse impacts (i.e.: A North East Water Watch group successfully finding Forestry Tasmania water catchment practices in one area to be at fault) and negotiating outcomes (i.e.: The Tasmanian Conservation Trust). • The third is the empowerment of the Aboriginal community through Native Title legislation and subsequent land hand-backs across Australia (i.e.: Cape Barren Island). Although possibly less prevalent in Tasmania, Sofield suggests a general acceptance of the …integration of Aboriginal culture with the bio-physical environment in a ‘nurturing nature’ context 35 – specifically related to an example provided on North Stradbroke Island (Quandamooka), Queensland.
4.5 Tourism and trails The Northern Tasmanian Regional Recreation Trails Strategy (2004) 9 provides the best available summary on tourism potential for recreation trails. The following section is a direct quote. The Tasmanian Visitor Survey conducted by Tourism Tasmania provides valuable information on the travel patterns and activities undertaken by interstate and overseas visitors to the State. One of the activities listed in the surveys is participation in bushwalks for less than 2 hours, day walks in excess of 2 hrs, and overnight bushwalks. The general trend has been an increase use by interstate and overseas visitors across all bushwalking categories over this period of: • 2.4% for short walks; • 29.0% for 2 hrs – day walks; • 17.0% for overnight walks; and • 19.8% overall for bushwalking. There has also been a marked increase of 7.6% for short walks, 30.2% for 2hr-day walks, 22.9% for overnight walks and 26.4% for bushwalking activity in the period December – March 2003 coinciding with the quantum leap in visitors due to the twin ferry service (17.7% increase in total visitors to the State over this period). A major reason for the increased participation in bushwalking is the selection, upgrading, interpretation, promotion and marketing of the Great Short Walks resulting from the Tasmanian Walking Tracks Strategy and Marketing Plan 1997. There has also been a significant increase in the bushwalking product catering for different interest groups including the development of the Bay of Fires Walk within Mt William National Park.
• A 1997 bushwalking survey 18 found: 47% of those surveyed indicated bushwalking was one of the main reasons for visiting Tasmania; • day walks were the most popular walks undertaken (56% as compared with 52% for short walks); • day walkers tended to choose walks that are accessible, convenient, suitable grade and suited to children whereas overnight bushwalkers tended to rely more on information from word of mouth sources, internet, walk guide books etc; and • 6.3% of the respondents undertook a commercial guided walk during their stay within the State. The Working party for the recreation/tourism use of state owned lands is a state government committee comprising of Tourism Tasmania, Parks and Wildlife Service, Forestry Tasmania, Hydro Tasmania and Sport and Recreation Tasmania. This group is currently investigating a review of the ‘great short walks’ component of the State wide walking track strategy. This offers a unique opportunity for the West Tamar Council to ensure that suitable short walks in West Tamar are offered (and therefore marketed) through this state-funded strategy.
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5 BACKGROUND ON RECREATION AND TRAIL PLANNING
5.1 Purpose and need for a recreation trail strategy
Council’s Sport and Recreation Strategy (2002) identified the need to prepare a recreation trail strategy. The significant benefits of trails have been recognised in Australia and around the world. State and Territory governments and councils across Australia are starting to develop trail strategies – evidenced locally by the Northern Tasmanian Regional Recreation Trail Strategy 9, the Cradle Coast Track Strategy 29 , and current interest in a state approach by Sport and Recreation Tasmania. Recreation trails include the highest participation activity for any sporting or recreational activity across Australia – recreational walking. This fact alone suggests that trails need our attention. Unauthorised walking and cycling trails are happening now due to demand, right across Tasmania. There are also increasing expectations for quality experiences, standards, information, safety and support facilities. 1 Tasmania has no state trail strategy. Although there a state walking track strategy 36 and a northern regional trail strategy 9, these do not necessarily relate well at the local level to West Tamar. Community groups and individuals in West Tamar are pressing Council to develop more trails – but Council has no strategic approach to balance these requests with an appropriate analysis of recreation needs and resource requirements across the entire municipal area. If trail provision continues in an ad-hoc manner, community resources may be wasted, opportunities for additional funds may be missed, some groups in our community (perhaps those most in need of recreation opportunities) may miss out, and provision may be low in quality or perhaps create more problems than solutions. Trails often traverse land/water management systems and agreements – Council, State Government and private property. Planning for trails demands a strategic and coordinated approach to ensure a high quality recreation trail system delivers benefits to the local community, while ensuring that disbenefits are managed appropriately.
5.2 Stakeholders in recreation trails There are various stakeholders in the context of recreation trails. This includes land/water managers and owners (these may not be the same), users (identifiable in groups – by their activity or other characteristics), community or advocacy groups, professional associations etc. For example: • Department of Primary Industries, Water and Environment. (Crown land, planning and services) • Department of Tourism, Parks, Heritage and the Arts (Tourism Tasmania, Parks and Wildlife Service, and the Tasmanian Heritage Office). • Department of Infrastructure, Energy and Resources (DIER) (Transport Tasmania, forests, energy etc) • Department of Health and Human Services • Department of Education • Department of Economic Development (Sport and Recreation Tasmania, Premier’s Physical Activity Taskforce) • Northern Tasmania Development (Recreation Committee, Regional Tourism) • Launceston City Council, Meander Valley Council, George Town Council, Latrobe Council • Police, Ambulance – state emergency services • Forestry Tasmania.
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• Esk Water • Tasmanian Aboriginal Land Council • Tasmanian Conservation Trust • Port of Launceston Authority. • Marine and Safety Tasmania (MAST) • Activity and advocacy groups. (walking, cycling, 4WD, equestrian groups etc) • Peak bodies, clubs and associations. (i.e. Tasmanian Outdoor Recreation Council, Tasmanian Trail Association, Scouts and Guides Tasmania, Tasmanian Bicycle Council, Canoe Tasmania, Equestrian Federation of Australia – Tasmania etc) • Tourism Council of Tasmania • Volunteer groups (especially Landcare and Coastcare groups) • Community organisations (Lions, Rotary etc) • Environment and fauna/flora groups. • Commercial organisations (retail outlets for recreation trail products and services, accommodation and meals, commercial tourism operators etc) • Consider also controlling or regulatory bodies, providers, advocates, etc.
5.3 Community consultations to date The Northern Tasmanian Regional Recreation Trail Strategy 9 identified consultations with councils that highlighted community concerns regarding trail issues. Seven community forums conducted during the preparation of the strategy also identified community support for recreation trails. Community demands identified by Councils have been for: • Upgrading existing footpaths to make it safer and attractive for recreational walking. • Developing new walking and cycling tracks within urban areas. • Making better trail links within urban areas. • Improving public access to the foreshore. • Upgrading facilities associated with tracks and trails (i.e.: toilets, seating, signs, interpretation etc). • Supporting further planning and development of longer distance trails for bushwalking, mountain bike riding and horse riding.
It will be important to identify and consult with the wider community, especially stakeholders with specific interests in recreation trails. Community development and social capital are concepts strongly supported within local government across Australia. Community consultation is at the forefront of any community development or capacity building processes.
5.4 Existing strategies with recommendations for trails The Tamar Valley Open Space Strategy (2004) 9 has recommendations relating to recreation trails. These are contained in the appendix and are discussed in the body of this report. The Northern Tasmania Regional Recreation Trail Strategy (2004) 9 also has recommendations for trails in West Tamar. 55 These recommendations are discussed in detail in the body of this report. The West Tamar Bike Plan (See Appendix) has provided recommendations for cycling in the municipality.
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5.5 Local government and recreation planning Local government is one of the major providers of recreation infrastructure and services in Australia, and has a major role to play in maximising the accompanying benefits to communities. 27 John Hepper, in Meander Valley Council’s Recreation Strategy 37 , summarises some key influences on local government and recreation provision: ‘Over the past decade, a number of factors have made the implementation of sound corporate planning and management critical (for local government). Probably the greatest importance amongst these are: • Resident’s demands for services have increased as the population has become more interested in issues of health, quality of life and participation in activities. • The community expects that rate increases will be kept to a minimum, but costs of providing services continue to increase. This means that local government is faced with growing challenges and growing resource problems in the planning of recreation services. • The devolution of a number of state and federal government responsibilities to local government: often without adequate financial support. Therefore the need to plan efficient and effective use of resources. • The distribution of resources between groups within the community and across different neighbourhood areas is often inequitable. Commonly, a disproportionate share of a council’s recreation budget is tied up with maintaining facilities for sport and active recreation while the demand for more diverse recreation and cultural activities is steadily increasing. • The recent local government reforms, particularly the competitive tendering requirements aim to increase cost efficiency and accountability. Therefore, more than ever, the planning process will need to provide sound and cost effective justification for the provision of services by councils. • One way for local government to be responsive to changing needs is for its planning to be based on a program of regular consultation with the community. An advantage of this approach is that, by involving members of the community, awareness is raised and resources within the community are tapped. Planning should be seen as a continuous process and central to the fulfilment of local government’s role.’
Dr Ken Marriott, a highly respected leisure and recreation consultant in Australia, considered the importance of good recreation planning for local government in his paper, ‘The future of recreation planning in Australia’: 25 • There is a need for integrated planning, reflected in the ‘triple bottom line’ approach (community, economy and environment), that aligns with a benefits approach to recreation planning and provision. • Most current municipal recreation planning is focused on facility planning. This is not recreation planning, rather it is project planning and asset management. What is lost is the quality of the experience for the recreation user. What access do they have to opportunities, and of what quality is that experience. • There is a continuing dominance of one or more engineers or town planners on recreation issues. Well meaning though these people are, they often do not have a leisure or community focus and may use outdated planning tools that do not integrate asset management with recreation planning. • There is generally a lack of agreement on or consistency of approaches to recreation planning within local government. Most plans prepared for local government are inconsistent across municipal boundaries. • There is almost a universal view that the wider recreation concept does not need to be considered. Often the focus is on narrow sports participation, while there are huge numbers participating in gardening, walking, cycling and sightseeing. • Ad-hoc decision making and provision is a response to political and pressure group demands. This leaves the discretion regarding community provision to a process that is largely uncoordinated and unplanned. It leaves councils responding to the demands of individual sports and clubs, often without regard to holistic community planning and strategic approaches to provision.
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The following summaries are made from available recreation literature, and information used in the preparation of the West Tamar Council’s recreation papers. 34 27 25 • There is a changing role for local government, with more of a focus on leadership, coordination and planning in regards to recreation provision. Local government is also more aware of the changes affecting people’s participation in recreation activities, with a greater emphasis on providing a diversity of experiences as opposed to a traditional focus on sport. • There is a move away from a traditional focus on facility provision, towards an understanding of community needs and a benefits approach to provision. More effort will be placed on the end benefits to individuals which includes an emphasis on appropriate promotion, programs and services for the community. • There is an increasing awareness of the importance of our natural assets. Natural Resource Management principles and strategies are relevant and important in determining the carrying capacity of outdoor areas, and will become the basis from which sustainable recreation opportunities are planned. • State and Australian Government funding programs are increasingly requiring planned approaches that reflect regional, state and national policies. The increasing emphasis on appropriate planning, consultation with communities, regional and partnership approaches are evident in Australian and State Government funding programs. • There is a growing body of evidence to suggest that local government needs to take a more directed approach in recreation planning and provision for its community. Leadership and coordination are key issues that need to be addressed, as recreation providers cannot be left to dictate demands towards inefficient and ineffective ways of meeting wider community needs. 25
5.5.1 A role for council in recreation trail planning West Tamar Council has been proactive in responding to recreation provision through the preparation of a recreation strategy in 2001/2002 38 . Recreation is a large and complex area for local government, so the recreation strategy recommended: • Better planning – to improve the use of existing opportunities, to provide a more equitable distribution of council resources, and to better understand and cater for the community’s diverse needs. • The use of community development approaches – that builds the capacity of the council and the community to deal with complex and costly recreation issues. • A benefits approach to recreation provision – that builds a better understanding of how people recreate and why. This will help to determine the best mix of recreation opportunities to benefit individuals, the community, the economy and the environment. • That Council takes a leadership role in recreation planning and provision – providing more direction on recreation issues to ensure that community needs are met, and that adequate diversity is provide both now and into the future.
5.5.2 West Tamar Strategic Opportunities Report (2005) 39 Dr McCall in the report suggests that West Tamar faces two significant challenges in terms of strategic opportunities for future sustainable growth, well-being and prosperity. The challenges are: how to advance West Tamar’s integration and linkages to the knowledge economy and how to respond to the ‘demography is destiny’ scenario attached to an ageing population. McCall suggests that the answer lies in innovative analysis – with a long term view – and a commitment to drive policy at a regional level. Regional development is strongly influenced by a sense of place and identity, which in turn shapes economic, environmental and social issues and policy responses. This provides a clear link between economic prosperity, environmental sustainability and liveable communities – quality of life.
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With this in mind, McCall recommends that there are three primary opportunities for West Tamar to pursue: • West Tamar’s strategic advantage within the region lies within its quality of life indicators and the subsequent link to ‘sea change’: creative professionals choosing to live in and work from the municipality. • Recreation and ‘sense of place’ community attributes must guide West Tamar’s strategic branding as a municipality in the future and should shape its infrastructure planning. • Regional planning and strategic policy initiatives through Northern Tasmania Development (NTD) must respond to West Tamar’s identified strategic advantages and implement appropriately.
McCall continues to make some pertinent points that support the development of recreation trails - while completely endorsing the approach taken by Council in the West Tamar Sport and Recreation Strategy. He states “ It remains unclear as to how the issues outlined in this paper are currently being addressed but the paper; its discussion and draft strategy now need urgent and timely strategic implementation within a regional approach to this vital indicator of economic and social validity .” 39 McCall suggests that the following issues require attention: • Highways to nowhere, and inadequately designed and funded recreational amenities that no one will use in the future (Due to changing demographics and social capital) are examples of ill-considered infrastructure options to be avoided by municipalities such as West Tamar. • Population growth of 1% and an ageing population are predicted – forecast population in 2025 to be 25,000. Coastal areas in particular already have higher concentrations of older people and are projected to age rapidly. Although local government is not the main provider of health and aged care services, provision of human services comprises half of local government expenditure. The ageing of the population is likely to cause fiscal pressure relating to an imbalance between expenditure and revenue growth. This is likely to place significant pressure on infrastructure planning and provision. • Education, health, welfare, housing and community amenities, and recreation and culture represented 49% of local government expenditure. This is of significance with respect to ensuring a well planned approach to resource use. • The main reasons for staying in West Tamar includes: ‘great lifestyle’ (51%), ‘clean air and environment’ (45%), and ‘close to friends and family’ (37%). These figures were taken from a community survey commissioned for the strategy. • Numerous reserves, open space parklands and sports facilities require facilitation of usage and better access and targeting of younger and older age groups. • Maintaining the land, coastal and aquatic environments must be a high priority. Significant changes to land use threatens local biodiversity and degrades ecological processes in West Tamar. Water resources need to be seen as an asset of the whole community. • Tourism development opportunities primarily related to natural attractions (the estuary, coast, hills and forests), built and cultural attractions (wineries, galleries and resorts), events and festivals, should be a focus for development. • Residents of West Tamar are more likely to be couple families (with or without children), more likely to be professionals or associate professionals, and less likely to be unemployed than the population of he surrounding region or state. • The attractiveness of the areas is crucial to their choices – a sense of place, lifestyle to maintain health and well-being, with a focus on environmental values and recreation amenity. West Tamar is a desirable place to live for these people to maintain ‘quality of life’. • These people gravitate to stimulating creative environments – to places that offer not only opportunity and amenities, but openness to diversity, where they feel they can express themselves, and validate their identities. They favour active, participatory recreation over passive, institutionalised forms.
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• A central challenge is to develop new forms of social cohesion appropriate for this new age, rather than rely on old style communities built on old forms of ‘social capital’ – e.g. sports associations, old style service clubs and sports arenas etc. • Creative people demand more active, authentic and participatory experiences which they can have a hand in structuring – walking, running, rock climbing or cycling, travel to interesting locations that are well presented – good enough or second rate will not do – so as to provide a physical and intellectual challenge. • Creative work is largely intellectual and sedentary thus recreation is ‘stress relief away from everyday work’. The assets that matter are abundant urban parks and green space, rolling hills and valleys with rivers – sound familiar?
5.5.3 Local government and active communities There is a growing body of research that suggests the need to look at the concept of liveable communities as a part of integrated town planning. It involves the influence of town planning (urban design – the physical environment), on physical activity patterns for individuals. By identifying specific features of the built environment that are important in influencing rates of physical activity, and making changes in local land use and transportation policies that shape the built environment. An important measure of liveability is how physically active and healthy people are. Walkable, bicycle friendly communities provide opportunities for regular physical activity – which is important in preventing chronic health problems and improving quality of life. There are also strong connections between active environments and economic viability. Reducing traffic noise, traffic speeds and vehicle generated air pollution can increase property values. Tourists are attracted to areas that are more scenic and amenable to walking and cycling. Walkable streets are good for retail areas and subsequent sales. Reductions in pollution from vehicles increases the marketability of areas: to tourists, residents, potential businesses – attracting investment and economic prosperity. 5
5.5.4 Active Living and Social Equity 40 If social equity is an important principle for local government, then recreation planning should include available guidelines. ‘The Active Living and Social Equity: Creating Healthy Communities for all Residents’, guide for local government, 40 is a valuable resource that outlines important considerations for social equity relating to recreation planning and trail provision. There is an increasing awareness regarding the falling levels of physical activity in Australian society and the subsequent increase in activity related health problems. Emerine and Feldman ((2005) 40 suggest that: While these conditions reflect a variety of root causes – from changing diets to technological innovations to increasingly sedentary jobs and leisure time activities – evidence suggests that there exists a strong relationship among health, physical activity, and the way we plan and design our communities . Unfortunately many communities currently lack the design and land use feature that enable active living, making active and healthy lifestyles more difficult for residents. In these places, community design generally favours the automobile and other technologies over people. Essential services, healthy food options, workplaces, and other destinations are frequently not located within easy walking or bicycling distance from where people live. Moreover, other factors – a lack of quality sidewalks and open space, unsafe bicycle routes and street crossings, poor transit, fears of crime or personal safety, a lack of time or motivation, locked stairwells in offices and public buildings – further preclude healthy lifestyles . As local governments seek to plan and design healthy communities, they will need to take extra steps to ensure that the most vulnerable populations – those isolated by their level of income, ethnic and racial background, age, ability, or gender – have access to the same choices and opportunities for healthy lifestyles as the population at large. These populations frequently face a greater risk of experiencing the negative health impacts associated with obesity lifestyle behaviours. They are less likely to be able to afford or access a gym, less likely to have time for leisure activities, and less likely to have easy access to the places and spaces that encourage a
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healthy lifestyle, such as safe street and sidewalks, parks ,trails, and community gardens. Moreover, by living active lifestyles, these individuals also face disproportionate safety risks – both traffic safety risks and the real or perceived risk of crime. These disparities are symptomatic of broader inequities in land use, transportation, and economic development. Consequently, while active living itself is no panacea, a focus on active living can nevertheless serve as a lens through which local governments can address liveability needs more generally. Such a focus can help local governments take a step closer to removing the overarching barriers that limit access to economic opportunity, transportation, services, open space, education, and health and safety. 40
Strategies to improve physical activity and social equity 40 : • Improve walkability and pedestrian safety. Collect and analyse information on walkability and safety. Use the expertise and enthusiasm of people willing to help. Target strategic locations. Ease community fears. • Bicycling: access, awareness, safe and convenient routes. Provide opportunities for low income individuals to access and learn about bicycles. Provide opportunities for bicycle education. Expand the availability and visibility of bicycle infrastructure. Provide safe and convenient bicycle routes. • Open space equity: Parks, trails and greenways, community gardens. Conduct an open space inventory. Define a clear vision, instil a sense of ownership. Ensure that open space is accessible and appealing to people of all ages and abilities. Develop a maintenance plan. Address security concerns. Increase the number of community gardens. • Land use and equity. Connect affordable housing to active living opportunities. Mix land uses. Link good urban design to redevelopment. • Transportation infrastructure. Target repairs and maintenance. Provide transit routes that go where people need to go. Create safe routes to transit. • Economic development. Revitalise main streets. Make brownfields (existing areas) redevelopment pedestrian friendly. Partners with businesses. • Kids and schools: An important focus for local active living initiatives. Understand the impact of schools on community design. Ensure that schools serve as community assets. Improve school zone safety. Incorporate active living education into the school community. • Food access: Linking active living, nutrition and economic development. Consider access to healthy food outlets near residential areas.
5.5.5 Local Government planning authority An excellent review of past reports and policies has been conducted as part of the Tamar Valley Open Space Strategy 55 (refer to the appendices of that document). This includes sections covering: • National and State Legislation (Section A1); • State Policies and Strategies (Section A2); • Regional Studies, Strategies and Management Plans (Section A3); • Local Council Strategic Policies ad Plans (Section A4); and • Local Management Plans (Section A5). To avoid duplication, and to integrate with existing plans, this information should be directly referenced from the Regional Open Space Strategy. These acts, strategies and policies provide the planning controls and guidelines from which all government agencies manage public land, and regulate planning decisions affecting private land. Appropriate consultations with all management stakeholders should ensure that appropriate consideration is made of this.
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5.5.6 West Tamar planning scheme The West Tamar planning scheme re-drafting is currently occurring. Recognising that there are direct relationships between open space planning and recreation trail planning and provision - the Tamar Valley Open Space Strategy 2004 55 identifies the following key points: • ‘The use and development of all land in the West Tamar Council area is currently controlled by the Beaconsfield Planning Scheme 1986, and the Westbury Section 46 Planning Scheme No. 1 of 1992. West Tamar Council is currently developing the (Draft) West Tamar Planning Scheme to replace these planning schemes.’55 (A review of the current draft is contained in the Regional Open Space Strategy.) • ‘Inconsistent open space policy between councils or lack of an integrated open space policy’. West Tamar Council continues to take public open space based on the planning scheme provisions on a case-by-case basis: i.e. no strategic approach to planning and provision. 55 • ‘Limited resources for the ongoing management and maintenance of existing open space areas or acquiring new areas.’ 55 • ‘Land tenure constraints’. Varying tenure (public, private) can restrict opportunities to create links and improve public access to open space areas. I.e. a foreshore trail between Riverside and Tamar Island. 55 • ‘Over-supply of open space areas.’ Some locations (i.e. Legana) appear to have an over- supply of small pockets of open space that have limited community value. Many of these areas have been gained through subdivision and a lack of an overall integrated open space planning framework. 55 • Lack of linkages between open space areas. Although recreational walking and cycling are highly popular activities, little thought has been put towards providing links between open space areas for trails or tracks. However there is growing recognition for the need for trail planning. 55 • Limited access points to the Tamar Estuary. Councils and communities have requested more access 55 – importantly linked to lifestyle and recreational values. • Impact of open space on adjacent land activities. Impacts of and upon open space must be considered in relation to natural resource management and alternative land activities (housing, forestry, agriculture, water supply etc). 55 • Impact of adjoining activities on potential open space values. Some land use activities, including vegetation removal, can limit the sustainability of possible open space areas in the long term. i.e. protection of skyline values, retention of bushland (nature recreation) characteristics etc. 55
5.5.7 West Tamar Bike Plan The Bike Plan was established through a funding grant from the State Bicycle Advisory Council. John Hepper and Ken Marriott conducted the report (HM Planning Pty Ltd) 41 . The plan provided:
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Principles • Understand the trends in leisure behaviour and community attitudes, and in particular the implications for future planning for cycling. • Identify the varying needs and requirements of different cyclists for facilities, programs and services (e.g. commuters, children, recreational riders, racer/training, touring) • Identify the reasons or barriers for why people are not involved in cycling, although they have a desire to participate. • Assess the existing cycling facilities (e.g. bicycle route audits) and identify the problems and issues. • Consult the cyclists through the planning, design and development stages. • Inform and involve the range of skills required to develop cycling facilities (e.g. engineering, planning, traffic engineering, landscape architects, users, employers) • Focus on the practical aspects of achieving local improvements for cycling as part of a wider plan for the urban area. • Secure a strong partnership between the various tiers of government towards achieving common outcomes for the community.
The bike strategy focussed on 12 key initiatives, however there are more recommendations listed as: • 12 recommended engineering actions • 5 recommended education actions. • 4 recommended encouragement actions. • 5 recommended enforcement actions. • A recommended implementation process: through the establishment of a West Tamar Bike Planning Committee. (Refer to appendix)
5.6 Factors influencing trail planning Essentially, the wider social, recreation and state/local government situation at present suggests that there is a need for Council to prepare a recreation trail strategy. Apart from the benefits summary mentioned previously, some key influencing factors include: • The International Mountain Bike Association (IMBA) workshops conducted in Tasmania in 2004 and 2005 42 , showed evidence of significant trail planning and associated benefits across the world. Examples included trails that provided significant health benefits to local communities, trails that were thoughtfully planned to successfully include many different users, and trails that provided significant tourism and economic benefits. • The heads of State and Territory department’s of sport and recreation are represented on the Standing Committee on Sport and Recreation (SCORS). The SCORS recreation trails working group has recognised the need for a national trails strategy to guide the development of trails across Australia. 43 • Other States and Territories have prepared recreation trail strategies. This includes South Australia 1 (‘Trails SA’ is a significant web based resource); Victorian trails strategy 2005-2010 44 , Western Australian Trail Strategy 45 , and the ACT Trails Strategy. • The Tasmanian State Government has recognised the need for a state-wide recreation trail strategy, with Sport and Recreation Tasmania currently preparing an approach to achieve this. It is likely that the National Tracks and Trails Conference in Hobart this year will highlight the need for a state wide strategy. Sport and Recreation Tasmania’s ‘Outdoor Recreation Policy’ 2003, identified the need to encourage more participation in outdoor recreation activities (i.e. trails), and ensure better opportunity provision. 43
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• Northern Tasmania Development and the Cradle Coast Authority – the North and North West regional local government bodies, have both prepared regional recreation trail strategies. Further regional planning integrates with this trail strategy, including the Northern Tasmania Development ‘Recreation Open Space Strategy’ 55 and the Tamar Natural Resource Management Strategy46 . • Australia Cycling: the National Strategy 2005 – 2010 47 . Originally developed in 1999 by Ausroads, the Association of Australian and New Zealand road transport and traffic authorities, the strategy was revised in 2005. The strategy strongly supports the integrated planning and development of infrastructure and facilities that support cycling. There is a strong emphasis on cycle ways for intra-community and inter-community use – recognising the benefits for health and wellbeing. • The Tasmanian Walking Tracks Strategy and Marketing Plan 1997 36 , was a joint project between Forestry Tasmania, Parks and Wildlife Service and Tourism Tasmania. The strategy was aimed at the selection of a group of 60 short walks and 8 great bushwalks – to meet tourism needs for a sustainable number of trails targeted at identified tourism markets. This strategy is about to be reviewed, which offers the Council the opportunity to present options that will enhance the tourism potential of trails in West Tamar. • Tourism strategies (Tourism 21 48 and the Attractions survey 49 ) note the importance of recreational trails to Tasmanians and inbound visitors. The ‘clustering’ of potential visitor attractions will see recreational trails adding to rural tourism economies. The linking benefit of multi-use trails is particularly relevant. • Railtrails Australia 50 is a national organisation which promotes the preservation of old rail corridors for alternative public uses such as cycling, horse riding and bush walking. The program of converting old rail lines to recreational trails is already extensive in its application within most States and Territories. In Tasmania there are already 16 recognised rail trails and various other locations where rail trails could be developed 51 . The Tasmanian State Government has requested any future abandoned rail lines to be considered for recreational trails. • Tasmania Together 52 provides a 20 year vision for the State based on extensive community consultations. The end product was 24 goals and 212 benchmarks under the headings of community, culture, democracy, economy and environment. There is a goal that specifically relates to developing an approach to health and wellbeing that focuses on preventing poor health and encouraging healthy lifestyles. Clearly an integrated trail network would be an important component of any attempts to encourage healthy lifestyles. There are goals around providing safe environments and transport systems and ensuring that rural, regional and remote communities remain connected that are relevant to any trail developments. Similarly, there are various goals and strategies around protecting the natural and cultural heritage and ensuring sustainable land use practices. • The State Physical Activity Plan (Premier’s Physical Activity Council – 2005) 53 recognises the important role of unstructured incidental activity and physically active transport in maintaining healthy communities. The PPAC recognises the need for supportive environments that promote physical activity such as recreational trails near population centres that link open spaces and key destinations in local communities. • The Tamar Valley Regional Open Space System 2004 (Northern Tasmania Development) 55 has prepared a framework for open space planning, development and management in the Tamar Valley. The classification system is of value in considering the links that trails offer in bring people to and between open spaces. There is a definite need to integrate this system with the recreation trail strategy. • The Tamar Region Natural Resource Management Strategy72 provides clear guidelines that need to be integrated with the recreation trail strategy. The NRM principles and guidelines make it clear that recreation trails can fit within a conservation ethos in allowing people to recreate where appropriate in the West Tamar area. • The Launceston bike plan 54 has been developed to encourage increased participation in cycling by improving the quality and quantity of safe cycling opportunities for Launceston residents and visitors. The plan proposes various goals that include building and improving the recreation trail network. The strategy notes the importance of linking effectively with surrounding Councils and their networks. • The West Tamar Bike Plan 41 was one of the first bike plans developed in the State. It adopted an approach popular at the time based around the four E’s: engineering, education, encouragement and enforcement. Under each of these headings there are a series or recommendations from
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engineering works proposed at 12 locations and various recommendations around educating users and motorists, encouraging appropriate behaviours and enforcement for inappropriate behaviours. The plan provides suggested trail options and priority projects in the various local townships throughout the municipality. • There are also track and trail strategies for Clarence and the Derwent Estuary in the South of Tasmania.
5.7 Issues for trail planning Within these influencing factors, the following issues further suggest that there is a need for a recreation trail strategy for West Tamar: • The Northern Tasmania Development ‘Regional Recreation Trail Strategy’ did not deliver the benefits to West Tamar that were originally proposed. The ‘Tamar Estuary Trail’ identified a trail linking Launceston to the mouth of the Tamar – linking across the Batman Bridge. At this point in time this suggestion is only a ‘concept, with little substantiation in regards to feasibility or specific benefits in comparison to alternative trail options. There is definitely a need to plan at the ‘local level’ for trails in West Tamar as a priority for any further work on the Tamar Estuary Trail. • In preparing the original project brief for the Northern Tasmania Development trail strategy, The Parks and Wildlife Service, Tourism Tasmania, Forestry Tasmania and Sport and Recreation Tasmania all agreed that a local government based trail strategy should deliver benefits for local communities. This was in recognition of the limitation of the State Wide Walking Track Strategy in dealing at the local level – and the lack of integrated planning for wider trail activities. • While tourism is a valuable benefit from recreation trails, it is debatable whether the focus should be on providing trails as a priority for tourism outcomes or for local community outcomes. Clear evidence exists that there is a need to prioritise trails for community use. It is likely that some of these trails will provide additional benefits for tourists – while the reverse may not be the case. • There is increasing pressure from community groups across the West Tamar for increased trail provision. These groups are requesting upgrading of existing trails and the development of new trails – in recognition of the significant benefits they provide to individuals and local communities. • The current situation of provision across West Tamar is ad-hoc. This might lead to the poor allocation of resources – we may actually be wasting money and time on trails that are poorly planned, located, managed and constructed. • Inappropriate trail design, construction and maintenance techniques may also lead to loss of quality – resulting in poor levels of use or inappropriate use and possible environmental degradation. • Poor management of trails can increase conflict between users and land management agencies – eventually turning people away from trails. Poor planning and management may also fail to deal with significant issues of trail activities – for example: managing the environmental impacts of off road motor vehicles, dealing with trail bikes near urban (residential) areas, protecting conservation areas beside the Tamar River, or correctly securing land for trails while it is still available.
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5.8 Aims of local government recreation planning To ensure that the trail strategy integrates with the recreation strategy, it is important to start with the generic aims for recreation planning for Council. These must be considered for any recreation planning project. 26 • Maximise recreation opportunity provision, especially life-long physically active participation options. • To undertake a planned, coherent and equitable approach to recreation provision based on a consultative, needs-based approach. • Ensure equitable access to a diversity of quality recreation opportunities for the community. • Enhance community: health, well-being, values, quality of life and social development. • Balance individual, community, economic and environmental benefits. • Recreation planning should be strategic, integrated (internally and externally), and include long term thinking. • Recreation provision should be flexible in order to meet the changing needs and preferences of the community. • Recreation provision should be culturally relevant to West Tamar’s diverse community. • Community representatives should be involved in the planning and management of recreation services. • Council structure and decision making processes should reflect the complex nature of recreation provision. • Outcomes should be realistic according to the ability of council and community to provide for them.
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6 KEY ISSUES AND OUTCOMES FOR TRAIL DEVELOPMENT IN WEST TAMAR The following section provides a summary of the trail research and literature review, with recommendations for development. This is provided as: • The strategy aims and outcomes • Recommended principles • Environmental analysis and recommendations for development – provided as a summary table titled ‘Key issues and outcomes for trail development in West Tamar’ • Matrix for the analysis and development of trails • Priorities for development – scope of activities (including detailed information and additional notes)
6.1 Strategy aims and outcomes The Trail Strategy is intended to enhance Recreation Trail opportunities and quality experiences in the West Tamar area. It will also assist Council in the efficient and effective use of resources, maintain environmental quality and prevent unplanned development. The Trail Strategy will build the capacity of the community and Council to understand and deal with recreation trail issues. It will provide a tool for Council to analyse and assess existing and new trail projects to meet the needs of the community.
6.1.1 Aims: • Maintain and enhance recreational trail opportunities and quality experiences in the West Tamar area to meet current and future community needs. • Identify and focus on key benefits from recreation trails for West Tamar. • Maximise the efficient and effective use of Council and community resources in trail provision. • Minimise duplication of trails and trail infrastructure - therefore increasing the viability of community assets. • Budget appropriately for the maintenance of trails, their facilities and infrastructure – to provide a quality experience. • Maintain and enhance environmental quality and biodiversity. • Prevent further unplanned trail development - that may be damaging to the environment, may be beyond the capacity of the Council/community to manage and maintain, and may be providing sub-standard trail experiences for the community.
6.1.2 Outcomes: • Build the capacity of Council and the community in understanding recreation trail issues: • Understanding recreation opportunity provision and participation as it relates to trail activities. • Understanding the influencing factors of planning, design, location, construction, maintenance and management. • Provide Council with a method to assist in analysing trail provision and individual trail projects and determining priorities for trail development. • Provide recommendations for the analysis of existing and potential trails. • Prepare an evaluation and assessment approach to assist Council (and the community) in identifying and analysing suitable trails for development.
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6.2 Principles for development The following are high-level, generic principles that are relevant to recreation planning across the municipality. These principles have been adapted from contemporary recreation planning information across Australia. They now supersede the Council’s existing principles as prepared in the 2002 Sport and Recreation Strategy, as a natural updating of policy for Council.
Access for All Action will be taken to ensure equitable access to recreation opportunities regardless of the age, gender, sexual preference, mobility, ethnicity or economic capacity of the community.
Fairness, Equality and Balance Ensure that there is fairness, equality and balance in the provision of recreation facilities, programs and services. Priority should be given to initiatives that balance opportunities for those with high needs.
Beneficial Outcomes Preference will be given to supporting those facilities, programs and services which deliver the widest range of beneficial outcomes to the widest cross-section of the community. Assessment of all initiatives should be based on an analysis of need and expected benefits. Evaluation will measure these beneficial outcomes against the provision of opportunities.
Diversity, Quality and Safety Seek to ensure that the community has access to a high standard of recreation opportunities which are provided in accordance with contemporary standards and practices for health, risk management and public safety. The strategy recognises the importance in providing a diverse range of recreation opportunities to meet community needs. This aims to balance safety with appropriate access to risk and challenge – allowing people the freedom to choose their level of involvement.
Continual Improvement Commit the resources needed to continually upgrade the provision of recreational facilities, programs and services. Seek to improve internal operational capacity to provide these, and to facilitate initiatives in the community and commercial sectors which improve recreation opportunities. Adaptive management methods will be used to ensure that management approaches keep pace with ever changing recreation needs and behaviours.
Sustainability Work to ensure the sustainability and viability of recreation opportunities. Ensure that environmental impacts are carefully considered and managed with respect to protecting and conserving the natural environment. Conservation and enhancement of natural areas is crucial to the provision of recreation trails – especially considering competing land uses and associated negative impacts. Biodiversity protection, raising environmental awareness and cultural heritage protection also underpin the principle of a sustainable recreation trail network.
Multi-use and Efficiency Work to achieve multi-use (shared use) and efficiency in the provision of recreation opportunities. Efficiency is measured in terms of the costs incurred in the running of programs, maintenance, improvement or replacement of facilities against the benefits to the whole community in terms of recreation opportunity.
Community Building and Social Capital Use recreation as one means of contributing to the strengthening of community and the development of social capital. Measures of community development and social capital will be used to evaluate the extent of success in the provision of recreation opportunities.
Community Health Pro-actively pursue opportunities which support the objectives which enhance the health and well- being of residents and visitors. Measures of community health and well-being will be used to evaluate the extent of success in the provision of recreation opportunities.
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Partnerships and Shared Responsibility Actively pursue opportunities for the joint development of facilities, programs and services with other providers. Encourage community and commercial initiative in the provision and management of recreation opportunities.
Organisational Capacity Develop internal organisational and financial capacities to actively plan, manage and assist with the delivery of facilities, programs and services which enhance opportunities for all members of the community to benefit from pursuing recreation activities. All provision should be realistic with regard to the ability of Council and community to provide, operate and maintain opportunities.
6.3 Environmental analysis: key issues and outcomes
6.3.1 Integrated planning and development The future success of trail development in West Tamar requires coordinated leadership, integrated planning and development and support to ensure that trails are provided in an efficient and effective manner. This is clearly linked to increasing the quality and level of trail provision, therefore maximising trail participation opportunities and the benefits that flow from this. • There is increasing pressure on Council from community demand to either increase the level of trail provision or to provide resources for community identified projects. Council requires a process for assessing projects and allocating resources, to ensure an equitable distribution of trails across the municipality, and to remain transparent and accountable to ratepayers and the community. • There is no current method of planning that identifies the level of recreation opportunity provision required by the community with respect to trails. Trail provision is therefore ad-hoc and may therefore be ineffective in appropriately meeting community needs, and inefficient in the use of Council/community resources. • While many good results are being achieved with individual projects, there are additional opportunities that can be achieved through a coordinated strategic framework and integrated approach at the decision making and planning level. • Recreation Trail planning needs to integrate with a range of recreation planning methods and existing strategies. It is a complex area, but this process needs to be simplified to assist in Council/ community understanding of what needs to happen and why. Council is committed to community development principles – where good Council/community decisions must be made with solid evidence - quality information and research. • Recreation Trail planning is occurring rapidly across Australia and Tasmania. But at present, there is no Tasmanian state-wide strategy to guide development. Although there is a State Walking Track Strategy 36 and Northern Tasmanian Regional Recreation Trails Strategy 9, it is clear that they do not adequately cater for local needs. Local recreation trail planning must occur – and deliver tangible and realistic outcomes across the West Tamar area. • The review of the West Tamar Planning Scheme 55 identified several key issues related to planning: inconsistent policy between councils (open space) limited resources, land tenure constraints, lack of linkages between open space areas, limited access points to the Tamar Estuary, and negative impacts from adjacent land activities on recreation and open space values. • Research evidence supports the benefits of trails as part of good town planning. Incorporating recreation trails in these ‘active environments’ 3 can increase physical activity levels – through more walking and cycling as alternative means of transport and improved access to these activities for recreation and health outcomes. Leafy and green trail routes (i.e. wide paths and tree lined median strips) can increase trail use and also improve property values.
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• Council’s Strategic Opportunities Report 39 suggested urgent action to implement the recommendations and intent of the West Tamar Sport and Recreation Strategy. Recreation and ‘sense of place’ community attributes must guide West Tamar’s strategic branding as a municipality in the future and should shape its infrastructure planning. This will support economic prosperity, environmental sustainability and substantiate West Tamar as a desirable place to live.
Key issues and outcomes 1. Development of consistent Council policy to coordinate the planning and development of trails in the municipality. 2. Importance is placed on the development of a diversity of recreation trails in West Tamar for the significant benefits they provide to residents and visitors. 3. Establish trail assessment process and guidelines for implementation – to guide trail priorities for development. 4. Trail planning must integrate with good town planning (active environments), natural resource management, and other plans, policies and legislation that Council is bound to uphold.
6.3.2 Participation and utilisation • The value of trails to our health is increasingly evident, as the effects of physical inactivity are now comparable to the effects of tobacco use and poor diet in western societies. Participation in recreational activities is important in addressing this trend. The provision and enhancement of recreational trails offers much to increase active recreation. 3 • Participation research across Australia identifies that recreational walking, jogging, cycling and bushwalking are extremely popular recreation activities. Providing places for people to participate in these activities is likely to have the highest net benefit for the community. This will not only satisfy current demand, it will also address the need to increase physical activity levels in our community. • Evidence suggests that the highest demand for trails is in close proximity to residential population centres. These trails are easily accessible for people to fit their activities into busy lifestyles. They also provide alternative transport routes (commuter routes) that link homes to shops, schools, parks, open space areas and work. Walking, cycling and small wheeled vehicles are well suited to this. 34 • Of particular importance is planning for ‘active environments’ - town planning that is fully integrated with recreation and trail planning will increase the liveability of an area – promoting physical activity, reducing reliance on motor vehicles – and actually increasing the desirability of these residential areas. Leafy and green routes are most popular, and actually increase property values. 3 • These ‘active environments’ and incorporated recreation trails are also important with respect to social equity. 40 They support affordable and accessible opportunities for people in our communities who have significant barriers that prevent them from accessing wider recreation opportunities. • Research evidence suggests that people seek ‘special places’ for trail experiences. 34 These are characterised by a sense of remoteness (somewhat isolated from developed areas and an opportunity to be alone) and contact with the natural environment. Special places close to residential areas are a compromise (degree of remoteness and naturalness) for people with busy lifestyles – but are therefore highly used and popular. Special places further away are also popular for their higher degree of remoteness and naturalness – but are used less regularly.
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• Long standing principles of recreation provision suggests that trail planning should consider an appropriate spectrum of recreation opportunities that caters for diversity in experiences - meeting the diversity of needs in our community. In trail planning, it is therefore important to consider the types of activities - the types of settings - and the achievement of a particular recreation experience. • Recent developments across Australia and Tasmania in relation to recreation trail planning and provision, has emphasised the need for consistent trail classifications (i.e. grading, difficulty, amenities etc). This will help in providing a diverse range of experiences for differing levels of skill and ability, to cater for the variety of demands in the community. • There are many aspects of planning, design, location, construction, maintenance and management that can impact on the achievement of a desired trail experience. Wherever possible, provision should consider quality experiences – a range of principles related to understanding these aspects and their relationship to maintaining visitor satisfaction. • Promotion strategies are necessary to maximise participation and trail usage. Better information and interpretation can also guide trail users behaviour – reducing trail conflicts, protecting the environment and increasing satisfaction levels. Of particular importance is directional/grading signage, interpretation materials and a variety of promotional methods. • There is a need to consider West Tamar’s slow but steady population growth. There are significant issues relating to the general ageing of the population, the ‘sea change’ growth in commuters living in West Tamar, growth in couple families (with or without children), and an increase in professionals or associate professionals living here. • Recreation trails are particularly suited to these population groups. The attractiveness of the areas is crucial to their choices – a sense of place, lifestyle to maintain health and well- being, with a focus on environmental values and recreation amenity. West Tamar is a desirable place to live for these people to maintain ‘quality of life’. 39
Key issues and outcomes 5. Prepare priorities for recreation trail development that reflect a benefits approach to provision - evidence of demand and community needs and methods of achieving specific outcomes. v 6. Prepare a prioritised and staged approach for the development of trails, which focuses on activities, settings and desired experiences – firstly meeting the highest needs in the community, and secondly meeting wider diversity of trail experiences. 7. Provide a focus on social equity - in consideration of appropriate access to physically active recreation trail opportunities – and significant barriers to participation that disadvantage members in our community. 8. Provide a focus on quality experiences to meet trail users needs – understanding differing needs, impacts on quality experiences and best practice for planning, design, location, construction, maintenance and management. 9. Develop improved marketing and promotions of trail opportunities to increase participation and to inform and educate trail users.
6.3.3 Sustainability • The principle of sustainable development is to ensure that the quality and quantity of a resource is maintained for future use. For recreation trails, this means access to open space – land or water. As the proportion of the landscape that is open space is reduced through urban expansion, industrial or agricultural development, forestry or mining, the value of this open space increases - along with demands for these open spaces.
v Refer to priorities for development – scope of activities
53 6: Key issues and outcomes for trail development
• The long term result in the loss of open space is a loss of both recreation quality and diversity. If the range of recreation settings is restricted at a local scale, there is little hope of delivering a high quality and diverse recreation trail network across the municipality or region. This is particularly important in considering that West Tamar trails are a resource to the entire community, beyond municipal boundaries. West Tamar trails are part of the regional and state network for recreation trails. • Recreation trail use and development generates a range of ecological, social and economic impacts. Ecological sustainability is essential in maintaining the quality, quantity and diversity of recreation settings. Ecologically sustainable recreation (current generation’s use) must be within the capacity of the area/setting to sustain natural processes, and should not diminish the potential to meet the needs and aspirations of future generations. • Pursuing recreation and nature conservation goals concurrently at the same site can create conflict. In some cases, recreation use can so severely degrade an area that the environment is damaged and the quality of the recreational setting itself is diminished. Consequently the quality of the recreation experience can decrease for some or many people. • Well planned, designed, maintained and managed recreation amenities and opportunities are crucial to providing quality experiences – in keeping with social and recreational trends and patterns of participation. This may require protecting the recreation resource from adverse impacts created by overuse, inappropriate use or adjacent uses. It may also require planning and management that considers the impacts on the recreation experience so that it is not diminished or modified to the extent that it ceases to provide the quality or type of experience that user’s desire. • The current situation of recreation trail provision in West Tamar is somewhat ad-hoc. It is possible that community/Council resources may be inefficiently directed on trails that are poorly planned, located, managed and constructed. This may result in poor levels of use, inappropriate use, or negative environmental impacts. • Community and government resources are limited. There are increased expectations on local government in a wide variety of areas and activities – not just recreation. It is therefore difficult to allocate sufficient funds to Recreation Trails to satisfy all existing and potential demands. There is a need to define a process that identifies needs, correctly analyses the capital and recurrent costs of trails, considers the resources of government and community to provide and maintain trails, and prioritise development accordingly. • There is a lack of provision for the long term asset management of trails. Evidence of a significant burden on land managers for unbudgeted maintenance exists because initial planning mainly focussed on establishing the track. Processes need to be established for the repair and upgrading of trails where necessary to guarantee safety and quality of experiences. • There is a widespread community and government expectation that any open space or trail development will align with conservation of the natural environment – aligning to natural resource management strategies, environmental policies and legislation that binds government approaches. • The Tamar Natural Resource Management and Tamar Regional Open Space Strategies both identified the need for a more coordinated and strategic approach to public open space management. In particular, the need for conserving and protecting significant open space areas for natural conservation and recreational use – before competing land uses and negative impacts destroy recreation opportunities for the future.
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Key issues and outcomes 10. A focus on multiuse (shared) trail development to maximise trail resources - where appropriate in consideration of maintaining quality experiences. 11. Build on existing trail initiatives to increase the level and quality of provision before developing new initiatives. 12. Focus on economically sustainable recreation trail development. Planning and management of trails to factor in the life of asset vi , and the resources of Council/community to effect appropriate provision. 13. Focus on ecologically sustainable recreation trail development that follows strong principles of sustainable development. 14. Focus on the retention and conservation of open spaces, trail corridors and ‘special places’ – this is critical in maintaining recreation trail opportunities for the future.
6.3.4 Standard of provision and management capacity • There are many aspects of planning, design, location, construction, maintenance and management that can impact on the achievement of a desired experience (quality experiences). There is a great deal more to trail provision than simply placing some gravel on the ground. Expectations, social norms, inappropriate levels of infrastructure, trail conflicts, levels of diversity and safety (freedom and challenge), standards of provision and trail interpretation all impact on quality experiences. • In many cases, existing trails may not meet ‘best practice principles’ – according to (for example) Australian Standards, the International Mountain Bike Association recommendations, or Ausroads guidelines. There may be a need for Council and community to become familiar with available information, examples from other states, and guidelines to increase the capacity to provide quality trail experiences. • Council internal processes will need to deal with issues of coordination and development of trails. Issues of supply and demand and gap analysis require the development of an inventory of trails. This may take the form of a database linked to a GIS based mapping system. It will also require the collation of a variety of information on trail classifications, standards of provision, maintenance and management issues, budgeting and accounting practices etc. These processes may take some time to become efficient and effective. • Classification of trails (grading/rating) provides an appropriate avenue for trail users to select a trail experience according to their level of skill and ability. This provides for the diverse needs of the community, while also responding to liability issues for Council. The Civil Liability Amendment Bill 2003 emphasises the need for individuals to take personal responsibility for their actions and recognises the ‘real world’ limitations on Councils relating to finite budgets, large responsibilities and an inability to ‘protect’ people from natural and inherent risks associated with outdoor/ adventurous activities. • Council can therefore operate in a diligent manner by working in a strategic and planned way, according to recognised best practice for recreation trail development across Australia. This incorporates methods for the development of appropriate classifications for trails and standards of construction and maintenance. However, these are relatively new and are still being modified across Australia. • With this in mind, it is appropriate and a social expectation that individuals have the right to choose the level of challenge or risk associated with their chosen recreation experience. It is well established that for some people, there are desired levels of risk that are inherent to the desired experience. Management interventions should avoid personal perceptions and opinions, and follow an appropriate risk management process where diversity of provision is carefully considered.
vi Life of asset refers to the comprehensive management of asset demand, design and feasibility, use, maintenance (annual and periodic) and rehabilitation to maximise use (benefits from use) against expenditure.
55 6: Key issues and outcomes for trail development
• There are many available resources and examples across Australia and Tasmania that can guide Council. The Tasmanian Parks and Wildlife Service is an excellent resource for walking track development, there are also Australian Standards for walking tracks, and Ausroads guidelines for footpaths, roads and related cycling activities. • The International Mountain Bike Association (IMBA) is also an excellent international resource for recreation trail development. Sport and Recreation Tasmania has brought an IMBA trail expert to Tasmania for the past two years to share knowledge and trail resources. Council staff attended these workshops and found them to be invaluable tools available to West Tamar in regards to planning, design, location, construction and management of recreation trails.
Key issues and outcomes 15. Build the capacity of Council to understand and manage aspects of trail planning and provision. 16. Build the skills of Council staff in relation to planning, location, design, construction, maintenance and management of recreation trails. 17. Consolidate trail information and mapping (inventories) within Council to better understand and manage factors of supply and demand, capital and recurrent expenditure etc. 18. Develop consistent standards related to the planning, construction and maintenance of trails 19. Develop classifications for trail activities (grading or rating systems) that are consistent across the region. 20. Develop standardisation of trail signage and interpretation information across the region.
6.3.5 Community involvement and partnerships • The development of recreation trails in the community is reliant on communication, coordination, organisational growth, capacity building and community development processes, and expanded opportunities for collaboration with resources. It will be important to consider an equitable distribution of trail opportunities across the municipality. • Trail users by their very nature are often not arranged into identifiable groups that can organise themselves - to request for an appropriate level of provision or to lobby for funds. Therefore there is an expectation of community advocacy placed upon Council relating to recreation trail provision – especially where research clearly indicates this need. • Council is not the only provider of recreation trails, nor is it the only organisation interested in the development and use of recreation trails or open spaces. There is an obvious need to engage in coordinated planning across municipal boundaries with adjacent councils - within and extending beyond the region. Council will need to consult on a regional level, with state government departments, business and community groups to ensure that a holistic and integrated approach is taken. Indeed, Council is looking forward to a state wide approach similar to that of other states and territories in Australia. • There are many community organisations that have an interest in recreation trail development. These might include specific activity groups, nature based conservation groups, tourism service providers, schools and shopping centres, parents and social service advocates. • There may be many government agencies also interested in aspects of recreation trail development. These might include transport, health and human services, river and water supply authorities, conservation management agencies, cultural heritage agencies, emergency services, and regulatory bodies. • It is also important to recognise and consider the cultural heritage issues of the original custodians of this land, and to ensure that appropriate recognition and consultation with Indigenous groups occurs. This is imperative as the Council has endorsed the Tamar NRM strategy with a statement from the Aboriginal people of Tasmania in relation to land management.
56 6: Key issues and outcomes for trail development
• Resources for recreation trail development may also be related to many differing organisations and their interests in recreation trails. Landcare or Coastcare groups are closely related to Natural Resource Management goals and funding opportunities. Lions or Rotary clubs may assist in relation to community outcomes. Tourism funds may be directed towards identified tourism trails, while transport funds may assist in alternative transport routes. Sport and Recreation Tasmania and the Premier’s Physical Activity Council are closely associated with recreation outcomes, and physical activity outcomes similar to health and human services. • West Tamar’s Strategic Opportunities Report suggests that there is a central challenge to develop new forms of social cohesion appropriate for this new age, rather than rely on old style communities built on old forms of ‘social capital’ – e.g. sports associations, old style service clubs and sports arenas etc. This is particularly relevant for the ‘sea change’ growth in commuters who live but do not work in West Tamar. It is also relevant to contemporary participation patterns – a reduction in volunteerism – an increase in demand for unstructured recreation opportunities etc. • There should be a focus on the development of recreation trails that increase community interactions and sense of place – building social capital. Commuter routes, an increase in trails in and around existing open spaces and sports fields, should all be considered.
Key issues and outcomes 21. A priority for capacity building strategies for community participation in all aspects of trail planning, construction, maintenance and management 22. Seek opportunities for partnerships between various government, business and community groups to develop and resource trails 23. Coordinate trail planning across the region and/or state to ensure consistent approaches – engage Northern Tasmania Development and the State Government in assisting with trail issues and priorities. 24. Provide a focus on trails for community interaction, building social capital and sense of place.
57 6: Key issues and outcomes for trail development
6.3.6 Key issues and outcomes for trail development in West Tamar 1. Development of consistent Council policy to coordinate the planning and development of trails in the municipality. 2. Importance is placed on the development of a diversity of recreation trails in West Tamar for the significant benefits they provide to residents and visitors. Integrated planning and 3. Establish trail assessment process and guidelines for implementation – to guide trail development priorities for development. 4. Trail planning must integrate with good town planning (active environments), natural resource management, and other plans, policies and legislation that Council is bound to uphold. 5. Prepare priorities for recreation trail development that reflect a benefits approach to provision - evidence of demand and community needs and methods of achieving specific outcomes. vii 6. Prepare a staged approach for the development of trails, which focuses on activities, settings and desired experiences – firstly meeting the highest needs in the community, and secondly meeting wider diversity of trail experiences. Participation 7. Provide a focus on social equity - in consideration of appropriate access to physically and active recreation trail opportunities – and significant barriers to participation that utilisation disadvantage members in our community. 8. Provide a focus on quality experiences to meet trail users needs – understanding differing needs, impacts on quality experiences and best practice for planning, design, location, construction, maintenance and management. 9. Develop improved marketing and promotions of trail opportunities to increase participation and to inform and educate trail users. 10. A focus on multiuse (shared) trail development to maximise trail resources - where appropriate in consideration of maintaining quality experiences. 11. Build on existing trail initiatives to increase the level and quality of provision before developing new initiatives. 12. Focus on economically sustainable recreation trail development. Planning and viii Sustainability management of trails to factor in the life of asset , and the resources of Council/community to effect appropriate provision. 13. Focus on ecologically sustainable recreation trail development that follows strong principles of sustainable development. 14. Focus on the retention and conservation of open spaces, trail corridors and ‘special places’ – this is critical in maintaining recreation trail opportunities for the future. 15. Build the capacity of Council to understand and manage aspects of trail planning and provision. 16. Build the skills of Council staff in relation to planning, location, design, construction, maintenance and management of recreation trails. Standards of 17. Consolidate trail information and mapping (inventories) within Council to better understand provision and manage factors of supply and demand, capital and recurrent expenditure etc. and management 18. Develop consistent standards related to the planning, construction and maintenance of capacity trails 19. Develop classifications for trail activities (grading or rating systems) that are consistent across the region. 20. Consider standardisation of trail signage and interpretation information across the region. 21. A priority for capacity building strategies for community participation in all aspects of trail planning, construction, maintenance and management 22. Seek opportunities for partnerships between various government, business and community Community groups to develop and resource trails involvement 23. Coordinate trail planning across the region and/or state to ensure consistent approaches – and engage Northern Tasmania Development and the State Government in assisting with trail partnerships issues and priorities. 24. Provide a focus on trails for community interaction, building social capital and sense of place.
vii Refer to priorities for development – scope of activities viii Life of asset refers to the comprehensive management of asset demand, design and feasibility, use, maintenance (annual and periodic) and rehabilitation to maximise use (benefits from use) against expenditure.
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6.4 Matrix for the analysis and development of trails Council required a process for the identification, selection, analysis and development of trails to meet the desired needs of the community. The following table provides a list of the key questions facing council with respect to any new or existing trail development proposal. This table aims to help clarify the use of the Matrix for trail development.
Figure 1: Matrix process explained
Key to using the Matrix Implications Demands analysis Why do we need trails? There are some commonly agreed Answer these questions Who will use the trails? priorities for the development of trails – by defining what the based on research and available 1 What types of activities? trail will achieve, for information. What settings? whom and how. Refer to the priorities for Matrix Column 1 What kind of experiences development – scope of activities... are we trying to create?
Supply analysis
Do we already have Avoid duplication. We must have an overview of enough trails? A trail proposal must existing trails before we can identify 2 Are there any gaps (in what either fit a gap in supply, gaps in supply (and duplication). we need)? or add quality to existing Council inventory: Activities, settings, supply Can we better use what we experiences and classifications for already have got? Matrix Column 2 various trails.
Issues analysis What additional issues Individual trail proposals must be considered for the must address these trail/s to be successfully issues. Some are critical The strategy provides guidance on 3 planned, designed, to the success of a significant issues that will impact on constructed, used and proposal the viability and/or success of trails managed? Matrix Column 3
Implementation
What process is actually used within Council to discuss and determine Council will require a process to which trials will be Sufficient information discuss trail proposals, select good developed? must be collected and 4 initiatives, and budget for them. presented to Council. How will trail issues be This will need to be open and considered and resourced Matrix Column 4 transparent to the community. amongst wider whole-of- Council issues and priorities?
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Matrix for the analysis and development of trails 1) Demand 2) Supply 3) Issues analysis 4) Implement Benefits & needs analysis Existing and potential Issue Issue 1. Benefits analysis 1. Existing trails 12. Land tenure (jurisdiction) and Reject option • Individual, community • Inventory legislation/ regulations • Totally rejected • Economic , environmental • Use classification 13. Environmental & cultural (not feasible or tion 2. Socio-demographics systems impacts needed) • Age & gender profiles 2. Potential trails 14. Standards and guidelines OR • Disability and special • Identification process 15. Management guidelines ( Limits ceptreject or
basedon supply • Reject with an needs basedon demand • Use classification of acceptable change, conflict option for future • Participant demand systems management, & codes of conduct , development. (participation figures) • Consider future demand promotion . Ensure that • Catchment size & location and enhancing the 16. Life cycle costs . (Including retention & access diversity of opportunities. Construction, management and /protection of the 3. Activity 3. Gap analysis of supply maintenance and signage) recreation • Length & difficulty, skill and demand 17. Partnership support (community, opportunity levels • Use chart or table land managers, resource trail exists. (inventory style) to easily 5. Setting providers) Accept option see gaps 18. Risk audit (including public and • Population centres. 1.Responsibility • Links to ‘special places’ – 4. Alternative solutions user safety) natural settings. 19. Community/social issues & 2.Resource • Alternative trail options, impacts 6. Quality experiences services, promotions to 3.Timeframe • Safety, standards, achieve similar results. 20. Facilities and infrastructure & sustainability, sharing, • Use what exists rather access diversity, threats/conflict. than build new if suitable. 21. Disability and special needs
22. Resources available. External Consider action planning for successful implementa sources, council budget, volunteer Consider final issues analysis and decision to ac Consider priorities for the development of trails
Consider priorities for the development of trails support. For a full explanation of terms – refer to the main report.
60 6: Key issues and outcomes for trail development
6.5 Priorities for development – scope of activities Council has determined to use a wide definition of ‘trails’ to ensure that whole of community recreation opportunities and experiences are considered in this planning. However, the focus for development in the short term may be limited by Council’s capacity to plan, develop and maintain trails. There are natural limitations in funding, land ownership and community capacity – all impacting on the preferred ideal of a holistic and diverse network of trails for all people - all activities. This does not suggest that long term planning should not be undertaken for the future provision of trails. It is especially important to consider future land requirements for open space and trail provision now – before the opportunities are lost forever. With respect to existing research, Council has determined that there should be priorities for development according to patterns of participation and identified needs in the community. The scope for initial development by Council will be focused on:
• Trails in areas directly managed by Council. • Trails that provide clear benefits to the community (individual, community, economy, and environment): that are also environmentally and economically sustainable. • Trails that provide physical activity benefits from participation: namely recreational walking, cycling and bushwalking as the most popular trail activities as an initial priority. • Trails that provide for groups at risk of low levels of physical activity due to barriers to participation: i.e. socio-economically disadvantaged groups, older adults, and people with disabilities. • Trails that are within our residential areas – that help to provide ‘active environments’ as part of good town planning. Preferably leafy and green routes, they provide commuting routes between homes and shops, schools, parks and work. Walking, cycling and small wheeled vehicles are well suited to these trails. • Trails that are ‘special places’ close to population centers. They are easily accessible and relatively isolated and natural (as best they can be close to urban settings). • Trails that are ‘special places’ further from population centers. These are more isolated and natural – this is their primary appeal to users. West Tamar is particularly suited to these trails. • Trails that provide quality experiences: trails that take account of user motivations and therefore meet people’s desired experiences by careful planning and management.
Note: these priorities are not meant to be prescriptive. However, there is solid evidence to support this approach. Alternatives may be suggested that, with strong evidence and analysis, still generally follow the principles and assessment process prepared in this strategy.
These priorities for development are explained further under the following five topic headings.
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6.5.1 Benefits and capacity to manage • Trails that are in areas directly managed by Council. A secondary focus may be for areas that can be influenced by Council (non-Council areas), where Council may take an advocacy approach. • Trails that provide clear and specified benefits to the local community. • Trails that are environmentally and economically sustainable. Trails must be within the resources of the Council and community to achieve and resource. • Trails that clearly provide opportunities for physical activity with resulting health and well-being benefits to individuals and the community. • Trails that provide recreation opportunities to groups in the community that are relatively disadvantaged – those who are less likely to participate in physically active recreation due to barriers to participation. This follows the principle of social equity. • Trails that increase social interaction, cultural awareness and environmental appreciation. • Trails that provide clear options for alternative transport – increasing physical activity and provide flow on effects by reducing use of motorised transport. • Trails that provide tourism benefits. A primary focus on trails for local use will have flow-on effects for visitors to the West Tamar. • Trails where the disbenefits of provision can be adequately managed. (see following descriptions for some activities)
Note: The recommended approach for Council (above), with reference to national, regional and local trails from the Northern Tasmanian Regional Recreation Trail Strategy 9, is to focus on local trails because: • The demand suggesting that the highest numbers of users are residents of the local community – especially in residential population centres. • A trail network supporting local users will have flow-on benefits for other visitors to the region. But these other visitors may not be the primary focus for provision. • Economic (tourism) benefits from trails is worthy of consideration. However, a solid analysis of the costs and benefits would need to be provided to justify the expenditure that would be required. • Considering this, the Northern Tasmanian Regional Recreation Trail Strategy 9 recommendation for a Tamar Estuary Trail is not recommended as a focus for Council. Although the trail would have significant tourism/economic benefits, it would require a significant partnership approach between Federal, State and Local Government (leadership and funding), and significant support from the wider community to over come the obstacles for development. Unless these and other issues can be overcome, the trail is only a concept. • However, the Council should consider the future potential for this trail and ensure that land management decisions maintain the future opportunity for this trail to occur.
6.5.2 Socio-demographics • The population centers of West Tamar offer concentrations of current and potential users. A higher level of provision may be associated in and around these centers, with respect to types of activities, settings, access and diversity.
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• A focus on providing increased recreational opportunities for identified groups in the community that are at risk of low levels of physical activity. These are women (especially married women and those with children at home), older adults, people with lower levels of employment and education, single parents and children of single parents, people who do not speak English at home, Indigenous Australians, people lacking appropriate social support mechanisms, and people with disabilities. • There needs to be a focus on providing trails for older adults (high users and high needs), and young people (high need for alternative transport options).
6.5.3 Activities • The highest demand (number of participants) is for recreational walking, cycling and bushwalking. This should be the first priority in relation to activities. In particular, there should be consideration for mountain bike (cross country) opportunities due to high demand and a lack of supply. • A secondary focus for activities: • There are lower numbers involved in equestrian, canoeing and kayaking activities; it is important to create diversity in trail experiences and to recognise the wider recreational needs of the community. These non-motorised, physically active trail pursuits should be considered as a secondary focus behind walking and cycling. • Although the Tamar River provides excellent opportunities for river trails (motorised and non-motorised boats), there has been significant attention placed on provision with respect to the production of the Tamar River Guide. No immediate action is identified at present – but a long term approach should review provision as the Tamar River is a significant natural trail asset for the community. • A tertiary focus for activities: • 4WD, trail bikes and all terrain vehicles are popular and legitimate trail activities. However, they are not a primary focus for this strategy due to significant disbenefits (environmental impacts, conflicts with other users) and a current inability for Council to adequately deal with provision issues. It is intended that consideration for these activities should develop as Council’s capacity to manage these activities increases. • Other trails (i.e. diving) may be considered, but low participation rates will need to be balanced with identified and viable proposals. • It is important to consider a diversity of activities and not just those in highest demand. Diversity also relates to the degree of difficulty, skill or risk – allowing appropriate freedom of choice for the community.
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6.5.4 Settings. • Preferences are for trails in close proximity to residences (easy and quick access) – which suggests a focus on trails close to population centers. These trails should focus on alternative transport routes and trails that can still provide some degree of attractiveness (i.e. leafy and green routes). These trails are well suited to walking and cycling, and small wheeled vehicles (alternative transport options particularly suited to young people). • There is a clear preference in walking, cycling and equestrian trail activities, for ‘special places’. These are characterised by a sense of isolation and an association with natural environments. • ‘Special places’ in or close to residential population centers should also be a focus – due to high demand. These need to be easily accessible – and therefore may only be relatively isolated and natural. • ‘Special places’ further from population centers are also important – but likely to attract less regular use. These should have relatively higher degrees of remoteness and naturalness. • It is important to consider and provide a diversity of settings – relative to wide community needs. See additional notes for quality experiences.
6.5.5 Quality experiences. • A focus on quality experiences means that there must be some recognition as to what people wish to achieve (their desired experience) through their chosen activity and setting. • Motivation is a key driver in trail demand. The primary need is for trails that provide fitness (health and well being) outcomes as well as recreational experiences (leisure outcomes – relaxation and fun). • There must be careful thought about levels of infrastructure provision and development. It is not appropriate for all trails to be easy, with high levels of infrastructure. There is a need to consider a hierarchy of opportunities in keeping with creating a diversity of recreation experiences. See additional notes following.
6.6 Additional notes - settings In addition to the priority activities, the following are important considerations for priority development of recreation trail settings for West Tamar – of particular importance to the stage one focus on track development.
There will be a focus on trails in or near population centres. Evidence suggests that the highest demand for trails is in close proximity to residential population centres. Trails in these locations will therefore maximise the physical activity benefits from trail provision – enabling individuals to fit exercise (recreation) or commuting into their everyday lifestyles. Further – by maximising participation on trails in these areas, trail expenditure can be justified by the comparative numbers of people that will use the trails. This can assist the Council in allocating resources against competing projects within the recreation budget. Of particular importance is careful planning for ‘active environments’. Town planning that is fully integrated with current recreation planning that increases the liveability of areas – promotes physical activity – and increases walking and cycling either for pleasure or as an alternative form of transport (including small wheeled vehicles).
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These ‘active environments’ are important with respect to social equity – they support affordable and accessible opportunities for groups in our communities that may have limited recreation opportunities open to them. These trails will be designed around the current and future road and path networks. Additional trails may link these networks, or link to open spaces (parks and playgrounds), shopping or retail centres, schools etc. Particular importance should be placed on new residential developments – as Council can take a leadership role in designing active environments in partnership with property developers. It is important to provide leafy and green trail routes in these settings as demand/preferences are still for enjoyable environments in which to participate. Council should consider safe and green trails in urban areas – especially in relation to new urban developments.
There will be a focus on ‘special places’ in or near to population centres. Evidence suggests that individuals seek ‘special places’ for trail experiences beyond those discussed above. These ‘special places’ are characterised by remoteness (not easily accessible and away from built environments), opportunity to be alone, and totally natural (no facilities) environment. These special places are increasingly in demand as the population continues to seek more interaction/access with the natural environment – both in their recreational activities and in lifestyle (where they live – i.e. the ‘sea change’ situation). Considering the points made previously, ‘special places’ that are close to residential areas will be highly desirable, but are likely to be less remote and natural than those further away. These areas are still highly valuable, and the most important to retain as pressure mounts for competing uses of the same land. The retention and conservation of these areas is a high priority, with clear integration between open space planning, town planning and natural resource management. Town planning is especially important – as linked ‘green’ corridors, careful street layout, well planned commuter routes and open spaces have been shown to not only benefit the health of the community, but they can increase property prices and provide additional benefits to the economy and the environment.
There will be a focus on ‘special places’ away from population centres. As discussed above, these places are in demand and are highly valuable to the trail network. Most trails located in these areas are likely to be characterised by a more natural and remote setting – with opportunities for more difficult and extended trails. Existing examples include the Narawntapu National Park and West Head trails – however it is important to recognise that the future of trail provision requires securing and conserving suitable areas now, before they become lost to recreation provision forever (i.e. sold, over-developed or damaged beyond future use).
Note: Proximity of trails close to population centres is not prescriptive. All analysis is relative to the nature of the activity, preferred setting for that activity, and desired experience. For example: Underwater trails in West Tamar would be best located at the mouth of the Tamar River – with an expectation that the setting is of paramount importance to the desired outcomes for diving.
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6.7 Additional notes – quality experiences A careful analysis of the recreation opportunity needs to identify three separate elements:
• Participation in desired activities. • Use of specific settings. • The achievement of a particular recreation experience.
Previously we have listed priorities for development that are related to activities and settings. But there are desired experiences that must also be considered. A particular focus for this strategy will be to provide quality experiences – where primarily the existing trail network will be upgraded to maximise the quality of the experiences before further trails will be developed. In addition, there are several key factors (including additional principles) that must be considered in maximising these quality experiences – within the normal constraints of available resources.
• Threats to quality experiences: conflict . Recreation experiences are affected by many subjective as well as situational factors: the conditions encountered at an area, users expectations, any discrepancies between what users expect and what they actually find or experience, social and personal norms, use levels, and social interference. There is a great deal more to recreation trail planning and provision that simply placing some gravel on the ground: planning and management factors can be more important and should be considered carefully. • Sustainable trails. Ecologically and financially sustainable trails are important in managing community resources, protecting the environment (therefore ensuring continued trail provision as it predominantly relies on the natural environment), and securing trail opportunities for future generations. • Sharing trails. Sharing is a recreation principle that is born from the need to maximise community resources – it is simply not financially possible, nor are there the land/water resources available to have one trail for every activity, in every setting. Sharing can be accommodated where user conflicts are managed sensibly – noting that not all trails will be shared, not everywhere. • Diversity. Although discussed previously in relation to diverse activities and diverse settings – there should also be a variety of different degrees of difficulty. Trails should be classified for different levels of skill and ability for each activity/setting – catering therefore for the wider community. Naturally, the majority of trails will suit the largest population groups (highest number of participants). A ‘hierarchy’ of provision therefore considers this range of provision from short/easy through to long/difficult – in a variety of settings – providing diversity of experiences. • Safety. Council provision of trails must consider safety for the users and general public. However, realistic use of risk management procedures is important to ensure that appropriate diversity is maintained – allowing people to still choose their level of challenge without inappropriate controls by management authorities. The recent Tasmanian Civil Liability Amendment Bill 2003 , provides some level of assurance to Council relating to the provision of trails, while good planning and management techniques can appropriately cover Council’s responsibility in this area. • Standards of provision. There are recommended standards for trail construction for some but not all trail activities. Wherever available, these standards or guidelines must be used to ensure that quality experiences are provided, that user’s safety is ensured, and that Council is not exposed to litigation. Standards apply to classification systems for trails – the standard of provision for a wheelchair accessible trail will be high, while the standard or provision for a difficult and remote bushwalking track would be quite different.
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• Infrastructure. Contemporary provision of trails suggests that some level of infrastructure provision may be required depending on the nature of the activity, the setting and the desired experience. High levels of infrastructure provision are often required for easy, short trails – requiring high standards of provision (i.e. toilets, car parks, seats and barbeques, etc). However remote ‘special places’ would not be expected to have high levels of infrastructure – and indeed inappropriate ‘development’ may negatively impact on the users experience – destroying their sense of isolation, their connection with nature etc. • Promotion and interpretation . Although the strategy may appear to focus on the actual provision of the trail itself, it is possibly more important to ensure that the community is aware of the opportunities that exist and that the benefits of participation are correctly ‘marketed’ to them. This will assist in maximising the opportunities. Current research also suggests that in many instances, especially associated with natural ‘special places’, many people wish to ‘connect’ with the area they visit. This suggests that appropriate levels of interpretative materials are provided - improving user’s satisfaction, educating users in appropriate use and behaviour on trails, and assisting Council in managing trails.
67 7: Explanation – using the Matrix
7 EXPLANATION – USING THE MATRIX
7.1 Demand/needs analysis
Benefits analysis Any trail proposal must clearly show what specific benefits will be provided – individual, community, environmental and/or economic. This should consider the priorities/scope for development already established by Council. (Refer to previous section) A benefits analysis must be linked to the identification of specific users, user numbers, and desired activities/settings/experiences. If the trail proposal has identified disbenefits from provision, then consider the issues analysis (part 3) and how the planning, location, design, construction, maintenance or management systems can overcome this. Use any guidelines within this strategy to follow best practice principles. Note that the section ‘Priorities for development – scope of activities’ should be referred to here as it provides direction on these issues.
Socio-demographics There should be some analysis of specific population groups who will use the trail (age, gender, socio- demographic status) according to locations (population distribution and proximity/access) according to preferences for these groups (settings, activities and desired experiences). There should be an attempt made to interpret available participation data to establish potential use. Council has established some priorities for trail development according to population centres and groups within the community.
Activity There should be a clear indication of the type of activity/activities to be served by the trail. Demographic information should be linked to determine the number of users by activity. Appropriate classification systems should be used to determine the length and difficulty of the trail (grading) – and some assessment made according to the nature of needs determined in the benefits and socio- demographic analysis conducted (above). Council has priorities for certain activities.
Setting Establish the nature of the preferred setting according to the activity and nature of participant’s desired experiences. Compare to the Council priorities for development – those close to residential/population centres, special places etc. Describe the level of naturalness/remoteness versus the level of development – and how these factors would influence (add or detract) the users desired experience.
Quality experiences Clearly consider the three determinants of successful trails – activity, setting and desired experience. Combine these to identify how well the trail proposal will actually attract users and meet their needs. The trail project should clearly show how it addresses issues such as: Threats to quality experiences, environmental and economic sustainability, sharing trails, providing diversity, safety, appropriate standards of provision, quality infrastructure, promotion and interpretation.
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7.2 Supply / existing and potential Using the information already gathered for the previous section: - on the nature of the trail according to activity, setting and user’s desired experience. Consider how the proposal will fit into what is known of the existing supply.
Existing trails Consider any Council or other inventory on existing trails both within and adjoining the West Tamar municipal area. With information already collected previously (activity, setting and quality experience), map this trail proposal against what is already known to exist. There is a clear Council preference to avoid the duplication of trail provision.
Potential trails Consider any identification process that might already have uncovered other potential trails that will impact on this proposal. Consider long term opportunities and future demand, with some reference to an analysis of future trends in trail use and activities.
Gap analysis of supply and demand In conjunction with the previous two steps, and any available classification systems (activity, setting or experience) – consider possible duplication or ‘gap analysis’ to show why this trail is needed. Show how your demand analysis and gap analysis demonstrate a need to develop this trail.
Alternative solutions Are there alternative trail options that can be developed to suit your identified target market (user group)? Are there alternatives that are more easily implemented? Can you suggest alternatives that better utilise existing trail networks without the need for building additional trails?
7.3 Issues analysis
Land tenure A priority is to determine ownership of the trail resource. No further action can proceed until the appropriate authority has provided consent for the trail to be assessed for development. This will also determine what policies or legislation apply to the trail resource. Trails that are managed directly by Council are a priority for development. Council may act as an advocate for trails in areas not directly controlled or managed by Council – but Council may not pursue trail development in these areas. To assist with determining jurisdictional issues and the relevant legislation or policies relating to this - the following is taken directly from an excellent summary in the Tamar Valley Open Space Strategy. 55 (Refer to this document for a more detailed explanation)
National legislation and policies State and local legislation and policies parallel national legislation and policies. The following are international conventions to which Australia is a signatory. Conventions on Climate Change 1997, Biological Diversity 1992, International Plant Protection 1991, Conservation of Migratory Species of Wild Animals 1991, Conservation of Nature in the South Pacific (Apia Convention) 1990, China Australia Migratory Bird Agreement (CAMBA) 1988, Japan Australia Migratory Birds Agreement (JAMBA) 1981, Japan Australia Migratory Birds Agreement (JAMBA) 1981, International Trade in Endangered Species of Wild Fauna and Flora (CITES) 1976, Protection of World Cultural and National Heritage 1975 (The World Heritage Convention), and Wetlands of International Importance (Ramsar) 1975.
69 7: Explanation – using the Matrix
The Australian Government has also initiated a number of national policy arrangements such as: Inter-Governmental Agreement on the Environment, Environmental Protection and Biodiversity Conservation Act 1999, National Strategy for the Conservation of Australia’s Biological Diversity 1996, National Local Government Biodiversity Strategy 1998, National Forest Policy Statement 1992, National Strategy for Ecologically Sustainable Development, National Water Quality Management Strategy, National Greenhouse Strategy 1998, National Greenhouse Response Strategy 1992, National Weed Strategy 1999, and the Plantations for Australia 2020 Vision.
State legislation The Resource Management and Planning System, the Land Use Planning and Approvals Act 1993 (guiding the West Tamar Planning Scheme), The Natural Resource Management Act 2003, The Tasmanian Threatened Species Protection Act 1995, The Environmental Management and Pollution Control Act 1994, The Natural Conservation Act 2002, the National Parks and Reserves Management Act 2002, the Crown Lands Act, The Aboriginal Relics act 1975, The Inland Fisheries Act 1995, The Weed Management Act 1999, The Water Management Act 1999, The Tasmanian Regional Forest Agreement 1997, The Forest Practices Act 1985, The Private Forests Act 1994, The Marine Farming Planning Act 1995, the Living Marine Resources Management Act 1995, and the Mineral Resources Development Act 1995. Additional state policies include: Local Government Partnerships (associated to Tasmania Together goals), State Policy on Water Quality Management, State Coastal Policy, Tourism 21, Draft Reserve Management Code of Practice (DPIWE and Forestry Tasmania), Tasmanian Outdoor Recreation Strategy (working party on the recreation/tourism use of state owned lands),
Regional studies, strategies and plans Northern Tasmanian Regional Recreation Strategy 2002 – 2007, Northern Tasmanian Regional Recreation Trail Strategy 2005, Tamar Valley Regional Open Space Strategy 2005, Tamar Estuary and Foreshore Management Plan, Planning Guidelines for the Tamar Estuary and Foreshore, Tamar Region Riparian Zone Assessment, Bass Forest District – Forest Management Plan, Tamar – NRM Vegetation Mapping and Analysis, Tamar Region Soil Degradation Assessment, MAST Tamar Recreation Boating Strategy (draft – led to the Tamar River Guide).
Local strategies and plans West Tamar Strategic Plan, West Tamar Sustainable Development Management Strategy, West Tamar Planning Scheme, West Tamar Sport and Recreation Strategy,
Generic recreation planning principles of Council. Consider the generic recreation planning principles of Council to ensure that the trail proposal does not conflict with this direction. There are additional planning principles and recommendations from various strategies and legislation that Council should either comply with or consider. Of primary importance is that Trails must be environmentally and economically sustainable. Trails must be within the resources of the Council and community to achieve and resource. This suggests long term planning, life cycle costing of the trail, and consideration for future impacts.
Environmental and cultural impacts Considering the previous point – and the principles related to environmental and cultural considerations – ensure that there will we no adverse impacts (disbenefits) from the development of this trail. Consider trail development literature to ensure that the location, design, construction, use and management factors have been clearly identified and dealt with.
Standards and guidelines Check relevant trail standards and guidelines for each activity – noting any special requirements by different management/controlling authorities. For example: Australian Standards for walking tracks – combined with accepted practice by the Parks and Wildlife Service as a significant authority on walking tracks in the state – combined with Ausroads guidelines for footpaths as implemented by Council.
70 7: Explanation – using the Matrix
Management guidelines Consider a range of important management issues related to trails by consulting the relevant trail or activity specific literature. Activity or management bodies may already have appropriate codes of conduct and promotional material. Also consider technical management issues related to trail experiences – ‘limits of acceptable change’, conflict management, suitable methods for dealing with sharing and multiple use – etc. Many of these issues have been covered in this report, or check with Sport and Recreation Tasmania.
Life cycle costing Prepare a fully costed (at least estimated) budget that considers all development, construction, management and maintenance aspects. Think long term – about future replacement and maintenance especially as these aspects seriously affect the longevity and future quality of the trail experience and the impost on Council/community resources.
Partnership support Consider all possible partners in the development of the trail. From funding partners, to any aspects of development and design, construction, management and maintenance. Partnerships with user groups is most important in the overall use and management of the trail – encompassed in a ‘social marketing’ approach.
Risk audit Although the standards and guidelines section should have addressed most risk management issues – consider a complete risk audit of the trail. Think broadly about all aspects of risk management – risks to people, property, finances, reputation and good will, the environment etc. (Refer to the section on risk management).
Community / social issues and impacts Consider any possible community issues and impacts from the development and use of the trail. Many perceived barriers to trail development will require careful community consultation and education to ensure that the trail can be developed. Trails may require development applications through Council – where the community has the right to object to the development. Remember – in most cases trails will be built on and with community resources and therefore the community has a right to be involved.
Facilities, infrastructure and access Consider any facilities and infrastructure necessary for trail users. Match the level of amenities provided with identified users and the experience that is being created. I.e.: remote/natural and isolated trails require less ‘development’ or the trail experience will be lessened for users (refer to limits of acceptable change). Consider the access requirements of users to get to and from the trail – ensuring that the identified users have the means to find and access the trail.
Disability and special needs It is a high priority for Council that disability and special needs are considered in the development of any trail. This does not mean that all trails need to suit wheelchairs. It means that an idealistic trail network should have a diverse range of trails that meets the needs of the diverse population. Consider the diversity of our community - a range of people with special needs and differing abilities. If in doubt, contact a suitable organisation to assist you in determining trail provision for people with disabilities.
Resources available Consider all possible resource opportunities to meet the development requirements of the trail project. Think laterally – the more groups involved in the development of the trail, the more supporters available who will have a stake in ensuring that it is successful. Consider a range of funding options – volunteer support groups – community support groups etc.
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7.4 Implementation
Decision making Public land owners or land management authorities will require an appropriate decision making process to formally approve/not approve trails proposed on their land/water. Council should already have been heavily involved in any trail proposal on land/water that is within its jurisdiction to control – however a formal decision making process would normally require a detailed proposal to be put to a Council meeting of elected members for their consideration. Council approval may also be sought if Council support is required to approach other land/water management bodies or agencies such as the Parks and Wildlife Service, Marine and Safety Tasmania etc. This would be especially true if trails on areas controlled by these agencies are meant to service the people of the West Tamar area – as Council is the appropriate representative body for the people of West Tamar. Council will need to consider the trail proposal in light of other Council/community issues that require the allocation of resources. This whole-of-Council budget process will place recreation trail development in context with wider community needs.
Council role in implementing trail projects Council reserves the right to check the accuracy of any trail proposal to ensure that adequate planning has occurred. Further work may be required to ensure that any trail proposal delivers quality experiences for trail users, does not duplicate existing trail opportunities, efficiently and effectively uses Council and community resources, and appropriately manages possible disbenefits from trail provision.
72 8: Trail classifications & standards
8 TRAIL CLASSIFICATIONS & STANDARDS Trail classification systems across Australia are not uniform or well developed. In many cases, there are no classification systems, only guidelines for the conduct of activities in areas such as national parks. The Northern Tasmanian Regional Recreation Trail Strategy (2004) 9 provides a current summary of existing trail standards/classifications. Much of the following material has been taken direct from this report.
8.1 Walking Tracks Two standards of walking track classification are in operation in Tasmania: that developed by the 9 Parks and Wildlife Service and by Standards Australia (AS 2156.1-2001). The Parks and Wildlife System uses a three tier approach (walks, tracks and routes) based on difficulty which in turn is a function of, amongst other things, track conditions, gradient and the natural barriers that might be faced. Three tiers are then further subdivided providing a seven layered system of assessment (W1, W2, T1-4, R). The PWS system is particularly useful for managers as it provides guidance as to actual construction and maintenance requirements. (See Appendix) AS 2156.1-2001 identifies six classes of tracks. The Australian Standard classification system is primarily focused on the experience that users can expect (e.g. levels of interpretation, likelihood of encountering others, etc.) and risk (e.g. frequency of inspection and maintenance required). 9 Most recently, the Parks and Wildlife Service, through its Bushwalking and Track Review have developed a Walking Track Classification System. The System is largely based on the track classification system used by the PWS. The primary purpose of this revised system is as a tool for the planning, provision and maintenance of walking tracks across the lands managed by the PWS. An effort has been made to align the revised track classifications with the Australian standards for walking tracks (AS 2156.1). The equivalent AS 2156 classifications are indicated in the specification tables set out in the Appendix. The Australian Standards provide a broad set of standards, however, in order to facilitate consistent interpretation of the character and differences between the track classes, the PWS Walking Track Classification System provides a more detailed set of specifications and guidelines which have been tailored to the Tasmanian context. For the purposes of managing the regional recreational trails network and the individual walking trails within it, it is recommended that the Australian Standards be adopted as the baseline standard for classification but that the detail provided by the PWS system is used as a standard for actual on- ground works.
8.2 Bicycles There are no comparable standards for bicycle trails to those for walking tracks.
Ausroads publish a guide to traffic engineering practice (the guide). The guide broadly describes seven categories of riders (primary school children, secondary school students, recreational cyclists, commuter cyclists, utility cyclists, touring cyclists and sporting cyclists). These categories are based on experience and intent. Some riders may fall into one or several categories. The guide, however, does not directly relate standards for construction or maintenance to these classes of riders. Instead, the guide discusses general requirements for riders and trail systems (space, surface, maintenance, connectivity and information) and specific detail/criteria in relation to ‘traffic lanes’ for bicycles along roads and at road intersections and for ‘bike paths’ (e.g. off road or adjacent roads). Bike paths can be separated into three types: ‘shared paths’ are those where pedestrians and bicycles inter-mingle, ‘separated path’ and ‘exclusive bicycle path’. These types are based on the demand for bicycle vs. pedestrian use, the availability of alternatives for bicycle users and the speed of bicycles. The guide provides detail as to the requirements (particularly widths) for each of the types of paths and then more generic details as to how paths (of all types) should intersect with roads and other paths, for ancillary treatments and features and lighting.
73 8: Trail classifications & standards
The guide also includes generic guidance on structures, construction and maintenance traffic control devices and end of trip facilities for both traffic lanes and paths. Together, the elements of the guide provide a comprehensive approach to the development of recreational trails that involve bicycles. The guide has been used by Cycle South, Hobart City Council and Glenorchy City Councils in the development and on-going refinement of the Inter-City Cycleway. Cycle South is actively promoting the creation of similar bodies to itself in the north and northwest of the State to ensure consistency of standards throughout out the State and to better support bicycling generally
8.2.1 Mountain Bikes Mountain bike trails are typically rated in a three tier system: easiest, more difficult and most difficult. (Refer to the South Australian Trails Coordinating Committee system in the Appendix) The rating system is generally based on two criteria: technical and physical difficulty. Technical difficulty involves variations in trail surface, alignment, width, clearance and the number, length and grade of downhill sections. Physical difficulty is concerned with the total distance of the trail and the number, length and grade of uphill sections. Trails are then rated against the most difficult section(s) likely to be encountered (similar to river ratings for kayaking – see below). For more detail, refer to the IMBA guidelines or South Australian Trails Coordinating Committee (Appendix).
8.3 Horse Riding Consultations and desktop research did not reveal any nationally accepted standardised classification system for horse riding trails. The Equestrian Federation of Australia could not supply any formal classification of horse riding trails, however Trails SA have prepared draft classifications (refer to the appendices).
8.4 Kayaking and canoeing Watercourses (Inland rivers, creeks or canals) used for kayaking are rated according to the degree of difficulty using a six part system from Easy (Grade 1) to Absolute Limit of Difficulty (Risk to Life) (Grade 6). Grades are applied to stretches of water based on the maximum degree of difficulty at any one point; therefore the degree of difficulty between maximum sections may be less. The Tasmanian Canoe Association, in an old publication Paddle About Tasmania has graded most watercourses in the region . ‘Paddle about Tasmania’ is however outdated and out of print. Canoe Tasmania and individual canoeists have updated their river gradings, and provide the information via the web. AdventurePro is a web site that provides outdoor adventure activity information for Australia and New Zealand. Their web site offers paddling information on Tasmania (and Australia) at: http://www.adventurepro.com.au/paddleaustralia/ Sea kayaking, river touring, play boating, sprint kayaking, marathon and other disciplines are not adequately covered in the description provided by the Northern Tasmanian Regional Recreation Trail Strategy. While there are no grading systems available for these disciplines, specific information about various kayakers/canoeists needs is available – and possibly more specific to the opportunities available in West Tamar.
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8.5 Multi-Purpose Trails Gold Coast Council uses a hybrid of the Australian Walking Track standards, combining its six classes into three more general classes and broadening the system to encompass cyclists and horse riders. They then apply a ‘landscape setting’ spectrum (semi-urban, semi-natural, natural) across their classification system to create a matrix for assessing the supply of trails in their system, for defining preferences for different users by classification type and then for comparing supply and preference to identify gaps in their regional trail network. In their system, for instance: • Bushwalkers are considered to prefer trails in natural or semi-natural environments of a Class 1 or 2 (in their system) standard (these being relatively undisturbed/ undisturbed environments with moderate to low numbers of users, on a modified surface, clear or generally clear of obstacles); • Off-road cyclists (e.g. mountain bikes) are considered to prefer trails in a semi-natural or natural environment of a Class 2 or 1 (in their system) standard (these being as above); and • Ηorse riders are considered to prefer semi-natural and natural environments, using Class 2 (in their system) trails (these being in relatively undisturbed environments, with low numbers of users on a modified surface, generally clear of obstacles).
8.6 Classification System for the Northern Region Of the systems discussed above, AS 2156.1-2001/AS 2156.2-2001 has advantages as a system for rating trails because it provides a nationally agreed baseline and specific risk management guidance for managers. PWS advise that whilst they will continue to use their system (e.g. W1-Route), because of its on-ground management considerations, they are moving to integrate the two systems as per the Appendix and are encouraging other managers to adopt this model. Thus the dual system being developed in Tasmania may be applicable to the regional trails network and regional trails being developed in the North East as well as being useful for local trails being developed by individual Councils or public agencies.
8.6.1 Comment –review of the Northern Region system The Northern Tasmania Regional Recreation Trail Strategy recommends the integration of the two systems (Parks and Wildlife and Australian Standards) in regards to rating (classification) and standards (level of provision and maintenance). These relate specifically to walking tracks. The regional trail strategy also recommends the adoption of the Ausroads guidelines for the standard of provision for cycling tracks. Different sections provided by Ausroads are also pertinent for footpaths and roads. Council should give due consideration to these recommendations in regard to standards of provision – with respect to walking tracks, cycling tracks/trails, provision for people with disabilities and provision of footpaths and roads (where they constitute either tracks or trails). However, the regional trail strategy is not clear regarding classification systems that can be used locally for West Tamar. There are many classification systems currently in operation in Tasmania that require further consideration. Here is a selection for consideration:
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Classification (grading) systems in Northern Tasmania The regional trail strategy suggested a two-tiered classification - local and regional trails – with associated criteria. It also suggested a grading system of walk, track, and route – depending on the type of activity undertaken. Launceston City Council currently has a promotional brochure for the Cataract Gorge Reserve and Duck Reach Power Station walks. Their classifications for these walks include: • Walk . Relatively easy well formed path which is constructed to shoe standard. Limited skill is required. • Track . Is an uneven path without handrails in some sections, which is constructed to boot standard. Some skill is required. • Trail . Is a lightly marked rough track which is also constructed to boot standard. A high degree of skill is required.
The State Walking Track Strategy currently promotes walks according to 60 Great short walks and 8 Great bushwalks. However, the strategy classified walks according to distinct visitor markets. They identified the following: • Short walks up to 2 hours in duration • Day walks (longer than 2 hours duration – up to a full day walk) • Overnight walks (generally two days of varying length) • Great Bushwalks (extended trips on icon trails, like the Overland track, the South Coast track etc)
The great short walks brochure suggests the following ‘grades’. The brochure provides additional information regarding the level of infrastructure provided, access for people with disabilities, distances etc. It also recommended items to take on the walk – relative to the duration, safety (weather and other risks), comfort (terrain, exposure to elements) etc. • Short • Moderate • Difficult.
The Launceston City Council’s current bike plan provides the following classification comments. There is occasionally different terminology used to describe cycling infrastructure. In order to provide consistency the following definitions were used in the LCC bike plan: • Bikeway – any environment that is designed for bike use (e.g. bike trails, bike paths, bike lanes and bike routes). • Bike Trail – an off road track specifically designed for bike use that may be sealed or unsealed. • Bike Path – a sealed off road track which is specifically designed for bike use. • Bike Route – a shared space on any street, road or footpath that is suitable and safe for cycling and which is identified as a bike route in some way (e.g. signage, markings and maps). • Bike / Commuter Lane – a marked section of a road specifically reserved for cyclists. • Multi-use Trail – an off road trail for cyclists and other users (e.g. runners, joggers, walkers, pram walkers, skaters and horse riders).
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Recent development in mountain biking provide the following classification system recommendations from the International Mountain Bike Association . They call this a ‘rating’ system. • Easiest • Easy • More difficult (moderate) • Very difficult (hard) • Extremely difficult This system was adapted from the International Trail Marking System used at ski areas throughout the world. Many international trail networks use this type of system. It applies to mountain biking, but is also applicable to walkers and horse riders. IMBA suggests rating the trail based on technical challenge only – not on physical exertion (i.e. distance) which are open to personal perceptions. This additional information can be listed on signs or in promotional brochures and maps. Trail difficulty should be compared to criteria for tread width, tread surface, trail grade (maximum and average steepness or elevation), natural obstacles and technical trail features. These guidelines have been used in the preparation of the Mount Wellington Mountain Bike plan.
Summary It is a recommendation to Council to consider a grading/rating system for trails according to IMBA guidelines –with appropriate signage to reflect this system. This system is simple, easy to understand and implement.
8.7 Summary – recommendations for Council regarding standards/classification • Consider the use of the amalgamated Parks and Wildlife and Standards Australia classification systems for the preparation of standards for tracks that are not regarded as footpaths. (Refer to appendix.) • Align with Ausroads guidelines for walking and cycling – for application to footpaths and roads. Ausroads ‘guide to traffic engineering and practice’ series – Part 13 for pedestrians (1995) and Part 14 for bicycles (1999) – endorsed by Standards Australia. • The Ausroads guidelines are not applicable to mountain bikes for cross country trails. The IMBA guidelines have been incorporated in the SA Trails Coordinating Committee’s approach, and are the most applicable for use in Tasmania. The Committee has also prepared an approach for equestrian use. • The Trails SA grading/rating system for walking and cycling tracks that follows the IMBA guidelines. This may be extended for application to other activities with appropriate signage and promotional materials. This overall system would appear to comply with international grading/rating systems – it would therefore be most applicable for international tourist use – it has great potential for integrating various activities - and it forms the simplest system for local use and application by Council. • Non-motorised small wheeled vehicles. The Australian Road Rules provides the legal framework from which Council can develop specific trails suitable for alternative transport routes or dedicated trails. The Ausroads guidelines are appropriate for use. • Align with the Great short walks and great bushwalks classification system – if any walks within West Tamar are selected for this marketing campaign. This should be regarded as a separate and therefore distinct classification system on its own. • Use the IMBA ‘Trail Solutions’ manual to guide trail development (see detail in section following). Both ‘Trail solutions: IMBA’s guide to building sweet single track’ and the ‘Whistler trail standards’ are excellent for mountain bike trails and infrastructure – although Australian standards should be used in preference if they are available.
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• Currently there are no guidelines for the development of trails for people with disabilities. The following however applies: 56 • Some trails may never by fully accessible where aspects of topography or the nature of the activity itself provides inherent constraints. • The Australian Standards for walking tracks AS2156.1 did not consider people with disabilities. However, standards are currently being developed for walking tracks for people with disabilities. • Gradients should be in accordance with AS1428.1 The Australian standards for disability access. This suggests gradients no steeper than 1:10, and steps/stairways only where an alternative ramp is provided. • Accessible toilets at entry points should be considered. • Track details (nature of the trail conditions, level of difficulty or rating) should be shown. If the track becomes increasingly difficult, this should be indicated. • Any boardwalks or surfaces that are installed to protect the environment should be considered for access to people with disabilities. • Level 1 tracks should have level rest areas with seating every 60m. Other classes will have seating/rest areas further apart. • The Tasmanian Parks and Wildlife Service have an inventory system titled ‘Parks for all people’ available on their website. • Use the Heart Foundation’s ‘Healthy by design, a planner’s guide to environments for active living’ also as a guide to trail development. (see detail in section following) • Consider existing methods being used by various activity groups within the state. Marine and Safety Tasmania (Tamar River guide), etc.
78 9: Guidelines for management
9 GUIDELINES FOR MANAGEMENT
The following guidelines for design, location, construction, management and maintenance are recommended for use by Council.
9.1 Australian Standards
9.1.1 Australian Walking Track Standard 57
AS 2156.1 (2001) Classification and signage. This standard provides a classification system for walking tracks, guidance for the design, fabrication and use of track markers, and information signs to be used for walking tracks. The Standard also sets out guidelines for the erection of these markers and signs to ensure that while they will be readily visible, clear and easy to read, they will not detract from the landscape.
AS 2156.2 (2001) Walking Tracks: Infrastructure design. This Standard specifies requirements for the structural design of walking track structures, to protect natural and cultural assets and for use as aids to recreation in outdoor areas where the environment is the focus of recreational activities. The general design of tracks including their layout, environmental management, aesthetics, and pathway design is not covered by this standard. The structural design criteria given in this standard take into account factors such as location, expected use and type of recreational opportunity through reference to track classifications given in AS 2156.1.
9.2 Ausroads Guidelines Ausroads is the association of Australian and New Zealand road transport and traffic authorities. Ausroads works towards uniformity of practice for design, construction and user aspects of the road and path network. For this purpose, Ausroads has produced the Guide to Traffic Engineering Practice Series – with Part 13 for pedestrians (1995) and Part 14 for bicycles (1999). The guidelines have the endorsement of Standards Australia. Part 13 provides a comprehensive guide to the needs and requirements of pedestrians. The guide was prepared after extensive consultation with all States and Territories and interested community groups. The guides encourage designers to provide for a wide range of groups with varying abilities. Guidelines are provided on appropriate standards for walkways and footpaths, the provision of road crossings for pedestrians, signage and treatments applicable for public transport, work sites and parking areas.
9.3 Trails SA – South Australian Recreation Trail Strategy This website is valuable in identifying successful promotional and management tools already being used in South Australia. See the website at: http://www.southaustraliantrails.com/ The SA Trails Coordinating Committee has been working for some time to prepare track classification systems and appropriate construction/management guidelines. Refer to appendix.
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9.4 International Mountain Bike Association resources IMBA provides a plethora of guidelines and helpful information in the development of recreation trails. With a ‘track’ record of success across the world, this information is possibly the best available in Australia at present.
http://www.imba.com/ • International Mountain Bike Association (2004) Trail Solutions: IMBA’s guide to building sweet single track, USA (available from Mountain Bike Australia: http://www.mtba.asn.au/) • The Minimum tool rule. A hierarchy of options for managing trail user’s conflicts. • Threats to quality experiences • Sustainable trails • Sharing trails. (Principles for shared use, single use, and 1 way trails). Shared use community trail systems. • Unauthorised trails – do they threaten our sport? • Conflicts on multiple use trails. Synthesis of the literatures and state of the practice. http://www.imba.com/cgi-bin/advprint/print.cgi • Armouring – using rock to harden trails. Build short ups and downs, an easy way to toughen trails. Tough trails should be rock solid. • Dropping in to more technical challenge. Build twists and turns to add challenge to trails. Using logs to add challenge. • Sprung, G. (?) Natural resource impacts of mountain biking. A summary of scientific studies that compare mountain biking to other forms of trail travel, IMBA.
9.4.1 The minimum tool rule (Mountain biking)
A hierarchy of options for managing trail user conflicts In order of priority: Signing Urge cyclists to stay on routes, slow down, limit party size, consider other uses, etc. voluntarily through signing. Use signs to make sure cyclists who care, but don’t know proper etiquette, have enough information to monitor themselves. Present a good map depicting areas that are open, closed, congested, or whatever. Peer pressure Encourage your friends and other cyclists to patrol their own ranks in a positive way. Education Work with bike shops, local clubs, universities, other users groups, city bike programs, mountain bike outfitters and guides, and other interested parties to educate bicyclists about low impact use, etiquette, and consideration for other users. Develop posters, brochures, and a logo or trademark to become a recognised reminder or symbol of considerate cycling. Use closed roads Emphasise and encourage use of closed roads as bike routes because single track trails become congested quickly and have high potential for conflict. Soft cycling training programs Develop training programs on low impact cycling for adults and school children to be presented by clubs, organisations, bike shops.
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Trail design On new trails or trails that can be reconstructed, include design features that restrict speed and enhance sight distance, and build wide, or pull-out, sections to facilitate safe passing of cyclists, horses, and hikers. Barriers to control speed Leave or install barriers in the trail to control speed. Things like protruding rocks, roots, bumps, sharp curves, down trees, speed barriers and waterbars will help. Requested walking zone Request or require that cyclists walk their bikes in certain areas where speed, recklessness, or congestion are potential problems. One way only Designate the direction of travel on trails with very heavy use to avoid the potential for head on collisions. Post speed limits Set maximum allowable or recommended speeds for cyclists. Encourage voluntary compliance or involve local cyclists in positive enforcement. Encourage speeds that allow a cyclist to stop in less than half the distance they can see. Patrolling Use properly trained volunteer groups to patrol and talk with cyclists. Restrict cyclists by time Allow for mountain bike use only at certain times of the day. Restrict cyclists by day Allow for mountain bike use on only certain days when other use may be a lower level (odd/even days or weekend/week day). Separate sections Construct separate routes for mountain bike use where there is the greatest congestion (like at trail heads). Zoning Close certain areas to cycling and then allow and encourage that use in other designated areas. This method is dependent on having other areas available and usable. Close area to cyclists This should be only used as a last resort after other efforts have proven ineffective.
9.4.2 Threats to quality experiences: Conflict The Recreation Opportunity Spectrum (ROS) based approach discussed previously, suggests that threats to quality experiences can be defined in three ways: negative impacts on the activity, the setting or the desired experience. However, recreation experiences are affected by many subjective as well as situational factors: the conditions encountered at an area, users’ expectations, any discrepancies between what users expect and what they actually find or experience, social and personal norms, use levels, and ‘social interference’ . 30 The following threats are summarised from The International Mountain Bike Association’s information. 30
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Crowding This is more than an objective measure of the density of users in any one area at any one time. Generally it is a subjective judgement by an individual’s perceptions, affected by: • Number of encounters (actual, preferred or expected), and any discrepancy between actual and expected encounters. • Motivations for participation (eg: solitude versus social interaction) • Preferences (desires) • Expectations (what was anticipated) • Behaviour (as opposed to the number) of others • Visitor attitudes • Type of area (eg: natural and undisturbed versus significantly modified) • Location of contacts (eg: trailhead versus campsite) • Proximity of others • Size of group, and size of group encountered • User’s level of experience • Perceived environmental disturbance • Type of encounter • Obtrusiveness of visual impact (eg: bright coloured versus earth toned tents, clothes and equipment).
Conflict Conflict can cause serious impacts to recreation experiences: enough conflict and the user may be displaced to another activity, location or time. Conflict can be defined as ‘goal interference attributed to another’s behaviour’. It impacts on satisfaction, and is therefore a special type of dissatisfaction that again is subjective: open to individual perceptions. Jacob and Schreyer (1980) 30 suggest that there are four classes of factors that produce conflict in outdoor recreation: • Activity Style. (Specialisation level) The various personal meanings that an individual attaches to an activity. This may relate to the intensity of participation, status, the individuals’ range of experience and their definition of quality (eg: experts and novices may not mix well) • Resource specificity. (Definition of place or sense of place) The significance that an individual attaches between their desired activity and the specific location. (eg: a runner on their favourite home trail may not appreciate a tourist’s ‘lack of respect’ by littering) • Mode of experience. (Focus of trip, or trip expectations) How the natural environment will be perceived according to the activity focus. (eg: a nature loving bird watcher, will be disturbed by ATV riders seeking speed and thrills and not focussed on the environment) • Tolerance for lifestyle diversity. (Lifestyle tolerance) The tendency to accept or reject lifestyles different from one’s own. (eg: some trail users just don’t accept people who do not share their values, priorities, trail activities etc).
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These factors may be better in predicting conflict rather than goal interference. It is also important to note that no actual contact needs to occur for conflict to be felt or perceived. Kuss et al. (1990)30 notes three types of coping strategies which change the character of the experience for the user forced to cope: • Users re-evaluate the normative definition of what is acceptable (i.e. they adapt and accept the conditions they find). • Users change their behaviour (eg: use less frequently, use at off-peak times, etc) • Users are displaced altogether (i.e. conditions are unacceptable to them, so they stop the activity or stop visiting the area).
In studies of recreationists, several themes and patterns have been found to relate to conflict. These themes support the four classes discussed above.
• Level of technology Different levels of technology between users can create conflict. i.e. Canoeists and motor boats, walkers and motorcyclists, swimmers and jet skis, walkers and mountain bike riders. • Conflict as asymmetrical Feelings of conflict are often one-way. Walkers may be unhappy to encounter motor bikes, but motor bike riders may not be unhappy to encounter walkers. Generally, trail users enjoy meeting their own kind, but dislike users that are faster and more mechanised than themselves. • Attitudes toward and perceptions of the environment Conflict can stem from different attitudes towards or perceptions of the environment. People most susceptible are those who relate to either a historical (long time or frequent) or cultural association with the environment, or those who view the environment as being integral to their desired experience. • Others as different Users who perceive conflict with others may regard them as being different from themselves (background, lifestyle, feelings about the environment etc). However, user groups may have more similarities than they believe. In some cases, one negative contact may lead sensitive users to conclude that ‘all of them are rude’. • Violation of norms Individuals and groups with different standards of behaviour (social and individual norms that define what behaviour is appropriate) often conflict with one another .30 Norms of behaviour are established through social interaction, and these norms influence our behaviour and how we expect others to behave. The strength of the norm violated will influence the magnitude of conflict. These norms can be better predictors of conflict than goals. (eg: anglers seeking quiet may believe that boisterous behaviour from canoeists is inappropriate in certain situations). • Level of tolerance Considering the mainly subjective perceptions related to conflict already discussed, tolerance will naturally vary widely depending on personal norms and specific situations. Levels of tolerance are lowest in ‘wilderness’ (remote and relatively natural) areas. Assumed images of activities, stereotypes, personal norms and goals will all influence the level of tolerance towards other users. There is evidence that marketing strategies promoting the diverse interests of all users can be successful in increasing tolerance to others. • Environmental dominance Users who differ in terms of the importance they give to conquering the environment are likely to conflict. This is related to the importance of autonomy, control, challenge, and risk- taking goals. 30
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• Traditional use There is often resentment from established trail users against newcomers, where the established users want the area to ‘stay as it was when they first started going there’. Mountain bikers often complain that walkers wish to exclude them just because there is a perception that bicycles are new and untraditional in the area. This may be particularly evident where the established user group has ‘developed’ (initiated and maintained) the trails in the area. Trail managers may need to be sensitive to this perceived ‘ownership’ while still considering appropriate provision for other ‘new’ trail users.
Conflict: Summary It is important to note that some trail users may either wilfully or innocently behave in contradiction to accepted trail use ‘norms’. Some users are simply irresponsible and unfriendly. They may wilfully annoy others or damage the environment. Many users however may not be aware of how they should behave on trails, or how their behaviour may impact negatively on others. Therefore management strategies should consider educational information and social-marketing techniques to alter behaviours before they become a problem. Just as some damage to trails is not caused by trail users, some conflicts are also not caused by trail users. Aircraft noise especially that from sightseeing helicopters and planes is a major irritant to some trail users (especially in remote locations). In Tasmania, restrictions are in place over World Heritage Areas in recognition of this. Noise and smells from nearby roads, factories and urban areas can impact on trail users, as can visual disturbances from forestry, mining, agriculture or urban/industrial developments. As food for thought for land managers (and subsequent management responses), there are suggestions that conflicts result where there is: • An increase in demand for trails (and there is a limited supply) • Poor management • Poorly designed infrastructure • Lack of users etiquette • And disregard for the varying abilities of trail users. Managers must consider a balance between keeping users safe, minimising impacts to the environment (conservation), and providing for high-quality visitor experiences.
9.4.3 Sustainable trails The Queensland Recreation Open Space Planning Guide34 provides an excellent summary: In its most basic form, the principle of sustainable development means ensuring the quality and quantity of a resource is maintained for future use. …For recreation that is dependant on access to open space, land or water, sustainability has particular relevance. As the proportion of the landscape which is open space is reduced through urban and industrial expansion, the value of significance of the remaining/residual open space areas for all potential open space uses or functions increases. Typically, as the supply of the basic resource for open space dependent recreation or sport declines, the demands for these types of activities increase. The long term result is a loss of both recreation quality and diversity. This becomes more important when broadening the planning perspective from a local scale to a regional scale. If the range of recreation settings is restricted at a local scale, there is little hope of delivering a high quality and diverse regional network.
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For outdoor recreation that generates a range of ecological, social and economic impacts, ecological sustainability is essential to maintain the quality, quantity and diversity of recreation settings. Ecologically sustainable recreation can be defined as the use of areas/settings for recreation purposes both: • Within the capacity of those areas/settings to sustain natural processes, and • So that the benefit of the use to the present generation does not diminish the potential to meet the needs and aspirations of future generations.
The demand for outdoor recreation is significant: closely related to the quality of life of Tasmanians. This is evident from growing participation in outdoor recreation and continued public interest in and concern for the natural environment and its long term protection. The provision of a diverse range of recreation opportunities (i.e.: specific combinations of recreation activities and settings) ensures the flexibility necessary to mitigate changes or disturbances brought about by social, technological or environmental changes (McIntyre, 1993). To maximise the quality and diversity of recreation choices available to the community, McIntyre identifies a need to maintain the integrity and character of recreation opportunity classes or settings. This is closely aligned with the concept of ‘sustainable use’. There is no doubt that pursuing recreation and nature conservation goals concurrently at the same site can result in conflict. In some cases, recreation use can so severely degrade an area that the environment is damaged and the quality of the recreational setting itself is diminished (Cole, 1993). Consequently, the quality of the recreation experience can decrease (at least for some people).
Implementing sustainable recreation The key issues for recreation are: • Protecting the recreation resource from adverse impacts created by overuse, inappropriate use or adjacent uses. Eg: a popular walking track overused and degraded: the previously isolated bushland park of Trevallyn compromised by the adjacent urban development of Blackstone Heights. • Managing impacts on the recreation experience so that it is not diminished or modified to the extent it ceases to provide the same quality and type of experience. Eg: The ‘wilderness experience’ of walking the Tasmanian Overland Track has been compromised by crowding, site trampling, track degradation, extensive hut development and faecal waste. • Considering the need to constrain use of areas, type of activities, timing of activities and infrastructure provided. Eg: closing 4WD tracks in rainforest areas during winter. • Sustainability and the need to sometimes restrict access to a resource or opportunity can sometimes be at odds with principles of social equity. Eg: access to some remote wilderness sites is limited, by its very nature, to those who are able bodied and experienced enough.
Aims for sustainability: Support the development of trails that encourage the public to get out and enjoy natural settings without harming ecosystems. Promoting sustainable trail building techniques that produce paths that withstand erosion, provide designated users with their desired experiences, and minimise user conflict.
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9.4.4 Sharing trails The following material is taken from the International Mountain Bike Association’s ‘Trail Solutions’ guide book. 58 Some land mangers believe separate trails will eliminate user conflict, with one trail for mountain bikes, one trail for walkers etc. Separating trail users is therefore common across Australia at present. The problem with this approach is that responsible mountain biking (for example) is compatible with most other types of trail use. When all users observe basic trail etiquette, and the land manger has encouraged shared use, their encounters with others users can be harmonious, and most people with have a satisfying experience. IMBA 58 advocates the following shared trail beliefs: • Shared use trails best accommodate the needs of most users. Open trails disperse users across an entire trail system, while single use or restricted use trails tend to concentrate users, increasing negative social impacts through crowding. • Sharing trails helps build a trail community. Visitors are encouraged to cooperate in order to preserve and protect a common resource. Encountering other types of users on a trail offers the opportunity to meet and talk, which helps to establish mutual respect and courtesy. Separate trails on the other hand, can sometimes breed ill will, territoriality, and rivalries. • Shared trails are mots cost effective for land managers. They require fewer signs and less staff, which simplifies monitoring and enforcement. • Shared trails empower responsible, experienced users. Novices and ‘outlaws’ are exposed to conscientious, courteous users, and the opportunity for peer regulation is enhanced. • Shared use trails take better advantage of the available space. Quite simply, they provide more trail for everyone to enjoy. • Shared trails require less trail miles and therefore have less impact. Building additional trails for individual user groups increase the ecosystem impacts including potential habitat fragmentation and water sedimentation. • Shared use trails manage the most visitors. Trails that lead to major destinations, such as water falls and scenic vistas, should be shared use, since all visitors will want to see a ponit of interest. For the same reason, trails that serve as major travel corridors are more efficient when shared.
Principles of shared use trails: 58 Shared use trails best accommodate the needs of the most users. • Open trails disperse users across an entire trail system, while single-use or restricted use trails ten to concentrate users, increasing negative social impacts through crowding. • Sharing trails helps build a trail community. • Visitors are encouraged to cooperate in order to preserve and protect a common resource.. • Shared trails are most cost effective for land managers. • They require fewer signs and less staff, which simplifies monitoring and enforcement. • Shared trails empower responsible, experienced users. • Novices and ‘outlaws’ are exposed to conscientious, courteous users, and the opportunity for peer regulation is enhanced. • Shared use trails take better advantage of the available space. • Quite simply, they provide more trail for everyone to enjoy. • Shared trails require less trail miles and therefore have less impact.
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• Building additional trails for individual user groups increases the ecosystem impacts including potential habitat fragmentation and water sedimentation. • Shared use trails manage the most visitors. • Trails that lead to major destinations, such as water falls and scenic vistas, should be shared use, since all visitors will want to see a point of interest. For the same reason, trails that serve as major travel corridors are more efficient when shared.
Principles for single use trails. 58 There is recognition that in some cases, single use trails are best. • Crowded trails. Popular trail systems with very crowded trails can have a blend of shared and single use routes. Visitors won’t enjoy a traffic jam when they are seeking relaxation and a connection with nature. Different routes for walkers and bicyclists can help provide a desirable experience. • Crowded trail heads. Trail systems can have separate access points that cater to specific users. One entrance can be designated for equestrians and include horse trailer parking. Another parking area can be designated for hikers and bikers. The trail network can blend shared and single use • High speed trails. A designated trail can allow advanced runners and riders to race train at higher speeds without bothering other visitors. • Challenge parks. A mountain bike playground can be set aside for riders to hone their skills in isolation. A practice area with a wide variety of challenging obstacles, from easy to difficult, will allow for skills progression. A challenge park is a perfect place to offer skills clinics. • Nature trails. A single use trail can be created to provide walkers or birdwatchers with the seclusion they desire. Likewise, trails for disabled visitors may benefit from restricted use. • Extraordinary mountain biking trails. The experience of riding a narrow, roller coaster trail where twists and turns unfold under your wheels in a rocking rhythm is highly valued by mountain biking diehards. These types of trails envelope riders in a zone of exhilaration and are most successful when they are specifically designated for mountain bikers.
9.4.5 One way trails 58 Sometimes share use trails can be designated as one way routes, so that users must travel on them on only one direction. There are both advantages and disadvantages to one way trails. Advantages • Alleviate congestion on a crowded trail • Provide a more predictable experience (no on-coming trail users) • Reduce the number of passes between users (i.e. reducing the feeling of crowding and increasing safety) Disadvantages • Lead to uneven wear on the trail tread • Limit the experience, as visitors often like to travel in both directions • Be difficult to monitor/enforce • Create animosity among users • Require a consistent signage so first time users know what to do and don’t invoke the wrath of other users
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9.4.6 Single track 58 A single track trail is one where the users must generally travel in single file: it is narrow according to the type of user. Single track tends to wind around obstacles and blend into the countryside, with minimal disturbance on the environment. Generally, single track is mainly on a natural surface, in contrast to gravel, bitumen or other artificial surfaces. Most trail enthusiasts prefer narrower trails. Whether it is riding a bike, running, walking, or horse riding, the users want to experience a close connection with nature. This generally relates to non- motorised forms of trail use, however off road motorised vehicle users may also prefer their own form of single track where their preference is to be close to nature. Single track fosters slow speeds, often due to the natural challenges that the trail encompasses. It is interesting to make a comparison with wide roads: where the rider may seek challenge by increasing their speed. This may often increase the risk to the rider and other trail users.
9.5 Commercial licensing and organised groups While Council may not presently require the licensing of commercial operators using Council land, there may be a need to consider future licensing in alignment with current state practices. The Parks and Wildlife Service have agreed upon their joint commercial licence system with Forestry Tasmania and the Mt. Wellington Park Management Trust. The “Commercial Visitor Service (CVS) Licence or Lease system 59 regulates all commercial adventure tourism, eco-tourism and commercial outdoor recreation activity provision in these areas. Commercial providers are required to gain permission to undertake their services on publicly controlled land, governed by the Parks and Wildlife Service, Forestry Tasmania, and the Mt. Wellington Park Management Trust. The purpose of the CVS multi-tenure licence system is to 59 : • Encourage the involvement of the private sector in the development of recreation and tourism opportunities on Tasmania’s public lands, • Meet visitor service demand and enable wider visitor enjoyment in a manner compatible with the purpose for which public land is managed, • Provide visitor services which are ecologically sustainable in the longer term, • Develop a “one stop shop” approach for operators who provide recreation and/or tourism services (on a commercial basis) on land managed by the above mentioned agencies. • Where there are joint arrangements for management between the West Tamar Council and areas designated by the CVS, there will be a need to review the applicability of the CVS to commercial operations.
9.5.1 Adventure Activity Standards (AAS) There has been some debate between the Outdoor Recreation Industry and land management agencies regarding appropriate standards for the conduct of commercial activities on state owned lands. The Outdoor Recreation National Training Package has a crossover with the equivalent Tourism (tour guiding) Training Package, but still did not provide land managers with a clear system for regulating minimum standards of operation for commercial operators. The Sport and Recreation Ministers Council (SRMC) provides a mechanism for liaison between the Australian Government and the various States and Territories across Australia. The heads of departments responsible for sport and recreation are represented on the Standing Committee on Recreation and Sport (SCORS). SCORS has a Recreation Trails working group that is presently discussing issues related to the development of a strategic approach to recreation trail development across Australia. This includes:
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• Policy and legislation (including the Victorian Adventure Activity Standards) • Research and evaluation • Innovative models and partnerships • Trail development, management and marketing • Trail design and standards • Physical activity on trails. SCORS has agreed to introduce the Victorian Adventure Activity Standards project across all Australian States and Territories. Sport and Recreation Tasmania has recently been provided with funds to assist with this implementation in Tasmania. The standards will provide guidance for the CVS, but will also have an impact on any ‘organised’ group activity (i.e.: scouts, guides, schools etc) on public land. In many cases, the AAS provides codes of conduct that are endorsed by the community sector and government, which constitutes the best form of guidelines currently available. Any interstate guidelines should be considered with respect to Tasmania-specific issues.
AAS - Victoria 60 AAS are voluntary guidelines for undertaking potentially risky activities in a manner designed to promote: • Safety for both participants and providers, • Protection for providers against legal liability claims and • criminal penalties, • Assistance in obtaining insurance cover. AAS are NOT statutory standards by law. Legal liability for injuries or property damage is primarily governed by the law of Contract and Negligence which are described within each AAS introduction. The Adventure Activity Standards (AAS) have been established as minimum standards for organisations conducting outdoor recreation activities for dependant groups (where participants have a level of dependence upon the leader(s). The concept required appropriate consultation with commercial and community involvement so that a single and consistent set of guidelines could be established and agreed by the contributors, provide clarity to the sector and to the external stakeholder of safe and sustainable practices in the outdoors. A consortium of four government agencies, Sport and Recreation Victoria (SRV), Department of Sustainability and Environment (DSE), Parks Victoria (PV) and Tourism Victoria (TV) support and fund the project. The funding consortium has an ongoing role on the steering committee for the project ensuring that the AAS are endorsed and recognised by the Victorian State Government. The necessity for minimum standards has arisen as the outdoor recreation sector continues to develop ‘best practice’. AAS do not expect best practice but do expect activities to be conducted in a manner appropriate to the specific organisation, the participants being led and the nature of the activity being undertaken. The Victorian Outdoor Recreation Centre Inc. thoroughly supports the pursuit of best practice by organisations which have the expertise and resources to optimise safety and quality of activities for participants and the environment.
AAS – Victoria, Fact sheet 60 Victoria ’s Adventure Activity Standards (AAS) project is Australia ’s first industry-supported safety and environmental guidelines for all providers of group adventure activities. The AAS are providing clarity on risk management and environmentally sustainable practices for Victoria ’s adventure sector, which includes commercial and not-for-profit providers. They cover essential practices, including leader competency, emergency procedures, equipment, and commitment to environmentally sustainable practices.
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Most providers of these activities already have responsible practices and policies in place to ensure the safety and environmental sustainability of their activities. The AAS provide a common benchmark for these providers, as well as enabling new organisations to be informed and helping build consistent practices across the commercial and not-for-profit sector. The AAS project is funded by the Victorian Government and facilitated by the Outdoor Recreation Centre Inc.(Victoria), which ensures consideration for recreation, education, professional, camping, tourism and environmental organisations, and aims to encourage sustainable, safe and fun outdoor activities. Victorian Government agencies, including Sport and Recreation Victoria, Parks Victoria, Tourism Victoria and the Department of Sustainability and Environment, are closely involved in developing the Standards. Emergency services, education bodies, insurers and risk management specialists are also providing ongoing input.
Stage One of the project developed AAS for seven adventurous activities, which were launched by Victoria ’s Minister for Sport and Recreation, Justin Madden, in July 2003. These include: • Artificial Surface Rock Climbing • Natural Surface Rock Climbing • River Rafting • Recreational Caving • Recreational Angling • Mountain Biking • 4 Wheel Driving.
Stage Two of the project has developed AAS for an additional 8 activities, including: • Horse Trail Riding • Bushwalking • Abseiling • Surfing • Trail Bike Riding • Challenge Ropes • Kayaking & Canoeing • Scuba Diving/snorkelling and wildlife swims • ...with two more AAS for resort and non-resort based snow activities being developed in late 2004/early 2005. The AAS are flexible and able to be developed further as requirements change. The AAS compliment existing industry frameworks including the National Outdoor Recreation Industry Training Package and the National Outdoor Leader Registration Scheme. The AAS are integrated into Parks Victoria’s licensing agreements for adventure businesses operating on public land and the Camping Association of Victoria’s and the Better Business Tourism accreditation programs. They are also being linked with the Victorian Department of Education’s ongoing process of updating guidelines for schools participating in adventure activities.
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9.6 Risk management An accepted risk management process for Australia is defined in the ‘Risk Management Standards’ (Aus/NZ 4360:1999), and the Standards Australia, ‘guidelines for managing risk in sport and recreation’ (HB246:2002). In addition, Sport and Recreation Tasmania has prepared ‘A sporting chance. A risk management framework for the sport and recreation industry’. 61 In adopting appropriate risk management systems for local government, it is important to understand the context of risk in society and the implications that our judgements might have on community recreation provision. Our perceptions of risk are born from our personal experiences and understandings, and are therefore as diverse as the people in our communities. We perceive risks differently, and we judge risks differently. For example: Rock climbing is often perceived to be extremely dangerous, so as a result, many people with this understanding would select not to rock climb. The same people however, might choose to talk on a mobile phone while driving, or engage in smoking or binge drinking: both being far riskier (more hazardous) activities than climbing. The real risk of rock climbing has been analysed to be far less hazardous (i.e. risk of personal injury or death) than the risk of driving to and from the climbing site! It is therefore important to use appropriate risk management processes rather than judge risks by personal viewpoints. Management decisions can negatively impact on people’s freedom to participate in their chosen activities, especially when these are challenging and adventurous. In return, it is important to consider community perceptions of risks as potential barriers to participation. For example: parent’s perceptions of stranger danger and road safety are often barriers to allowing their children to walk or cycle to school.
9.6.1 Guidelines for risk management The following summary from the Launceston City Council’s (draft) Rock Climbing and Abseiling Management Strategy (2002) 62 is a good summary of a realistic approach to risk management. The most important implications are related to outdoor adventure activities, and land management approaches for balancing adventure recreation opportunities and risk management. Council owes a ‘duty of care’ as a legal obligation towards visitors in its parks and reserves. This requires Council to take reasonable care to avoid foreseeable risks of injury to visitors using areas it manages. The question of what is ‘reasonable’ and ‘foreseeable’ can be complex and technical. The scope of this ‘duty of care’, or the ‘standard of care’ applicable will vary according to each circumstance. 63 Council’s key dilemma is therefore how to provide a range of appropriate opportunities to meet a variety of visitor needs, using a range of risk management approaches (including various levels of appropriate care), while also meeting responsibilities for conservation and environmental management. To assist with determining an appropriate standard of care, and the actions that Council should take, the following guidelines apply considering the ‘reasonable person test’. This test consists of asking hypothetically what a reasonably prudent person would have done given the circumstances at the time. This would involve consideration of the range of visitors that could be expected at a particular location, for example, people of different ages and capability, as well as the variety of activities in which they might occur. 54 • If mitigation works are difficult or costly, beyond the significance of the risk and/or the financial ability of Council, they would be considered unreasonable. • A higher standard of care is expected as reasonable if access to the area can be more easily controlled. More remote or less accessible areas are considered as requiring a lower standard of care due to the visitor requiring a reasonable level of ability to get there themselves (and subsequently accept self-responsibility), and the difficulty required by Council in monitoring or mitigating risks. • Past accident experience will affect what is considered reasonably foreseeable. • The more the Council encourages visitation, and/or the higher the visitation, the higher the standard of care owed, (i.e. Nagle v Rottnest Island Authority 1993). 64 65
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• Children and/or less capable visitors are owed a higher standard of care (i.e. children, the elderly, or people with disabilities). • The more substantial the possible injury that may be sustained, the higher the standard of care required. • A visitor could reasonably expect that a natural outdoor area (i.e. without development) would contain more inherent risks than a metropolitan park (highly developed). Willingly entering such an area suggests implied consent to self-responsibility for those risks. The Council is not required to warn visitors of obvious risks that a reasonable person would expect to encounter. Harper v Department of Natural Resources and Environment (2000) differentiated between natural areas and metropolitan parks, and the higher standard of care expected by the urban park manager. 64 • Romeo v Conservation Commission of Northern Territory (1998) determined that the standard of care required in natural areas containing obvious risks was less upon the land manager, with more self-responsibility required of the visitor (depending on circumstances). 63 • A higher standard of care is required when a foreseeable or known danger is hidden to the visitor, as compared to an obvious risk (where less care is reasonable). The erection of warning signs would be expected as a reasonable action to alerting visitors of such risks. • It would not be expected of Council to erect signs warning of all risks in natural outdoor areas. This would be out of proportion to the remote risk of danger to visitors and would be unreasonable. Any signs would need to be erected at all entrances, which would not only be a financial burden, but would adversely affect the aesthetics of the area. An outdoor recreation strategy cannot attempt “…to eliminate risk but rather to identify it and plan for outdoor activities with a consciousness of it.” 63 • “Visitors have varying expectations, knowledge and experience, and recognise that recreation activities have differing inherent risks. It is important to understand the way visitors select recreational environments, so that risk minimisation techniques can be matched to their needs, and made cost efficient.” Inappropriate management interventions may adversely impact upon visitor satisfaction. 63 • “Rather than attempting to manage natural risks, it may be necessary to manage visitor access and behaviour. The ability of visitors to deal with the broad range of natural hazards for themselves depends on their recreational activities, skills and risk awareness. This indicates that risk mitigation strategies should be directed towards visitor knowledge and behaviour .” 63 • It is neither possible nor desirable to remove all hazards from park environments, but it is possible to help visitors understand and anticipate the risks involved in the use of these environments for recreation .63
9.6.2 Public liability Much has been written of the recent public liability crisis, resulting in increased insurance premiums and negative impacts on community recreation provision. The Australian Competition and Consumer Commission’s fourth report monitoring public liability and professional indemnity insurance costs and premiums was issued by the Australian Government recently. The report shows that for the first half of 2004, the average premium for public liability insurance fell by 15%, the average claims cost decreased by 11%, and insurers’ financial performance from underwriting public liability insurance declined. This would appear to be the first signs of downward movement in premiums. They appear to counter previous upward trends, and could be caused by a range of factors, including tort law reforms across Australia. 66 The Civil Liability Amendment Bill, 2003, ensures that Tasmanian legislation is complimentary and consistent with Federal legislation and that in other states and territories. The reforms deal with foreseeability, standard of care, obvious risk, dangerous recreational activities, contributory negligence, threshold and cap for damages, protection for public authorities, protection for volunteers, and amendments to the Fair Trading Act.
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Provisions for volunteers exempt them from civil liability for their actions if they are acting in good faith when undertaking work for a community organisation. The organisation for which the volunteer undertakes the work is liable for any harm arising from a breach of duty by the volunteer. This removes any disincentive to a volunteer from taking part in community activities but still provides an avenue of redress for a plaintiff if negligence can be established. The Bill includes principles that apply in determining whether a public or other authority has breached a duty. Courts are to consider the limited resources of the public authority and the broad range of functions of the authority. This reform was recommended so that a Court was required to take into account the ‘real world’ of finite budges and large responsibilities of public authorities. Public authorities are exempt from liability arising from the materialisation of a risk associated with a recreational activity for which a risk warning has been given. There is protection in the Bill for incapable persons who are not able to understand risk warnings, but not if they are in the care of someone who is able to understand the warning. This reform is again to emphasise the need for individuals to take personal responsibility for their actions and to recognise the impossibility of a pubic authority removing all foreseeable risks in its jurisdiction. 67
9.7 Community development Community development and social capital are concepts strongly supported within local government across Australia. Community consultation is at the forefront of any community development or capacity building processes. Possibly the biggest challenges to community capacity building (developing social capital) are negativity, cynicism and change resistance. Certainly, among those traditionally benefiting from previous poor planning may certainly feel their power base or resources threatened by new approaches. 68 This direction fits with a benefits based approach to recreation provision.
A quick checklist for community development and developing social capital. 68 • Identify stakeholder’s needs and seek to satisfy these needs. • Accept responsibility for change, and build the capacity for change. • Shared vision for the best possible future. “Redesign the future”. • Broad based participation and ownership of the plan. • Lateral idea generation. • Long term orientation and commitment. • Planning and action with SMART (specific, measurable, achievable, realistic and timely) objectives. • Leadership and an active committee with broad representation and commitment. • Local institutions providing support. State and local government, community and private sector. • Communicate and keep people informed and included in decision making. • Commitment to building competencies. Fostering leadership renewal.
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9.8 Marketing and promotions A traditional approach to recreation demand by land management agencies has been focussed on visitor impact minimisation strategies that either: • ‘Manage’ the impacts of use. By repairing infrastructure from over-use, , adding infrastructure (toilets, seats, picnic benches, fences etc), or site hardening, or • ‘Controlling’ visitor behaviours. Restricting access, limiting numbers, enforcing rules and regulations etc. Unfortunately these approaches have been found to often be ad-hoc in delivery, restricted by resource constraints, and always ‘one step behind’ the way people are recreating: they are essentially responding to ‘demand’ issues as they present themselves. A ‘supply oriented management approach’ aims to understand the market forces that impact upon demand, and to address management strategies that impact on visitor behaviours before and during their recreation experience. Example: Forestry Tasmania, The Parks and Wildlife Service, Hydro Tasmania and Tourism Tasmania determined that a focussed marketing and management strategy was necessary for Tasmanian walking tracks. Considering the large network of icon tracks, from short walks to day walks to overnight and extended walks, the management inputs required to maintain these tracks was immense. The key question was to contain the amount of tracks to a manageable level, but to still supply a hierarchy of tracks and trails to meet local and in-bound tourism needs. In creating a state- wide walking track strategy, there is now an agreed supply of tracks and trails to meet demand, with a management approach that covers appropriate maintenance and development to meet user needs.
9.8.1 Social marketing A social marketing approach combines well with this contemporary thinking. It is designed to plan, price, promote and distribute appropriately identified opportunities for the benefit of the target market to achieve the organisation’s objectives. 69 Key considerations in this approach include: • The primary aim is for the long-term protection of the natural environment as the basis for providing recreation opportunities. Long term environmental conservation requires increased customer awareness and appreciation of the natural environment. This emphasises the sustainable protection of environmental integrity (biodiversity) “…through strategies that pro-actively manage demand.” 69 • A significant understanding of customer (visitor) needs, groups, behaviour and characteristics is an important element of a (traditional) marketing strategy. This forms the basis of any approach to achieving customer satisfaction and understanding potential impacts. It also recognises the evolving and increasingly sophisticated needs of visitors and the changing nature of management approaches. • Understanding the carrying capacity of an area/facility (how much can the area sustain) is crucial to a ‘supply’ driven approach. Once determined, the objective is to match identified visitor needs and target groups to available (sustainable) opportunities. The aim is to achieve positive environmental, economic and social outcomes by changing user behaviours and attitudes towards use/demand. • This is in direct comparison to a historic situation where visitor demands dictate responses by land management agencies. Previous ad-hoc or non-existent planning is being replaced by land manager lead consultations with key user groups. Such mutually beneficial partnerships are central to gaining acceptability for new management strategies. • Reward systems (i.e.: fee reduction) are appropriate for those groups assisting with maintenance, inspection, user surveys, monitoring, repairs etc. This concept is central to new approaches to fees and charges in local government (see following sections). • ‘Demarketing’ (discouraging demand) is appropriate where demand is beyond environmental or economically sustainable levels (crowding, damage and carrying capacity levels). Decreasing demand (fewer visitor numbers) may increase visitor satisfaction in some instances. Demarketing can include: price increases, queuing, booking, limiting promotions, promoting a range of alternatives, promoting the importance of the area
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through education, highlighting environmental degradation, interpretation and outreach. It is important to communicate to visitors what uses and behaviours are supportive of ecological/economic or experience integrity: directing target groups to other selected sites that still meet their needs. • Careful analysis of the recreation opportunity needs to identify 3 separate elements: Participation in desired activities, use of specific settings, and the achievement of a particular recreation experience. 70
9.8.2 Promoting trails Promotion is an important aspect of trail provision: it is essential in bringing people to the trails. IMBA 58 provides a promotional summary relating to mountain biking, that has been modified here for a generic trail strategy. • Provide and promote trails for all abilities. Provide a diversity of trails to suit the diversity of needs in the community. Provide varying activities, varying settings, varying experiences for varying levels of skill and ability. • Develop sustainable trails that meet the specific needs of different activity groups. Consider what most mountain bikers, most walkers, most horse riders (etc) want. Use research to guide the design, location and development of fabulous trails. • Promote natural settings and cultural attractions. Design and recommend trails that visit sites that are focussed around natural settings and cultural attractions that research shows are highly popular. • Sign the trails well. People who get lost have a bad experience. Design, produce and post accurate trail signs to and on the trails. Follow good design and location principles that do not detract from the setting or the experience. • Great maps make it easy for visitors. Create excellent maps that clearly show the best trails for each activity, attraction or setting. Good descriptions of the attractions, levels of difficulty and length, features and safety considerations are essential. Ensure that access, parking and facility information is also provided. • Help the community to understand trail use. Some people don’t understand the nature of different activities, the impacts, or the similarities in what different trail users want from their experience. Show that with proper trail management and design, all trail users can recreate in harmony. • Get the community involved. Build community support by emphasising the benefits from trail use. Consider a range of benefits and promote not only the trails, but the people who use them. • Seek support from commercial/retail providers who might benefit from trails. This might include outdoor or bike shops, local shops and petrol stations, accommodation and food outlets, tourism services etc. Show that the benefits are wide and appreciated by a diversity of the community: with economic benefits having a flow-on effect direct to local communities. • Consider services to support trail users. Think about local accommodation, repair shops, food outlets, petrol stations, equipment retailers etc to support trail users. You might also consider trail information at the local shop, a guiding service through a local community group. • Photograph the trails professionally. A picture is worth a thousand words. Commission professional photographers to promote the trails through any form of media that will accept your promotional message. Distribute widely where you know your users will come from. • Advertise other amenities in the area. Consider that trail uses may have more time in the area than just using a trail. They may wish to experience the local cuisine, shops, cultural or historical attractions, etc.
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• Woo the media. Offer media visits to experience the trails at first hand. Consider local media outlets, general magazines, journalists etc. • Measure your success. To ensure continued support for the trails, it is essential to measure your success. Evaluate numbers, users’ satisfaction levels, positive impacts on the local community etc. Promote these benefits from the trails.
9.8.3 Interpretation Tourism Tasmania defines interpretation as communicating ideas and information in a pleasurable, relevant, organised and thematic manner. The Tasmanian Experience Strategy (Tourism Tasmania. 2002), considers that tourism in Tasmania needs to move from a focus on place to interpretation: to engage visitors to ‘connect’ with the experience. Professor Sam Ham, an international interpretations expert, has provided consultancy support to several recent projects in Tasmania. In Tourism Talk, a web based Tourism Tasmania publication (edition 141), he has been quoted as saying: It’s all about creating a theme, and then reaching market segments with those themes. If you plant a seed of connection with the place, it will hopefully take root and grow and move visitors to pass on their experiences once they return home. …Visitors have always wanted to connect with the place they are in – it is why they choose one destination over another in the first place. Since we know this, how do we use interpretation strategically and deliberately in a way that deepens the visitor experience? One of the biggest misconceptions we have to overcome is that interpretation only means imposing signs and structure on the landscape. There is a much wider range of possibilities that can be tailored to a place. Good interpretation is about discovering what the visitors hope to get out of their experience. Care pre-planning and zoning are very important in forming these interpretive experiences that will cater for all visitors. This is relevant as a general guide whether the visitor is classed as a ‘tourist’, or a local resident: as it relates to the desired experience - the visitors goal. It suggests that connection is important, that our past focus on place (infrastructure and information based approaches) can be limited in achieving quality visitor experiences, and that careful design and management of a site will have major impacts on visitor experiences.
Guiding principles: 34 • Do not assume that tourist development will satisfy the recreation needs of local residents or the free and independent individual’s recreational pursuit. • Develop planning policies and principles, management approaches or strategic actions to identify, protect and maintain the maximum possible diversity of landscape settings. • Plan to maximise the quantity, quality and diversity of recreation settings in open spaces areas so that the broadest possible range of recreation demands can be accommodated. • Avoid unintended recreation succession (see recreation opportunity). • Develop planning policies and development provisions that direct built infrastructure- dependent tourism to sites within appropriate landscape/recreation settings. That is, assess all development proposals against criteria for setting appropriateness.
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9.9 Active environments Heart Foundation and the Planning Institute of Australia. ‘Healthy by design, a planner’s guide to environments for active living’. 24 These guidelines are a best practice guide for the design of active environments across Australia. Key topics include: • Walking and cycling routes • Streets • Local destinations • Open space • Public transport • Seating, signage, lighting, fencing and walls • Fostering community spirit The guidelines are available from the Heart Foundation’s website – from a specific project titled ‘Supportive Environments for Physical Activity’ (SEPA) – Victorian Division. http://www.heartfoundation.com.au See also further information on planning for active environments from the Planning Institute of Australia’s (Victorian division) web site – listed under ‘Planning for health and wellbeing’.
9.10 Sea Kayaking
‘Leave no wake’ 71 This is a guide to minimal impact sea kayaking in Tasmania. The initiative was funded by Coastcare, and prepared by sea kayakers in Tasmania. The guidelines have been supported by commercial and public sea kayak groups, the Department of Primary Industries, Water and Environment, the Parks and Wildlife Service, Marine Resources (recreational sea fishing), Birds Tasmania and the Marine and Coastal Community Network. The brochure recommends: A range of safety tips • Minimum (environmental) impact guidelines • Protecting the wildlife (including a ‘breeding seabirds’ table and map to help avoid impacts) • Regulations (licences for fishing) • Statutory guidelines regarding marine reserves with Parks and Wildlife Service regulations • Historic sites This information is available on the Parks and Wildlife Service website: www.parks.tas.gov.au
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9.11 Tasmanian Parks and Wildlife Service The P&WS have a large amount of information available on their website relating to walking, rafting, canoeing, mountain biking, off-road vehicle use in National Parks. 9.11.1 Bushwalking A range of information on: • Equipment • Flora and fauna (including snakes) • Environmental conditions. • Being prepared and good planning • Hire of EPIRBS. Including downloadable forms for hire with policy on use. • Essential Bushwalking Guide and trip planner. This information is extensive in providing enough information to help walkers in Tasmania.
Minimal Impact Bushwalking and Minimal Impact Camping The Tasmanian Parks and Wildlife Service has been at the forefront of developments for minimal impact bushwalking in Australia. A range of publications, videos, posters and booklets have been available and freely distributed throughout the state. This information is available from the Parks website: www.parks.tas.gov.au
9.11.2 Fact sheets • National Parks and World Heritage Areas, ‘Parks and Places’. • Disabled access • Natural values • Great Bushwalks • Walking notes • Plants • Living with wildlife • Threatened habitats • Threatened species • Caring for nature • Fire management • Geodiversity • Boating notes. This includes information on kayaking, canoeing and rafting in Tasmania. There are river notes for the Franklin River that specifies minimal impact rafting, equipment, registrations and other suggestions. • Four wheel driving.
9.11.3 If You’re Making Tracks, Make Them Carefully This is a guide to responsible four-wheel driving, prepared with Coastcare funds in partnership with Land Rover. The brochure includes information on minimal impact four-wheel driving, that has been superseded by the ‘Cruisin’ without bruisin’ guidelines (see next).
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9.11.4 Cruisin’ without bruisin’ This is a track guide and code of practice for recreational vehicle users. The initiative complements the policy for recreational vehicles on state-owned lands in Tasmania, which was jointly developed by the Tasmanian Recreational Vehicle Association (TRVA), the Parks and Wildlife Service, Forestry Tasmania, The Hydro-Electric Commission, Tourism Tasmania, and Sport and Recreation Tasmania. This comprehensive information is available from the Parks and Wildlife Services’ website. The information is generic to any off-road recreational vehicle; however for All Terrain vehicles (ATV’s), the ‘Ride around Tasmania’ booklet has been prepared. Cruisin’ without bruisin’ contains the following information: • B4UGO. Planning information. • Minimal impact (environmental) guidelines • Statutory guidelines for differing land jurisdictions, including private land. • Camping guidelines. • Reducing conflict with other users, including consideration for walkers, cyclists and horse riders. • Contact information for land managers, Land Transport Safety (licences and registration of vehicles). • 4WD club contact details. • 4WD Tracks in Tasmania – a comprehensive list of significant 4WD tracks in Tasmania.
There is an A4 sized pamphlet available also that contains the National 4WD Code of Ethics , developed by the Australian National Four Wheel Drive Council. This contains: • Obey the laws and regulations for recreational vehicles that apply to public lands. • Respect the cultural, heritage and environmental values of public/private land, by obeying restrictions that may apply. • Respect our flora and fauna. Stop and look, but never disturb. • Keep to formed vehicle tracks. • Keep the environment clean. Carry your own, and any other, rubbish out. • Keep your vehicle mechanically sound and clean to reduce the environmental impact. • Adopt minimal impact camping and driving practices. • Seek permission before driving on private land. Do not disturb livestock or watering points, leave gates as found. • Take adequate water, food, fuel, basic spares and a first aid kit on trips. In remote areas travel with another vehicle and have Royal Flying Doctor Service, or equivalent, radio contact. • Enjoy your recreation and respect the rights of others. • Plan ahead and lodge trip details with a responsible person. • Support four-wheel drive touring as a responsible and legitimate family recreational activity. Consider joining an affiliated four-wheel drive club.
9.11.5 On Yer Bike! This brochure provides information for the use of all-terrain vehicles and trail bikes in Tasmania. It is a small promotional brochure that contains basic information on registration, licences and insurance. It promotes the ‘Ride Around Tasmania’ booklet as having more information on tracks and guidelines. The Ride Around Tasmania booklet is available for $9.00 from Service Tasmania outlets around the state.
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9.11.6 Minimal Impact Mountain Biking Means Respect These minimal impact guidelines have been prepared by the Parks and Wildlife Service in conjunction with the State Bicycle Advisory Council (SBAC), the Mount Wellington Park Management Trust, and Forestry Tasmania. This concise brochure contains basic information on: • Plan your ride • Keeping it clean • Respect others • Pack it in – pack it out • Respect the ride (sustainable riding) • Respect yourself (safety)
9.12 Equestrian Currently there are two good sources of information: • The NSW National Parks and Wildlife Service • The Australian Trail Horse Riders Association (ATHRA)
The NSW National Parks horse riding code provides guidelines for riders such as: • Aims of the code • Planning a ride, safety • Horses, pack horses, escaped or injured horses, feed issues • Horse riding areas, camping guidelines, campfires, camping areas, holding yards • Overnight stays (temporary fencing), environmental protection, meeting other park users • National Parks code These guidelines have been endorsed by several government agencies and ATHRA. All information is available from the ATHRA website at http://home.vicnet.net.au/~athra/
9.13 Natural resource management
Tamar Region Natural Resource Management Strategy, 2004 (draft) 72 The Tamar Region NRM Strategy provides direction for the future management of the region’s land, atmosphere, inland waters and wetlands, coastal, estuarine and marine environments, and biodiversity within these. The strategy links community, local government, state government agencies and industry with the aim that they will work cooperatively to achieve the agreed goals and actions. The strategy is underpinned by six principles of natural resource management adapted from the Queensland Government’s Strategy for land, water and related biological resources (1991). It is important to uphold the principles of the Tamar NRM, as environmental sustainability should be a foundation for the sustainability of recreation trails. Therefore the Tamar NRM Strategy principles should be upheld as primary principles for this strategy. Unfortunately, a glaring omission in many recreation trail strategies is a clear position in relation to Aboriginal culture and heritage protection. Any approach should recognise the Aboriginal people as
100 9: Guidelines for management the original inhabitants and custodians of this land, and confront the issue of reconciliation through a clear direction for land management in consultation with Aboriginal groups. The current State Government has provided a clear direction through the recent land hand-back of Cape Barron Island to the Aboriginal people of Tasmania, with ownership transferred to the Aboriginal Land Council of Tasmania. The following statement from the Tamar NRM Strategy is therefore relevant for consideration and endorsement within this strategy, if the principles of the Tamar NRM Strategy are to be upheld.
9.13.1 Statement from the Aboriginal Community 72 Aboriginal aspirations. Natural resource management in Tasmania. Aboriginal people have lived on the islands that make up Tasmania for many thousands of years (upwards of 40,000 years), living inter-dependently with the land throughout that time. Many of the values Aboriginal people hold as important exist within and across the wider landscape, and respect, management and protection of those values is seen as a broad Tasmanian community responsibility. The whole landscape is part of that story. All Aboriginal places are important in that each one is an integral part of the country. In recent times the Tasmanian Aboriginal community has progressed from being dispossessed of land a little over 200 years ago to having a small amount of that land returned (in 1995). Other areas of land have been purchased by the Aboriginal community. With the return of land, a number of land management problems, resulting from historical and contemporary European land management practices, have been inherited by the Aboriginal community. Aboriginal land management knowledge and practices have been increasingly acknowledged by sections of the wider community. Aboriginal people have strong physical and spiritual links with country. Land management expertise of the old people has survived. Today’s Aboriginal community is also developing knowledge and skills of contemporary land management practices. One of the aims of this Strategy is to promote the views, needs and aspirations of Tasmanian Aborigines in relation to sustainable natural resource and land management that ensure protection and enhancement of Aboriginal culture and heritage values throughout Tasmania. (Consensus statement developed Risdon cove 25/6/2004)
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10 APPENDIX 10.1 Draft P&WS walking track classification system
Northern Tasmanian Regional Recreation Trails Strategy (2004) Draft walking track classification system. Parks and Wildlife Service This Walking Track Classification System is the outcome of a review of the track classifications defined in the Walking Track Management Strategy for the Tasmanian Wilderness World Heritage Area: Volume 173, hereafter the Strategy. The Bushwalking and Track Review (BATR) Panel undertook the review in partnership with the Parks and Wildlife Service. The BATR Panel endorsed the draft classification system outlined herein on the 1st June 2003. Some adjustments to the specifications may be made prior to the system gaining final endorsement. The Walking Track Classification System is largely based on the track classification system used by the PWS and outlined in the Strategy but does not incorporate classifications for river portage tracks. The primary purpose of this system is as a tool for the planning, provision and maintenance of walking tracks across the lands managed by the PWS. Alignment with the Australian Standards (AS 2156.1) An effort has been made to align the revised track classifications with the Australian standards for walking tracks (AS 2156.1) and the equivalent AS 2156 classifications are indicated in the specification tables on the following pages. The Australian Standards provide a broad set of standards, however, in order to facilitate consistent interpretation of the character and differences between the track classes, the PWS Walking Track Classification System provides a more detailed set of specifications and guidelines which have been tailored to the Tasmanian context Refer to the following tables.
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W1 Wheelchair standard W2 (Standard) nature trail T1 Track grade 1 T2 Track grade 2 T3 Track grade 3 T4 Track grade 4 R Route nature trail
(AS 2156 Class 1) (AS 2156 Class 2) (AS 2156 Class 3a) (AS 2156 Class 3b) (AS 2156 Class 4) (AS 2156 Class 5) (AS 2156 Class 6+)
OVERVIEW
Opportunity for large numbers Opportunity for large numbers Opportunity for visitors to walk in slightly modified natural Opportunity for visitors to Opportunity for visitors with Opportunity for highly of visitors, including those with of visitors to walk easily in environments requiring a moderate level of fitness and where the explore and discover relatively advanced outdoor knowledge experienced walkers to explore reduced mobility, to undertake natural environments which provision of interpretation and facilities is not common. undisturbed natural to find their own way along remote and challenging natural walks which are provided with are provided with a moderate environments along defined often indistinct tracks in remote areas without reliance on a high level of interpretation to high level of interpretation Users can expect opportunities to observe and appreciate the and distinct tracks with minimal areas. managed tracks. and facilities. and facilities. natural environment with limited provision of interpretive signage. (if any) facilities. Users can expect frequent Users can expect extended Users can expect abundant Users can expect to learn Users can expect occasional encounters with others along the Users can expect opportunities opportunities for solitude with periods of solitude with few opportunities to learn about the about the natural environment track. to observe and appreciate the few encounters with others. encounters with others. natural environment through with moderate to abundant natural environment without interpretive signs or brochures. opportunities to learn through the provision of interpretive interpretive signs or brochures. signage. Users can expect frequent encounters with others. Users can expect frequent Users can expect opportunities encounters with others. for solitude with few encounters with other along the track.
LENGTH
Usually less than 1.5 km for a Usually less than 3km for a No limit for any tracks of T1 loop track or 750m if users loop track or 1.5 km if users standard or lower. have to double back. have to double back.
WIDTH
Min 1.2m, preferably at least Min 0.6m, generally at least Min generally 0.5m, generally Width variable along the length No minimum width. Maximum No minimum width. Maximum Pads or tracks to be < 0.5m. 1.5m or with sections more 1m. Max 2.5m, preferably less at least 0.75m. Max 1.2m. of the track. Min 0.5m but short 0.75m. 0.5m. Pads or tracks to be kept to an than 1.5m wide every 30m and than 2m over most of track. sections < 0.5m acceptable. absolute minimum at bends to allow wheelchairs (Tracks more than 2m wide Max 1m. to pass. Max 2.5m, preferably may be disorientating for users less than 2m over most of with impaired vision.) track. (Tracks more than 2m wide may be disorientating for users with impaired vision.) Ramped sections should be exactly 1.02m wide with handrails on both sides.
GRADIENT
Max gradient 5°; mostly less Gradient mostly less than 8°, Guidance for managers Guidance for managers Guidance for managers Guidance for managers Guidance for managers No than 2°. max 15° over short (30m) Gradient mostly < 15° but may Gradient mostly < 20° but may Gradient limited by Gradient limited by restrictions. sections. be steeper in places. be steeper in places. environmental considerations environmental considerations only. only.
SURFACING & DRAINAGE
Well drained, “shoe” standard. Reasonably firm eg stabilised “Boot” standard. May be rocky “Wet boot” standard. Improved surfacing/drainage Improved surfacing/drainage Improved surfacing/drainage Firm even surface, eg soils, gravel, pine chips, stone. and uneven in places. Some Stabilisation/hardening/drainag minimal - for environmental minimal - for environmental minimal - for environmental concrete, asphalt, fine gravel, Note: Evenly laid cordwood mud and water to 10cm is e mainly for environmental purposes only. Extended purposes only. Extended purposes only. Extended sawn wood planking. Edges may be suitable for some W2 acceptable in places. purposes but some sections of deep mud generally sections of deep mud generally sections of deep mud generally clearly defined. Well drained, tracks but cordwood is Extensive hardening is concessions to user comfort. unacceptable. unacceptable. unacceptable. “shoe” standard. generally unsuitable for tracks acceptable where required. Surface may be rough over likely to be used by aged or extended sections. Mud up to disabled people. 20cm deep acceptable in places.
STEPS
103 * Applies to all trackless areas regardless of zoning.
No steps; ramps < 5°. Steps and stairs may be included, with handrails where necessary for user safety.
W1 Wheelchair standard W2 (Standard) nature trail T1 Track grade 1 T2 Track grade 2 T3 Track grade 3 T4 Track grade 4 R Route nature trail
(AS 2156 Class 1) (AS 2156 Class 2) (AS 2156 Class 3a) (AS 2156 Class 3b) (AS 2156 Class 4) (AS 2156 Class 5) (AS 2156 Class 6+)
SCRUB CLEARANCE
Min 0.3m on either side at Min 0.3m on either side at Clear of scrub across width of Mostly clear of scrub across Sufficient to facilitate fairly Minimal. As a general rule None ground level, 0.5m at shoulder ground level, 0.5m at shoulder track and to above head width of track. Some fallen easy navigation under normal living woody vegetation will not level, 2.2m height clearance. level, 2.2m height clearance. height. Fallen debris and other debris and other obstacles conditions Fallen debris and be cut except where to ensure No obstacles. No obstacles. obstacles will be rarely may be encountered other obstacles may be the track continues to be encountered. occasionally. encountered. navigable.
FACILITIES
Bridges to full width of track, Bridges to full width of track, Bridges and water crossings Bridges and water crossings Bridges and water crossings Bridges and water crossings Bridges and water crossings signposts, interpretation signposts, interpretation facilities, viewing platforms. facilities, viewing platforms. Bridges to be installed over all Bridges to be installed over all Bridges or other constructed Bridges or other constructed None except for essential Shelters and benches are Shelters and benches are major creeks and rivers. major creeks and rivers that crossings generally not crossings generally not environmental purposes. acceptable but not picnic acceptable, but not picnic Stepping stones acceptable; are not normally safely and required if major creeks and provided, except for essential Natural crossings are tables. Track markers are tables. Track markers are fords acceptable where water readily fordable at a depth of rivers are normally safely environmental purposes. preferred. unnecessary. unnecessary. is generally less than 10cm less than 0.5m. Bridges may fordable, except for deep. also be installed to minimise environmental purposes. Where possible natural erosion at creek crossings. crossings are preferred. Rough log bridges acceptable Log crossings and cable but not necessary. Flying foxes Flood delays acceptable and bridges acceptable; flying acceptable over rivers which expected under abnormal foxes or swing bridges cannot normally be forded, but conditions. acceptable over larger rivers. some fords may be flood- Some fords may be prone. floodprone. Delays may be expected under abnormal conditions.
Track markers Track markers Track markers Track markers Track markers
Track markers where Track markers where Track markers where T4 tracks may be marked but None except where necessary necessary to ensure that necessary to ensure that necessary to ensure that markers should be low-key. for environmental purposes – direction is obvious except direction is obvious except direction is obvious along most Track-heads may be marked in eg track markers to under extreme conditions (eg under extreme conditions (eg of track, although route may a low-key manner. Some concentrate usage in snow). snow in non alpine areas). not be obvious in snow. tracks may be difficult to follow bottlenecks on alpine in places. No other facilities traverses. Signs may be except where necessary for installed for essential environmental purposes - eg management purposes. “fan out” signs
104 * Applies to all trackless areas regardless of zoning.
Signage Signage Signage Signage Signage
Directional signposts at start of Directional signposts at start of Directional signposts at start of Signage is limited and only for Signage generally not provided track and at junctions with track and at junctions with track and at junctions with management purposes tracks of grade T3 or higher. tracks of grade T3 or higher. tracks of grade T3 or higher. Junctions with T4 tracks may Junctions with T4 tracks may Junctions with T4 tracks may be unsignposted; otherwise be unsignposted; otherwise be unsignposted; otherwise signposts should refer to the signposts should refer to the signposts should refer to the main (T1) track only. main (T2) track only. main (T3) track only.
Interpretative signs may be Interpretative signs may be Signs may be installed for installed existing structures installed existing structures management and safety such as huts. such as huts. purposes.
Signs may also be installed for Signs may also be installed for management and safety management and safety purposes. purposes.
Note: Users should be warned Note: Users should be warned that route finding and progress that route finding and progress on T1 tracks might be difficult on T2 tracks may be difficult under extreme conditions such under extreme conditions such as blizzards, flooding, or heavy as blizzards, flooding or heavy snow. snow.
W1 Wheelchair standard W2 (Standard) nature trail T1 Track grade 1 T2 Track grade 2 T3 Track grade 3 T4 Track grade 4 R Route nature trail
(AS 2156 Class 1) (AS 2156 Class 2) (AS 2156 Class 3a) (AS 2156 Class 3b) (AS 2156 Class 4) (AS 2156 Class 5) (AS 2156 Class 6+)
CAMPSITES
At major camping nodes, Campsites for up to 12 tents, Campsites for up to 8 tents, Visibly impacted (long-term) Formation of campsites to be campsites for up to 25 tents preferably dispersed in groups preferably dispersed in groups sites for up to 4 tents. avoided where possible. preferably dispersed in groups of up to four tents. of two to four tents. of up to five tents. Toilets of minimal design to be Visibly impacted sites for up to Toilets to be provided at sites Toilets of minimal design to be provided only where necessary four tents, preferably at least Enclosed toilets to be provided of more than 10 tents, or provided where necessary for for environmental purposes. partially vegetated, are at sites of more than 10 tents, where necessary for environmental or health acceptable where unavoidable or where necessary for environmental or health purposes. or desirable for environmental environmental or health purposes. purposes. purposes. No toilets provided unless essential for environmental purposes.
MAXIMUM USAGE
No restrictions. No restrictions. To be defined where required To be defined where required To be defined where required To be defined where required To be defined where required for social, environmental and for social, environmental and for social, environmental and for social, environmental and for social, environmental and management purposes. management purposes. management purposes. management purposes. management purposes.
RECOMMENDED MAXIMUM PARTY SIZE
No restrictions. No restrictions. Recommended max party size Recommended max party size Recommended max party size Recommended max party size Recommended max party size 13. 13. 8. 6. 6.
While recognising While recognising Party sizes of less than 6 will Party sizes of four will be Party sizes of four will be circumstances for group sizes circumstances for group sizes be encouraged. encouraged. encouraged. up to 13 persons for up to 13 persons for environmental and crowding environmental and crowding Parties of up to 8 acceptable Parties of up to 8 acceptable in reasons, party sizes of 6 or reasons, party sizes of 6 or on some T4 tracks in the some parts of the Central fewer will be encouraged fewer will be encouraged Central Plateau SRRZ, subject Plateau SRRZ, subject to to environmental conditions. environmental conditions including pad and track formation.
PUBLICITY
105 * Applies to all trackless areas regardless of zoning.
No restrictions. No restrictions. No restrictions - may be Generally no restrictions, but Potential publicists (eg All publicity to be discouraged. All publicity to be discouraged. included in maps, tourist some types of publicity may be magazine editors) will be Not to be included on maps Routes not to be identified on brochures etc discouraged if overall usage encouraged to keep publicity except for internal maps except for internal (i.e. restrictions are necessary. low-key. T3 tracks may be management purposes. Service) management included on maps. purposes. Authors will be encouraged to keep route descriptions vague Authors will be encouraged to (eg in accounts of past keep route descriptions vague expeditions). (eg in accounts of past expeditions). Photographers and publishers will be encouraged not to Photographers and publishers identify the precise location of will be encouraged not to photographs taken in areas identify the precise location of accessible only by T4 tracks. photographs taken in trackless areas.
ROUTEGUIDES
No restrictions. No restrictions. May be included in route May be included in route Route guides are acceptable Inclusion of T4 tracks in route Publication of route guides guides but route guide authors guides but route guide authors but should be sparsely written - guides will be strongly (including mention of “Routes” will be encouraged to consult will be encouraged to consult route guide authors will be discouraged. in route guides) to be strongly with the Service to ensure that with the Service to ensure that encouraged to follow Service discouraged. Service user published information and published information and guidelines. notes will promote a “fan out” advice is compatible with advice is compatible with policy except where management objectives. management objectives. concentration of usage is desirable for environmental purposes.
W1 Wheelchair standard W2 (Standard) nature trail T1 Track grade 1 T2 Track grade 2 T3 Track grade 3 T4 Track grade 4 R Route nature trail
(AS 2156 Class 1) (AS 2156 Class 2) (AS 2156 Class 3a) (AS 2156 Class 3b) (AS 2156 Class 4) (AS 2156 Class 5) (AS 2156 Class 6+)
GUIDED TOURS
Licences are required Licences are required Permitted but licences are Permitted but licences are Permitted but licences are Licences may be issued on Licences may be issued on the required and numbers of trips required and numbers of trips required and numbers of trips condition that guided parties following conditions: guided may be restricted. may be restricted. may be restricted. Advertising conform to the recommended parties must conform to the and publicity should conform to party-size limit and to the recommended party-size limit; T3 guidelines see 10.2.3. guidelines relating to the guided tour operators must publicity of tracks and observe the guidelines in destinations (see 10.2.3). relation to the publicity of routes and destinations (see 10.2.3); guided tours must be conducted in such a way as to avoid contributing to unplanned track and campsite formation. In particular, operators will be required to avoid frequent use of any trackless route.
RISK MANAGEMENT
Managed in accordance with Managed in accordance with Managed in accordance with Managed in accordance with Managed in accordance with Managed in accordance with Managed in accordance with the PWS Public Risk the PWS Public Risk the PWS Public Risk the PWS Public Risk the PWS Public Risk the PWS Public Risk the PWS Public Risk Management Management Management Management Management Management Management
Policy (2003) and Hazard Policy (2003) and Hazard Policy (2003) and Hazard Policy (2003) and Hazard Policy (2003) and Hazard Policy (2003) and Hazard Policy (2003) and Hazard Signage SOP (2003) Signage SOP (2003) Signage SOP (2003) Signage SOP (2003) Signage SOP (2003) Signage SOP (2003) Signage SOP (2003)
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10.2 South Australian trail classification system The following tables refer to classification systems prepared by the South Australian Trails Coordinating Committee – used for Trails SA initiatives.
SA Trails Coordinating Committee
Mountain bike trail classifications
1 - Easy 2 - Intermediate 3 – Advanced 4 - Severe
Easy trails are most suitable for Intermediate trails are most suitable Advanced trails are suitable for Severe trails are suitable for down hill children, families, elderly, disabled, for individuals and social groups individuals and social groups seeking riders with dual suspension bikes who novices, social groups and others seeking a short to medium distance a very challenging trail requiring a high want an experience that is extreme in seeking a relatively short distance trail trail requiring a moderate level of skill level of skill, fitness and possibly its nature. requiring a basic level of skill and and fitness. endurance. Severe trails will be built for down hill fitness. Intermediate trails are most likely to be Advanced trails are most likely to riders specifically with race events in Easy trails are most likely to be fire a combination of single trail and/or fire consist of challenging single track mind, but it can be expected that these roads or wide single tracks with a road with obstacles, variable surface, and/or fire road with many obstacles, trails will be used by some members of gentle grade (not exceeding 10%) and and a moderate slope. variable surface, and steep sections. the public outside of the race events. a relatively obstacle free, hardened Intermediate trails are likely to be Advanced trails may possibly be multi- Severe trails will be single directional surface. multi-use so encounters with other use so encounters with other users for specific use. Warnings will need to Easy trails are most likely to be multi- users including cyclists, walkers, possibly including cyclists, walkers, deter walkers and other users from use and frequent encounters with runners and horse riders should be runners and horse riders should be using these trails. other users including cyclists, walkers, expected. expected. Severe trails can be designed so that runners and horse riders can be the impacts are greatly reduced. expected. Proper planning and construction will ensure the excessive gradient sections of the trail are made sustainable.
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SA Trails Coordinating Committee
Horse trail classifications
1 - Easy 2 - Intermediate 3 – Advanced 4 - Severe
Easy trails are most suitable for Intermediate trails are most suitable Advanced trails are suitable for novices: social groups and others for individuals and smaller social individuals and small social groups seeking relatively short distance trail groups seeking a short to medium seeking a very challenging trail requiring a basic level of skill and distance trail requiring a moderate requiring a high level of skill, fitness horse & rider fitness. level of skill and fitness. and basic navigation skills. Easy trails are most likely to be fire Intermediate trails are most likely to be Advanced trails are most likely to roads or wide single tracks a combination single trail and/or fire consist of challenging sing trail and/or (bridlepaths) with a gentle grade (not road with obstacles, variable surface, fire road with many obstacles, variable exceeding 10%) and a relatively and a moderate slope. surface, and steep sections. Some trail obstacle free, hardened natural routes may not be marked at all. Easy trails are likely to be multi-use surface. and frequent encounters with other Advanced trails may possibly be multi- Easy trails are likely to be multi-use users including cyclists, walkers and use so encounters with other users and frequent encounters with other runners can be expected. possibly including cyclists, walkers, users including cyclists, walkers and runners and other stock should be runners can be expected. expected, however, many of these trails may be located in remote areas and encounters with others is expected to be minimal.
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10.2.1 South Australian Trails MTB and Equestrian classifications Trail classifications and guidelines – Mountain bike and equestrian trails.
Mountain bike trail classification – Easy (class 1) Description Overview Easy trails are most suitable for children, families, elderly, disabled, novices, social groups and others seeking a relatively short distance trail requiring a basic level of skill and fitness. Easy trails are most likely to be fire roads or wide single tracks with a gentle grade (not exceeding 10%) and a relatively obstacle free, hardened surface. Easy trails are most likely to be multi-use and frequent encounters with other users including cyclists, walkers, runners and horse riders can be expected. Elements for classification Corridor (width) (Min) 3m (height) (Min) 3.7m Tread 1.5m (single track) (minimum width) Surface Generally a modified, compacted surface relatively smooth and free of obstacles. Distance 0 – 8 km Gradient Maximum 10% Maximum sustained pitch 5% Desired gradient 0 – 10% Out slope 4% maximum Minium turning radius 4m Level of skill /experience A basic level of skill and fitness required. Previous trail experience not essential. On-trail facilities Facilities along the trail may include lookout platforms, seats, mounting blocks, step overs, shallow fords, barrier rails, bridges, watering points, interpretive and/or management signs. Trailhead facilities The trailhead will be marked with a sign, specifying the name, distance, classification, multi-use code of conduct and other relevant information. Trailhead facilities may include car parking, map dispensers, toilets, drinking water and information shelters. (facilities will be dependent on the number of visitors using the trail or other attractions in the area) Recommended trail flow Open and flowing
# There may be circumstances where trails with a surface and slope similar to Class 1 exceed the suggested distance. These trails should be upgraded to Class 2 or 3.
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South Australian Trails Coordinating Committee classifications
Mountain bike trail classification – Intermediate (class 2) Description Overview Intermediate trails are most suitable for individuals and social groups seeking a short to medium distance trail requiring a moderate level of skill and fitness. Intermediate trails are most likely to be a combination of single trail and/or fire road with obstacles, variable surface, and a moderate slope. Intermediate trails are likely to be multi-use so encounters with other users including cyclists, walkers, runners and horse riders should be expected. Elements for classification Corridor (width) (Min) 1.5m (height) (Min) 3.7m Tread (minimum width) 70cm Surface A variable surface is likely that may include sections of rock, sand, clay, gravel etc. Obstacles such as rocks, logs, jumps, drop offs are likely. Shallow ford crossings. Distance Maximum 40km Gradient Maximum 15% Maximum sustained pitch 10% Minium turning radius 3m Level of skill /experience A moderate level of fitness is required. Trail riding experience recommended. On-trail facilities Facilities along the trail may include platforms, seats, barriers rails, bridges, watering points, interpretive and/or management signs, step overs, shallow ford crossings. Trailhead facilities The trailhead will be marked with a sign, specifying the name, distance, classification, multi-use code of conduct and other relevant information. Trailhead facilities may include car parking, map dispensers, toilets, drinking water and information shelters. (Facilities will be dependent on the number of visitors using the trail or other attractions in the area) Recommended trail flow Open and flowing, with short sections of tight and technical.
# There may be circumstances where trails with a surface gradient similar to Class 2 exceed the suggested distance. These trails should be upgraded to Class 3.
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South Australian Trails Coordinating Committee classifications
Mountain bike trail classification – Advanced (class 3) Description Overview Advanced trails are suitable for individuals and social groups seeking a very challenging trail requiring a high level of skill, fitness and possibly endurance. Advanced trails are most likely to consist of challenging single track and/or fire road with many obstacles, variable surface, and steep sections. Advanced trails may possibly be multi-use so encounters with other users possibly including cyclists, walkers, runners and horse riders should be expected. Elements for classification Corridor (width) (Min) 1.5m (height) (Min) 2.5m Tread (minimum width) Min. 30cm Surface Usually a variable surface with sections of rock, sand, clay gravel, etc. Obstacles may include challenging rocks, logs, jumps and drop offs. Fording creeks. Distance Advanced trails can be any length. Gradient Maximum 20% (Max sustained pitch 10%) Minium turning radius 2m Level of skill /experience A high level of skill and fitness required. Previous experience essential. Map reading skills and animal health and welfare knowledge is essential. On-trail facilities Generally facilities are not provided except in relation to specific safety or environmental considerations. Trailhead facilities The trailhead will be marked with a sign, specifying the name, distance, classification, multi-use code of conduct and other relevant information. Trailhead facilities may include car parking, map dispensers, toilets, drinking water and information shelters. (Facilities will be dependent on the number of visitors using the trail or other attractions in the area) Recommended trail flow Mostly tight and technical with some open and flowing sections.
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South Australian Trails Coordinating Committee classifications
Mountain bike trail classification – Severe (class 4) Description Overview Severe trails are suitable for down hill riders with dual suspension bikes who want an experience that is extreme in its nature. Severe trails will be built for down hill riders specifically with race events in mind, but it can be expected that these trails will be used by some members of the public outside of the race events. Severe trails will be single directional for specific use. Warnings will need to deter walkers and other users from using these trails. Severe trails can be designed so that the impacts are greatly reduced. Proper planning and construction will ensure the excessive gradient sections of the trail are made sustainable. Elements for classification Corridor (width) (Min) 1m (height) (Min) 2.5m Tread (minimum width) Min. 30cm Surface Highly variable surface with sections of rock, sand, clay gravel etc. Obstacles may include challenging rocks, logs, jumps and drop offs. Distance Usually less than 5km and often measured in minutes. Trails should take at least one minute, two to four is preferable in regard to the fastest riders. Gradient 10 – 15% sustained pitch with some sections up to 50% Minium turning radius 2m Level of skill /experience A very high level of skill and strength is required. Previous experience is essential and suspension is highly recommended. On-trail facilities Facilities needed are access to roads for shuttle runs. These trails may require additional labour to build and extensive on going maintenance due to intensive use and steep gradients. Maintenance can be minimised by trail armouring and control measures. Trailhead facilities The trailhead will be marked with a sign, specifying the name, distance, classification, multi-use code of conduct (if relevant) and possibly management information. Trailhead signs should include strong warnings about the trail. Car parking may be required. Recommended trail flow Mostly tight and technical wit some open and flowing sections.
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South Australian Trails Coordinating Committee classifications
Horse trail classification – Easy (class 1) Description Overview Easy trails are most suitable for novices: social groups and others seeking relatively short distance trail requiring a basic level of skill and horse & rider fitness. Easy trails are most likely to be fire roads or wide single tracks (bridlepaths) with a gentle grade (not exceeding 10%) and a relatively obstacle free, hardened natural surface. Easy trails are likely to be multi-use and frequent encounters with other users including cyclists, walkers and runners can be expected. Elements for classification Corridor (width) (Min.) 3m (height) (Min) 3.7m Tread 1.5m (minimum width) Note: Short sections of narrower tread (.60m to 1.2m) are acceptable at ground level however 1.5m is required at the height of the rider’s stirrups. Surface Generally a natural surface (topped with dolomite or compacted surface if desired). Hardened surfaces like concrete or asphalt to be avoided due to concussion on horse legs and poor traction with metal horseshoes. Hardened surfaces may be utilised on Rail Trails or other tracks where horses would generally only walk. Distance 0 – 14km Gradient Desired gradient 0 – 10% Maximum 10% Maximum sustained pitch 5% Out slope 4% maximum Minium turning radius N/a Level of skill /experience Novices will require a basic level of riding skill and fitness is required coupled with riding on a trained, experienced horse. On-trail facilities Facilities along the way include mounting blocks, step overs, shallow fords, bridges, watering points, interpretive and/or management signs. Trailhead facilities The trailhead will be marked with a sign, specifying the name, distance, classification, multi-use code of conduct and other relevant information. Trailhead facilities may include car and separate horse float parking, manure receptacle, map dispensers, toilets, drinking water and information shelters. Trailhead facilities may include overnight yarding for horses. (Facilities will be dependent on the number of visitors using the trail or other attractions in the area) Recommended trail flow Open and flowing
# There may be circumstances where trails with a surface and slope similar to class 1 exceed the suggested distance. These trails should be upgraded to Class 2 or 3.
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South Australian Trails Coordinating Committee classifications
Horse trail classification – Intermediate (class 2) Description Overview Intermediate trails are most suitable for individuals and smaller social groups seeking a short to medium distance trail requiring a moderate level of skill and fitness. Intermediate trails are most likely to be a combination single trail and/or fire road with obstacles, variable surface, and a moderate slope. Easy trails are likely to be multi-use and frequent encounters with other users including cyclists, walkers and runners can be expected. Elements for classification Corridor (width) (Min) 1.5m (height) (Min) 3.7m Tread 1.5m (minimum width) Note: Short sections of narrower tread (.60m to 1.2m) are acceptable at ground level however 1.5m is required at the height of the rider’s stirrups. Surface Generally a natural surface is desired and may include sections of rocky ground, sand, clay or gravel. Obstacles such as rocks, logs and gates that require dismounting are likely. Shallow ford crossings are acceptable. (note: SA rainfall conditions vary widely – seasonal conditions may alter depths significantly) Distance Maximum 40km Gradient Maximum 15% Maximum sustained pitch 10% Out slope 4% maximum Minium turning N/a radius Level of skill An intermediate level of riding skill and fitness is required, and a horse with /experience some trail experience and training is recommended. Knowledge of basic horse health including first aid and conditioning requirements is highly desirable. On-trail facilities Facilities along the way include lookouts, bridges, watering points, interpretive and/or management signs, step overs, shallow ford crossings. Trailhead facilities The trailhead will be marked with a sign, specifying the name, distance, classification, multi-use code of conduct and other relevant information. Trailhead facilities may include car and separate horse float parking, manure receptacle, map dispensers, toilets, drinking water and information shelters. Trailhead facilities may include overnight yarding for horses. (Facilities will be dependent on the number of visitors using the trail or other attractions in the area) Recommended trail Generally flowing with some more challenging sections. flow
# There may be circumstances where trails with a surface and gradient similar to Class 2 exceed the suggested distance. These trails should be upgraded to Class 3.
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South Australian Trails Coordinating Committee classifications
Horse trail classification – Advanced (class 3) Description Overview Advanced trails are suitable for individuals and small social groups seeking a very challenging trail requiring a high level of skill, fitness and basic navigation skills. Advanced trails are most likely to consist of challenging sing trail and/or fire road with many obstacles, variable surface, and steep sections. Some trail routes may not be marked at all. Advanced trails may possibly be multi-use so encounters with other users possibly including cyclists, walkers, runners and other stock should be expected, however, many of these trails may be located in remote areas and encounters with others is expected to be minimal. Elements for classification Corridor (width) (Min) 1.5m (height) (Min) 2.5m Tread Min 30cm (minimum width) Note: 1.5m is required at the height of the rider’s stirrups. Surface Usually a variable surface with sections of rock, sand, clay gravel etc. Obstacles may include challenging rocks, logs, fording creeks. Distance Advanced trails can be any length Gradient Maximum 20% Maximum sustained pitch 10% Minium turning radius N/a Level of skill /experience A higher level of skill and fitness is required. Navigation and personal survival skills are highly desirable. Previous riding experience essential. Packing skills may be required. Map reading skills and horse health knowledge is essential. An experienced guide is recommended for riders with limited remote area experience. On-trail facilities Generally facilities are not provided except in relation to specific safety or environmental considerations. Stock holding yards and watering points will be identified on maps but may not necessarily be specifically provided as part of the trail. Permission to access these facilities may be required. Trailhead facilities The trailhead will be marked with a sign, specifying the name, distance, classification, multi-use code of conduct and other relevant information. Trailhead facilities may include car and separate horse float parking, manure receptacle, map dispensers, toilets, drinking water and information shelters. Trailhead facilities may include overnight yarding for horses. (Facilities will be dependent on the number of visitors using the trail or other attractions in the area) Recommended trail flow None.
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10.3 Track classifications – hierarchy of settings and experiences The following tables are taken from material produced by the United States Department of Agriculture Forest Service. They describe a hierarchy of settings and experiences, and therefore provide an excellent resource in assisting with trail and setting classifications. The method reflects a ‘Recreation Opportunity Spectrum’ approach – which is aligned to the use of ‘special places’ in the body of this report.
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Physical Wild-natural- 2 3 4 5 6 remote 1 Prevalence and No impact on Minimal evidence of Temporary to minor Moderate recreation impacts Physical changes as a result of Physical changes as a result permanence of natural condition recreation impacts. recreation impacts evident in heavily used areas. recreation use are obvious and of recreation use are recreation impacts: Impacts which have evident. (eg. Some permanent loss of local widespread with little chance of obvious, widespread and occurred recover Temporary loss of local native vegetation (eg. herbs and recovery. Some altering of permanent – little chance of quickly. (eg. Temporary native vegetation, forbs), loss of leaf litter, soil vegetation recovery. Vegetation loss of local native scuffing of leaf litter, disturbance evident. Impacts persist characteristics/structure. A characteristic and floral vegetation, scuffing of minor soil disturbance, at nodes and along walking tracks. significant proportion of the structure altered. Native leaf litter, etc. in small etc.) Impacts not Sensitive local native fauna may be local native fauna displaced. fauna behaviour and areas which recover to permanent. However, displaced as a result of use. Local native fauna behaviour population changes are pre-impact condition recover to pre-impact Behaviour of other local native and population changes are obtrusive. The natural seasonally) condition unlikely. fauna is occasionally modified. obtrusive. condition is unlikely to Native fauna population changes recover. are noticeable. Viewscape 0% of visual <1% of visual 1 – 5% of visual 5 – 10% of visual landscape 10 – 25% of visual landscape 25 – 50% of visual landscape modified landscape modified landscape modified. modified. Some structures are modified. Structures are landscape modified. (360°) from natural from natural condition. Some structures may evident. evident. Structures are plainly condition be evident. evident. Indicative A totally natural site An almost totally A very natural site or A very natural appearing site or A somewhat natural appearing A somewhat natural appearance (360°) or landscape that natural site or landscape. landscape. Modifications are site or landscape. appearing site or landscape. has not been landscape with very Modifications are semi- permanent, small/minor and Modifications may be Natural elements just affected by modern few modifications. permanent, small/minor restricted to a few dispersed nodes. permanent, moderately large dominate over other technology use. A Modifications are and restricted to a few Natural elements dominate outside and obvious. Large blocks of elements in the landscape. wild, natural, remote temporary, small/minor dispersed nodes. these nodes. Built structures are native vegetation interspersed For example, rural areas area. and very dispersed. Natural elements very rare unobtrusive and rustic (eg. with small areas of cleared with large areas of remnant dominate away from Graded walking tracks, narrow land. Built structures are native vegetation separated nodes. infrequently used vehicle tracks, dispersed but readily apparent by grassland. Built timbered picnic tables). (eg. Walking tracks with structures may be obvious hardened surfaces, well and quite common (eg. maintained unsealed roads, Roads are sealed, picnic timbered picnic areas, areas paved and facilities unobtrusive facilities) are in harmony with surroundings) Prevalence and Totally natural Predominantly natural Predominantly natural Regenerating natural landscape Regenerating natural Part natural landscape. durability of landscape. No landscape with some landscape with with obvious evidence of past land landscape with obvious Land uses (eg. Mineral impacts from non- history of modern, evidence of past evidence of past use (eg. Regenerating mineral evidence of past and present exploration, quarrying, recreation land technological land modern, technological modern, technological exploration, selective logging, land use. Current land uses selective logging, grazing, uses: use. land use limited to a land use limited to grazing, flower harvesting). Some of (eg. Small scale mineral flower harvesting, few isolated small sites some small sites that these land uses may be still active exploration, quarrying, agriculture) currently active that are regenerating. are regenerating. None (covering up to 5% of the area). selective logging, grazing, in a large proportion (20- None of these land of these land uses are flower harvesting, apiculture) 50%) of the landscape. uses are active. active. currently active in a small proportion (5-20%) of the landscape. Naturalness of 100% of natural 97 – 100% of natural 90 – 97% of natural 85 – 90% intact or regenerating. 70 – 85% intact or 50 – 70% intact or overstorey: vegetation intact. vegetation intact. <3% vegetation intact. <7% Remainder cleared or non-endemic regenerating. Remainder regenerating. Remainder
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regenerating. cleared or spp. cleared or non-endemic spp. cleared or non-endemic spp. regenerating. Naturalness of 100% of natural 97 – 100% of natural 90 – 97% of natural 85 – 90% intact or regenerating. 70 – 85% intact or 50 – 70% intact or understorey: vegetation intact. vegetation intact. <3% vegetation intact. <7% Remainder cleared or non-endemic regenerating. Remainder regenerating. Remainder cleared or cleared or spp. cleared or non-endemic spp. cleared or non-endemic spp. regenerating. regenerating. Water quality: Completely natural No detectable Short term and Short term and relatively minor Long term and/or permanent Long term and/or permanent aquatic ecosystem. effect/change in water relatively minor changes to natural stream changes to natural stream changes to natural stream quality or aquatic changes to natural dynamics or marine ecosystem dynamics or marine ecosystem dynamics or marine ecosystem. stream dynamics or and/or water chemistry (eg. and/or water chemistry (eg. ecosystem and/or water marine ecosystem Increased turbidity, nutrient load or Increased turbidity, nutrient chemistry (eg. Increased and/or water chemistry sediment load). Aquatic ecosystem load or sediment load). Aquatic turbidity, nutrient load or (eg. Increased turbidity, is substantially natural. ecosystem is substantially sediment load). Aquatic nutrient load or modified. ecosystem is substantially sediment load). Aquatic modified. ecosystem is substantially natural.
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Physical 7 8 9 Prevalence and Physical changes as a result of recreation use are Physical changes as a result of recreation use are obvious, Physical changes as a result of recreation use are permanence of obvious, widespread and permanent. Vegetation widespread and permanent. Vegetation characteristics and obvious, widespread and permanent. Vegetation recreation impacts: characteristics and floral structure completely altered. floral structure completely altered. Native fauna dominated characteristics and floral structure completely altered. Native fauna dominated by one or two species. Fauna by one or two species. Introduced species common. Fauna Introduced species complete with native fauna. Some behaviour may be intimidating. Some species may behaviour interfering. Some species may display signs of species may display signs of aggressiveness. The natural display signs of aggressiveness. The natural condition aggressiveness. The natural condition exists only in very condition is non-existent. exists only in very small remnant areas. small remnant areas.
Viewscape 50 – 75% of visual landscape is modified. Structures 76 – 99% of visual is modified. Structures may or may not 100% of visual is modified. Structures dominate the visual are clearly evident in landscape but do not dominate. dominate the visual landscape. landscape. (360°)
Indicative Managed parkland with small to large areas of open Managed urban parkland with large areas of open Managed urban parkland with playing fields. Built appearance (360°) space. Built structures and other modifications to the space/playing fields. Built structures and other modifications structures and other modifications to the natural natural landscape dominate. Natural elements exist as to the natural landscape dominate. Natural elements exist landscape dominate. Natural elements are more-or-less scattered remnants, some of which may be quite large. only as small scattered remnants. non-existent.
Prevalence and A wide range of land uses that modify the natural A wide range of land uses that modify the natural landscape Impacts are widespread, pervasive and permanent. Land durability of landscape are active. Impacts are widespread, are active. Impacts are widespread, pervasive and use has completely changed the natural landscape. impacts from non- pervasive and permanent. Part of the natural permanent. Very small areas of the natural landscape recreation land landscape remains but most of this is modified to some remains but most are obviously modified. uses: extent.
Naturalness of 25 – 50% intact or regenerating. Remainder cleared or 10 – 25% intact or regenerating. Remainder cleared or non- <10% intact or regenerating. Remainder cleared or non- overstorey: non-endemic spp. endemic spp. endemic spp.
Naturalness of 25 – 50% intact or regenerating. Remainder cleared or 10 – 25% intact or regenerating. Remainder cleared or non- <10% intact or regenerating. Remainder cleared or non- understorey: non-endemic spp. endemic spp. endemic spp.
Water quality: Permanent changes to natural stream dynamics or Permanent changes to natural stream dynamics or marine Permanent changes to natural stream dynamics or marine ecosystem, structures and/or water chemistry ecosystem, structures and/or water chemistry (eg. marine ecosystem, structures and/or water chemistry (eg. (eg. Increased turbidity, nutrient load, channelisation or Increased turbidity, nutrient load, channelisation or sediment Increased turbidity, nutrient load, channelisation or sediment load). Aquatic ecosystem is substantially load). Aquatic ecosystem is substantially modified. sediment load). Aquatic ecosystem is completely modified. modified.
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Social 1 2 3 4 5 6 Evidence of use Non existent. No evidence Short term and relatively Minor permanent Substantial permanent Readily apparent evidence of use (i.e. Sights, sounds by other people present minor evidence at nodes evidence at nodes and evidence at nodes and and smells) pervades use of nodes, main routes and (eg. Sights, and along main routes. along main routes. along main routes. their surrounds. Nodes may be extensive with heavy sounds and Nodes small, low impact Nodes small low impact Nodes may be moderate concentrations of people and activities. smells): and dispersed. No and dispersed. Negligible in size and concentrate evidence (sights, sounds, evidence (sights, sounds, activities and people. smells) elsewhere. smells) of use elsewhere. Some evidence (sights, sounds, smell of people) elsewhere. Sense of Total High Moderate Moderate to low Low Very low isolation and opportunity for solitude:
Interparty* Non existent. Chance Low. Users are most Low to moderate. Moderate to high. High. Infrequent Very high. Almost no encounters while encounters with others are rare often alone and should Frequent opportunities Frequent opportunities opportunity for solitude opportunity for solitude at nodes and and usually avoidable. be surprised to have to for solitude. Contact with for solitude. Contact with during the day. Frequent during the day. Frequent destinations: share locations with others should be others should be contact should be and unavoidable others. expected, however, it expected and usually expected and unlikely to contacts should be may be avoided. cannot be avoided. be avoided. expected. Interparty* Very few. <1 group per day Low. <5 groups per day Low to moderate. 5-10 Moderate to high. 10-20 High. 20-50 groups per Very high. >50 groups encounters while groups per day groups per day day per day travelling: Dependence Total Very high High Moderate Moderate to low Low upon outdoor skills: Density/ha < 1 1-2 3-5 5-10 10-60 60-150 PAOT**:
* A group constitutes, on average, 4 people or the equivalent to one car. ** Persons at one time.
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Social 7 8 9 Evidence of use by Clearly apparent evidence of other people at Widespread, all-encompassing and permanent. Widespread, pervasive and permanent. other people (eg. Sights, nodes, along main routes and their surrounds sounds and smells): except in relatively small remnant areas. Open areas may be extensive with heavy concentrations of people and activities.
Sense of isolation and Infrequent and usually short opportunities for Rare opportunities for solitude. No or very rare opportunities for solitude. opportunity for solitude: solitude during daylight hours.
Interparty* encounters No opportunity for solitude during the day. Continuous and unavoidable contacts should be Continuous and unavoidable contacts should be while at nodes and Frequent and unavoidable contacts should be expected. expected. destinations: expected. Interparty* encounters Usually constant. Always constant. Always constant. while travelling: Dependence upon Very low No specialised outdoor skills required. No specialised outdoor skills required. outdoor skills: Density/ha PAOT**: 150-250 >250 Unlimited
* A group constitutes, on average, 4 people or the equivalent to one car. ** Persons at one time.
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Management 1 2 3 4 5 6 Access: No motorised Trials exist. Some Rough, unsurfaced and Well maintained roads and Unsealed roads with Most roads and tracks are access what-so- formed and maintained infrequently maintained tracks. Gravel roads following engineered and modified sealed and regularly ever. No tracks or trails may exist. Some vehicle roads may exist. natural features with some alignments. Mostly one maintained. Two lane roads roads. Some evidence of vehicle Formed trails present. steep grades and tight lane, however, some are common. unmarked trails tracks may exist but Some unformed tracks corners. Some formed tracks two lane sections may may exist. these are regenerating. may be present. may be present. exist. Some narrow sealed roads may be present. Formed tracks present.
Evidence of Infrequent, usually Minimum management Minimum management Some management Management presence active. Common construction and management only to monitor presence – only as presence. Infrequent presence. Occasional maintenance activity. Regular patrol by enforcement staff. personnel: resource necessary to achieve construction and construction and conditions. minimum management maintenance activity. maintenance activity. obligations. Infrequent patrols by Infrequent patrols by enforcement staff. enforcement staff.
Presence and None Unlikely, however, signs Minimum road and track Regulatory and directional Interpretation, regulatory or advisory notices, boundary, extent of signage: may be present for names, regulatory notices signs located at key points. and directional signs sufficient to orientate and inform resource protection – and directional signage. Minimum interpretation visitors. few and dispersed. signage.
Rules, regulations Communicated off Communicated off site. Predominantly Some on-site communication. A strong and visible management presence. Frequent on- and law site. Users not Infrequent patrol for communicated off site. Signage and supervision as site communication. Users commonly aware of enforcement: confronted by sustainability monitoring Minimum patrol for required for safety and management. management. and life preservation. sustainability monitoring sustainability. Users Users mostly unaware of and life preservation. occasionally aware of management. Users occasionally aware management. of management.
Presence of None Only constructed where Only constructed where no Structures are small but Structures are readily apparent and can be quite large but management and no other alternative can other alternative can be apparent. However, they are blend in to natural background. visitor be found (eg. found (eg. Communication dispersed and blend into infrastructure: Communication towers). towers). Structures are natural background. Structures are unobtrusive and dispersed. inconspicuous and widely dispersed.
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Management 7 8 9 Access: Roads and tracks are usually sealed. Some use All roads, tracks and paths are sealed or paved. All roads, tracks and paths are sealed or paved. of paving may be present. Unsealed roads and tracks are maintained at a high standard. Two Motorised access available in all places. Motorised access available in all places. lane roads are common.
Evidence of management Management presence active. Regular Management and enforcement personnel are obvious Management and enforcement personnel are personnel: construction and maintenance activity. Frequent and permanent. obvious and permanent. and regular patrol by enforcement staff.
Presence and extent of Interpretation signs and regulatory notices Interpretation signs and regulatory notices frequently Unlimited. signage: common. Boundary and directional signs at all encountered. Boundary and directional signs at all intersections along roads and tracks. Advertising intersections and along roads and tracks. Advertising signs may be present. signs present.
Rules, regulations and law A strong and visible management presence. Frequent and regular education, reinforcement or Constant education, reinforcement or enforcement. enforcement: Frequent and regular on-site communication. enforcement. Users commonly aware of management, rules and regulations.
Presence of management Built structures are large and readily apparent. Built structures are readily apparent and often Large, obvious and attention grabbing. Built and visitor infrastructure: They may be designed to blend into the designed to stand out. Infrastructure is usually provided structures dominate all senses. Unavoidable. surroundings. However, some may stand out. in all public spaces and may be the focus of Some infrastructures may be provided as a focus recreational activity. for recreational activity.
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10.4 West Tamar Bike Plan (1997)
The bike strategy focussed on 12 key initiatives, however there are more recommendations listed as: • 5 recommended education actions. • 12 recommended engineering actions • 4 recommended encouragement actions. • 5 recommended enforcement actions. • A recommended implementation process: through the establishment of a West Tamar Bike Planning Committee.
Recommended education actions The aim for education initiatives is to promote all aspects of bicycle safety and information through a range of education programs. In many instances, this may involve the Council as a facilitator in helping to change behaviour and attitudes about bike riding and improving safety through community awareness. A number of education initiatives have been identified in the following table.
No Recommended actions Responsibility Priority 1 Support, encourage and promote the use of bike Schools and West Tamar High education programs within all schools in the West Council Tamar.
2 Support, encourage and assist with the promotion West Tamar Cycle Club High of the West Tamar Cycle Club bike safety and West Tamar Council. programs to other settlements in the West Tamar outside of Exeter.
3 Support, encourage and assist campaigns to State Bicycle Advisory High educate motorists about the needs and rights of Committee with support cyclists as legitimate road users. from West Tamar Council
4 Support, encourage and assist with the production State Bicycle Advisory Moderate of a cyclist handbook for the state Committee with support from West Tamar Council
5 Further monitor bicycle accident records for the West Tamar Council Moderate West Tamar Council area and take appropriate safety action where possible.
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Recommended engineering actions
No Location Recommended actions Responsibility Priority
Beauty Point to Widen the West Tamar Highway to create a bike Works Tasmania High 1 Beaconsfield lane or develop a separate shared bikeway and pedestrian path within the road reserve. West Tamar Undertake widening and upgrading of the Works Tasmania High 2 Highway south of highway (Beaconsfield to Batman Highway Beaconsfield intersection) to improve cyclist safety given high truck use, narrow pavement and regular use as a training route. Deviot Rd – Undertake a cycling audit of the roads to identify West Tamar High 3 Gravelly Beach specific hazards for cyclists and undertake all Council Rd – Rosevears necessary works. Signpost and promote as a drive scenic cycling route. Review traffic speeds along sections of roads. West Tamar Provide marked bike lanes within the existing Works Tasmania High 4 Highway highway pavement. Extend bike lanes with (Riverside to upgrading and future reconstruction works on Legana) highway. Deal with identified hazards and dangerous sections (e.g. narrowing of highway near Riverside golf club to power station) Ilfraville Develop a shared pathway for cyclist and West Tamar High 5 pedestrian use between the town centre and Council sports oval (currently no footpath provided) Between Ilfraville Develop a shared pathway using existing paths, West Tamar Moderate 6 and Beauty Point open space and upgrading the road edge Council (currently no footpath provided) Beaconsfield Create marked bike lanes along the West Tamar West Tamar Moderate 7 Main Street Highway through the town with connection up Council Grubb Street to schools (sufficient pavement width exists). Remove or adapt current pavement ‘islands’. Exeter main Create bike lanes within existing West Tamar West Tamar Moderate 8 street Highway pavement through the town and with Council connection up Glen Ard Mohr Road to schools Exeter to Provide safe pedestrian and bikeway connection West Tamar Moderate 9 Rosevears drive to allow convenient access along West Tamar Council turn off Highway for inexperienced riders and pedestrians. Riverside Develop safe off road bikeway for school children West Tamar Moderate 10 bikeway from and recreational use from the Riverside golf club council with Tail race to via school lands, local streets and Windsor Park. cooperation of Launceston This could connect with the Tamar foreshore schools Christian School. fitness trail to Patterson Bridge and then other City bikeways. In the long term pursue the possibility of a Tamar foreshore bikeway linking Riverside to Legana. Signpost major For example the West Tamar Highway – West Tamar Moderate 11 cycle training Rosevears drive loop and the Gravelly Beach Council with routes road – Deviot road – Batman Bridge highway – assistance from West Tamar Highway to Exeter circuit. cyclists Tramway – Further investigate feasibility for access on West Tamar Low 12 Beauty Point and tramway as a recreational trail in the long term. Council and Beaconsfield private investor.
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Recommended Encouragement actions The aim for encouragement initiatives is to promote and encourage cycling as legitimate road users for people. A list of recommended actions is provided in the following table. These initiatives indicate the potential for West Tamar to further develop its potential as a major cycling area within the state. At present the area receives considerable use by experienced cyclists for fitness training and some use by recreational riders. However, with the adoption of the Bike Plan, the Council should consider the potential benefits from promoting the area to tourists and the local Tasmanian market.
No Recommended actions Responsibility Priority Develop a marketing plan for promoting West West Tamar Council with High 1 Tamar as a premier riding destination within the assistance from the state. The plan should address both overseas Tamar Gateway visitor, interstate visitor and local Tasmanian population. Prepare a bike map for the West Tamar which West Tamar Council with High 2 promotes the increased use of roads (appropriate assistance of cyclists to bike riding experience) and in particular the Rosevears – Deviot scenic ride. Present possible routes and itineraries that link with natural and cultural attractions, tourist facilities and services. Undertake a range of related engineering actions West Tamar Council High 3 which would directly encourage greater use – marked bike lanes. Removal / modification of street hazards, signposting cycle routes, creating bike way links etc. Cooperate with Tourism Tasmania to develop West Tamar Council Moderate 4 information packages for the wholesale and retail trade markets to encourage tour group interest in the West Tamar.
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Recommended enforcement actions The aim of enforcement is to improve the attitude and behaviour of all road users with regard to the needs of cyclists. A list of recommended actions is provided in the following table. Many motorists appear to treat cyclists as a nuisance on the roads and are completely unaware of the need for predictable driving behaviour when passing cyclists. Inappropriate cyclist behaviour is also a contributory cause to some accidents especially with young and inexperienced cyclists – e.g. coming out of driveways or through intersections without recognition of other users of footpaths or the road. Enforcement programs offer the ability to convey correct messages about road safety.
No Recommended actions Responsibility Priority Encourage Police Tasmania to consider Tasmania Police High 1 bicycle offence reports to help modify cyclist behaviour in a positive way. This may include such things as not wearing helmets, leaving bikes that block footpaths, unsafe bicycle condition etc. Make greater use of traffic infringement Tasmania Police High 2 notices for offending vehicle drivers or cyclists that create unsafe or unacceptable risks on the roads. Encourage Bicycle-Cop enforcement program Tasmania Police Moderate 3 to be undertaken in the West Tamar to help lift the profile of education and encouragement. Support amendments to the Traffic Act to West Tamar Council Moderate 4 allow for cyclists to ride abreast on the roads Support campaigns and information (e.g. West Tamar Council Moderate 5 RACT, Road safety) that address the needs of cyclists as legitimate users of roads.
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10.5 Walking track inventory – Parks and Wildlife Service Parks and Wildlife Service and Forestry Tasmania walking track inventory for West Tamar Council. Taken from the Northern Tasmanian Regional Recreation Trail Strategy. 55
Track Class Track name PWSID FTID Manager PWS class (AS2156)
Badger Beach lookout 1031 PWS W1 Class 1
Badger Head inland track 765 PWS X, R Not classed
Bradys Lookout, West 828 PWS W1 Class 1 Tamar Highway
Deadman knob circuit 793 PWS T1 Class 3
Holwell Gorge 812 PWS T2 Class 4
Hoo Hoo Hut to first basin 820 WTC/PWS T1 Class 3
Little Swan point to 829 PWS W2 Class 2 Gravelly Beach
New Deadman’s Hollow 822 PWS W1 Class 1 lookout
Notley Gorge 813 PWS T1 Class 3
Old lookout – Trevallyn 823 PWS W2 Class 2
Snake Gully 794 PWS VT Not applicable
Supply River 814 WTC/PWS W2 Class 2
Supply River to Swan 815 WTC/PWS W2 Class 2 Point
Swan Point to Little Swan 816 PWS T1 Class 3 Point
Tamar Island walkway 825 PWS W1 Class 1
Trevallyn Dam to Aquatic 824 PWS T1 Class 3 Point
West Head – Pebbly Beach 1030 PWS T1 Class 3
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10.6 Tamar Valley Open Space Strategy (2004) 55
10.6.1 Guiding principles The primary guiding principle under-pinning the regional open space system is the need for open space to contribute to the ecological, social and economic well being of the region. A number of secondary principles guide the nature, forma and process of a successful regional open space system. In principle, a regional open space system should: • Ensure that the natural and cultural values of the region are managed on a sustainable basis. • Include a representation of the broad spectrum of settings available in a region ranging from the highly structured to the predominantly natural. • Provide for a diversity of opportunities for human use and enjoyment and conservation of natural and cultural values. • Provide for a high quality of user experience through appropriate planning, design and management of facilities and services. • Be comprised of individual open spaces whose uses are suited to their biophysical character and are compatible with surrounding land uses. • Be widely accessible to the whole of the community regardless of age, socio-economic status, ability/disability and cultural background. • Seek to link key regional features (other open spaces, community facilities or development nodes). • Reflect defined community needs for access (or non-access) to open space and the uses (or non-use) of open space. • Be managed in an economically and ecologically sustainable manner at the policy, planning, design and day to day action levels. • Be managed in partnership between all levels of government and the public and private sectors.
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10.6.2 Classification of open space in the Tamar Valley Tamar Valley Open Space Strategy (2004) 55
Hierarchy Typology Sub- Local District Regional State National regional Park Charlton St. Reserve
Sport Hoblers Silverdome Bridge reserve
Landscape & Tippogoree amenity Hills f.r.
Linear and Rocherlea linkage rail trail
Foreshore & North Esk waterway river
Conservation Narawntapu and heritage N.P.
Utilities & Northeast services rail line
Undeveloped
10.6.3 Typology Definitions
1. Park open spaces: Parks are defined as open space sites which have been developed to meet a range of non- competitive recreational pursuits in a predominantly informal setting. Parks include playgrounds, ornamental gardens, vantage points and lookouts. They support activities such as walking, cycling, rollerblading, BMX, horse riding, exercising dogs, children’s and adult play, picnicking, sightseeing, social and cultural events, artistic activities and relaxing. Indoor recreation facilities and support amenities such as halls, tourism destinations, clubs, toilets etc. are often provided in association with Parks. 2. Sport open spaces: Sports open spaces are defined as sites used for active, competitive recreation. They include sports grounds used for a wide range of team and individual competitions, golf courses, outdoor sports courts, race tracks, rowing courses, equestrian courses, outdoor pools and rifle ranges. Sports open spaces can have a range of other recreation facilities and support amenities associated with them including halls and sports stadia, club rooms, management buildings, toilet/change facilities, and informal gardens. 3. Landscape and Amenity open spaces: Landscape and Amenity open spaces are defined as sites which have landscape and amenity features and value which warrant reservation and protection ahead of use for other purposes.
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Landscape and Amenity open spaces include buffer areas between differing land use types, small garden and tree plantings in urban and rural areas, rural land which is protected to provide scenic views, and ridge lines which provide a backdrop to urban or other land uses. 4. Linear and Linkage open spaces: Linear and Linkage open space are defined as cycle and pedestrian paths, off- and on-road cycling reservations, unused road and rail reservations, service easements which provide linear reserves and routes. It also includes small pathways and routes which provide links to other open spaces or other public and community venues (e.g. to shops, schools, residential areas). Linear and Linkage open spaces are predominantly for human use but may also serve as wildlife corridors. 5. Foreshore and Waterway open spaces: Foreshore and Waterway open spaces are defined as estuaries, foreshores, beaches, creeks, rivers and lakes and the land and water areas associated with them. Waterway and Waterway open spaces serve a wide range of purposes including recreational use (picnics, nature study, kayaking, canoeing, rafting, trails or tracks), transport, water system management, habitat protection and amenity. 6. Conservation and Heritage open spaces: Conservation and Heritage open space are defined as natural and developed venues, which have vegetation, habitat, archaeological, building remnants, land uses or other features which warrant conservation and protection ahead of their use for other purposes. Conservation and Heritage open spaces include areas of natural vegetation and flora and fauna habitat, botanic gardens and sites, which record aboriginal and European settlement and use of the land. 7. Utilities and Services open spaces: Utilities and Services open spaces are defined as reserves established to provide for a range of essential urban and rural services. They include flood management areas, water catchments, forest harvesting, fire surveillance and control, road development, utilities easements (power, water, gas), sand extraction and other mining activities, airports, railways and noise, dust, visual and other similar abatement zones. 8. Undeveloped open spaces: Undeveloped open spaces are defined as resources, which have been reserved or are to be reserved to meet future needs of each of the other open space categories, but do not include forestry harvesting areas. Undeveloped open spaces would have their eventual uses allocated to them following an assessment of the need for other open space types.
10.6.4 Hierarchy of open space A hierarchy of open space resources refers to the scale of the area served or the catchment from which the resource attracts users. A common hierarchy used by many Councils, for instance, is local, district and regional facilities or resources, each classification referring to the area from which the venue attracts users. Another typical hierarchy is the classification of sports grounds as A, B and C class grounds, this indicating the level of competition they are designed to support. A hierarchical classification of open space resources is an invaluable planning, management and information tool for a Council. From a planning perspective, the position which a facility occupies within a hierarchy provides an indication of the role it is expected to perform and thereby, of the size of the site and the scale and quality of the amenities, services and other resources which could be expected to be provided. These will generally be different for each level of the hierarchy. From a management point of view, the position of a resource in a hierarchy provides an indication of the maintenance inputs which should be, or will need to be, allocated to it and what activities might and might not be permitted to use it. This helps to ensure that limited Council resources are used efficiently and effectively, rather than spending similar amounts on all venues regardless of who or what role they serve.
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From an information perspective, promoting the hierarchical position of a resource helps inform the community and intending users of the standard and sometimes, the cost, of the services and programs, which will be offered.
Each is defined in the following paragraphs. Before providing the definitions, several important points warrant noting in relation to a hierarchy of open space resources. These are: • Destination Focus - An open space resource will not be given a high hierarchical position (eg: State) if, for instance, visitors from Hobart use it as part of a trip to the Tamar Valley. Rather, it would generally only attract a State classification if people came from Hobart specifically to visit or use that venue. • Targeted Outcomes - Venues generally do not, or should not be allowed to "self-select" (or have user clubs select) where they fit in the hierarchy as a result of inaction on the part of the responsible authority. For instance, an equestrian centre should not be allowed to develop as a regional venue at a particular site by default. Rather, the responsible authority should foresee the need for a regional venue and plan ahead so that the best resources are provided at the most appropriate location. In other words open space resources should have a role designated for them by the owning and managing body. As such, adopting a hierarchical framework allows a Council or other planning body to "direct' the outcomes it wants to achieve for particular sites and for the Council or region as a whole. • Balanced Provision - Designating where in a hierarchy each resource fits allows a Council to develop a balanced mix of opportunities. • Focus Priority - Designating where in a hierarchy each resource fits allows a Council to counter demands for action at venues it does not feel appropriate for development while encouraging and supporting action at other more appropriate sites. • Focus Resources - By being clear as to what the purpose of each open space resource is, a Council can carefully "target" how it spends its money, rather than simply spreading it evenly around. It can also use this process as a means of directing, controlling and scheduling use. • Clarity of Purpose - By being clear as to what the purpose of each open space resource is, a Council can deliver certainty to users as well as enhancing their capacity to attract funding and support from external agencies.
10.6.5 West Tamar Council Current Situation Based on the assessment of the open space classification of West Tamar Council open spaces, the Council is shown to have a total of 132 open space areas. The majority of these areas are classified as Utility (29 areas), similarly, 28 areas are classified as Sport, and 25 areas have been classified as Park. Most of the West Tamar open spaces are categorised as being of Local (85) scale, with 4 Regional and no State or National scale open space areas.
Future Opportunities The key opportunities for future development of open space with the West Tamar Council area include: • the protection of key landscape elements, particularly Mt Careless, Observatory Hill, the Dazzler and Asbestos Ranges, Grassy Hut Tier, Cabbage Tree and Salisbury Hills, the Tamar Estuary Foreshore and Bass Strait Coast; • the integration of open space planning and management with the recommended trail links of the Regional Recreation Trails Strategy and other commuter and recreation trail links, including; • continuation of foreshore trails around the Tamar Estuary for integration with the Tamar Estuary Trail, particularly Greens Beach to Yorktown, and Tamar Island to Tailrace Park, and • dedicated cycle paths along the West Tamar Highway for integration with the Tamar Estuary Trail;
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• the reservation of Priority A and B native vegetation areas as identified within the Tamar NRM Strategy, particularly; • the areas of priority vegetation surrounding existing reserves such as near the Mount Careless Forest Reserve and Four Springs State Recreation Area; • areas of priority riparian vegetation such as those along the Supply River and Cormiston Creek; • other areas of priority vegetation such as the Shrubby Eucalyptus ovata/Eucalyptus viminalis forest to the northwest of Exeter (in the Supply River vicinity), the Shrubby Eucalyptus ovata/Eucalyptus viminalis forest and woodlands surrounding Yorktown; • the integration of open space to reduce the edge effects upon and the fragmentation of existing reserves, including: • land parcels adjoining Narawntapu National Park, and • land parcels between Andersons Creek and Dans Hill Forest Reserves.
Legana/Riverside Case Study Area Existing Open Space The key features of the existing open space within Riverside – Legana area are: • the upgrading of Tailrace Park as a major foreshore park attracting local residents from the greater Launceston area and catering for visitors passing through; • the existing foreshore trail within Riverside which connects to trails in Cataract Gorge, Kings Park and through to Inveresk; • the large areas of open space created as easements for powerlines through the urban Riverside area; • the extent of developed sportsgrounds both public and private within Riverside e.g. Windsor Park, Riverside Golf Club, Riverside swimming pool, and various school properties; • a number of small parks distributed within Riverside to service local residents with topography often limiting access to a wider community; • the Tamar Island walk accessed off the West Tamar Highway and a significant visitor destination within the Tamar Valley; • potential for powerline and gas pipeline easements given the disturbed nature of these areas (e.g.. Trevallyn to Tailrace Park); • the principal open space area within Legana being the Legana Recreation Area with sportsgrounds, tennis courts and club facilities; and • the foreshore reserve at Legana which provides access to the foreshore and minor play equipment.
Key Issues The key issues with the current open space are: • the lack of a continuous regional recreational trail around the Tamar Estuary which would link together the urban areas of Launceston with Tamar Island and potentially Legana in the longer term; • the lack of well developed trails or tracks which connect the open spaces and community facilities other than the Riverside foreshore trail; • the potential lack of developed passive open space within the Legana area given the expected increase in population; and • the difficulty with foreshore access in some locations due to private land tenure, flooding and potential habitat values which require protection.
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Consultation with the Council indicated there had been community interest in upgrading footpaths and recreational trails and tracks within the Legana and Riverside areas, and in particular for improved access to the foreshore. Given the number of local open spaces, Council should seek to consolidate development at some key larger open spaces and look at acquiring open space through residential subdivision or contributions to achieve more useable open space or to upgrade facilities at existing parks and reserves.
Strategic Response The key strategies for the open space within the Legana - Riverside area are illustrated in Map 5.4 and Map 5.5 (refer to Regional Open Space Report) 55 , are: • Support current Council and PWS interest in seeking investigations into the feasibility of securing a foreshore connection from Tailrace Park to Hunter Cut, historic gun emplacement site, Windsor Park and potentially to continue onto Tamar Island. • Seek open space connections and contributions from subdivision within Riverside so as to achieve links and viable local open space e.g. Lachlan Parade - Newlands Street, Lachlan Parade – Cherry Road, along watercourses, Alison Avenue – Penrith Street – Dion Court – Riverside Drive, off Tamar View Drive etc. • Potential to secure within any new open space identified areas of Priority A and Priority B remnant vegetation especially within the Legana area. • Prepare a master plan for upgrading and maintaining the sports oval site at Legana as a sub-regional facility catering for competitive sports and possibly catering for a range of passive recreational activities. Chapter 5:Strategic Response in the Tamar Valley 69 • Upgrade and extend the footpath from Legana along Freshwater Point Road to the Tamar Estuary with foreshore connections to the dog exercising area off Nobelius Drive and possibly to the former boat ramp location16; • Consider development of open space area for a major play facility on land adjacent to the Legana Recreation Area and behind the shopping complex in favour of acquiring additional local open space areas. • Seek open space connections and contributions from subdivisions within Legana so as to achieve links and viable local open space e.g. Freshwater Point Road – Alawoona Street – Bindaree Road, Weetman Street, Legana Grove – Legana Recreation Area. • Investigate in the longer term, after securing a foreshore trail from Launceston to Tamar Island, the opportunity for extending the trail from Tamar Island to join Legana. • Consider the merits in selling off open space land on Acropolis Drive.
134 References
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