Core Elements _Final_.doc

Prepared for

By

With assistance from

Allison Wing / WINGS Angelic

September 2003

Cradle Coast Tracks Strategy

NOTE RE TERMINOLOGY IN THIS REPORT

“TRACKS” or “TRAILS”

The debate over whether a defined and formed route used by walkers, cyclists or horse riders is a ‘track’ or a ‘trail’ has raged in Australia for many years.

Regardless of which is ‘right’ the terms are basically considered interchangeable by most agencies and organisations.

However, for the purpose of this report the term ‘track’ has been used in all cases to avoid any confusion with the growing number of tourism / driving

routes being publicised as ‘trails’.

This terminology is consistent with the Tasmanian Walking Tracks Strategy.

Cradle Coast Tracks Strategy Executive Summary & Recommendations

Maher Brampton Associates 1

PART 1

EXECUTIVE SUMMARY AND RECOMMENDATIONS



Mt Roland – and the delightful farming country around it – is typical of the

landscapes that so many come to see in the Cradle Coast Region

EXECUTIVE SUMMARY AND RECOMMENDATIONS

Setting the Scene Tasmania promotes itself to the world as a bushwalking destination – and is very successful in doing so. Within that state-wide focus the Cradle Coast Region (the north west and west coast) is blessed with some of the major icon attractions that bring thousands of people to the state every year – Cradle Mountain, the Overland Track, the west coast ‘wilderness’, parts of the Franklin and Gordon ‘wild rivers’ area, Macquarie Harbour and more.

Wild rivers, rugged mountains, rainforest and wilderness are stamped all over the public face of the region. The north coast is spectacular – and accessible. The west coast is rugged – and romantically remote. Even the farmland has a reputation for aesthetic beauty. The region is blessed with a range of physical endowments rarely matched across Australia – and all of this forms a fertile backdrop for a future tracks and trails program.

The Socio-Economic Climate Socially and economically the region presents a very different face. Population is declining, and the decline is predicted to continue over the next 15 years; major industries have moved out en-masse in recent decades, resulting in the second highest level of unemployment in Australia; the percentage of older people is increasing rapidly, and this is expected to accelerate into the future; the level of ‘permanency’ of the professional workforce is dropping, resulting in fewer people developing strong local ties, and the occurrence of cardio-vascular disease is one of the highest in Australia.

To flesh out this rather gloomy socio-economic picture a little further, the region is:

• ranked as the fourth lowest in Australia in terms of population growth

• ranked in the lowest 10 in employed population ratio and employment rate,

• ranked third lowest region in terms of tertiary qualifications, and

• ranked in the lowest 10 in terms of household income.

Not surprisingly, the region was selected as one of 8 ‘trial’ regions for special Federal Government funding assistance. This is being channelled through the Cradle Coast Authority, one of the two key partners in this project.

It is vital to note that this depressed socio-economic climate generates one of the key potential benefits of this Study. Tracks have much to offer the residents of a struggling region such as this, and the capacity to deliver beneficial outcomes to local people should be sufficient to drive this project forward, regardless of visitor-based outcomes.

Opportunity Knocks On a more positive front the number of tourists visiting the region is growing rapidly. The introduction of the ‘twin ferry’ service from Melbourne has generated a substantial boost, with raw numbers showing a quarterly increase from 01/02 to 02/03 of

between 12% and 36%. A further bonus is that the enhanced ferry service is delivering a rapidly escalating number of tourists using their own vehicles – and therefore travelling with more freedom to explore.



Tourism already employs 1 in 10 people in the Tasmanian workforce, and this figure is likely to climb substantially as visitor numbers continue to grow. The Cradle Coast Region is ideally placed to maximise the local benefit accruing from increasing visitor numbers as it is the “gateway” for all those arriving by ferry. To say that ‘opportunity knocks’ would be to underestimate the potential benefits of this fortuitous situation.

The Existing Track Supply Situation Finally, in ‘setting the scene’ for this Strategy it is important to be cognisant of the fact that many tracks and trails already exist in the region, albeit of a widely varying standard and entirely haphazard geographical spread. The extensive Audit undertaken as part of this project has identified the following core characteristics of ‘track supply’:

• There are already numerous short walks in the Cradle Coast region, and many more in other regions of Tasmania within a couple of hours drive;

• There are already enough long walks planned through the Parks and Wildlife Service’s 8 Great Bushwalks for Tasmania program;

• There are virtually no mountain bike (off road cycle touring) tracks in the region – or in Tasmania for that matter;

• There are relatively few horse riding opportunities, and many of those that exist are not well known;

• The region is characterised by haphazard supply – walk tracks appear clustered in a few general locations;

• Tracks in the Cradle Coast region are poorly packaged and promoted (other than the 60 Great Short Walks program – which is quite the opposite).

• Existing promoted tracks appear to have no clear focus or ‘theme’;

The Role of Tracks and Trails Against this backdrop of great physical beauty and natural resources, increasing visitation levels, a depressed socio-economic situation and haphazard track supply this Tracks Strategy is highly timely. Tracks and trails have much to offer a region such as this.

Right across Australia the many benefits of well-planned and promoted tracks and trails are being recognised by a range of agencies from National Park services to tourism departments, and from local government authorities to a host of health and well-being organisations. At last, it is being recognised that recreation tracks are not just an outlet for a few long-haired hippies – they indeed perform a number of highly beneficial roles in the broader community:

• They provide opportunities for low-key unstructured passive recreation for local residents and visitors alike

• They enable users to gain fitness and they foster general well-being

• They are a valuable tourism attraction, especially when marketed well

• They can help instil a conservation ethic amongst users, and

• They can be a means of educating users about the attributes of an area, especially when good interpretation is a feature of the track

Proposed Priority Projects What then, can tracks and trails do for the Cradle Coast Region? This Strategy has been based on extensive face-to-face consultation and weeks of field work in the study area. It is shaped specifically to fit the Cradle Coast’s unique parameters. It proposes not a long list of high-level ‘actions’ attributed to various agencies who may have little incentive to fulfil them, but rather a limited number of specific projects which have the potential to deliver solid and real benefits to the communities of the region.



Quality trail experiences invariably offer quality interpretation – such as these outstanding ‘signs’ on

the Larmairremener Tabelti Aboriginal Cultural Walk near Lake St Clair. Field work shows,

however, that this is currently the exception rather than the rule in the Study Area.

It is worth noting now that the brief for the Project sought four key outcomes:

• Enhanced coordination/communication between agencies and with the community

• Increased economic activity and benefits to the region

• Increased health and well-being

• Improved alternative transport infrastructure.

In proposing a total of just seven projects the Strategy recognises the limited capacity of the various agencies (and the community) of the Region. It has been felt more appropriate to embark upon a restricted program of activity – but one that is achievable – rather than a ‘pie in the sky’ list of projects that could well seem too daunting to even attempt.

Of the seven projects, four are essentially planning or feasibility studies, recognising the inability of a ‘strategy’ to deliver sufficient detail to embark direct into an implementation program. These projects are as follows (see “Recommendations”):

• Waterfalls, Wildlife and Wilderness: 20 Great Short Walks of the Cradle Coast

• Mountain Bike Mecca: 10 Great Short Mountain Bike Rides of the Cradle Coast

• Coastal Pathway Feasibility Study

• Tasmanian Trail: Review of Alignment, Focus and Functionality

Setting each of these against the four desired outcomes of the Strategy will show that each has the potential to deliver against most (if not all) of the target benefits.

Implementation via Coordination – The Key to Success While there is little doubt that the recommended projects have the capacity to delivery tangible outcomes for the region and its residents, there is another factor that is the corner-stone to this Strategy moving forward to successful implementation.

Weeks of field work and countless meetings and phone calls have clearly identified coordination and communication as the keys to unlocking the benefits of tracks and trails in this region. A plethora of State agencies, nine local governments, various Federal bodies and numerous small communities and community groups all have roles to play. Some acknowledge these roles; some do not yet know that they have a potential role of substance. Few ‘talk’ to each other, and fewer do so in any ordered

fashion. Lacking coordination, each has the capacity to be the worst enemy of others.

The value of enhanced coordination cannot be underestimated. A starting list of coordination activities is contained in ‘Recommendations’, below, but – almost more importantly – each of the individual projects recommended here-in will benefit substantially from having a better defined and more tightly focussed means of communication between agencies and with/across the community.



Several different mechanisms are available to deliver this enhanced coordination. The three most often seen elsewhere in Australia (and most likely to be of relevance to the Cradle Coast region) are:

a) Establishing an ongoing ‘Tracks Coordinating Committee’, perhaps as an extension of the Steering Committee put in place to guide the development of this Strategy;

b) Establishing a ‘Cradle Coast Tracks Alliance’ – a broader grouping including representatives of both the primary agencies (state and local) and relevant user groups;

c) Establishing the position of ‘Cradle Coast Tracks Coordinator’, ideally a full-time ongoing position, dedicated to delivering the outcomes set forth in this Strategy and facilitating enhanced coordination relating to tracks and track programs.

Key Implementation / Coordination Tasks In seeking to decide which mechanism will best deliver enhanced coordination (and therefore the best chance of successful implementation) the agencies sponsoring this project should consider the following non-exclusive list of tasks which need to be undertaken (more detail provided in body of report):

a) Continue with the track audit process to fill in all missing information (including current condition) and to map all tracks;

b) Develop a Cradle Coast Authority tracks website;

c) Act as a link (or hub) between various agencies – and between these agencies and the community;

d) Establish a ‘Track Register’, to rank tracks according to compliance with standards, including maintenance and promotion;

e) Develop and deliver a Skills Enhancement Program, focussing on regular field workshops to download track-specific skills from PWS and private specialists to local government and community groups;

f) Disseminate information and ideas via a newsletter and quarterly track-focussed forums;

g) Assist local government and community groups in assessing and upgrading local tracks (both new and existing), then promoting these to residents via simple brochures and maps;

h) Establish a peak user group body to represent the views and aspirations of track users from all three primary groups.

In addition, it should be noted that all of the specific projects recommended in this Report will achieve better outcomes if a functional and well-resourced mechanism of coordination is put in place. This is perhaps strongly the case with regard to the potential appointment of a Tracks Coordinator. Having one person with a focus entirely on recreation tracks has the capacity to magnify the benefits accruing from each of the seven key projects. Further, it is quite possible that actual costs for these projects may be significantly reduced by contracting a Tracks Coordinator who could undertake substantial components of the work as part of their position.

It is for these reasons that this Strategy recommends that the option of choice for delivering quality outcomes in terms of coordination and the implementation of the projects contained here-in appears to be the contracting of a Tracks Coordinator. Regardless of whether or not this decision is taken, the need for better coordination as a means of implementing the recommendations that follow cannot be understated.



A Program of Delivery The Strategy suggests a three year initial implementation program for the 8 projects, bearing in mind that a number of them will flow on into track development programs which may extend beyond that time frame. Estimates in the body of this Report suggest that Year 1 will require $295,000, Year 2 some $245,000 and Year 3 about $130,000. These figures include a Tracks Coordinator (full time) but do not include any flow-on ‘construction’ funds. Should another means of coordination be chosen, then costs will need to be adjusted accordingly.

Most of the priority projects will result in the need for substantial implementation and marketing funding – sourcing these funds should also be a core function of the Tracks Committee / Tracks Alliance / Track Coordinator. A range of grant programs are outlined in the report, with a number appearing strong prospects for various elements of the program. In particular, the Cradle Coast Authority’s own ‘Tourism Investment Program” would seem to be ideally suited to supporting several key projects identified in (and flowing on from) this Strategy.

Summary In summary, the Cradle Coast Region is blessed with an enviable array of physical and geographical attributes. It is experiencing a surge in visitation, driven by the twin ferries, and (along with the rest of Australia) a growing desire among both visitors and residents alike for passive non-structured and nature-based recreation. Yet it has a declining and aging population base and substantial social and economic challenges. Taken together, these factors create an ideal climate for a carefully targeted, well coordinated and achievable track development program.

This Strategy sets out a simple project-focussed program of activity designed to deliver the maximum benefits to the widest cross-section of the community. It does not focus solely on developing new tracks, but recognises the existence of numerous trails right across the region. It will support the upgrading of a number of these, and enshrines the requirement for quality (and carefully targeted) marketing and promotion.

It does not impose onerous fiscal requirements on any one agency and seeks to develop partnerships at all opportunities. If the agencies and members of the community who have contributed so constructively to the development of this Strategy can continue to work together on the outcomes of this project then the whole region stands to profit substantially. Tracks and trails have much to offer the Cradle Coast.



Recommendations

Seven specific projects are recommended by this Study. Each fulfils the various key outcomes to a differing degree (see table over page). The seven projects are as follows:

(NOTE: this list should NOT necessarily be seen to be in order of priority)

a) Waterfalls, Wildlife and Wilderness: 20 Great Short Walks of the Cradle Coast Region.

This project involves the identification and development of a series of short walks focussing on ‘waterfalls, wildlife and wilderness’. Many of these track experiences already exist – they simply need upgrading and ‘packaging’. The project is unashamedly modelled on the highly successful PWS “60 Great Short Walks” program, and is designed to build on that program rather than compete with it.

b) Local Tracks Enhancement Program:

Cradle Coast Authority, in conjunction with the Office of Sport and Recreation and local governments, to facilitate the preparation of local Track Master Plans and other programs designed to prioritise and stimulate local track development (‘in-fill’ for local use). Some planning for tracks is occurring through broader recreation planning processes, but more sophisticated and contemporary standards should be applied. This project is largely work for the Tracks Committee / Tracks Alliance / Track Coordinator.

c) Mountain Bike Mecca.

Assessment, selection and development of 10 great short mountain bike rides, focussing largely on disused rail and tramways, and catering primarily to the cross country and family-oriented off-road cyclist (see user profiles, p 47/8).

d) Coastal Pathway Planning Study.

A planning and route alignment study for the development of priority sections of a coastal path linking the key towns of the north west coast (Devonport to Wynyard). Such a facility would provide a crucial alternative transport option for many locals. Further, it would stimulate health benefits to users, and provide a valuable recreational resource for locals and visitors alike .

e) King Island Tracks Program:

Detailed assessment and selection of a suite of tracks on King Island, to be developed and promoted separately to other track programs of the Cradle Coast region. This project recognises that King Island is a destination in its own right, and has a very different visitor focus, attracting primarily tourists from Victoria and New South Wales.

f) Information Collation and Dissemination Program:

Tracks are currently available for all three user groups and many more will be developed or upgraded through the programs set out above – they just need to be better promoted. This is best achieved through a concerted effort at compiling information, and publishing it in the form of simple but aesthetically-pleasing brochures/maps. The first priority should be a ‘CCA Horse Tracks’ brochure.

g) Tasmanian Trail: Review of Alignment, Focus and Functionality.

A State-level project designed to enhance the appeal of the Tasmanian Trail, a prospective icon which currently does not live up to its potential. The project should review the focus and function of the trail, in addition to seeking better route alignments and opportunities for infrastructure improvements.



Degree to which recommended projects fulfil desired project outcomes

The brief for this Study set out four key desired outcomes. Naturally, all projects will not fulfil each of these outcomes to the same extent. Some have a stronger ‘tourism / visitor’ focus, while others more strongly deliver outcomes for local residents. The following table seeks to indicate the extent to which each project delivers under the four key outcomes.

Three stars: high level of delivery under this outcome

Two stars: moderate level of delivery under this outcome

One star: lower level of delivery under this outcome

No stars: outcome not relevant to this project

Project Enhanced coordination: inter-agency & community

Increased economic activity & benefits

Increased health and well-being

Improved alternative transport

infrastructure

Waterfalls, wildlife & wilderness

*** *** **

Local tracks enhancement program

*** * *** **

Mountain biking mecca

** *** **

Coastal pathway planning study

*** ** *** ***

King Island tracks program

* ** *

Information collation & dissemination

*** * ** *

Tasmanian Trail review – route & focus

** ** *

Implementation

A further and final recommendation of this report is that a clear decision be taken about the best mechanism for facilitating enhanced coordination (as a means of ensuring efficient implementation) – and that this decision be funded and put in place as a priority outcome of this Tracks Strategy.

Cradle Coast Tracks Strategy Part 2 – The Strategy: Core Elements


PART 2

THE STRATEGY: CORE ELEMENTS



PART 2 – THE STRATEGY: CORE ELEMENTS

This section of the report is essentially a summary of the core elements of each section of the full Trail Strategy. It is designed to deliver the majority of key aspects of the plan in a succinct format, enabling those who do not have time to read the full Report to absorb the bulk of the major processes and outcomes accruing from this project.

Section 1: Introduction

This Tracks Strategy for the Cradle Coast region of Tasmania has been commissioned by the Cradle Coast Authority (CCA), in partnership with Sport and Recreation Tasmania (Department of Economic Development).

As set out in the brief for the project:

“The project aims to develop, in partnership with the community and key stakeholders, a strategy for the development and management of an integrated tracks network for the Cradle Coast region of Tasmania”.

Recreation tracks provide a number of significant benefits to their host communities. Though there are already a number of tracks within the Cradle Coast region (including a number of the highly successful 60 Great Short Walks), there remains a need to ensure that the suite of tracks available to visitors and local communities throughout the North West of Tasmania adequately caters for demand.

The CCA desires a comprehensive strategy to ensure that proposals for new track projects can be assessed in light of an overall framework – rather than on an ad hoc basis. The CCA is also keen to promote track opportunities within the region so as to maximise returns generated by increasing numbers of tourists staying in the region longer.

SRT also has key interests. It seeks to meet changing demands for outdoor recreation - and the demand for tracks in particular. There is also demand for improved transport links between main population centres along the north west coast. SRT also seeks improved communication between all parties involved in the supply, management, marketing and use of tracks.

The 4 principal desired outcomes of this strategy can be summarised as:

1. Coordinated planning and development of tracks

2. Increased economic activity and benefits to the region

3. Increased health and well-being.

4. Improved alternative transport infrastructure

It is timely that the CCA and SRT seek to develop an over-arching Tracks Strategy for the region, as this is a vital step both in developing a local track network and keeping pace with the remainder of Australia. In recent years a number of States and regions have developed major ‘Strategic Plans’ or Track Strategies, including Victoria, South Australia, Western Australia and the ACT.

In reading other states’ Track Strategies a number of similarities become clear:

• All set out to be over-arching guiding documents rather than detailed and project-specific action plans.

• All address in some form the shape and function of over-all track management (or at least the management of the track development process), in an attempt to stream-line and make efficient the delivery of services to other agencies and to the community.



• In addressing the matter of overall management of the track development process all acknowledge the complexity of the matter and identify a significant list of agencies with partial roles in the track process.

• All seek to determine roles and responsibilities for the various agencies and groups involved in the track ‘industry’.

• All address issues to do with managing and maintaining tracks, and the various aspects of marketing and promotion.

In addition to these general similarities, some differences are worth noting:

• Some State Strategies set out to audit and prioritise tracks and track projects and others do not, preferring to identify that task as a priority action for the near future.

• Some focus on future research requirements and opportunities and others don’t.

• Some clearly set out a list of Actions, with lines of responsibility allocated for each aspect identified; others propose general actions but do not establish detailed lists.

• Some establish broad funding requirements for various elements of the Plan, while others do not directly address resource requirements.

Definition of a ‘Track’

From extensive discussions over many years in many states of Australia (and overseas) it is clear that numerous people have differing perspectives of what is – and what isn’t – a “track”. For this project to function effectively it has been important to clarify the definition of a track for the purpose of this plan, and then to clarify what this definition included - and excluded - in the specific local context.

Australia has commonly chosen a position noticeably further toward the wilderness end of the spectrum than has America or Britain. Those countries - and the USA in particular - include many pathway resources in their data-base of tracks that would be considered 'shared paths' or urban footpaths here in Australia.

We in Australia tend to have a stronger link to things 'natural' - both the natural environment and natural track surfaces - in our instinctive definitions of what is a track.

Bearing this historical perspective in mind, and recognising that many pathways in the towns along the north west coast are sealed, are called tracks in local literature, and are provided for multi-purposes (including recreational walking, jogging, transport etc), it has been decided that hard-surfaced ‘paths’ would be considered tracks in this project – as long as they are within a ‘natural’ corridor (ie. river valley, coastal foreshore, etc).

This shifts the point of delineation substantially towards the American model, and is a vital factor that must be borne in mind when reading this document.

Section 2: The Region and its Characteristics

The Cradle Coast Authority was established to coordinate and stimulate economic development across the nine local government areas of northwest and western Tasmania. The Cradle Coast region includes the local governments of Latrobe, Devonport City, Kentish, Central Coast, Burnie City, Waratah-Wynyard, West Coast, Circular Head and King Island.



The CCA region is typical of rural and regional areas across Australia. The physical isolation of much of the North West and West Coast has been compounded over recent years by the departure of major industrial employers and continuing rationalisation of government and corporate services.

While the population of the area remains – at best - constant (some local governments experiencing growth, while others experience decline), the aging of the population indicates that residents will have increased leisure time, and therefore the need to provide additional recreation and leisure services will become paramount.

Trends include rising unemployment, a declining, ageing population and a growing itinerant professional workforce without established links in local communities.

Geography and Climate

By Australian standards, Tasmania is rugged. Most of the western half is characterised by mountainous ranges and ridges showing signs of recent glaciation. The climate here is very wet, with some areas experiencing up to 3000mm annual precipitation.

However, it is the sheer cliffs, lakes, rainforests and wild rivers of the west coast and central plateau that are amongst Tasmania’s greatest attractions. The natural beauty of these rugged mountains, rainforests, rivers and lakes has attracted visitors for decades, and the Tasmanian Wilderness World Heritage Area, which covers around 20% of the State, is world famous. There are understandably high visitation levels at places such as the Cradle Mountain-Lake St Clair National Park; and the Franklin-Gordon Wild Rivers National Park.

The West Coast’s rich mining history and the railways and tramways which were developed to service the mines has left a long lasting legacy which is ideally suited to providing recreational and interpretive opportunities via heritage tracks and trails.

Visitation

Tasmania has been very successful at promoting itself as a tourism destination. The tourism industry is said to employ 1 in 10 people in the workforce and total visitor expenditure is almost $1 billion per annum. The Cradle Coast region features strongly within this broader ‘success story’, and visitation levels have risen rapidly since the advent of the ‘Twin Ferry’ service from Melbourne, with a particularly strong increase in self-drive visitors

This increasing visitation – and the added freedom of a higher percentage of visitors (travelling in their own cars) – clearly has implications for track usage into the future. Section 5.4: Assessment of Demand (and 5.4.3 – Demand Groups – in particular) provides substantial visitation statistics, graphs and supporting information.

Strategies & Plans affecting Track Development

The following existing Strategies and Plans have the capacity to impact Track development (full details can be found at section 2.6 of the main report):

• Tasmanian Walking Tracks Strategy and Marketing Plan - released in 1997, it establishes a framework for management of the whole of the State's walking tracks – which number over 960.

Amongst its many findings and recommendations, a key strategy for achieving the vision of the Tasmanian Walking Tracks Strategy is the progressive upgrading, promotion and marketing of what have been termed in the report as 60 Great Short Walks. In this program 28 short walks less than two hours in length and 32 half day to all day walks are suggested. A number of other short walks were also identified as having potential for inclusion in the future.



Another key strategy for achieving the vision of the Tasmanian Walking Tracks Strategy was the identification of 8 Great Bushwalks. These bushwalks, including the Overland Track, are to be promoted and managed as the key overnight walking track experiences in the State, many of which offer a range of "wilderness" experiences.

• Nature Based Tourism in Tasmania (1998-1999) - study indicates that Tasmania’s natural environment sets it apart from the other States and Territories and is an important element of its image as a tourist destination

It reveals that the majority of visitors to Tasmania (361,000 or 69%) participate in nature-based tourism. In particular, 86% of overseas visitors engage in this activity. Expenditure by nature-based tourists is substantially above-average, per visitor and per night.

Of particular interest are the activities that visitors undertake. The Nature Based Tourism study indicates that in 1998-99 70% of visitors (253,700) participated in ‘bushwalking’ (an increase of 11% on 1993 figures). Overall, the rate of participation in outdoor activities is high, the most popular activities being bushwalking and viewing .

The study shows that the number of visitors who went bushwalking for between 2 hours and a full day only, without going on any short or overnight walks, more than doubled since 1993 and accounted for most of the growth in bushwalking activity.

The study also reveals that 173,700 nature-based tourists (48%) participated in ‘wildlife viewing’, and 9,400 nature-based tourists went ‘cycling/mountain bike riding’ (3% of visitors). 7,700 nature-based tourists went ‘horse riding’ (2%).

• Sport & Recreation Tasmania – Outdoor Recreation Policy - indicates that there is an increased demand for outdoor experiences, whether adventure based or a leisurely walk in a park.

The Policy quotes recent participation studies in Tasmania that indicate seven of the activities in the top ten are outdoor recreation activities, mostly undertaken on a casual or informal basis, and the most popular activity is walking, followed by fishing, swimming and bushwalking.

The Policy outlines the fact that, in general, the population is making increased ‘lifestyle’ choices that associate with greater access and contact with the natural environment. Increasing pressures resulting from this attraction to wild places suggests a switch to a supply-oriented perspective.

• King Island Travel Survey (1999) - an estimated 13,130 visitors went to King Island in 1999; approximately 88.7%, or 11,650 were adult visitors (aged 15 years or older) who stayed at least one night. Adult visitors mainly came from Victoria (52.7%) and Tasmania (22.6%).

The activities undertaken by visitors is quite revealing, and indicates that 7,260 people (62.3%) visited the beaches, 6,270 (53.8%) undertook recreational walks, and a small number (430; 3.7%) went horse riding. The impressive shipwreck trail was undertaken by 4,990 visitors (42.8%), while penguin viewing (3,160 people; 27.1%) and bird watching (1,720; 14.8%) were also popular activities.

• Demographic Trends: Recreation Planning Framework for NW Tasmania - this report states that demand for traditional sport/recreation opportunities across the region is likely to decrease.



It also suggests that an increase in the number of older people is likely to result in a substantial increase in demand for local activities, particularly passive recreation activities. It will also highlight the importance of access, particularly transport, for people to participate in these activities.

• Coastal Management Plan – West North West Tasmania - recognises the existence of many walking, cycling and horse riding opportunities along various segments of the coastline. It states that the significant extent of Crown ownership of the coastal strip plus the network of existing tracks provides an attractive opportunity to develop a regional coastal track

Key Stakeholders and the Consultation Process

As in any region, there are a multitude of government and non-government organisations and agencies, community groups and individuals whose policies, opinions and ideas need to heard and be taken into consideration in the track development process.

The project brief provided a substantial list of stakeholders, including many State agencies, all CCA region local government authorities, a number of committees and associations and a wide range of community groups. A full list can be found in Section 2.7 of the main report.

The consultation process was extensive, involving numerous meetings in a wide variety of locations right across the region. Meetings included:

• Project Steering Committee (2)

• Community meetings (4)

• Forestry Tasmania

• North West Walking Club

• Dooleys Heritage Trail group

• King Island NRM Group

Section 3: Tracks – the Pluses and Minuses

Many organisations and community groups around the world have produced reports and track plans indicating the benefits of recreation tracks. The Recreational Tracks Strategy for South Australia 2002 – 2010 (Preliminary Draft May 2002) provides a succinct summary of the many diverse benefits of tracks/trails to individuals, communities and the environment. The authors of that report state that social health, physical fitness, environmental protection, cultural preservation and the economy can benefit from the effects and experiences offered by recreational tracks.

Health Benefits

Perhaps the greatest benefit is the opportunity tracks provide to communities for healthy recreational pursuits. Lack of physical activity and poor diet are identified in a recent American Medical Association study as the second leading cause of death (after smoking), in the United States. (Source: McGinnis, J.M. and W. Foege, "Actual Causes of Death in the United States," Journal of the American Medical Association, 279(6): 440-444, 1993).

Active recreation, in any form, is a proven health benefit. Tracks and trails allow people the opportunity to recreate in a variety of ways, depending on their abilities and preferences.



The significant benefits accruing from the activity encouraged by tracks should not be underestimated. A recent report prepared for the Commonwealth Department of Health and Aged Care and the Australian Sports Commission’s ‘Active Australia’ program has stated that:

• In 1997 44% of all Australian adults were ‘insufficiently active’.

• Physical inactivity contributes to 8,600 deaths p.a. in Australia. Of these deaths, 1531 occur in people under the age of 70 years and contribute to an estimated 77,603 potential years of life lost because of inactivity.

• The annual direct health care cost attributable to physical inactivity is conservatively estimated at around $377 million, while indirect costs are much higher.

(Source: Bauman, A. Physical Activity Levels of Australians. Results of the ‘Active Australia’ Baseline Survey - Australian Sports Commission, Canberra, Nov. 1997)

Environmental and Cultural Benefits

• Tracks provide opportunities for the community to experience natural and cultural environments.

• Tracks help to protect the adjacent environments by localising impacts and facilitating management of visitation effects.

• Tracks provide for educational and interpretive opportunities and increase environmental and cultural awareness and appreciation.

• Track networks increase community ownership and assist to preserve natural and cultural values.

• Tracks provide opportunities for community participation in conservation and revegetation work.

Economic Benefits

• Tracks generate intra and interstate and overseas tourism spending.

• Tracks support and enhance local business opportunities.

• Track visitors spend money in towns and communities along tracks.

• Track users spend money preparing for their track journeys or activities.

• Track construction and maintenance can generate employment opportunities.

• Participation in track activities improves community health and reduces health expenditure.

The Down-sides of Tracks

Not all impacts of a track network are beneficial. Though all potential negative impacts are manageable, care must be taken to ensure that the environment does not suffer through a track construction program or in fact through the existence of a track. Apart from environmental consequences the initial construction costs are often deemed the biggest hurdle to a successful track program.

It is important to recognise that track projects do bring a range of potential down-sides. Being ‘starry eyed’ and unrealistic does not assist in developing a cohesive and constructive approach to a project. Some potential negatives include:

• Environmental impacts

• Construction costs

• Maintenance costs

• Neighbour issues



Section 4: Cradle Coast Track Supply Analysis

The trail audit included at Appendix 3 of this report has been the result of a concerted effort by Allison Wing (WINGS Angelic) over a substantial period of time. Information has been gathered from a wide range of agencies and community groups. At the time of producing this Report two sources of information had not responded to requests for clarification, despite repeated requests. Consequently the audit summary below is slightly incomplete. Despite this, ample information is to hand to draw the key conclusions necessary for this project.

Summary of Audit

User groups: of the 217 tracks all but one are shown to be suitable / accessible by walkers. Cyclists have access to 30 of the 217 (13.8%) while horse riders have access to 16 (7.4%) of the total. In all cases these tracks are dual (cycle & horse) or multi-use: ie the 16 horse tracks are a subset of the 30 cycle tracks and both are a subset of the 216 walk tracks (with just one exception).

All tracks have ‘length’ information to hand. Of the total, 137 (63%) are short, 72 (33%) are medium, and 8 (3.7%) are long. At this stage no calculations have been performed to divide cycle or horse tracks by length.

Of those tracks which have landscape setting information to hand (183), there are 14 (7.7%) in semi-urban settings, 20 (10.9%) in semi-natural settings and 149 (81%) in natural settings. Again, no calculation has been made of the subsets, either by user group or by length.

Of those tracks which have class information to hand (181), there are 66 (36%) which are Class A tracks, 79 (44%) which are Class B, and 36 (20%) which are Class C. As with previous sets of information, no calculation has been performed for all the various sub-sets (ie: walk trails, short, natural settings, class 1 etc). This is a substantial mathematical exercise, and is perhaps best undertaken by either the Tracks Committee / Coordinator or the project proponents, over a period of time.

Despite these more detailed calculations not having been performed there are a number of outcomes which are already clear – and which are useful in informing this Strategy. These are set out below:

• there appears a considerable ‘imbalance’ in the available tracks, with many walk tracks, and comparatively few mountain biking and horse riding opportunities ;

• as expected, short tracks dominate (as they should, given user preferences); however, there is also a reasonable supply of medium length tracks (33%);

• the relatively low numbers of tracks in semi-urban and semi-natural settings is something of a surprise. This gives strong support to those projects in this Strategy which seek to deliver ‘in fill’ track development in and around the major urban centres. It would appear from this that ‘back gate’ users are substantially under-supplied;

• the relatively low number of Class A tracks (36%) is also something of a surprise, given current user preferences – however, this most likely reflects a general absence of quality maintenance programs, and a failure to note the strong surge in demand for high quality track experiences. These figures clearly support the primary projects recommended here-in (which all deliver Class A tracks);

• there many are ‘walks’ (rather than ‘signed’ tracks) available to visitors, complementing the ‘recognised’ tracks that already exist (in the vicinity of 100 such ‘walks’ were removed from the original audit as they are not true ‘tracks’)

• many of these ‘walks’ that appear in guide books are on private property



• there are a number of tracks which could be considered as ‘works in progress’ – these too, have been excluded from the final audit

• the general lack of available information about some of these tracks is very insightful. The lack of information about the existence of many of these tracks would obviously result in a lack of use

• for many of the tracks there is little or no ready information about their ‘condition’ or about whether they are easy or difficult – indicating a lack of ‘ownership’ from a land manager

• there is evidently no mapping available for many of the tracks which are on the list – reducing the useability and marketing potential of the particular track

Section 5: The Demand Study – Track Use & Trends

Demand for recreational tracks is influenced by many factors:

1. Population trends and demographics

2. Existing activity and recreation trends

3. Tourism related demand

4. Spatial pattern

5. Participation, Setting & Motivation

6. Characteristics of User Groups

7. Track Duration & Distance from Home

8. Supply generated demand (speculative)

Most of these factors either give an indication of demand levels or represent a source of impetus for increases in demand for recreational tracks. In addition the characteristics of user groups and preferences for locations and types of tracks helps to fine tune the range of experiences provided for in a tracks strategy.

The resources available to the project did not allow for any new survey work to be done to assist in the analysis of resident and visitor demand. The approach adopted has therefore been a comparative one, ie where general conclusions are drawn by use of available data from other parts of Australia. Wherever possible any unique characteristics of the North West’s population and their participation in outdoor recreational activity have been taken into account, to give as detailed a picture as possible.

Demographic and Population Trends

Population characteristics and trends are an important indicator of potential recreation demand. As can be seen from the tables in Section 5.2 of this report, there is an expected general decrease in population throughout the region over the next 15 years – even though some local government areas will experience a population increase.

Phillip Gray and Associates (in West North West Tasmania Recreation Planning Framework) identifies a substantial ageing of the population across the region. The median age in all Councils is expected to increase. The largest increase is expected in Latrobe, Kentish, Devonport, Central Coast, Burnie and Waratah-Wynyard Councils which are each projected to increase by between 8 and 10 years. A smaller increase in the median age is expected in the other three Councils.



Recreation and Physical Activity Trends

Based on the prevailing demographic, there are some implications for recreation provision in the region which are relevant to this tracks strategy. For example:

• A slight increase in demand for recreation opportunities may have occurred in some Council areas, in the period 1986 to 1996.

• Council areas which experienced a decrease in population, particularly King Island and West Coast Councils, have experienced a decline in support for some types of recreation facilities and services.

• Pricing is likely to be a bigger issue and barrier to participation in townships along the coast, than the hinterland parts of the region.

• Demand for recreation opportunities, across the region, is likely to decrease. It is expected that the biggest decrease in demand, will be within the Burnie, Central Coast and Devonport as well as West Coast Councils.

• Major changes in demand for different types of recreation activities is expected, for example:

o decreased demand for sport for adults aged 20 - 39 years,

o increased demand for passive recreation and social activities for adults aged over 40 years.

• A decrease in the number of people likely to be involved in active sporting activities (5-24 years), and a decrease in the number of people available to participate in team sports, will directly affect the viability of some teams and clubs.

• An increase in the number of older people is likely to result in a substantial increase in demand for local activities, particularly passive recreation activities. It will also highlight the importance of access, particularly transport, for people to participate in these activities.

• If the population projections are accurate, significant changes will be required to ensure recreation facilities, programs and services are delivered in an appropriate manner to all age groups. A significant shift in resource allocation may be required, with more emphasis given to passive and socially oriented activities, particularly for older adults.

World-wide trends are also present in Tasmania; particularly the trend towards use of mountain bikes. Mountain biking has undergone a tremendous upsurge in usage levels through the 1990’s. It has been one of the ‘boom’ recreational pastimes of the last decade.

Demand Assessment – What the Figures Say

Track use is increasing in Tasmania generally, and in the North West Region. The main user groups of tracks in the North West region are local residents, visitors from other parts of Tasmania and visitors from outside the state. The main points discovered in this report are:

• It could be conservatively estimated that at least 200,000 people use tracks in the NW Region.

• The current demand for tracks in the NW Region is firmly based in bushwalks, with an increasing trend toward 2hour – full day walks.

• The main source of this demand is in an active local population pursuing recreational walking, and visitors from Victoria and NSW.

• Overseas visitors are more likely to embark on long walks such as the Overland Track than other visitors, but these make up only a small proportion of total visitor numbers.



• It is difficult to accurately estimate the value of intrastate walkers and riders, based on a lack of solid research, however the existing research indicates a strong demand for bushwalks by all Tasmanians.

• Residents are more likely to use tracks for horse riding and mountain biking than visitors. This is most likely due to the availability of equipment.

• Increased visitor numbers to the state as a result of the introduction of the Bass Strait ferries has led to a slightly disproportionate (greater) increase in visitor numbers to the North West.

• Increased visitor numbers has led to a significant increase in track usage in all categories – less than 2 hours, day walks, and overnight walks.

• Increased visitor numbers has led to a significant increase in National Park entries. In particular, both Narawntapu and Cradle Mountain have reported significant visitor number increases.

• Demand exists for horse riding in Narawntapu, due to the ongoing private and commercial use of such a track in that park.

Increased visitor numbers (as a consequence of the introduction of the Twin Ferries) have led to a significant increase in track usage in all categories, with a conservative 200,000 people a year using tracks in the Cradle Coast region. The main report includes substantial detailed demand information, including numerous tables and graphs – refer to Section 5.4 for the full outline of this work. Several tables and graphs of specific importance are repeated below (table and graph numbers refer to the sequence in the main body of the report):

Demand for key track activities, for main user groups

It can be clearly seen in the graph below that visitors to the NW Region participate in bushwalking more than they do horse or bike riding. However, residents have a more even balance between bike riding and walking, also with a larger proportion of horse riding. This could no doubt be explained by the equipment requirements for bike and horse riding.

Graph 1. Proportion of demand from Main User Groups (Various Sources)

0%10%20%30%40%50%60%70%80%90%

100%

NW Residents(OSR 00)

Visitors to NW -Interstate &

Overseas (TVS01/02)

Overseas Visitors(TVS 01/02)

Intrastate travellers(Ttas 97)

Proportion of demand from main user groups Horse Ride

Bike Ride

Bushwalk



Impact of the twin ferries on visitor numbers

As the Bass Strait ferries have only been in operation since September, the major increase in numbers has only taken effect in the December and March quarters, which can be seen clearly in table 5, below. This increase in the visitor numbers arriving by sea has also led to a significant increase in the number of vehicles travelling the state.

Table 5: Increase of visitors in first three quarters of the financial year (Source: Tourism Tasmania (2003). “The Tasmanian Visitor Survey 1997/98 – 2001/02”.)

Quarter Sept Dec Mar

Total Visitors 01/02 88,859 124,688 189,260

Total Visitors 02/03 99,700 169,700 232,600

Increase 12.2% 36.1% 22.9%

Participation in bushwalking, in all regions of Tasmania

The graph below shows a clear and marked upward trend in bushwalking participation in all three key regions of Tasmania in the last three years. This is consistent with information coming out of many other jurisdictions right across Australia. (Note: the middle column in the ‘Whole State’ figures is a computing error – clearly this column should show an increase, given that all regions experienced an increase in the relevant period)

Graph 7: Bushwalking figures in real terms in all regions (Source: Tourism Tasmania (2003).)

Comparative numbers of all bushwalking types by region

0

50000

100000

150000

200000

250000

300000

Tas NW North South

Jul-Mar 00/01

Jul-Mar 01/02

Jul-Mar 02/03

Duration of Bushwalking Activities

The range of bushwalks in particular is vast, from a short walk to a full day or overnight walk. The bushwalking component of Interstate and Overseas Visitors to Tasmania has been further analysed based on the length of walk in graph 8 (below).



Graph 8: Duration of Bushwalk – All Visitors 2000 - 03 (Source: Tourism Tas. (2003))

0%10%20%30%40%50%60%70%80%90%

100%

Jul-Mar 00/01 Jul-Mar 01/02 Jul-Mar 02/03

Bushwalking Duration - Tasmania Visitors overnight +2hrs - full day<2hrs

It is interesting to note in graph 8 the gradual increase in proportion of 2hrs to full day walks at the expense of short walks, whilst the overnight and longer walks seem also to be slightly decreasing in proportion to the others.

Cycle Tourism

A recent South Australian research paper regarding cycle tourism in South Australia provides some background and relevant statistics of the potential for use of mountain bike tracks in the Cradle Coast region. The research reports states:

• Australian residents make an estimated 1.7 million cycle tourism overnight trips (1 or more nights) a year in Australia.

• Potential overseas visitors do have a very high level of interest in nature activities, “experiencing Australia” and seeing natural surroundings and wildlife when in Australia. This suggests that cycle tourism options that link with these high interest themes (eg cycling that includes experiencing Australia’s nature, visiting National Parks, etc) might be of particular appeal

• Recreational cyclists are more likely to be under 45 years, male, from households that include children and to enjoy social interaction and a range of physical activities.

• Local back roads and off road bike paths are the most popular routes for recreational cycle trips.

(Source: Cycling Tourism – A Background Research Paper, Prepared by Strategic Services, South Australian Tourism Commission, June 1999)

Spatial Pattern

Demand for tracks and other outdoor recreation facilities is also determined by the pattern of urban development, ie residential land use, both existing and planned. Demand related studies from other parts of Australia and the experience of the consultants suggest this pattern is important for two reasons:

1. There is a strong demand for access to local tracks close to home, and for these to be linked to tracks in non-urban settings



2. Where travel is required to access a track, those tracks that involve less travel time are preferred.

In the north west of Tasmania, there are a number of closely spaced towns on the coast, and the hinterland has many small villages and hamlets. This spatial pattern of population distribution is quite unique, and determines where local tracks should be developed (if they don’t already exist) to cater for these residents.

Participation, Setting and Motivation

Given that the north west area of Tasmania has the highest levels of cardio-vascular disease in Australia, it can be surmised that the people living in this part of Tasmania have some of the lowest levels of participation in outdoors activities.

Sport and Recreation Tasmania in its Outdoor Recreation Policy provides some indicators as to the trends being experienced throughout Tasmania:

• There is a move toward activities that are perceived as adventurous with drift away from traditional structured sport, rosters and club memberships.

• Significant technological advances in equipment design and function have created new forms of outdoor activities and extended the scope and levels of participation for the general population.

• There is greater accessibility and information on a range of outdoor activities, however there is also a clear demarcation between those who have access to this wide range of activities (proximity, ability, finances, transport etc) and those who cannot.

• In general the population are making increased ‘lifestyle’ choices that associate with greater access and contact with the natural environment. This includes aspects of urban to rural (‘sea change’) residential drift, increased demand for open space (parks, recreation tracks etc.) in urban developments, and increasing demands for recreational time in the outdoors (changing work patterns and day trips from home).

The Australian Bureau of Statistics reports on the propensity of Tasmanians to participate in leisure activities:

• An estimated 23.9% (86,600) participated in day bushwalking.

• An estimated 47.0% of males (83,000) participated in at least one selected outdoor recreation activity in Tasmania in the 12 months ended October 2000, compared to 38.6% for females (71,900).

• Among some of the activities where rates of participation were higher for females than males were day bushwalking (25.7% compared to 21.9%) and horse riding (5.1% compared to 2.7%).

• Participation in the selected outdoor recreation activities generally decreased with age. Tasmanians aged 25-34 years recorded the highest participation rates, with 56.5% participating in at least one of the selected activities at least once in the 12-month period. The lowest participation rate was for those aged 55 years and over, 21.6%.

• Day bushwalking and freshwater fishing were the most popular activities for all age groups, while those aged 15-24 years recorded the highest participation rates in most of the other selected outdoor recreation activities. In contrast, Tasmanians aged 55 years and over recorded the lowest participation rate of all age groups in all of the selected outdoor recreation activities.



0%20%40%60%80%

100%

Walking Bike Horse

Preferred Landscape by % of Participants

Totally Natural

Very Natural

Somewhat Natural

South East Queensland Outdoor Recreation Demand Study

Motivation: Studies in SE Queensland and WA have produced comprehensive figures relating to why people undertake track-related activities – these are reported on in some detail in Section 5.7.4 of the main report. The implication of these studies for the Cradle Coast Region is that the bulk of track usage will be motivated by the leisurely pursuit of outdoor activities, for reasons of relaxation and physical fitness. It can be expected that reasons of physical challenge and competition are the motivations for only a small minority of track users.

Landscape Setting: People show clear choices for where they prefer to engage in outdoor recreation, by the locations they already use and by their expressed preferences when surveyed. The SEQ Outdoor Recreation Studies are the only source of information on this issue and give detailed analysis.

For planning purposes the choice of landscapes used here are the following three, which loosely equate to the three categories used in the SEQ studies, ie:

Urban: (‘Somewhat Natural” [SEQ]) Heavily modified landscape; mostly urban or near-urban; relatively high population density

Semi-Natural (“Very Natural” [SEQ]): Modified landscape, but with natural features dominant; may include rural areas

Natural: (“Totally Natural” [SEQ]) Relatively undisturbed landscape; natural features dominant throughout; includes those areas commonly referred to as ‘bush’.

Semi-urban and semi-natural landscapes are the most commonly used for all outdoor recreation, but there has been a shift over time towards the more natural settings as the preferred location for activities. There are distinct differences between walkers, bike and horse riders in their preferences for different landscape settings, with walkers and horse riders showing a stronger preference for the more natural settings.

The 2002 SEQ study shows a marked shift towards the more natural settings for all three activities. The implication of this trend is clearly a growing demand for recreation in the more nature settings, which translates into demand for facilities in those settings.

These findings can be understood as part of a more general and long term shift within the Australian population towards both greater enjoyment of outdoor recreation and increased appreciation of the natural environment.

The implication for Tasmania is that a similar shift towards non-urban rural and natural environments can be expected in people’s preferences for recreational settings, and that these will need to be taken into account in track planning.

User Profiles

For the purposes of this Strategy, track user groups have been broken up into several different groups – each of which has differing needs and preferences:

Walkers: • Resident users – those who prefer walks close to home, and of 1/2 – 2 hrs in

duration



• Day walkers – more track-focussed, who prefer tracks of less than 1 day

• Enthusiasts – who prefer tracks of variable lengths, including overnight (‘hikers’)

Mountain Bikers • Enthusiasts – who are challenge-focussed, and prefer single track and downhill

• Cross country – who like getting out in the bush on longer rides

• Family – those who seek mild challenges requiring lower skill and fitness levels

Equestrians

• Resident users – seek tracks close to home and of 1/2 – 2 hrs duration

• Local ‘float-in’ enthusiasts - willing to travel to get a 1 - 4 hrs horse riding experience

• Visitors – travel some distance, and prefer long tracks, often a multi-day experience

Based on an analysis of the findings in all the available studies some summary conclusions can be drawn in relation to the characteristics of demand for the three tracks related activities.

Walking • Largest numbers participating already

• Lowest entry costs and fewer barriers to participation

• Strong and increasing preference for more natural settings, ie Semi-Natural & Natural

• Will continue to be the largest user group

Mountain Bike Riding • Demand for off-road cycling is difficult to estimate

• Mountain bikes (or ‘hybrids’) were biggest selling bikes throughout the 1990’s

• Important minority of riders motivated by fitness and challenge ? Demand for this activity may be continuing to grow

Horse Riding • The smallest track user group

• Reasonably well catered for in the Cradle Coast Region, some facilities appear well used

• Strong / increasing preference for more natural settings, ie Semi-Natural & Natural

Demand Study - Conclusions

Each section of this demand report has dealt with a specific aspect of track related demand, and each section contains specific implications for the Cradle Coast region. While much of the data relied upon has its origins in other parts of Australia, there should be a high level of confidence that it has relevance for the Cradle Coast.

Some of the more important conclusions from this report relate to the different characteristics of the three tracks user groups, and user/visitor preferences in relation to track length/duration and distance from home. These findings have been incorporated into the methodology of track and landscape categorisation and prioritisation developed by the consultant team and can now be used to inform the future tracks strategy and network.



In overview, there is significant existing participation in track related activity in the Cradle Coast area and scope for increased demand over the next ten years. The additional use of tracks by tourists attracted to the Cradle Coast region will be important. However, the provision of developed tracks that meet the expectations of users (especially local people), and are appropriately marketed, will be equally or more important.

Section 6: Project Assessment & Guiding Principles

The vision of the Cradle Coast Tracks Strategy is:

To provide a sustainable and diverse network of quality tracks that enhances the lifestyle, health, environment and opportunities for local people and visitors to the Cradle Coast Region.

Guiding principles have been developed under the following headings:

• Coordination

• Conservation of Natural Assets

• Ecologically Sustainable Track Design and Development

• Social Values

• Economic Values

• Cultural Values

• Track Diversity

These are described in Section 6.2 of the main report.

Project Assessment

The project brief listed as a requirement the need to “Establish criteria for the assessment of opportunities”. The Cradle Coast Authority in particular is keen to have at its disposal a set of ‘tools’ for evaluating track projects that it may receive – so as to be able to distinguish the better projects from the others.

A full system for classifying and prioritising tracks and potential track projects is included in this report at Appendix 4. What follows here is a ‘cut-down’ or simplified version of the system, incorporating only the major steps in the process.

Tracks vary enormously. Any one track can vary from easy to hard, rough to smooth, remote to public along its length. And what makes a track ‘hard’ or ‘easy’ (‘good’ or ‘bad’) is a vexingly subjective business. Tracks are not like roads or buildings – they are not just a hard resource. Tracks are primarily an experience. As such, the same track can be many different things to many different people. Finding ways of devising reasonably objective measures for the track that provides this widely differing experience is difficult, to say the least.

For the purpose of providing a simplified process three key steps are proposed:

I. Set the project against the ‘Features of Priority Projects’

II. Score the project against the 10 ‘tests’ outlined below

III. Place the project in the 27 cell ‘matrix’ described and presented below.

This should generate a clear picture of whether or not the proposed project has merit, and will – over time – enable a ‘comparison’ to be established as a number of projects are ‘scored’ to produce a table of relative outcomes.



Features of Priority Projects Without pre-empting the more thorough and case-specific assessment process outlined in Appendix 4, a general list of desirable attributes has been generated. These flow primarily from the supply and demand sections of this Study, and from discussions with key stakeholders and the community.

Projects that are best suited to fulfilling the 4 primary outcomes sought in this strategy are those which have as many as possible of the following features:

Local focus:

i. enable local people to undertake recreational pursuits close to home

ii. cater for changing demands for recreation facilities (more passive recreation pursuits – less active sport)

iii. cater for changing demographics throughout the region – an ageing population

iv. provide a means of enabling local people (and visitors) to choose to ride a bicycle, or walk, for transport purposes (to the shop, to school, or to work, etc)

Tourism / visitor focus:

v. attract people to the Cradle Coast Region

vi. are competitive against other attractions throughout Tasmania

vii. keep people in the Cradle Coast Region longer

viii. fulfil the aspirations and demands of existing and potential new visitors

Both (local and visitor):

ix. provide readily accessible information to existing and potential track users on the available track opportunities (walking, cycling, horse riding)

x. provide a reliable means of coordination between the many stakeholders (government, community, etc) which are involved in tracks

In considering any new track project proposal that may come forward the key stakeholders should in the first case set the concept against this list of 10 attributes as an initial means of measuring its likely worth to the region. Naturally few – if any – projects are likely to score 100%, but projects that achieve less than (say) 5/10 should be treated with substantial caution. This list then, forms an initial coarse-level ‘filter’ for ascertaining which projects receive agency support and which do not.

The TOADS (Track Opportunity and Demand Spectrum) Tests

The nine assessment criteria are (max. score is for best / perfect outcome):

1. Landscape values; 20 pt maximum score (includes topography, amenity, environmental / cultural values)

2. “Gut feeling”; 10 pt maximum score (the overall response to a track or trail project by experienced track planners and/or managers – accommodates a level of subjective assessment)

3. Relative construction/upgrading costs, resourcing opportunities / management complexity; 10 pt maximum score (lower cost = higher score)

4. Risk management & compliance costs; 10 pt maximum score (will the track involve demonstrable higher-risk situations: road crossings, slippery rock etc)

5. Potential tourism and business impacts; 10 pt maximum score (what is the project’s capacity to positively impact tourism and other local businesses?)

6. Land tenure and primary stakeholder support; 10 pt maximum score (is the track on publicly owned land; is the vesting track-supportive, and is the land manager supportive of the project?)



7. Community issues and impacts of neighbouring land use; 10 pt maximum score (will the track have negative impacts on its neighbours – privacy etc, and are there impacts from nearby land-uses – mining, logging etc?)

8. Linkages to other tracks, or to cultural / heritage sites or other significant attractions; 10 pt maximum score (does it form part of an integrated network; does it create a circuit, or does it link to another significant attraction?)

9. Proximity to population; 10 pt maximum score (how far would-be users have to travel to get to the track? How close is it to major population centres?)

These assessment criteria can equally well be applied to existing tracks and to proposed tracks. They produce a total score out of 100, and enable tracks and projects to be ranked in order of raw priority. In some cases this may be sufficient to make decisions about which projects – if any – to proceed with.

The Supply/Demand Matrix

The priority track types for the Cradle Coast region for the purposes of this Track Strategy are set out in the tables below. Track projects should be ‘placed’ into a cell that matches the intended outcomes of the project – from this it can be seen if the project is of a high priority in the region. These ‘priority’ cells should be updated periodically, as user preferences may change with time. They can also be modified to reflect specific local preferences in a more constrained geographical area.

Full descriptions of “Class”, “Setting” and “Duration” can be found in Section 6 of the main report.

WALK URBAN SEMI-NATURAL NATURAL

Short Med Long Short Med Long Short Med Long

CLASS A 3 9 2 6 1 5

CLASS B 8 7 4 10

CLASS C

BIKE URBAN SEMI-NATURAL NATURAL


CLASS A 5 8 2 4 1 3

CLASS B 7 10 6 9

CLASS C

HORSE URBAN SEMI-NATURAL NATURAL


CLASS A 7 9 8 10

CLASS B 1 2 5 3 4 6

CLASS C



Assessment Process - Summary This abbreviated Assessment Process is based on three steps: the first two produce raw scores out of 100 (each), and the third enables consideration of the project based on user preferences by class, landscape setting and length/duration. Naturally, some logic will need to be applied to the outcomes. For example, one project may score highly in the first two set of tests – but then fall into a non-ranking cell in the matrix at step 3. Another project may not score as well in the first two steps but may fall into a high ranking cell. And – just to complicate things further – a third project may neither score well in the first two steps or in the matrix but may bring with it substantial community support and a strong emotive reason for proceeding.

All of this underlines the basic fact that it is damnably difficult to rank track projects against one another via a simple process. A strong understanding of the characteristics of the region - and of the tracks that already exist – is a prerequisite to making any such system work. Without this, the system described is at best a basic guide to the relative merits of a project. Use it, by all means – but use with caution!

Section 7: Outcomes – The Priority Projects

During the course of preparing this Strategy, numerous track projects were ‘unearthed’. These ranged from ideas for new tracks suggested by members of the community who attended one or other of the 4 community meetings, through to track development projects that are currently underway. Ideas for local tracks as suggested at the Community meetings are set out in the tables contained within Appendix 1.

As part of the preparation of this tracks strategy, a wide range of possible / potential track projects were evaluated. The process included:

• review of existing tracks in the Cradle Coast area, and elsewhere in Tasmania (ie. track supply)

• review of visitor expectations and local needs (ie. demand for tracks)

• review of population characteristics, trends and projections

• review of successful track projects elsewhere in Tasmania, Australia and the rest of the world

In particular, extensive field assessments were made of the following

• In excess of 25 short walk trails

• Numerous disused rail formations

• Various sections of the proposed Coastal Pathway

A List of Priority Track-Related Projects

A number of projects present themselves as capable of matching the outcomes sought by the CCA and SRT, and making the most of the opportunities that are available in the Cradle Coast Region. These projects build on known success-stories (well-packaged short walks), seize opportunities (mountain bike tracks) and offer outcomes for both locals and tourists to the region. Seven specific projects are recommended:

(NOTE: this list should NOT necessarily be seen to be in order of priority)

a) Waterfalls, Wildlife and Wilderness: 20 Great Short Walks of the Cradle Coast.

This project involves the identification and development of a series of short walks focussing on ‘waterfalls, wildlife and wilderness’. Many of these track experiences already exist – they simply need upgrading and ‘packaging’. The project is unashamedly modelled on the highly successful PWS “60 Great Short Walks” program, and is designed to build on that program rather than compete with it.



b) Local Tracks Enhancement Program:

Cradle Coast Authority, in conjunction with the Office of Sport & Recreation and local governments, to facilitate the preparation of local Track Master Plans and other programs designed to prioritise and stimulate local track development (‘in-fill’ for local use). Some planning for tracks is occurring through broader recreation planning processes, but more sophisticated and contemporary standards should be applied. This project is largely work for the Tracks Committee / Tracks Alliance / Track Coordinator.

c) Mountain Bike Mecca.

Assessment, selection and development of 10 great short mountain bike rides, focussing largely on disused rail and tramways, and catering primarily to the cross country and family-oriented off-road cyclist (see user profiles, p 47/8).

d) Coastal Pathway Planning Study.

A planning and route alignment study for the development of priority sections of a coastal path linking the key towns of the north west coast (Devonport to Wynyard). Such a facility would provide a crucial alternative transport option for many locals. Further, it would stimulate health benefits to users, and provide a valuable recreational resource for locals and visitors alike.

e) King Island Tracks Program:

Detailed assessment and selection of a suite of tracks on King Island, to be developed and promoted separately to other track programs of the Cradle Coast region. This project recognises that King Island is a destination in its own right, and has a very different visitor focus, attracting primarily tourists from Victoria and New South Wales.

f) Information Collation and Dissemination Program:

Tracks are currently available for all three user groups and many more will be developed or upgraded through the programs set out above – they just need to be better promoted. This is best achieved through a concerted effort at compiling information, and publishing it in the form of simple but aesthetically-pleasing brochures/maps. The first priority should be a ‘CCA Horse Tracks’ brochure.

g) Tasmanian Trail: Review of Alignment, Focus and Functionality.

A State-level project designed to enhance the appeal of the Tasmanian Trail, a prospective icon which currently does not live up to its potential. The project should review the focus and function of the trail, in addition to seeking better route alignments and opportunities for infrastructure improvements.

Coordination Projects

In addition to overseeing the specific projects outlined above, the Tracks Committee / Coordinator should undertake the following non-exclusive list of tasks:

a) Continue with the track audit process to fill in all missing information (including current condition) and to map all tracks;

b) Develop a Cradle Coast Authority tracks website;

c) Act as a link (or hub) between various agencies – and between these agencies and the community;

d) Establish a ‘Track Register’, to rank tracks according to compliance with standards, including maintenance and promotion;

e) Develop and deliver a Skills Enhancement Program, focussing on regular field workshops to download track-specific skills from PWS and private specialists to local government and community groups;



f) Disseminate information and ideas via a newsletter and quarterly track-focussed forums;

g) Assist local government and community groups in assessing and upgrading local tracks (both new and existing), then promoting these to residents via simple brochures and maps;

h) Establish a peak user group body to represent the views and aspirations of track users from all three primary groups.

Full details and cost estimates for these projects can be found in Section 7.4 of the main report.

Summary of Project Costs

In considering all of the cost estimates provided in this Section (and summarised in the table below) it must be recognised that these have been provided on the basis that the whole of each job is outsourced. Figures have been calculated at current consultancy rates, with no allowances made for input from partner agencies or other sources. Should project partners decide to undertake part of any of these projects internally then obviously the figures set out here-in will reduce. Further, should the Tracks Coordinator undertake some of the work in any of these projects that is likely to also reduce the external cost. Indeed, there are a range of creative ways in which the agencies involved might be able to reduce the actual capital required to undertake these projects.

Project Key Responsible Agency

Project Cost

Year 1 Year 2 Year 3

a) 20 Great Walks CCA $75 000 Imp. $’s Promo $

b) Local track program CCA, LG’s $30 000 $30,000 $30,000

c) Mountain Bike Mecca SRT & CCA $50 000 Imp. $’s Promo $

d) Coastal Pathway LG’s, SRT & CCA $50 000 Imp. $’s Promo $

e) King Island CCA, KI council $20 000 Imp. $’s

f) Map horse tracks & other local trails

SRT, LG’s $30 000

g) Tasmanian Trail CCA + 2 RDA’s $70 000 Imp. $’s

Track Coordinator* CCA, SRT & LG’s $90,000 $95,000 $100,000

ANNUAL TOTALS (PLUS GST IN ALL CASES) ** $295,000 $245,000 $130,000

* The Track Coordinator has been included on a full-time basis. Naturally, should another means of coordination and implementation be chosen these costs will need to be adjusted accordingly.

** Totals do NOT include flow-on implementation or promotional costs – it is presumed that these funds will be sourced via a range of grant programs, as specific amounts are identified in the planning phases outlined above



Section 8: Resources and Funding Opportunities

Resourcing track construction and promotion programs can be challenging, as can resourcing ongoing maintenance requirements. It must be recognised that a Tracks Strategy such as this, and the individual projects it contains, are an investment in the future. Well planned and built, well interpreted and appropriately promoted, the track projects will bring tourists and money into the Cradle Coast area. They will stimulate the creation of jobs, and will significantly assist in the conservation and preservation of heritage (natural and cultural) throughout this area. The track projects outlined will also benefit local communities in a range of ways already elucidated.

Major Funding Programs

The following major funding and resourcing programs are outlined in Section 8.1 of the main report;

• Regional Solutions Program (soon to be Regional Partnerships Program)

• Sustainable Regions Program

• Regional Tourism Program

• Sport and Recreation Tasmania -various grant programs, including:

o the Sport Tasmania Program,

o Community Sport and Recreation Development Program,

o Sport and Recreation Facilities and Open Space Development Program

o State Sport and Recreation Development Program

• Local Government Community Grants

• Tasmanian Community Fund

• Bicentenary of Tasmania Grant Program

• Corporate Sponsors

• Green Corps

• Work for the Dole

• Volunteers

Section 9: Other Issues

The following is a compilation of issues raised during the consultation phase of this project. It has neither been analysed, prioritised nor edited, but nonetheless it forms a valuable record of issues and ideas raised by agency staff and the community. Some issues appear on multiple occasions as they were raised by a number of people in different meetings:

• Uniform and consistent track signage across the different land management agencies. Good mapping of tracks needed. Need for consistent/co-ordination of signage for all tracks in the Cradle Coast region.

• A centralised information point.

• A demand usage survey occur.

• Making all Tasmanians (and visitors) more aware of what there is to see in the Cradle Coast region.

• ‘Major issue ’ is funding for track projects: maintenance and development. Maintenance is regarded as the major issue.

• Managers need to channel usage onto existing tracks, and to avoid further development.



• Need to identify amenities (toilets; parking areas; track-heads etc) on any future track guides and maps.

• Getting key agencies together and keeping them together. Track coordinating body or person required.

• Information on tracks of the Cradle Coast region could and should be included on a web site – links need to exist between the different agencies.

• Involve community groups in tracks maintenance.

• General lack of funds for maintenance of tracks, and there is no budget provision. Need to secure internal funds for activities such as grading fire tracks, etc. Major track maintenance and rehabilitation won’t occur until major funding is available.

• Centralised co-ordination of all tracks in the Cradle Coast region. Centralised and coordinated dissemination of tracks related information.

• Consolidation of all tracks before any new tracks are constructed. Existing tracks need to be assessed (audited), and managers need to maintain and repair existing tracks.

• Sustainability of the track network is important.

• Maintenance of existing tracks is a priority issue for many people.

• The future promotion of tracks need to be considered, and the report should outline the gaps in information availability? The report could advise on how best to arrange promotion of tracks and supply of track-related information. Ideas on how to improve marketing of track information are important.

• The absence of track-head signage.

• Similarly, lack of parking and poor access creates management issues.

• Existing tracks should be consolidated and upgraded first, before new tracks are built.

Communication and Coordination

It is readily apparent that communication within agencies, and especially between agencies, can be improved when it comes to track development and promotion. The absence of any tracks coordination unit in the Cradle Coast region has meant that tracks development and promotion has been ad hoc, and will continue to be so unless a tracks coordinating ‘system’ is established.

Though Tracks Coordinating Committees have been a favoured means of providing coordination between the many agencies that have an interest in tracks development, in the case of the Cradle Coast Region a different approach has been recommended.

A “Track Coordinator” has been recommended to implement a Local Tracks “Program” and the projects identified in this Strategy. As described earlier, the roles and responsibilities of a ‘tracks coordinator’ are numerous:

• gather and disseminate track related information

• assist with grant applications / seek out grant opportunities

• assist with developing project plans

• arrange quarterly full day track forums/workshops

• circulate a monthly track bulletin/newsletter

• provide on-site track planning and management assistance

• arrange technical assistance from relevant government organisations (ie. Parks’ tracks crew)



• act as ‘go-between’ linking community groups, local government, state and federal agencies

• manage printing and distribution of track-related brochures

• act as “advocate” for tracks in other policy development processes

• co-ordinate development of Cradle Coast tracks web-site

• work with community and user groups to develop a more functional representation system

• administer and co-ordinate other priority track project flowing from this strategy

• develop awareness of roles and benefits of tracks amongst politicians (State and local) and other key decision makers

In other areas of Australia “Tracks Alliances” have been proposed, comprising representatives of peak user groups (walkers, horse riders, cyclists) as well as environmental groups, Conservation Council, Friends of Parks and others. The purpose of establishing a Tracks Alliance in these areas is to enable each group to better understand the others, the aim being to work together more closely for the betterment of tracks. Another reason to forge a stronger, more united, community-based organisation is to enable tracks advocates and all those who enjoy natural areas to speak with one voice. In this way, the Tracks Alliance speaks for all groups about the need for funding for track construction, track promotion and marketing, and maintenance .

Fostering the development of a Tracks Alliance could become a role of the Track Coordinator sometime in the future when tracks development is more focussed and organised, and there are more people using the tracks.

Signage and Information Provision

Though Tasmania is extraordinarily endowed with a variety of natural environments and heritage assets within easy reach of many towns, and a plethora of tracks within those natural areas, access to information describing the location of those tracks is surprisingly difficult. The multitude of organisations, both government and local government, and community groups that manage the natural areas and parks of the Cradle Coast region makes the accessibility of pertinent information complex.

A priority action for the proposed Track Coordinator would be to establish a centralised location for the distribution and dissemination of track information. All tracks related brochures and leaflets that currently exist should be collated and made available at least in one location – preferably more. Potential track users should not be expected to travel all over the North West and West Coast seeking the information they desire – just because different management agencies look after different areas of the natural environment and the tracks therein.

It is also worth noting that many of the existing brochures need to be updated, modified or completely abandoned. This will naturally require resources and should be considered a priority when assessing upcoming expenditure.

Signage is another important facet of the Cradle Coast tracks network where improvements could occur. During fieldwork it was noted that few directional markers exist along tracks, and track-head signage was basic – if present at all. Few, if any, ‘promotional’ signs exist.

The fine example of the common signage and quality publication/marketing of the 60 Great Short Walks program should be emulated in the Cradle Coast region.



It is recommended that tracks in the Cradle Coast region should be promoted by the Cradle Coast Authority, and have a consistent colour scheme and consistent and uniform suite of logos (with a logo unique to each track).

On-track interpretation is becoming more and more of a feature of tracks built in recent times. When well done, interpretive signage can add significantly to the richness and depth of the user’s experience. It can also generate a sizeable cost, and can be subject to ongoing vandalism in rural and remote areas. Care will need to be taken in a base-line decision about what on-track interpretation is provided, and in choosing a style of signage with a reputation for withstanding both graffiti and vandalism. Anodised aluminium may be a good option, as it is sturdy and enables easy graffiti removal.

Again, the 60 Great Short walks program is a fine example of ‘best practice’ in regards to providing information, including interpretive information, to track users.

Conflicts on Shared-Use Tracks

The shared use of recreation tracks is a goal of many track managers, on the basis that it will be an effective use of scarce funds. They perceive there to be major cost savings in having to construct only one track rather than two or three. However, putting all three main user groups on to one track can cause significant problems. Conflict on multiple-use tracks is a major concern and one that needs attention.

The US National Recreational Trails Advisory Committee identified trail-user conflicts on multiple-use trails as a major concern that needed resolution, and commissioned the preparation of a study of conflicts on multiple use trails. The resultant report identified the many challenges faced by multiple-use trail managers, and set out 12 principles for minimising conflicts on multiple-use trails. These are described in detail in Section 9.4 of the main report.

In summary, this work states that conflict in outdoor recreation settings (such as trails) can best be defined as "goal interference attributed to another's behaviour". As such, trail conflicts can and do occur among different user groups, among different users within the same user group, and as a result of factors not related to users' trail activities at all. In fact, no actual contact among users need occur for conflict to be felt. Conflict has been found to be related to activity style (mode of travel, level of technology, environmental dominance, etc.), focus of trip, expectations, attitudes toward and perceptions of the environment, level of tolerance for others, and different norms held by different users. Conflict is often asymmetrical (i.e., one group resents another, but the reverse is not true).

Trail managers recognise trail conflicts as a potentially serious threat. Many are optimistic, however, and feel that when trail conflict situations are tackled head on and openly they can become an opportunity to build and strengthen trail constituencies and enhance outdoor recreation opportunities for all users.

Documents

Core Elements _Final_.doc