This document is made available electronically by the Minnesota Legislative Reference Library as part of an ongoing digital archiving project. http://www.leg.state.mn.us/lrl/lrl.asp The Minnesota DNR Trail Plan: A Discovery Process Prepared by members of the Trail Planning staff of the Trails and Waterways Unit Minnesota Department of Natural Resources St. Paul, MN 55155 September 4, 1984 ABSTRACT The DNR trail program, which began in 1967, includes 9,700 miles of grants-in-aid, state, and DNR unit trails. Survey results indicate that more trails are desired, but awareness of existing opportunities is low. A process is established whose aim is to provide the public with an appropriate level of trail opportunities utilizing existing trails and public land wherever possible. A period of intensive use-monitoring is proposed to ensure greater cost-effectiveness and user satisfaction. The DNR's role in a comprehensive trail system is defined. Recommendations are presented to eliminate or minimize design, development and management problems. Funding, access for disabled persons, off-road vehicles, youth hostels and other concerns are discussed. "We shall not cease from exploration, and the end of all our exploring will be to arrive where we started and know the place for the first time." T. S. Eliot ii TabIe of Contents x Executive Summary I Chapter One. The Minnesota Trail Scene 2 Why Trails? 6 History of the DNR Trail Program 10 The DNR Trail Program Today II Other Trails in Minnesota 12 Trail Related Organizations 17 Chapter Two. Scope of Plan 18 Purpose and Scope 21 Development of the Plan 26 DNR Trail Policies and Guidelines 30 Other Applicable Constraints 31 Chapter Three. Supply and Demand 32 Trail Distributiorl 39 Trail Use 45 Discussion: How Much is Enough? 49 Supply and Demand Indicators 60 Conclusions 63 Chapter Four. Trail Location 65 Location Criteria 84 Trail Suitability Map 86 Location Alternatives Generation 91 Recommendations 93 Chapter Five. State Trails: Role and Recommended Allocation 94 Policy Perspective 97 Determining the Complexion of the State Trail System 108 State Trail System Recommendations 110 State Trail Allocation 127 Building Blocks of the State Trail System 129 Chapter Six. Grants-in-Aid Trails: Role and Recommendations Allocation 130 Role of Grants-in-Aid Trails 133 Recommended Allocation of Grants-in-Aid Trails 139 Chapter Seven. DNR Unit Trails: Role and Recommendated Allocation 140 Role of Unit Trails 142 Recommended Allocation of Unit Trails 145 Procedure for Determining Unit Trail Budgets 147 Chapter Eight. Design, Development, and Management Options and Recommendations 148 Design, Development, and Management Issues and Concerns 154 Alternatives and Recommendations for Resolving Trail-Related' Concerns 193 Integrating Trails into Communities iii Chapter Nine. Special Topics 197 Explore Minnesota Trails: A Collection of Trails and An Affiliation of Agencies 202 Multiple Use of Trails 205 Allocating Mileage by Trail Type 207 Design Preferences 210 Bicycle Trails vs. On-Road Bikeways 212 Grant-in-Aid vs. Permanent Trails 214 Use of Trails by People with Physical Disabilities 216 Hostels 219 Involvement in Federal Trail Initiatives 222 Monitoring 223 Advertising Trails 227 Interpretation 229 A Trail Volunteer Program 231 User Fees 234 Hunting on State Trails 240 Off-Road Vehicles 249 A Directional Routing System for Snowmobile TraiIs 251 Adequately Funding Ongoing Trail Rehabilitation and Maintenance 253 Right to Occupy Chapter 10. Irnplementation 258 Implementation 260 Evaluation Appendix* A Sufficiency and Locational Indicators B The User's Map and Handbook C The Landowner's Handbook D Staffing Projection Formula for State Trails E Amending N.R. 20--Rules and Regulations of the Department of Natural Resources F Off-Road Vehicles Bibliography G Development Status of Existing Trails H List of Public and Agency Meetings I DNR Personnel Meeting Results - Fall 1980 J Methodology for Computing Trail Use and Trail Capacity K Registry of Recreational Trail Mileages L Candidate "Explore MN Trails" M DNR State Trail Policy N Survey Instrurnents and Statewide Tabulations o Minnesota Trails Policy Plan P Synopsis of State Trail System Plans from Other States * Not includede Available through DNR Trails and Waterways Unit. iv List of Figures Figure Description I. Authorized State Trails and their Planning Status. 7 2. Summary of State Agency Roles. 15 3. Minnesota Trails: What People Want. 22-23 4. Determinants of the Plan. 30 5. Primary Contributors of Trail Mileage, by DNR Region (Map). 33 6. Distribution of Trail Miles by Administrative Unit. 35 7. Minnesota Bikeways (Map). 37 8. Recreational Land Trails (Map). 38 9. Distribution of Snowmobiling (Map). 40 10. Distribution of Cross-Country Skiing (Map). 41 II. Distribution of Bicycling (Map). 42 12. Distribution of Hiking and BackPacking (Map). 43 13. Distribution of Horseback Riding (Map). 44 14. 1980 Trail Mileage and 1978 Levels of Use. 48 15. Responses to Questionnaire on Supply and Demand for Statewide Trails. 50 16. SCaRP Projections of Recreation Occasions Occurring Within Economic Development Regions Between 1978 and 1990. 53 17. 1978 SCORP Indicators of Relative Need for Trail Activities. 55 18. Yearly Snowmobile Registrations. 58 19. Summary of Supply and Demand Indicators. 60 20. Importance of Location. 65 21 •Topographic Roughness (Map). 68 22. Proximity to Water (Map). 69 23. Vegetation by Forest Cover TyPe (Map). 70 24. Agricultural Productivity (Map). 73 v List of Figures (cont'd) Figure Description 25. Historic Travel Routes (Map). 75 26. Location of Services: Resorts and Campgrounds (Map). 77 27. Public Transportation: Location and Frequency (Map). 79 28. Population (Map). 81 29. Public Lands (Map). 83 30. Generalized Levels of Relative Trail Suitability (Map). 85 31. Alternative A: Trail Priorities Based on Public Land (50%) and Trail Suitability (50%) (Map). 88 32. Alternative B: Trail Priorities Based on Population (50%) and Trail Suitability (50%) (Map). 89 33. Alternative C: Trail Priorities Based on Public Land (25%), Population (25%), and Trail Suitability (50%) (Map). 90 34. Minnesota's Recreational Landscapes for Trails (Mqp). 103 35. Essential Characteristics of Minnesota's Recreational Landscapes for Trails.. 104 36. Guidelines for Minimum Trail Length. 106 37. Number of Existing Long-distance Trails in Each Recreatjonal Landscape for Trails. 112 38. Three Recreational Landscapes for Trails Portrayed. 113 39. Proposed Evaluation Framework for Candidate State Trails. 114 40. Horseback Riding. 116-117 A. Trail Suitability (Map). 116 B. Existing Use (Map). 116 C. Projected Additional Demand (Map). 117 D. Priority Group (Map). 117 41. Snowmobiling. 118-119 A. Trail Suitability (Map). 118 B. Existing Use (Map). 118 vi List of Figures (cont'd) Figure Description C. Projected Additional Demand (Map). 119 D. Priority Group (Map). 119 42. Cross-Country Skiing. 118-119 A. Suitabi1ity (Map). 118 B. Existing Use (Map). 118 C. Projected Additional Demand (Map). 119 D. Priority Group (Map). 119 43. Hiking and Backpacking. 120-121 A. Suitabi Iity (Map). 120 B. Existing Use (Map). 120 C. Projected Additional Demand (Map). 121 D. Priority Group (Map). 121 44. Biking. 120-121 A. Trail Suitability (Map). 120 B. Existing Use (Map). 120 C. Projected Additional Demand (Map). 121 D. Priority Group (Map). 121 45. Trail Priority of Recreational Landscapes for Trails (independent of existing trail opportunities) 122 46. State Trails may serve as Building Blocks for a Larger Minnesota Network. 126-127 47. Elements Contributing to the Funding Priorities of Grant-in-Aid Development. 135 48. Funding Priorities for Grant-in-Aid Development of Snowmobile Trails. 136 49. Allocating Unit Trails: A Two-Step Process. 143 50. Living Along Trails -- What People Expect and Find. 152 51. Signing of Support Facilities. 154 vii List of Figures (cont'd) Figure Description Page 52. Public Access - Alternatives. 155 53. Access Crossings - Alternatives. 156 54. How Trails Might Limit Access of a Landowner to Adjoining Property. 157 55. Trail Crossing for Farm Equipment 158 56. Trail Underpass for Cattle. 158 57. How Trail Use Might Invade Privacy. 161 58. Invasion of Privacy - Alternatives. 162 59. Locating a Trail to Preserve Privacy. 163 60. One Homeowner's Solution: A Privacy Fence. 163 61. Vandalism/Trespass - Alternatives. 164 62. Two Solutions to Keep Trail-Users on the Treadway. 165 63. Reducing Land Use Conflicts. Modifying Width of Right-of-Way. 168 64. Trail Conflicts with Agricultural Land Use. 169 65. Trail Land Exchange. 169 66. Encroachment of Field onto R.O.W. 170 67. Physical Barriers Installed along Right-of-Way. 171 68. Land-Use Conflict in Agriculture: Alternatives. 172 Encroachment - Alternatives. 173 70. Land-Use Conflict in Logging and Mining: Alternatives. 174 71. Dual Treadways to Minimize Use Conflict. 177 72. User Conflict - Alternatives. 179 Unauthorized Use of Treadway. 180 74. Unauthorized Use of Treadway - Alternatives. 181 75. Trail Entrance Baffle Gate to Prevent Unauthorized Use. 182 Land-Use Conflict in Vegetation Management: Alternatives. 184 viii List of Figures (cont'd) Figure Description 77. Disturbing Desired Vegetation: Alternatives. 184 78. Trail Users May Disturb Livestock. 185 79. Disturbing Wildlife/Farm Animals: Alternatives. 186 80. Preventing Livestock Disturbance. 187 81. Litter - Alternatives. 188 82. Camp Fires and Controlled Burns - Alternatives. 189 83. Integrating Trail into Communities - Alternatives. 192 84. How