This is an HTML version of an attachment to the Freedom of Information request 'Evidence Used to Prepare JSP 850 (Public Access & Recreation)'.



Managing and controlling wild cycling trails 
 
Introduction - the scope of this guidance 
This guidance covers the management of areas of forest, woodland, heath or open space 
where unplanned and unauthorised mountain bike trails or features have been created. It 
considers the complex issues involved and offers various strategies for managing them. It 
forms part of guidance for managers on planning, constructing and managing mountain 
bike facilities. 
 
What are ‘Wild Trails’? 
‘Wild trails’ are defined here as unofficially constructed cycle trails established without the 
permission or knowledge of the land owner. Often, these trails have been created on land 
owned by the Forestry Commission, which has taken the lead in developing guidance to 
help in managing the issue. 
 
Wild trail problems are increasing in some parts of the UK and in many instances no group 
or individuals can be identified to take responsibility for these sites. Where significant 
development has not been challenged early on, the land owner has had to take on 
responsibility for the facilities when they have become well established with users. Such 
facilities may create an additional burden for the land owner, as well as increasing the risk 
of injury and claims inherent in such provision. This sort of activity usually increases in spring 
and school holidays and may need more resources to deal with it during these times. 
 
However, removing these facilities may be equally burdensome and may prompt users to 
start building trails in areas of forest or woodland previously free of wild trails and potentially 
less suitable or more sensitive than the original site. Removal carries reputational risks as 
users become more vocal in the media, on the internet and by phone/e-mail. Dealing with 
complaints can be difficult, diverting and demoralising and takes up valuable staff time. 
 
Examples of wild trails: 
 
 
 
 
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Why can wild trails be a problem for land owners? 
 
There can be many reasons: 

it is illegal to interfere, alter or construct on land assets that are owned by others without 
their consent; 

it may have an adverse effect on the property, for example by altering land drainage 
patterns or causing damage to trees; 

it may cause damage to habitats or disturb wildlife in sensitive sites; 

it may cause damage to archaeology or cultural sites; 

it can disrupt routine management practice; 

it may be a hazard to others – staff, contractors and other legitimate visitors; or 

it may pose risks to those building or using the unauthorised trail and its features. 
 
For land owners and managers, the main duty of care is to people who unwittingly wander 
into an area of an unauthorised trail, whether on foot, bike or horse. However, trying to stop 
this type of activity may drive it further underground, making it more difficult to manage 
and much more dangerous for those taking part. 
 
The first step is to establish whether you have wild trails on your land. Your staff may already 
have a good idea where these trails are, but they can also obtain useful information from 
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other land managers, local mountain bikers, and clubs or bike shops. It is useful to note 
down all of the information obtained together with dates and any immediate actions 
taken. Always map the location of these areas so that others can see and use the 
information. 
 
Your policy towards wild trails 
You need to decide what your policy is if you find unauthorised wild trails on your land. You 
have the option to ignore their presence or to remove them, but there are likely to be 
problems with either of these courses. This guidance assumes that your general approach is 
to accept that wild trails need to be managed, and explains how this can be achieved. 
 
Remember that you have a duty of care to your visitors, and you need to consider how 
they can be affected by the use of unauthorised wild trails. Your duty of care is arguably 
greater to visitors than to anyone intentionally using the wild trail. It is more important to 
protect the walker, cyclist or horse rider who may be hit by a speeding or uncontrolled bike 
than to protect the bike rider, who is generally understood to have accepted the inherent 
risks of the activity. Your duty increases if the visitor is using a facility that you have provided, 
for example, if the walker is on a way-marked trail. 
 
There are several different ways of dealing with unauthorised trails, and there is no single 
right answer. A logical process is helpful when making decisions. Once you have accepted 
the need to manage wild trails, there are several practical steps that you can take: 
 
•  arrange, if possible, to meet the builders and users to try and assess their views; 
•  decide whether you want to stop use of certain trails and features and whether this 
is possible;  
•  decide how sites will be managed; 
•  implement a management strategy; 
•  monitor the effects. 
 
You need to be positive in your approach. You may need to say ‘no’ to further new ‘green 
field’ development and to adopting trails of this type, but you need to base this on a 
reasoned approach and consider whether this will be achievable. From experience 
(particularly with the Forestry Commission), the cost of preventing development is often 
greater that the cost of managing it. You need to take a strategic view, and decide 
whether your organisation has the resources to manage more of these trails on your land. 
You should be prepared and able to show why and how you have made the decision to 
say ‘no’. 
 
The first step is to assess both supply and demand. Look at where facilities are currently 
provided or being developed by other organisations, your partners or informally by other 
groups. Also, look at the scale of the activity, where the work is being completed and the 
nature of the volunteer group. You may need to be flexible since demand will change over 
time, and the ability of voluntary groups will also ebb and flow. In some cases you will have 
to take a robust line and say ‘no’ to all development. 
 
 
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There is a growing recognition that there needs to be a strategic approach towards 
providing facilities within a particular area, for several reasons:  
• 
locally conceived, volunteer self-build trail projects can be time-consuming for an 
organisation to manage; 
• 
you may need to prioritise your time and investment; 
• 
they can divert maintenance resources from other recreation facilities; and 
• 
it may be better to concentrate your activity in a specific area rather than have lots 
of smaller facilities. 
 
You need to harness volunteer resources to get the best possible facilities for bike riders. 
Also, where land managers have made provision for these activities, users and outside 
agencies have welcomed it.  
 
Deciding which areas are priorities 
The priorities should be where unofficial trails impact on: 
• 
way-marked trails; 
• 
roads;  
• 
public rights of way. 
 
There are often hidden hazards in unauthorised bike areas that may cause problems for 
others who wander into the area. Table 1 below will help you set your priorities. 
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Table 1 - Identifying priorities for management intervention 
 
 
Level and scale of unauthorised activity  
 
Escalation of activity  
   
Low unauthorised 
Moderate 
High unauthorised 
use 
unauthorised use 
use  
   
Few man-made 
Some man-made 
Many man-made 
features 
structures, but 
structures, with 
 
generally built of 
hazardous materials 
 
earth 
such as metal and 
 
 
sharp wood 
 
 
 
Earth, pits and jumps  Pits or jumps are 
Hazards, stone 
are shallow and 
shallow and visible 
features, deep pits 
visible 
 
and jumps are 
 
 
hidden 
 
 
 
Natural hazards are 
Natural hazards are 
Trails leading to 
not severe and are 
fairly obvious 
natural hazards may 
obvious 
 
not be obvious – 
 
 
overhangs at the 
 
 
top of steep banks 
 
 
 
Route crosses any 
Routes cross well-
Route crosses well 
type of path but 
used local paths or 
used forest roads, 
visibility for all users is  tracks or less well-
way-marked trails or 
good and/or cyclists  used forest roads, 
rights of way. 
are not going fast 
rights of way or way 
Visibility for both 
and/or there is little 
marked trails 
walker and cyclist is 
other use apart from  Cyclists will be 
poor. Cyclists will be 
the cycling activity  
travelling fast and 
going fast. It may 
for one user visibility 
not be obvious that 
is poor 
this is not part of 
 
 
your network of trails 
 
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Level and scale of management intervention 
 
Heavily used 
Low unauthorised 
Moderate 
High unauthorised 
area 
use 
unauthorised use  
use 
•  major 
Talk to users, alter 
Talk to users, alter route  Talk to users, alter 
recreational 
route or improve 
or improve the visibility   the route or improve 
site 
the visibility 
Remove dangerous 
visibility 
•  considerable  Remove dangerous  structures 
Remove dangerous 
 
public 
structures 
Monitor use during rec.  structures 
access, e.g. 
Monitor use during 
inspections 
Monitor use during 
public right 
rec. inspections 
rec. inspections 
of way 
 
•  other 
operations / 
uses 
•  urban forest 
Moderate / low 
 
use  
•  some 
Talk to users, alter 
Talk to users, alter the 
Talk to users, alter 
recorded 
route or improve 
route or improve 
the route or improve 
activity and 
visibility  
visibility  
visibility 
access 
Remove dangerous  Remove dangerous 
Remove dangerous 
•  other 
structures 
structures 
structures 
operations 
Monitor use 
Monitor use informally 
Monitor use 
and uses on 
informally 
informally 
going 

  •  rural forest 
on sit
Very low use  
 
ty 
•  no recreation  Monitor use 
Monitor use informally 
Talk to users 
facility 
informally 
Remove hazards and 
Remove hazards 
eral activi
  •  no right of 
Remove hazards 
dangerous obstacles 
and dangerous 
en
way 
and dangerous 
and structures 
obstacles and 

obstacles and 
structures 
of g
 
no other 
activity 
structures 
Monitor use 
vel 
•  remote forest 
informally 
Le
 
 
Remember to consider the wider aspects of land management when setting your priorities. 
Whilst the needs of visitors and site users are important, consider other issues such as: 
• 
the environmental impact on the site; 
• 
the effect that allowing the development wil  have on your management and visitor 
safety plans; 
• 
car parking – is there enough space and a suitable site? 
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Deciding how sites will be managed 
The Forestry Commission has identified four basic management strategies: 
•  Land owner / manager takes over management and adopts and develops the facility – 
in the case of large organisations, managing it to national standards (1) 
•  Land owner / manager and local group set up an operating agreement (1) 
•  Tolerate and monitor (2) 
•  Remove (3 and 4) 
 
A summary decision flow chart is included on page 12. 
 
The different management strategies 
1.  Adopt and develop the trail; land owner/manager and local group set up operating 

agreement 
This action is taken when your local assessment suggests that the trail could be 
managed and you decide that staff time spent adopting and managing the trail would 
be less or would produce a better outcome than not adopting it.  
 
Inspections should be made at least quarterly with photos and records of work 
recorded in a file for the trail. 
 
A combination of dialogue (it’s useful to keep notes) and written operating agreements 
should be used to convey a code of conduct to trail users. The trail assessment may 
need to be repeated every two years to confirm the effectiveness of management 
measures and to take account of changing trail features, location and user group 
composition. 
 
2.  Tolerate and monitor 
This option is suitable where users have not constructed any permanent built features 
but are merely exploiting the natural landforms at the site and creating desire lines for 
others to follow.  
 
Some soil and rock features may have been created but no timber structures. In such 
instances there may be little intervention possible. You should record details, capture 
pictures and record your actions.  
 
3.  Remove unsafe built features and monitor 
The construction of jumps, usually of soil or rock, or erection of “North Shore” style 
(elevated sections made of interconnecting bridges, logs and woodwork will usually 
need to be challenged. Where the construction is not to an acceptable standard, you 
should aim to remove the features soon after the inspection. If the facilities represent a 
significant risk to other forest users, such as a built jump crossing a forest road or public 
right of way, action should be taken without delay.  
 
At an initial inspection where you decide removal of features will need to take place, 
ensure that a notice is placed on site to inform the users/builders of the impending 
action. Your site inspection should also record the action taken and pictures of the site 
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before and after removal of built structures. Ensure that you keep the inspection record. 
 
4.  Substantial intervention / removal and monitoring 
There will be instances where it is obvious from the first inspection that the problem is 
unlikely to be removed by one simple intervention, or where the scale of the facilities 
requires substantial expenditure. You will probably need to refer this to your line 
manager and seek advice and opinion from colleagues. All interventions should be fully 
recorded. Substantial intervention may involve, for example: 
•  Forest operations: Bringing forward felling / thinning plans to disrupt use of the site 
and assist in removal of the unauthorised facilities. Often, heavy thinning may result 
in growth of ground cover to deter use. 
•  Site signage: Erecting signage at persistently used sites to discourage use of 
unauthorised routes and to explain the reasons for the removal of dangerous 
structures and routes which are unsafe for use. 
 
Reactions 
The loose affiliation of cycle community groups can be very fragile, and can in some 
instances be ineffective at controlling others within the group. So, although you may agree 
standards, designs and the size of the facility, any agreements you come to with the group 
may not always be complied with by individuals. 
These are examples of what can happen: 
 
you will find unsafe structures and take them down and they will reappear;  
 
structures appear without approval; 
 
you will struggle to maintain effective communication with groups; 
 
groups will come and go, together with the strength of interest. 
 
You will need to be firm in your dealings with the groups. They need to understand what 
constitutes effective communication and consultation, and you need to make it clear that 
if structures and jumps appear that don’t conform to your agreements, or haven’t been 
discussed and approved, you will have them removed. 
 
Contact 
If you are leaving notices/business cards asking the builders to contact you, you must state 
that if they are under 16 years of age they should get their parents’ or guardian’s 
permission before they contact you. 
 
Last resort 
As a last resort, consider taking formal action to prevent trail development. Only do this 
after detailed consultation within your organisation and with your line manager. Make sure 
you have all the facts and need to take this action.  
 
Planning permission 
You may need planning permission to develop or keep this type of facility. However, for 
small informal facilities it is unlikely that you wil  need planning consent, and many local 
authorities do not require planning permission for what are often considered temporary 
structures. As a rule of thumb, if it is a small project, part of an existing trail or only consists of 
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temporary structures, you will not require planning permission. You should consult within 
your own organisation and/or with your local planning authority. Each planning authority 
wil  have its own website with comprehensive information and guidance to help you lodge 
planning applications. 
 
Managing the site 
When assessing the action to take, you should take into account four main factors: 
site 
characteristics 
   user 
group 
trail 
location 
    trail 
features 
 
These are set out in the grid below with example scenarios across the range of suitability. 
 
Suitability 
Site characteristics 
User group 
Trail location 
Trail features 
Likely to be 
Stable, freely draining 
Identifiable group 
Isolated from 
No built structures 
manageable 
soils, wind firm trees, 
of adults who 
other users 
 
well thinned, mature 
communicate 
 
Some built 
and accessible, e.g. 
regularly and offer 
Away from 
structures but only 
pine and larch 
to help and take on 
public roads 
using locally won 
 
monitoring 
 
soil and rock 
responsibility 
 
 
 
 
 
 
Significant built 
 
 
structures but 
 
 
 
made to high 
 
Various people 
standard using 
 
including adults of 
 
sawn timber, 
 
all ages, never any 
Some low usage  local soil and rock 
 
consistency or 
permissive paths 
 
 
stable members 
through site 
Occasional built 
 
 
 
structures using 
 
 
 
round timber from 
 
 
 
the forest 
 
 
 
 
 Poorly drained soils, 
 
Adjacent to 
Significant 
watercourses, 
number of built 
Various children 
public road, 
unstable crops with 
structures made 
under the age of 18 
formal 
significant standing 
from round timber 
using the trail in the 
recreation 
dead and 
from the forest, 
holidays. Usage 
facility and with 
windblown trees, un-
high structures 
fluctuates with time 
medium to high 
thinned and poor 
and jumps 
of year 
access by other 
Not likely to be 
access 
users 
manageable 
 
 
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Site rules and agreements 
Consider the following options: 
 
1.  Agree site rules with the users. 
2.  Develop an operating agreement for the site. You may need to consult within your 
organisation. Where there is no formal group to work with, and no likelihood of one 
being set up, there are some simple site rules in Table 2 below, which can help you to 
manage the site, the activity and the users. 
 
You should also consider these points: 
• 
Who will cut down trees if required? 
• 
Who will provide materials or tools? and 
• 
Who will plan the site?  
 
You can post these rules on the site and agree them in writing at a formal meeting. 
 
Table 2 – What should be agreed with users 
 
Site rules 
Essential (what should you include?) 
Desirable (what could you include?) 
 
Type of construction that is 
•  Safety rules – like helmets and 
acceptable or unacceptable 
gloves 
 
Different grades of route/jump 
•  Inspections – users to help 
(plan for progression within the 
•  Accident reporting 
facility) 
•  Providing material or machines 
 
Location of pits and jumps 
•  Conflicts or hassle with others 
 
Spread of the site – define the 

boundary 
 
Mentoring – experienced riders 
help inexperienced riders 
 
Warning signs around the edge 
 
 
Controlling litter 
 
Avoiding damage 
 
Don’t leave tools and equipment 
lying about on site 
 
Monitoring the site 
It is important that you monitor the effects of your management. Depending on what you 
do currently, this may mean informal or formal checks on the site. 
 
Monitoring is a key part of demonstrating you are doing all that is reasonable as an 
occupier of land to prevent harm coming to users of your woodlands and open spaces. 
Once sites have been notified and inspected, monitoring wil  be a key part of 
demonstrating competent management and defending any claims.  
 
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•  Adopt and develop:  The site should be monitored as a recreation facility at regular 
intervals (a frequency of every 3 months is suggested). Each visit should be recorded 
and a record kept of any actions, maintenance and work completed. 
 
•  Tolerate and monitor:  Where this management action is deemed appropriate after 
initial inspection, you should carry out follow up inspections (an annual frequency is 
suggested). 
 
•  Remove unsafe built features and monitor:  You should inspect the site soon after the 
removal action (within the month). Thereafter, assuming no rebuilding, the site should 
be monitored at least annually. 
 
•  Substantial intervention and monitoring:  Following a substantial intervention, the site 
should be monitored regularly (a quarterly frequency for 12 months is suggested). After 
the first 12 months, site monitoring can be reviewed against use of the site. Where the 
site has been abandoned, annual monitoring should be sufficient; where use persists 
quarterly monitoring would be appropriate. 
 
Inspection protocols 
The recommended position is that the users/builders of the site should carry out the 
inspections and record keeping for the site with the land owner/manager checking that 
the inspections are being done and recorded. Wild trails should be inspected by walking 
and should only be ridden after being first walked, and they should be specifically risk 
assessed before each ridden inspection.  
 
Formal checks with users present 
• 
Regularly check any constructions and obstacles on the site for wear and tear – 
replace damaged and worn sections (it must be clear who will do the work). 
• 
Check that no one has built any other obstacles that are not part of your 
agreement. 
• 
Check that users are recording accidents if you have an agreement for completing 
an accident book. 
• 
Each year review your plans for the area with the group that uses it. 
• 
Regularly hold meetings to make sure the site is running well. 
• 
Check signs to make sure they are still in place. 
• 
Make sure you keep a record of all visits to the site. 
 
Informal site visits 
• 
Regularly check any constructions and obstacles on the site for wear and tear. 
• 
Talk to those who use the site. 
• 
Make sure you keep a record of all visits to the site – even for informal sites in case 
something goes wrong. 
• 
Check signs to make sure they are still in place. 
 
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Closing the site 
Planning and preparation 
 
Closing an unauthorised site requires as much thought and planning as opening up a new 
trail or park. This is because these features and trails are important to the people who have 
built and use them. The builders have assumed ownership and have invested their time and 
even money. Any changes to trails, including closure, may have an impact on the feelings 
of people in the community – on their sense of place and motivation - as well as an impact 
on individual builders and riders. 
 
Planning to remove trails will require tact and diplomacy to keep everyone on board with 
the process, if not the outcome. Land managers must be confident about why they are 
closing the site. You must be well prepared to discuss and explain the rationale for your 
decision. You should set out the case: 
•  for change or removal; 
•  the advantages and disadvantages; and 
•  the costs and savings, fully, clearly and openly. 
 
The reasons are likely to be: 
 
Safety 
If this is your reason, do you have records and evidence of hazards, and reports of 
accidents? 
 
Internal needs 

it does not fit with strategy / planning 

it is disruptive to management of forest or woodland 

it is causing damage to habitat or the environment 

you do not have the resources to manage the area 

it is diverting maintenance funds from other recreation facilities 
 
External needs 

complaints have been received from the public, neighbours or others 

planning permission may be required 
 
The consultation process 
Effective consultation is key to this whole process. If the process gains respect then, for the 
great majority of people, so will the outcome. There is no legal requirement to consult, but it 
is good practice. You can achieve this by: 
• 
posting information on site and in local places to help people know what’s going on 
or is planned for the trails; 
• 
offering the chance to get feedback and ideas from those affected by decisions;  
• 
finding out what are the views of other organisations and potential partners – are 
they supportive, neutral or against it? 
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Experience and 'good practice' in community engagement show that it is important to 
consult well and widely. Community decisions are important. A wide range of people, from 
motivated professionals to disadvantaged young people, can be involved in the building 
of unauthorised areas and cycle routes. You need to include them all in your approach. 
 
Some useful questions: 
•  How are you going to implement the consultation process? 
•  What scale is required? 
•  Who needs to be involved? 
•  Can any other group or organisation help with the process? 
•  Do you have support from an existing cycle partner? 
•  Can the experiences of other organisations help you to communicate better? For 
instance, local authority agencies such as community development departments 
can provide good advice. 
 
It is vital to make a clear commitment to talking to all the groups, riders and the wider 
community before sending in the demolition crew or removing way marking of a route. The 
consultation process requires a great deal of time and effort to be effective. 
 
Taking the final decision 
If after consultation the site cannot be improved, made safe or managed in another way, 
then you will have to take the final decision to remove the features. There may well be poor 
publicity from your actions, therefore it is advisable to involve your manager in the process, 
and brief your Press Officer if you have one, to help them prepare for any press interest. 
 
The final decision may be one that is unpalatable to the local builders or community – it wil  
rarely please everybody. But as a land manager you need to reach a decision, which 
takes account of and balances all the complex and sometimes conflicting factors about 
the particular site. In this way you will fulfil your statutory duties and other responsibilities. 
 
The removal process 
The process of removal also needs to be well handled. Assuming the trail has to be 
removed, make sure that you: 
 
• 
do it to a high standard; 
• 
leave the site safe for those who may try to visit and use the site; 
• 
clear any debris quickly to show positive management of the site; 
• 
post information about the removal on site, including: 

the reasons why it was done;  

refer to alternative facilities that are available nearby;  

who removed it and when; and 

give contact information such as a telephone number, name and address. 
 
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It is important to monitor the effects of your decision. Depending on what you have done, 
this may result in informal or formal checks on the site, looking out for new construction and 
changes to the site, and being flexible enough, if required, to review your plans. 
 
Dealing with dangerous features 
If you find something that you think is dangerous you should do something about it. Your 
action will depend on whether you want the site to develop and where the site fits in: 
 
If it is a fairly small site with low use and no formal agreement or site rules, then the sensible 
approach will be to remove the dangerous feature or materials. If you are concerned 
about other visitors being frightened or injured, it may be enough to put up a simple 
warning notice or improve visibility.  
 
On a site with rules or an agreement, or at least plans to achieve these, you will want to talk 
to the people using the site and try to agree with them what should be done first. If you find 
something that is very dangerous, cordon it off with ‘hazard tape’ until you can speak to 
the site users or take further action. 
 
Examples of poor quality “North Shore” construction: 
 
 
 
 
Technical construction techniques 
Building and riding on technical trail features constructed out of timber is a style of 
mountain biking that was developed in Canada. Original y using fal en trees to create 
features on trails in the forests, the style has developed into using built features such as 
ladder bridges, balance bars, seesaws and wall rides. This style has also emerged in the UK 
and is increasing. The same principles apply for managing these as we have already 
suggested, but there will be more timber features within the trail. 
 
You can find more information at: 
Western Canada Mountain Bike Tourism Association - www.mbta.ca, including the Whistler 
guide to trails standards at http://www.mbta.ca/assets/pdfs/trail_standards_first_edition.pdf 
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North Shore Mountain Bike Association - www.nsmba.bc.ca. Follow the links to Trails > 
Building tips. 
 
International Mountain Biking Association (IMBA) has a wealth of resources on its US pages 
here - http://www.imba.com/resources. The UK site is at - http://www.imba.org.uk/
including “Guidelines to assist landowners in the management and/or development of 
mountain biking trails and facilities” at 
http://www.imba.org.uk/uploads/papers/GuidelinesForLandManagers.pdf  
 
Paths for Al , a Scottish charity, has useful downloads on various subjects, e.g. path survey, 
design and construction. See 
http://www.pathsforall.org.uk/component/option,com_docman/Itemid,166/dir,DESC/gid,5
7/limitstart,16/order,date/task,cat_view/ 
 
This guidance cannot give you all the answers, but should help you to consider all the 
relevant issues. Acknowledgement goes to the many experienced staff in the Forestry 
Commission and private forestry sector that helped develop this guidance.  
 
Further guidance: 
Forestry Commission Operational Guidance Booklet No. 37 – Cycle trail management. 2008. 
 
Visitor Safety in the Countryside Group (VSCG) web site – www.vscg.co.uk
 
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