SECTION 1 - BACKGROUND

As road transport became steadily more efficient during the 1950s and into the 60's, the railways began to lose their primary function. Throughout the following decades, many lines were abandoned. Many of these corridors remain in public ownership.

This study assesses the overall practicality of establishing a rail-trail on the former railway between Torbay and Elleker which ceased operations in 1957.

1.1 What is a Rail Trail?

1.1.1 History of Rail Trails in America

"Rails-to-Trails" is what people called the phenomenon. The name was catchy and descriptive enough to give the concept a tiny niche in the fledgling environmental movement that was gathering momentum. However, it was destined to move into the mainstream of the conservation and environmental movements. After all, it had all the ingredients: recycling, land conservation, wildlife habitat preservation and non-automobile transportation - not to mention historical preservation, physical fitness, recreation access for wheelchair users and numerous other benefits.

Today, more than 40 years later, rail-trails have made a significant mark in America, with nearly 14,000 miles of trail on nearly 1,450 rail-trails, and around 100 million users per year.

1.1.2 History of Rail Trails in Australia

In its 1995 report, the WA Ministerial Taskforce on Trails Network recognised many of the attributes of rail-trails, noting (P. 9):

"Disused rail reserves have exceptional potential for recreation and non-motorised transport - they encourage access by all population and user groups due to their gentle gradients and the absence of motor vehicles. Outdoor recreation has many positive attributes including community, physical health, and mental health, economic and social benefits."

The most notable example of a rail-trail in Western Australia is the Railway Reserves Heritage Trail in the Shire of Mundaring, in the hills above Perth, 30km from the CBD. The rail-trail was established primarily for horse riders and walkers some 30 years ago, making it one of the earliest known rail-trail conversions in Australia. Subsequent upgrading of the trail surface has made it a true multi-use trail, catering for walkers, mountain bike riders and horse riders.

It is in Victoria that rail-trail conversions have proven most popular. The Victorian Trails Strategy 2005-2010 reports that there are currently 463 kilometres of railtrail in Victoria on 18 trails, while the 3rd edition of Rail-Trails of Victoria and South Australia lists 26 rail-trails throughout Victoria. Some listed in the Guidebook are still under construction or require signage and/or publicity materials, though they are in use. Since the publication of the guide, more rail-trails have been opened and many more are currently in the planning stages.

One of the best known of Victoria's rail-trails is the Lilydale to Warburton Rail Trail which is situated some 68km east of Melbourne. This trail caters for all types of bikes, walking, horse riding and wheelchairs (for some segments) due to the outstanding surface material used. The trail passes by wineries, cafes, pubs and restaurants following the Yarra River valley.

Another of the more famous rail-trails in Australia is the Murray to the Mountains Rail Trail in northern Victoria. The rail-trail is the most developed of all Victorian rail-trails with a sealed surface for its entire distance (97 kilometres). The trail follows the picturesque Ovens Valley and has views of Mt Buffalo and a good climb to historic Beechworth.

In South Australia, the Riesling Trail is perhaps the best known rail-trail. This trail is located in the Clare Valley, 130 km northeast of Adelaide. The trail passes many wineries and offers spectacular views from numerous points along the trail. The 27 kilometre long Riesling Trail allows visitors to experience the Clare Valley from end to end by foot or from the saddle of a bicycle.

The idea for the Riesling Trail is attributed to local business people (winemakers) who saw the potential for the disused railway line from Riverton to Spalding that ran through their region. While the closure of the railway in the 1980's was regarded as a major loss to the area, the conversion of the former railway corridor into one of Australia's best known trails has benefited local businesses, as well as users. Local people named the trail after the grape that is so celebrated in the Clare Valley. Several wineries are now creating picnic locations along the trail. There are more than 30 bed and breakfast cottages, several hotel/motels and caravan parks close to the rail-trail, enabling users to turn a comfortable one day bicycle ride into several days.

Locally, a heritage trail has existed on the Elleker-Denmark-Nornalup railway corridor from Denmark to Coalmine Beach for many years. In more recent years, the Denmark-Nornalup Heritage Rail Trail has been extended further east, and west from Denmark. It has proved to be very popular and serves as an ideal model for the proposed Torbay-Elleker Rail Trail.

1.2 How Do Rail Trails Function and Operate?

1.2.1 Committees of Management

A rail reserve is gazetted under the Crown Land (Reserves) Act as a public recreation reserve. A Committee of Management cannot be appointed under the Local Government Act until the rail corridor has been surrendered by Vic Track and reserved under the Crown Land (Reserves) Act. Gazettal as a public recreation reserve allows for the setting up of a formal Committee of Management which has vested management responsibilities for the corridor. Where the corridor traverses more than one Local Government, a Special Joint Committee is required under the legislation.

The State Government has set down a uniform process for establishing rail trail Committees of Management. It involves an Expression of Interest period where applicants prepare and submit their applications. The State Government, in consultation with relevant Local Governments, selects members depending on skill sets required.

Under the Victorian guidelines, the Committee of Management has relevant Local Governments and individual people selected for appointment by the relevant Minister. The term of appointment is for 3 years. The members must be an adult resident or ratepayer within the "community of interest" of the Reserve. The Minister is also able to appoint nominees of various interest groups that may use a reserve or have an interest in its proper management.

Committees of Management are generally incorporated. Incorporated Committees allow lawsuits, contracts, borrowings and tenancy agreements in the name of the Committee providing security and greater continuity. Sub-committees have no power in themselves; recommendations need to be bought to the full Committee.

Committees of Management under the Crown Land (Reserves) Act have a number of powers and duties:

Powers

• Managing the reserve;
• Undertaking works and improvements;
• Using workers;
• Deriving income;
• Spending, borrowing and investing;
• Controlling users;
• Entering into legal proceedings; and
• Granting tenancies (licences, leases, permits)

Duties

• Financial records and auditing;
• Reporting - financial, annual, performance;
• Liability insurance - duty of care;
• Duties as an employer;
• Council rates (payable by occupiers under lease, licence and tenancies -
• ommercial and agricultural); and
• Responsibilities under Freedom of Information and Ombudsman requirements.

Committees of Management have traditionally absorbed the responsibility for pursuing the development of a rail-trail including the preparation of concept plans and business plans.

The CoM guidelines set out the need to determine objectives under heading of recreation, tourism, conservation, economic and social. These objectives translate into a community-driven concept plan which provides the basis for the Business Plan.

The Murray to the Mountains Rail Trail (between Wangarratta and Bright through the Ovens Valley) has a full-time trail manager.

Management of the trail is in accordance with the Victorian Government guidelines. There is a General Committee of Management which has two representatives of each of the Local Governments through which it passes, one representative from the Technical Group (a sub-committee) and three representatives from the Advisory Group (a sub-committee). Its roles and responsibilities are:

• Day to day management and ongoing development of the trail;
• Preparation and implementation of a business plan;
• Development and achievement of trail objectives;
• Develop future budgets; and
• Oversee activities of the Technical Group and ensure active participation of the Advisory Group.

The Technical Group has been set up as a sub-committee. It has three Local Government representatives (one from each Local Government), one representative from the Department of Sustainability and Environment and one representative from Vic Roads (State Government agency). Its roles are trail maintenance, weed and vegetation control, and bridge maintenance.

An Advisory group has also been set up as a sub-committee. It has six representatives of user groups/communities, one representative from the Country Fire Authority, three local landholders (one from each Local Government area) and one representative from the Victorian Farmers Federation. Its roles are representing community and user group interests to the Committee of Management, liaison with the Committee of Management on management and maintenance issues Some common characteristics about Victorian rail trails include:

• Most rail-trails have incorporated Committees of Management; many (but not all) of these draw support from "Friends of" groups.
• Community involvement in positions of "power" i.e. on a Committee of Management is critical to community buy-in.
• All Committees follow a template for setting up the organisation and, to a certain extent, pursue the same activities (due to the requirement under legislation and the guidelines).
• All trails predominantly use public land - mostly State Government land (as they are on former rail corridors).
• There are no charges to enjoy any rail-trails.
• Many offer leasing arrangements to adjoining landholders as the trail rarely needs the (almost standard) 20 metre corridor. This generates income for
• the trail, keeps the farmers onside and provides some maintenance.
• Most trails opened section-by-section (ie. a staged process) while keeping the big picture in mind. However, there is a need to be conscious of how stages are marketed.
• All trails make the most of official "opening ceremonies" - bridges, sections, etc.

1.3 Requirements for Successful Rail Trail Development

• Many successful rail-trails have accessibility to large population centres bothfor visitors and as a stimulus for local demand.
  
  
• There are existing or easily developed tourism infrastructure in or near townships along the rail-trail - wineries, places to eat, explore and stay.
  
  
• Good rail-trails have some heritage infrastructure in place such as historic stations, bridges, tunnels, goods sheds, sidings, platforms, switches, signals, and mile posts. Rail trails elsewhere have utilised their railway history as part of their attraction. Stations in particular can provide a focal point for community activities as well as an interesting attraction for visitors. Remaining major elements of the railway infrastructure (formations, deep cuttings, high embankments, bridges, culverts) add significantly to the user's experience. Built and social heritage values are a critical part of the rail-trail experience not often experienced on other types of recreational trails.
  
  
• A common feature is community and adjacent landholders' level of support for the project to move ahead. Many (though not all) adjacent landholders are initially suspicious of rail-trails; they often become converts once a trail is built.
  
  
• A uniqueness of experience is often important - be it landscape, trail type, a "one-off" nature.
  
  
• Many of the good rail-trails have a regional or state tourism significance (some have national and international significance). Significance is elevated where extensions are made to connect to services in towns. The best railtrails have natural terminuses in major centres or towns. There should be intermediate towns easily accessible along the trail - this is critical when a trail is long and an added bonus when the trail is short.
  
  
• The best rail corridors are located in highly scenic surrounds, with spectacular views of the surrounding landscapes. These trails are often full of variety and interest. The best rail-trails traverse places of cultural and natural history and conservation and provide opportunities to view birds, other wildlife and remnant vegetation.
  
  
• The good rail-trails often provide opportunities for short, medium and long length rides and walks on the main trail.
  
  
• Railway corridors can provide a great insight into the history of the region - both European settlement, and Aboriginal use. Good interpretation will distinguish an excellent trail - this is the next frontier in all trail development. There are many good recreation trails (including rail-trails) in Australia - few have good interpretation. Interpretation adds significantly to the user's experience.
  
  
• In a similar vein, trails that emphasise local conditions - flora, fauna, history, construction materials, etc. - are very popular. Good interpretation will bring out this local flavour.
  
  
• Well-signed and mapped trails - both on the trail and easily available elsewhere - are more successful than those that are not.
  
  
• Informed locals make a user's experience more pleasurable.
  
  
• The best rail-trails offer a challenge, and they offer peace and solitude.
  
  
• A well-maintained trail and a strong community support network adds to the user's experience, primarily because the trail remains in good condition. Such a community network could include a committed and purposededicated management committee, a strong "Friends of the Trail" Group or even a full-time trail manager.

Various rail-trails in Australia feature at least some of these elements.

In addition, all rail-trails have a number of positive features which mark them out as uniquely rail-trails (as opposed to other recreational trails).

• Rail-trails are trails for people of all abilities and all types of bicycles. Good trails provide equity for people of many levels of fitness and equipment to gain access to the types of experience within the region.
  
  
• All rail-trails are motor vehicle free i.e. safe for all types of trail users. Minimising major road crossings adds to the experience. Trails rarely interrupted by road crossings appeal more than those which constantly cross roads - well marked and safe crossings where necessary add to the success.
  
  
• All railway formations (through cuttings and along embankments) provide a gentle gradient and sweeping bends, suitable for all types of cyclists, walkers, and where appropriate, horse riders.
  
  
• All rail-trails offer safety for users compared with urban shared pathways which have driveways, light poles, blind corners, poor sightlines, and are often "congested" as users cannot see other users approaching due to poor sightlines.