Introduction

Over the course of the next three chapters, the core components of the trail building process—planning, design, construction, funding, post-construction monitoring and maintenance, and marketing and promotion—will all be discussed.

Planning Considerations

Trail Idea

The idea for a trail often starts with one individual or a central organization that provides the momentum for driving the early phases of trail development. Although the idea may sprout up within a particular segment of the community, it is important to find one or two individuals who are willing to be early advocates that can help bring the trail idea to life. These people spearhead the project and make an investment of time in acting as early stewards of the trail. Frequently, they already have some role in community leadership and are passionate and persuasive in their advocacy for the trail. “Priming the pump” in this fashion helps get early local community endorsement and, in many cases, can help identify other leaders and secure funding.

Community Engagement

After a trail idea is conceived, and a community leader has been engaged, the next step that logically follows is the creation of a local planning team that is comprised of both community members and the appropriate representatives of the local land planning and/or land managing agencies. Community engagement is critical at this stage in the planning process, as the more a community is engaged in the trail planning process, the more likely they will be to support and participate in the trail project. Early public listening and information sessions should be held to hear and share ideas and to inform residents of the planning process and address early potential concerns. This type of early engagement helps foster a sense of investment, ownership, and identity in the trail. Trail advocates and trail planners should take every opportunity to solicit and incorporate public ideas and sentiment and continue to make this an important part of the trail planning process moving forward. Again, this effort helps create a sense of collective support and coalition building.

Concept Development

The creation of a local planning team will help facilitate the conceptual development of the trail as the team begins to put details into a draft plan. Considerations such as the location of the trail route, inventories of existing features that need to be incorporated into the trail, potential uses of the trail, maintenance considerations, and some general cost estimates for a budget are all key components of a trail plan.

Any early trail plan must be consistent and compliant with local land use planning laws and policies and compliant with both state and federal laws. In Michigan, certain natural features such as wetlands, sand dunes, natural rivers, designated environmental areas, and other sensitive areas are protected under state law (EGLE n.d.). All relevant regulations must be acknowledged and adhered to within the plan.

User Considerations

Part of the early public engagement will help identify the types of trail users for whom the trail is intended. Typical uses like biking, walking, hiking, mountain biking, horseback riding, off-road vehicle riding, winter uses (e.g. cross-country skiing and fat tire snow biking), and various other uses should all be evaluated. At this stage, preliminary decisions should be made about the designated uses of the trail (i.e., the types of recreational uses that the trail has been designed for) and permissible uses (i.e., the types of uses that a trail allows but has not been designed for). An example of this dual planning approach is that some trails may be designed for hiking and biking use but can also accommodate equestrian use. It is important to try to accommodate as many reasonable uses of the trail as the community has expressed a desire for in the trail.

With multi-use trails, it is important to take additional care in planning and designing the trail in such a way as to minimize user conflict. Trail planners must remember that although they may try to accommodate all uses of a trail, not all trail uses are necessarily compatible. There should also be some consideration for potential future uses of the trail as emerging uses such as expanding e-bike use and other forms of trail activities are arising that may prompt additional trail user needs. A well-designed trail that looks forward to potential uses can help minimize future costs in both development and maintenance of the trail.

User conflicts often stem from one user or group interfering with the experience of another user or group. To avoid such conflicts, it is important to try to spread out users and communicate expectations via signage and other materials. Proper communication and enforcement of trail rules can also help users become aware of the rules of the trail. Trail design is also important as poorly designed site lines and speed conditions can cause unnecessary conflicts. In some cases, multiple uses of a trail simply should not exist, and there may be a need to provide separate trails for different user groups.

Regionalization

There is a growing acknowledgment of the need to regionalize trails and trail systems so that within a particular geographic region, there are as many opportunities for trail uses as planners have identified through the planning process. This regional planning approach is important to avoid direct conflict on existing trails and provide a wide range of users the opportunity to access trails within the region. The Michigan Trailways Act (MTA) specifically authorizes the creation of hybrid forms of trail management authorities by allowing for communities within and adjacent to a regional trail system to develop a management council that coordinates trail activities throughout the trail corridor. This is an important tool that can help bind communities together with a common plan in managing a regional trail. For that reason, consideration should be given to establishing a regional trail plan that works with other local units of government and the state in fashioning such a regional approach.

In many situations, there may be an opportunity to connect a new trail to a larger nearby trail system, and to join both land and water trails within the same region. To the extent possible, any route selected should offer access to a variety of scenic, geologic, historical, and cultural resources. Man-made features that make the trail unique such as covered bridges, historical artifacts, and other existing structures that may have been present at the time of the early use of the corridor also may help trail users connect with the trail and the surrounding area.

Location and Route Planning

Selecting the Route

When selecting possible routes, a common approach taken by planners is to examine area maps to select a tentative route. Topographic maps and aerial photographs are invaluable tools at this stage. There may be a series of preexisting informal or “social trails”, which have been created through repeated foot traffic from people and animals. These social trails may form the basis for a more formal trail. Of note, social trails often follow fall lines and not proper grade topographic (topo) lines, so while they may give an idea of where trail users want to go, the exact route may need to be reworked to pass muster with regard to sustainable natural surface nonmotorized routing. Trail planners should take stock of existing corridors like abandoned rail corridors and utility corridors and consider how they may be incorporated into a new route. The opportunity to use public lands should also be considered, and any such consideration should be thoroughly reviewed by the appropriate land managers to determine if trail development is a possibility. At every stage in route planning, the presence of and potential impact on private property rights must be a priority consideration for trail planners.

It is important to avoid any natural or cultural features that may be negatively impacted by trail use such as wetlands, rare or endangered animal species habitats, and historic sites. Areas of invasive vegetation and rocky or steep slopes are also generally unsuitable for trail development.

Once a tentative route is selected, the route can be easily mapped using a handheld global positioning system (GPS). GPS units work with satellites to identify the latitude and longitude of a location. GPS data can be converted into geographic information system (GIS) files, which can be compared with other data and used to avoid areas like defined wetlands, rare and endangered plant and animal habitats, property boundaries, and other key natural and cultural features.

Trail Features

Trail features are points of interest (either natural or man-made) located along a trail that add appeal and/or difficulty to the trail. Trails that are interesting and unique tend to become more popular than others without such features, so in any examination of potential routes, planners should try to find those routes that have “control points” (i.e., key points of interest where people want to go such as a scenic overlook or near a body of water). This examination is often completed during the trail inventory phase in which those key features can be clearly marked on the route map. Natural features such as ridgelines, cliffs, water features (e.g., stream crossings, waterfalls, ponds, etc.), historic and cultural features, large or interesting trees, and unique plants are all key assets in making a trail unique and appealing. Man-made features such as berms, bridges, jumps, stairs, drops, and switchbacks can also be incorporated into the trail.

Maintenance Considerations

One of the important factors that must be considered during the trail planning stage is the ability to maintain or sustain the trail in a cost-effective manner. For that reason, trail maintenance should be factored in at every stage of the trail building process. Ultimately, the development of maintenance guidelines and standards will be essential in assuring the safety and continued life of the trail. A trail plan should always include a full understanding of both the short-term and long-term maintenance costs and ensure there are sources of funding available to help meet those costs.

There are a variety of cost estimate categories that should be incorporated into building the trail. Some of the categories that influence cost include planning and design services, construction permit costs, trail surfacing, terrain and soil type of the trail, length of the trail, construction and installation of trail features, added amenities, signage, and the cost of labor.

Fund Development

Fundraising will be explored in a subsequent chapter, but having a firm idea of where funding can be obtained is a critical component of the trail planning process and a foundational element that is often elusive. Though it may take time to fully evaluate the total cost of a trail, fundraising should begin as soon as the planning team has developed a good conceptual design. This is where having persuasive and passionate individuals who can become advocates for the trail can be an asset to the trail planning team. The formation of partnerships with nonprofit organizations and area businesses that are willing to help fund and take donations is an important effort to undertake. Michigan is fortunate to have state funding programs that can provide significant and stable streams of funding. There are also several federal grant programs that support trail building and maintenance. Other common sources of funding include local millages and gifts/donations. Business and corporate sponsorships can also provide additional funding support for trails, particularly as trails become more and more of a community need and a desirable component of community building.

Design Considerations

Tread and Clearance

When designing the physical construction of the trail, there are several important criteria to consider such as tread width (i.e., the actual walking surface of the trail), whether the trail will have a natural surface or an “improved surface” and the trail clearance (i.e., the vertical height of a trail corridor) (see Exhibit 1).

Trail Surfacing

There are a variety of trail surfaces that should be considered in the trail plan when selecting surface materials (see Exhibit 2). Decisions should be based on the expected uses of the trail, how comfortable and safe the surfaces will be for the users, and how well the surface material will stand up to the forces that affect surface life, such as compaction, displacement, and erosion. If constructed properly, trail tread stability on natural surface trails can be maintained indefinitely even in areas that include steep slopes and rocky areas. Singletrack natural surface trails are unique in that they utilize a battery of techniques to ensure sustainability without the use of man-made surfacing or aggregate. These include not only consideration of trail grade, but also the creation of proper out-sloping, rolling grade dips/reversals, and drainage basins on the trail corridor. American with Disabilities Act (ADA) compliant trails are required to have a “firm and stable surface without obstructions” (e.g., pavement, boardwalk, and even hard-packed dirt).

Trail Grade

Trail grade is the steepness, or slope, of the trail. Generally, any grade over ten percent is considered steep. The maximum grade is the steepest section of the trail that is more than ten feet in length, and the average grade is the steepness of a trail over its entire length. Cross slope is the side-to-side slope of a trail. Trail grade is an important design consideration as it influences the relative difficulty and erosion potential of a trail. ADA compliant trails should not exceed five percent slopes and have a cross slope of greater than two percent.

Rail Trail Conversions

Rail trail conversions are among the most popular types of trail both in Michigan and in a number of other states. One of the reasons Michigan is a trail-rich state is that the presence of abandoned rail corridors have allowed for numerous conversions into recreational trails. A rail trail is a former railroad corridor that has been converted into a multi-use path, typically for walking and cycling, and sometimes for horseback riding, snowmobiling, and other motorized vehicle uses. Rail trails are almost always linear, long, and flat. Once the tracks and ties have been removed from the old rail corridor there is usually about fifteen to twenty feet of ballast (i.e., the rocky substructure that supports trains) remaining on the rail corridor from which to provide a firm foundation to construct the trail.

ADA Accessibility

Trail planners should ensure that the trail construction takes advantage of as many opportunities as are available so that the trail is ADA accessible. This is often a requirement to obtain different types of state and federal funding. Designing an ADA compliant trail must take into consideration the unique needs of individuals with disabilities when planning and designing the trail. It should be a given that all trail planning efforts should try to provide as much equitable access to trails as possible. Trails must conform with the legal accessibility guidelines and standards to be considered accessible. Accessibility is also a precondition to obtaining a Pure Michigan trail designation: “…Where feasible, the trail offers adequate support facilities for the public, including parking, sanitary facilities, and emergency telephones, that are accessible to people with disabilities and are at reasonable frequency along the trail” (MCL 324.72103[h]).

While there is currently no requirement for natural surface nonmotorized trails to meet ADA standards per ADA guidelines, many trail builders and managers are voluntarily heading in this direction. For example, more and more mountain bike trail builders are finding ways to make natural surface nonmotorized trails which can provide for both traditional features and structuring of a natural surface nonmotorized singletrack while also providing a level of accessibility (American Trails 2022; The Unpavement n.d.; Vermont Mountain Bike Association n.d.).

Mass Transit Opportunities

One of the more significant features of the Great Lake-to-Lake Trail that runs between the cities of South Haven and Port Huron is the accessibility to mass transit opportunities through the use of the Amtrak railroad system. In urban areas, trails can provide important links in a mass transit network. Whenever possible, trails should be integrated with mass transit opportunities to provide a seamless transportation network throughout the area. Recent amendments to the MTA include language to encourage development of a trail that is coordinated with mass transit opportunities.

Amenities

Designing a trail also includes ensuring that various amenities are available for trail users, as amenities can make the trail system more attractive and enjoyable. Those amenities should be included at appropriate locations throughout the trail. Trailhead and staging areas generally provide great opportunities for amenities like parking facilities, restrooms, and drinking water infrastructure. Other examples of amenities include benches, picnic tables, waste and recycling receptacles, dog waste stations, bike racks, bike repair stations, and water pumps.

Signage

There are three basic types of signage that should be considered as part of the planning process. Regulatory signs inform trail users of selected laws or regulations for trail use, warning signs are used to caution hazards along the trail and, information and wayfinding signs provide trail users with information that is not necessarily required by law but enhances a user’s experience. Signage provides important opportunities for users to be made aware of trail conditions and to feel comfortable and safe on a trail. It is important to remember that a user will often not engage with a trail if they feel intimidated or lost.^[1]

Construction Considerations

Constructing the trail is a significant undertaking, and for that reason many trail building construction projects are delegated by contract to professional trail construction firms that are experienced in the field of trail building. Ensuring proper construction will help enhance sustainability and reduce maintenance costs in the future along with generating additional support from local citizens who see a trail that is well-built and well-maintained. In turn, if the community makes a sustained commitment to long term safety and accessibility of the trail, it can help to provide additional access to state and federal funds.

Evaluation and Monitoring

Once a trail is constructed, it is important to conduct regular evaluation and monitoring activities to ensure the trail is meeting the agreed-upon standards laid out in the trail plan and provide opportunities to make evaluations for whether changes need to be made. There are a host of evaluation and monitoring considerations like monitoring trail use traffic, conducting routine maintenance inspections, assessing environmental impacts, checking on user conflicts, and checking for safety and security issues on the trail.

Labor

As mentioned earlier, many trail managers seek out professional trail building organizations and contractors. They provide specialized expertise and knowledge in trail construction methods. However, these services can be expensive. The opposite end of the spectrum in terms of labor sources are volunteers that can provide free labor, but generally do not have the kind of trail building expertise that is necessary for many types of trail construction. Many trail projects utilize a hybrid approach, combining both professional trail-building firms and volunteer labor.

Leveraging Volunteer Groups

Managers of larger and longer natural surface trails often rely upon volunteer groups to assist in some level of both trail construction and maintenance activities. Many trail organizations have established programs that make regular use of volunteers for both building and maintenance projects (e.g., the North Country Trail Association and the Michigan Trail Riders Association). Michigan’s statutory Adopt-a-Trail program provides incentives for volunteers to get involved, and there are many benefits that are provided to volunteers from trail organizations such as recognition programs and activities that celebrate volunteer labor.

Successful volunteer labor efforts help bring a source of pride to the community in the efforts that they put into trail building and maintenance. In addition, trained and experienced volunteers are generally knowledgeable in specific conditions of a trail and can make quick and effective repairs when necessary. They can also help provide additional fundraising capacity and positive publicity for the trail and efforts to connect with the community.

Tools

There are a number of physical tools that are involved in both trail building and maintenance activities. Significant caution should be exercised when allowing volunteers to work with certain trail building tools. There are three main categories of tools used in trail building and trail maintenance:

• Hand tools (e.g., lopping shears, handsaws, Pulaskis, shovels, etc.)
• Power tools (e.g., chainsaws, drills, etc.)
• Mechanical equipment (e.g., tractors, skid steers, excavators, etc.)

Only people who are adequately trained and licensed should be allowed to use certain tools and equipment. Trail managers must always remember to keep safety protocols in place when utilizing tools on the trail.

References

American Trails. July 5, 2022. “Adaptive Mountain Biking Trail Design for Accessibility and Reduced Risk.” Youtube.com. Accessed June 8, 2024. https://www.youtube.com/watch?v=l_jMtdqRKDA

Michigan Department of Environment, Great Lakes, and Energy (EGLE). n.d. “Environmental Areas.” Michigan.gov. Accessed May 28, 2024. https://www.michigan.gov/egle/about/organization/water-resources/shoreland-management/environmental-areas

Ogemaw County Economic Development Corporation (EDC). December 9, 2019. Ogemaw County’s Iron-Belle Trail Master Plan. West Branch: Ogemaw County EDC. Accessed May 30, 2024. https://www.ocmi.us/wp-content/uploads/Ogemaw_County_Iron_Belle_Master_Plan.pdf

The Unpavement. n.d. “Home.” theunpavement.org. Accessed June 8, 2024. https://theunpavement.org/

USDA Forest Service. Trail Construction and Maintenance Notebook: 2007 Edition. Missoula: Missoula Technology and Development Center. https://cdn2.assets-servd.host/material-civet/production/images/documents/2007-USFS-Trail-Construction-and-Maint.pdf?dm=1620062854

Vermont Mountain Bike Association (VMBA). n.d. “Adaptive Riding.” VMBA. Accessed June 8, 2024. https://vmba.org/adaptive-riding/