Mountain Biking Task Force Report

Transcription

1 C I T Y O F P O R T M O O D Y Mountain Biking Task Force Report Photo courtesy SPOKE June

2 Table of Contents Table of Contents... 2 Section 1: Introduction... 3 Section 2: The Process... 3 Section 3: Preamble... 5 Mountain Biking in Port Moody... 5 Guiding Principles... 6 Key Issues... 6 Section 4: Recommendations Mountain Biking and the Environment Environmental Guidelines for Sustainable Trails Identifying Trail Problems on Existing Trails Unauthorized Trails Risk Management and Liability for Trails Multi-User Conflict/Public Safety Guidelines Partnerships and Volunteers in Parks Considerations for New Trail Proposals...11 Provision of Technical Trails and Bike Park Recreation Access Operations and Maintenance Issues Public Education and Signage Considerations...13 Section 5: Conclusion...15 Section 6: Reference Material...16

3 Section 1: Introduction City Council established the Mountain Biking Task Force in The members of the Task Force include: Councillor Mike Clay, Chair Elaine Golds Nels Guloien Joel Johnston Rod MacVicar* Jim Mattson* Eric Vance Brandon Elliott Diane MacDougall Julie Pavey, Staff Liaison * denotes members of the Task Force who resigned. The purpose of the Task Force is to develop a policy framework for the management of mountain biking on City-owned parkland. The Terms of Reference for the Committee set out the following tasks: 1. Review of existing policies for mountain biking in City parks (Official Community Plan, Environmentally Sensitive Areas (ESA) Strategy, Parks and Recreation Master Plan, Bert Flinn Park Task Force Report); 2. Review of literature on environmental impacts from mountain biking in riparian areas; 3. Review existing plans and policies, including mapping of trails in Bert Flinn Park and Chineside Park; 4. Site visits to areas of community concern (upper West Noons Creek, Bert Flinn Park); 5. Recommendations for management tools (i.e. criteria for evaluating proposed trail use including environmental measures such as erosion and loss of riparian habitat); and 6. Develop framework including consideration of a Public Workshop and/or Public Display to seek input from the community at large. The draft framework would be forwarded for review and comment by the Environmental Protection Committee and the Parks and Recreation Commission prior to submission to Council. Section 2: The Process The Committee held its first meeting on May 14 th, 2007 and, subsequently, met on May 28 th, 2007, December 6 th, 2007, April 28 th 2008 and June 12 th, 2008 to discuss findings and to prepare this final report. A site tour of Bert Flinn Park and upper West Noons Creek was conducted on June 23, Docs # Page 3 of 17

4 Comments from the site visits include: mountain biking was not seen by the Task Force to be a major concern in Bert Flinn Park although there is a need for signage program, maps and markers. the need to provide trail connections (other than the Terasen Gas right of way) from the upper neighbourhoods of Heritage Mountain to the crown lands above the BC Hydro right of way; a temporary reroute for mountain bikers to get around the closed sections of West Noons Creek as restoration planting becomes established (suggested process to relocate walkers/bikers to the Terasen Gas ROW in partnership with TORCC including directional signage along the BC Hydro ROW) the development of trail maps similar to those available for upper Westwood Plateau Following the preparation of a draft report, the draft report was circulated to the Evironmental Protection Committee and the Parks and Recreation Commission. The following motion was passed by the Environmental Protection Committee: THAT the Mountain Biking Task Force draft report be endorsed. And the Parks and Recreation Commission passed the following motion: THAT the Parks & Recreation Commission endorses the recommendations of the Mountain Biking Task Force report of April Docs # Page 4 of 17

5 A public display was hosted by the Mountain Bike Task Force at the 2008 Fingerling Festival where the public was invited to review the report and provide feedback on the draft report. A public display was also located in the Galleria, where a copy of the draft report and feedback forms was available. The draft report and electronic feedback form were also placed on the city s website for just over three weeks, allowing people to access information about the Mountain Bike Task Force, the draft report, and submit electronic feedback. In total 29 feedback forms were received and that feedback was reviewed by the Mountain Bike Task Force and included in the final report where appropriate. Section 3: Preamble Mountain Biking in Port Moody Mountain biking is a relatively new sport that began about 30 years ago in Marin County, California (Source: Mountain Bike Hall of Fame). Mountain biking is a popular outdoor sport in Port Moody and provides important individual, social, recreational, and environmental benefits. However, the growth of mountain biking also creates management concerns including the safety of trail users, user conflict and potential environmental damage including wildlife concerns and their use of trails as well. There are two mountain bike organizations which have been involved in previous volunteer events/rides in Port Moody; the Tri-City Off Road Cycling Coalition (TORCC) and Students Pedaling Onto Kreative Education (SPOKE). TORCC was formed in 2001 and is currently undergoing a relaunch across the Tri-City area with four main focus areas: 1. advocacy role (liaison with local governments in the Tri-Cities including Belcarra, Anmore and other groups); 2. trail building and maintenance covering all mountain areas; Docs # Page 5 of 17

6 3. events of various types including races, etc.; and 4. education on mountain biking etiquette, trail maintenance, etc. SPOKE was formed in 1998 when a group of teachers came together and formed a cycling club registered with Cycling B.C.. There was a need for an organized, affordable, school age program to introduce students to mountain biking and provide them with opportunities to participate in school age races. Today, SPOKE is represented by teachers from seven school districts and coordinates mountain biking activities for over 500 students. SPOKE has expanded to include teacher training, bike trials and trail building. SPOKE has held race events in Port Moody but not in recent years. Guiding Principles The Task Force recognizes that mountain biking provides individual, social and recreational benefits which needs to be balanced with the needs of other trail users and environmental preservation objectives. In developing the following recommendations for a policy framework for the management of mountain biking on City-owned parkland, the Committee endorsed the following principles: Sustainable trail development and the use of trail development and maintenance Best Management Practices (BMPs) Balancing environmental protection and recreation needs Precautionary principle of environmental preservation in sensitive ecosystems including riparian areas Fostering of stewardship ethics within the community and visitors The importance of partnerships with local mountain biking groups, utility companies, neighbouring municipalities and other community stakeholders The role of public education Key Issues The key issues identified by the committee were: Need to update trail maps to show connections to trails outside City of Port Moody boundaries and recognition of two different groups of mountain bikers those who are residents and visitors using Port Moody parks and visitors who are going through Port Docs # Page 6 of 17

7 Moody parks to access adjacent lands including upper crown lands and neighbouring municipalities such as Belcarra, Anmore and Coquitlam Importance of providing connections between on and off-road bike networks Multi-user trail etiquette (provision of courtesy for all users) Addressing unofficial trails that require travel through creeks (erosion, damage to habitat) and unofficial structures Need to mitigate environmental damage on trail networks (i.e. raised boardwalks through sensitive areas) The need to address trail connections that go through private land Need for a cohesive signage framework (wayfinding signage) Risk management and liability on public land Education for trail users including future generations Section 4: Recommendations 4.1 Mountain Biking and the Environment Common environmental impacts associated with recreational use of trails include: Vegetation loss and changes in plant community Soil compaction and erosion Degraded water quality in creeks Disturbance of wildlife including their use of trails as corridors and loss of wildlife habitat Mountain biking can affect the environment and trails but the review of scientific studies indicated that the impacts are in the same range as hiking (IMBA, 2007). Environmental impacts relate to the trail design, construction, volume of use and maintenance. The level of trail degradation that can cause environmental impact is normally due to unsustainable trail design and/or heavy use. Unfortunately, some of the trails within Port Moody s network were not designed or constructed properly. Their gradual erosion has become more evident with growing trail use and may be seen as solely a mountain bike impact. Docs # Page 7 of 17

8 4.1.1 Environmental Guidelines for Sustainable Trails Trail widths should follow trail standards m for nature trails Trail design should follow IMBA guidelines for slopes and layout Wet areas that are causing erosion issues should be reviewed to determine appropriate mitigation (i.e surfacing, construction of boardwalks, trail reroute, etc.) Stream crossings should be perpendicular to watercourse and have a clear span bridge crossing that is designed to minimize environmental impact Trail networks should be designed to minimize habitat fragmentation and educational signage should include information for respect of wildlife Areas of high environmental sensitivity such as riparian areas and wetlands require environmental review for project planning and should follow BMPs such as Controlled Access Management Plans (Department of Fisheries and Oceans, Environment Canada, and Fraser River Action Plan. Access Near Aquatic Areas: A Guide to Sensitive Planning, Design and Management) Identifying Trail Problems on Existing Trails It is recommended that the city use a standards-based approach including indicators to evaluate, monitor and manage recreational impacts on designated trails. Research indicates that the most significant component of mountain bike impacts occurs in areas outside of designated trail activity. The solutions to address trail problems include: 1. Trail reroute If there is not another existing and parallel route to connect to trail network, consideration should be given to a trail reroute which involves moving the trail to a more suitable location. This should be reviewed in a similar process to a new trail proposal. 2. Trail closure Reasons for closing a trail may include unavoidable damage to an environmentally sensitive area, proliferation of trails in a given area, unsanctioned trail construction, and safety concerns. The process for closing a trail should include consideration of consultation with stakeholders, information signage This trail has been closed, please use alternate route, placement of Docs # Page 8 of 17

9 barriers (fences or large woody debris), and planting of native vegetation to restore sections of the trail Unauthorized Trails Authorized trails are those that are shown on city master trail plan and maintained by parks staff. Unauthorized trails are not sanctioned by the city and have been created for a number of reasons from shortcuts that are worn through repeated use and trail users that purposely build new unauthorized trails. The city s policy is to require any new trail proposals to go through a formal staff review process and to discourage unauthorized trail construction. Recommendations: City will review trail problems on authorized trails and where possible work with stakeholders to find solutions. The City will close unauthorized trails and remove structures that that have been identified as a safety or environmental concern. Staff will look to include consultation with stakeholders when circumstances permit. 4.2 Risk Management and Liability for Trails Land managers and trail developers owe a duty to all users to ensure they are reasonably safe on public property. The reasonable standard of care is a key concept in the general law of negligence (Canadian legal system) and is determined by: What a reasonable person would do (common sense) Published and unpublished standards Case law The duties apply to the condition of the property, activities on the property and the conduct of third parties on the property. A risk management plan is the best way to ensure meeting the duty of care. This should include consideration of the review of existing trails (both authorized and unauthorized), application of trail maintenance standards, procedures for trail inspections, and trail closures for public safety reasons. Docs # Page 9 of 17

10 4.2.1 Multi-User Conflict/Public Safety Guidelines The Committee identified that trail sharing for walkers and mountain bikers is a concern in some areas. These concerns normally fall into three categories: 1. Environmental: The perception that mountain biking causes excessive trail damage and unacceptable environmental impacts. 2. Safety: The perception that mountain biking threatens the safety of the rider and other visitors. 3. Social: The perception that mountain bikers have goals and values that are incompatible with other users. (IMBA, 2007) User conflict can be reduced through proper trail design and maintenance. Safety issues such as riders going downhill too fast can be improved through signage and proper trail design to reduce speed. Other solutions to reduce user conflict include volunteer bike patrols to educate users on responsible use, peer education through local mountain biking groups, skill clinics and programs such as SPOKE that provide education to new cyclists, development of interpretative signs and trail etiquette rules. 4.3 Partnerships and Volunteers in Parks The City has a Volunteers in Parks Policy (available from the City Clerk s Department) which outlines the framework for volunteer activities and includes consideration for mountain biking. Recommendations: The City should promote community leadership, partnerships and public education through working with local mountain biking groups and other groups including local environmental stewardship groups. Special events by local community groups such as epic rides and Suburban Rush should be reviewed with city staff to ensure that the proposed route does not impact on environmentally sensitive areas. The proposal must include adequate insurance and a commitment to review the route before and after the event to ensure that it leaves no traces. Docs # Page 10 of 17

11 4.3.1 Considerations for New Trail Proposals The process for volunteer project review is detailed in the existing Volunteers in Parks Policy. Recommendations: Priority should be given to upgrades of existing trails before additional trails are added to inventory unless a new connection is identified as a city priority. Neighbourhood development should include a review of existing trail linkages and consider the provision of trail right of ways within planning processes to avoid cutting off trail networks. New trails should be situated outside the Streamside Protection and Enhancement Area (SPEA) as designated in Port Moody s OCP and Zoning Bylaw. It is desirable to add additional width to the SPEA during development planning where trail development is desirable and then fit the trail to the natural topography. All trail proposals should include a trail plan and design information. Key elements include selection of proper grades, minimization of vegetation impacts and impacts to sensitive environmental features through careful trail siting and avoidance of sensitive areas, defining the trail with markers and appropriate signage. Consider a range of mountain biking opportunities for riders of all technical abilities and include technical ratings for new trails to include on trail signage. New trail proposals should include prescriptive management objectives that are based on city policy and park trail standards. Indicators for future monitoring should be selected to be specific to the trail location, objective, efficient to measure and relevant to the environmental management recommendations in the Environmentally Sensitive Areas (ESA) Strategy. Examples of indicators for mountain bike trails could include trail width, maximum grade, maximum trail depth (incision), visual measurement of soil erosion (development of channels, notable exposure of roots) and vegetation impact. The trail proposal should include a plan for long-term monitoring (either city resources or volunteer agreements) using accepted techniques and based on sensitivity of site. If existing conditions are out of compliance with standards, this trail may require evaluation and identification of appropriate strategies to address area of concern (trail maintenance, vegetation restoration planting, etc.). Docs # Page 11 of 17

12 Provision of Technical Trails and Bike Park The Committee recognized the importance of providing trail opportunities to mountain bikers of varying ability levels. Many of the sites that might be noticeable to other park users are features created for Freeriding which is advanced mountain biking and technical riding. It is noted that most of the Freeriding used by Port Moody residents and visitors are outside of the city boundaries and located in crown lands above the BC Hydro Right of Way. IMBA recognized British Columbia as the home of the freeriding movement. It has generated a new interest in mountain biking but also brings challenges for user conflict, unauthorized trailbuilding, and liability concerns. Recognizable features include rocks, drop-offs, jumps, plunging descent, ladder bridges, skinny balance beams and teeter-totters. The emergence of bike parks has been rapid since 2005 and they normally include a number of constructed features within a compact setting. Bike parks can play an important role in reducing unauthorized trail building and can be located in a central location to allow safe access for all ages. The City of Port Moody and Rotary Club created the Bike Trials Park in Port Moody under the Moody Street overpass. This park was a partnership with local mountain bike groups and was designed by experienced riders. It is important to develop a risk management plan prior to the construction of technically challenging trails. It may not be advisable to invite other users on trails with potentially unsafe features. If a designated area is approved for a technical trail, consideration should be given to an entry feature with signage. 4.4 Recreation Access It is noted that strategies developed on the District of North Vancouver identify community concern for access, parking and staging areas for mountain bikers. New trail developments should include consideration of access through linkages to on-road bicycle networks and use of existing city parking facilities where possible. Recommendations: Chineside Park is not suitable for the development of authorized mountain biking trails due to steep terrain and geotechnical considerations. The Westhill Greenway, a multi-user trail, is being developed in 2008 to connect Westhill Park to the Trans Canada Trail (multi-user trail). Due to steep terrain and geotechnical Docs # Page 12 of 17

13 considerations, the trail will be a multi-user trail and measures will be put in place to limit unauthorized trails. The City should encourage the Village of Anmore to keep open the road allowance connection to Strong Road as this is the only point of access between Anmore (and surrounding upland areas) and Bert Flinn Park not only for cyclists but for all trail users.. Maps should include connections to crown land and the use of existing parking lots that provide access to more extensive trail networks. The City should explore any opportunity to establish a trail through the Upland Reserve Area of Neighbourhood 2 and possibly the Urban Reserve. 4.5 Operations and Maintenance Issues A key component of the trail network for all users is the requirement for ongoing maintenance. The City trails staff are currently in the process of formalizing trail standards and maintenance requirements. This includes the use of BMP s for sustainable trails and the development of a signage program. Recommendations: New trail proposals should identify resources and/or partnerships for long-term maintenance. 4.6 Public Education and Signage Considerations Well designed signage is an important component of trail management. IMBA has developed rules of the trail and the committee recommends that the following rules of the trail be included in trail etiquette signage. This will help to foster sustainable trail stewardship ethics. The City s website is suggested as the main site for trail updates including maps. Recommendations: The City should endorse the IMBA Rules of the Trail and promote these rules. Rules of the Trail The way we ride today shapes mountain bike trail access tomorrow. Do your part to preserve and enhance our sport's access and image by observing the following rules of the trail, formulated by IMBA, the International Mountain Bicycling Association. These rules are Docs # Page 13 of 17

14 recognized around the world as the standard code of conduct for mountain bikers. IMBA's mission is to promote mountain bicycling that is environmentally sound and socially responsible. 1. Ride On Open Trails Only. Respect trail and road closures (ask if uncertain); avoid trespassing on private land; obtain permits or other authorization as may be required. For the protection of the natural environment, please be aware that specific areas may be closed to cycling. The way you ride will influence trail management decisions and policies. 2. Leave No Trace. Be sensitive to the dirt beneath you. Recognize different types of soils and trail construction; practice low-impact cycling. Wet and muddy trails are more vulnerable to damage. When the trailbed is soft, consider other riding options. This also means staying on existing trails and not creating new ones. Don't cut switchbacks. Be sure to pack out at least as much as you pack in. 3. Control Your Bicycle! Inattention for even a second can cause problems. Obey all bicycle speed regulations and recommendations. 4. Always Yield Trail. Let your fellow trail users know you're coming. A friendly greeting or bell is considerate and works well; don't startle others. Show your respect when passing by slowing to a walking pace or even stopping. Anticipate other trail users around corners or in blind spots. Yielding means slow down, establish communication, be prepared to stop if necessary and pass safely. 5. Never Scare Animals. All animals are startled by an unannounced approach, a sudden movement, or a loud noise. This can be dangerous for you, others, and the animals. Give animals extra room and time to adjust to you. Disturbing wildlife is a serious offense. Docs # Page 14 of 17

15 6. Plan Ahead. Know your equipment, your ability, and the area in which you are riding -- and prepare accordingly. Be self-sufficient at all times, keep your equipment in good repair, and carry necessary supplies for changes in weather or other conditions. A well-executed trip is a satisfaction to you and not a burden to others. Always wear a helmet and appropriate safety gear. Keep trails open by setting a good example of environmentally sound and socially responsible off-road cycling. Section 5: Conclusion In presenting these recommendations, the Committee recognizes the need to find a balance between protection of the natural environment and recreational trail use for hikers and mountain bikers. The recommended policy framework is intended to be adaptable for changing future circumstances and to support community partnerships with stakeholders. Docs # Page 15 of 17

16 Section 6: Reference Material Department of Fisheries and Oceans, Environment Canada, and Fraser River Action Plan. Access Near Aquatic Areas: A Guide to Sensitive Planning, Design and Management. Website: International Mountain Biking Association (IMBA) (2004). Trail Solutions IMBA s Guide to Building Sweet Singletrack. Website: International Mountain Biking Association (IMBA) (2007). Managing Mountain Biking IMBA s Guide to Providing Great Riding. Website: _bikes.html Leung, Yu-Fai and Marion, Jeffrey L Recreation Impacts and Management in Wilderness: A State-Of-Knowledge Review. In Proceedings: Wilderness Science in a Time of Change; Vol 5: Wilderness Ecosystems, Threats, and Management, May 23-27, 1999 (Cole, D.N. and others, eds), pp Missoula, MT, Proceedings RMRS-P-15-Vol-5. Ogden, UT: USDA Forest Service, Rocky Mountain Research Station. Resort Municipality of Whistler (2003). Whistler Trail Standards - Environmental and Technical Trail Features. Website: _Committee/trail_standards_first_edition.pdf Shimano, U. S. Dept. of Interior Bureau of Land Management, Arizona State University and Northern Arizona University (2006). Planning and Managing Environmentally Friendly Mountain Bike Trails. Website: Surrey Parks, Recreation and Culture (2003). Guidelines for Bicycle Recreation Facilities Mountain Biking, Dirt Jumping, Bicycle Trials, BMX. Docs # Page 16 of 17

17 Tri-City Off Road Cycling Coalition (TORCC) Website: Students Pedalling Onto Kreative Education (SPOKE) website Docs # Page 17 of 17