The greening of America.

A trail within 15 minutes of every home! That might have seemed like a dream a few years ago, but now it is a distinct possibility. The Report of the President's Commission on Americans Outdoors in 1987 described greenways and the accompanying prairie fire of local concern which would help create the greenways. In 1988, American Trails and the National Park Service released Trails for All Americans, first identifying the goal of a trail within 15 minutes of every home. The resulting groundswell of public support for trails embraced everything from remote hiking trails to urban multipurpose bicycle and pedestrian paths.

Also, the Intermodal Surface Transportation Efficiency Act (ISTEA) was passed in 1991, containing major funding for trails, greenways, bicycle paths and walks. Immediately after ISTEA passed, it was too early to predict how that act would change the country. But by watching the applications for funding come in, reading the trail newsletters from around the country and seeing the goals in the two reports often quoted, park officials see the country shifting its priorities. Because of this coming-together of reports, people and money, this dream could actually turn into a nationwide network of greenways. You can play a part.

Report of the President's Commission on Americans Outdoors

The President's Commission on Americans Outdoors called for a nationwide system of greenways. The commission recommended that "communities establish Greenways, corridors of private and public recreation lands and waters, to provide people with access to open spaces close to where they live, and to link together the rural and urban spaces in the American landscape." This recommendation was one of seven made by the commission, but the greenway suggestion has probably had the greatest amount of public interest.

The recommendation put a new word into the American vocabulary. The definition was kept purposefully vague so that practitioners could define the word as they saw fit. Greenways are typically described as multipurpose trails with the shoulders included and usable by wildlife.

It is amazing what has happened since this recommendation was made. What seemed like a wild-eyed scheme of a few enthusiastic commission members is now becoming an everyday reality.

Trails for All Americans

Your homes, neighborhoods and communities are now connected by a system of municipal streets, state highways and interstates. All were built almost exclusively for use by cars or trucks. This system is right outside your doorstep.

You also have access to trails, but, typically, you have to drive a considerable distance to get to the trail. The goal in Trails for All Americans is to bring that trail closer to your door, 15 minutes away to be exact.

Trails for All Americans was a report of the National Trails Agenda Project which was submitted by American Trails (a non-profit, broadly based trails coalition) to the National Park Service. The goal stated "trail opportunities should exist within 15 minutes of most Americans, homes." The vision identified trails as "A vast, interconnected network of private, local, state and federal trails, linking neighborhoods, communities, towns and cities, parks and states throughout the entire country."

A trail within 15 minutes will mean different things depending on where you live. In an urban setting, you may walk 15 minutes to get to a trail which might be a multipurpose bicycling and walking path. In a suburban setting, you may bike 15 minutes to get to a trail which you might share with rollerbladers. In a rural setting, you may have to drive 15 minutes to a dirt trail which you might share with horseback riders. All of these trails would interconnect, thus connecting homes, communities, counties and states.

Grassroots Enthusiasm

A few years ago, the national trails groups were the American Hiking Society, American Trails (then under a different name) and others such as snowmobilers' and horseback riders' organizations. Since that time, Rails-to-Trails and American Greenways have joined the ranks. Long-distance trails such as the Appalachian Trail and the Pacific Crest Trail have been joined by the ambitious America Discovery Trail and the East Coast Greenway 

Local trail clubs have sprung up across the country almost as fast as the computer capabilities which produce their monthly newsletters. Clubs are reaching and attracting more and more members. The greenway communication network is thriving, and the users are not just the hikers or horseback riders of yesteryear. Mountain bikers, rollerbladers, snowmobilers, ATVers and cross-country skiers want trails close to home and which go a distance.

The Intermodal Surface Transportation Efficiency Act

Passed by congress in 1991, the full potential of ISTEA is now just beginning to be fully realized. Each state has the opportunity to tap into millions of dollars, far more than states are now receiving in Land and Water Conservation Funds. So far, few states have taken full advantage of the ISTEA funds.

What was once a very tightly inner-controlled process is now becoming more open, with needs determined at a regional level through public involvement. Application for ISTEA funding is where you can have the greatest impact.

There is more money in the new transportation act than just the often-talked-about Enhancements or Recreation Trails Funds. These two funds have been receiving the largest share of attention because they are the easiest to understand and access. But other money exists.

What follows is a list of all the ISTEA trail-related funds and a general description. Unless otherwise mentioned, the money is 80 percent federal and 20 percent state/local; and state bicycle/pedestrian coordinator can help. The following information has been called a "cheat sheet" by some because it uncovers every greenway-related penny in ISTEA.

* State Bicycle and Pedestrian Coordinator (Section 1033)--Each state now has a bicycle and pedestrian coordinator who promotes and facilitates the increased use of non-motorized transportation. You can,t receive any direct funding under this section but you can receive assistance. This is the person you should contact if you have any questions about the other sources of funding.

* Transportation Enhancement Activities (Enhancements) (Section 1007, $2.4 billion over six years)--The "enhancements" must equal at least ten percent of the state's Surface Transportation Program. More can be spent if the state so chooses. Of the ten fundable categories, one is for bicycle and pedestrian facilities and another relates to rails-to-trails. This money competes though with other view worthwhile projects such as taking down billboards, historic preservation and planting trees. Therefore, the trails community should anticipate sharing this money with other worthy applicants.

National Recreational Trails

Act (Section 1301, $7.5 million 1993)--The National Recreational Trails Act funds are quite different from the ISTEA funds. Although the act was attached to ISTEA, the fund's source is still the federal gas tax, which is administered through the Federal Highway Administration. The amount of money is much smaller and the Recreational Trails funds are generally handled by the state parks and recreation department, who also administer the Land and Water Conservation Funds.

The Recreational Trails funds can be used to maintain and reconstruct existing trails or to develop new trails. Of these funds, 30 percent goes to non-motorized trails, 30 percent to motorized and 40 percent is for multipurpose trails. By January 1, 1995, unless there is an extension, states will only continue to receive this money if they add a reasonable estimation from their state gas tax from off-highway recreation vehicles. The good news is that this coupling of state and federal funds means there is more money.

* Surface Transportation Program (STP) (Section 1007, $24 billion over six years)--This is the biggest ISTEA program, and it usually all goes to fund projects like highways and bridges. Bicycle and pedestrian facilities are also eligible and, like highways, they provide nonconsumptive transportation. You can apply for bicycle and pedestrian construction and reconstruction of facilities. Non-construction bicycle safety projects like brochures, publicity activities and route maps are also eligible. Projects may be stand-alone paths, attached to a bridge or highway project or be pavement lines, wide shoulders or signs. Go after this money. Others have and they have been successful.

* Congestion Mitigation and Air Quality Improvement Program (CMAQ) (Section 1008, $6 billion over six years)--If your state or community has air which is below quality standards, this fund may be used for bicycle and pedestrian facilities. The trick is that the bicycle and pedestrian projects need to be in the state air plans to qualify for funding. Talk to your air quality office to see how you can get your ideas included in the plans.

* National Highway System (NHS) (Section 1006, $21 billion over six years)--Bicycle and pedestrian facilities are eligible when located next to any National Highway System highway (other than the interstate system). Your state transportation agency has a list and map of NHS routes. You might use this fund if you want to connect two communities with a bike path and the most available space is the expanse of land adjacent to the highway.

* Federal Lands (Section 1032, $2.6 billion over six years--For this money, bicycle and pedestrian projects must relate to a public road through or accessing federal lands. This program is part of the Federal Lands Highway Program which contains other provisions for funding bicycle and pedestrian facilities on federal land. If you want to put a bike path to or through a federal park or forest, for example, this would be an excellent source of funds.

* Scenic Highways Program (Section 1047, $72 million over six years)--Bicycle and pedestrian facilities, including planning and design, are among seven eligible activities under the management plan for state-designated scenic highways. Recreational or transportation uses are allowed. Contact your Department of Transportation to learn the scenic designation procedures and existing scenic road designations. This might be one of the prettiest places in your community for a bicycle path.

* Highway Safety Programs (Section 2002, $80 million, 1993--This funding is 100 percent and includes components "to improve pedestrian performance and bicycle safety." As an example, a recreation department or elementary school could apply for these funds to hold a rodeo on bike safety.

* Metropolitan Planning (Section 1024, $117 million, 1993)--Metropolitan Planning Organizations, or MPOs, must plan for bicycle and pedestrian facilities. They may use these funds for technical assistance to help communities in their initial planning and design work. You might, for example, have an idea for a bike path, but need help formalizing the plan and getting it included in the larger community plan. Ask your MPO for information about this money.

* Statewide Planning (Section 1025)--Not only do metropolitan areas need to plan, but states also have to prepare state long-range bicycle transportation and pedestrian walkway plans. Localities can also apply for planning and design money. Their conclusions could then be incorporated into the state plan. MPOs have information on this statewide planning money.

* Bridge Access (Section 1033, $16.1 billion, 1993)--If the cost is reasonable, bridge deck replacement and rehabilitation projects shall include accommodations for bicycles (except controlled access roads.) Also, bicycle and pedestrian accommodations are permitted as part of all new and replacement bridge funding. You need to check, though, to see if this includes just the right-of-way widening for bicycles on the road or if it includes a separated bike/walk path with a railing beside the traffic.

As of now, if a bike path does not lead up to the bridge, the Department of Transportation will not put a separated path on the bridge. That is why it is essential to use the planning money to show the design for a bike path leading to the bridge. When repairs are done or a new bridge is built, it will include the additional width for the bicyclists on the road plus the separated path for other users.

* Federal Transit Funding (S25)--To be truly multimodal, a bicyclist needs to be able to park the bike or perhaps take it on a bus or train. Under the Federal Transit Administration, programs exist for bicycle and pedestrian access to facilities and shelters, bicycle parking and also equipment on transit vehicles for bicycle transport.

* Demonstration Projects--One-of-a-kind projects may be funded under this provision. A bicycle and pedestrian path may feature a vegetation demonstration planting, or a group may develop a program to get more children to wear helmets. If you have a state-of-the-art project you want to get started, ask about this funding.

The interstate highway system was built by the political forces of government. This new network of trails will be built by the enthusiasm of people. The public is being given a head start though, since the reports provide supporting conclusions and the money exists. The key is getting the funding now that it is available.

While getting federal highway funds is part organizational process, it is now and will probably continue to be, part political. The governor, head of the transportation agency and the legislature still play critical roles. Each must be convinced that funding trails, bicycle paths and greenways is a good thing. Park and recreation interests seldom have such a great opportunity to achieve their goal of improved recreational resources. Now is the time to use your best advocacy skills and leadership powers to get trails on the ground in your community and state.

Vermont Trails and Greenways Couuncil

While it is relatively easy to build local interest in a specific trail, it is much more challenging to develop an interconnected system of trails for an entire community, region or state. Some interconnection will happen locally, as advocates realize the benefits of connecting their trails with those in the neighboring community, but a statewide "trails and greenways" plan is the best way to see that connections happen.

The Vermont Trails and Greenways Council, a nonprofit coalition of trail users and trail providers, set out to develop a trails plan. Along the way, they sensed the communities, desire to create trails. They also saw that the communities were unable to secure funding.

The Vermont Trails and Greenways Council approached the governor and the secretary of transportation and asked for transportation money for bicycle and pedestrian paths. In the first year, $500,000 was allocated. The Agency of Natural Resources handled the applications and community outreach in cooperation with the Agency of Transportation.

Since the first allocation, Governor Dean and the Vermont legislature have appropriated $5.5 million and $4.5 million. The communities have responded every time with more than twice the amount in applications for funding. Demand for greenways and funding is high and the stories are front page news.

Though flooded with applications, the transportation path program is in need of refinement. There is resistance to the Agency of Transportation's hard position on construction guidelines and what, to many, is an excessively long period (three to seven years) to get the projects out to construction. However, the Agency of Transportation is working to improve the program and the council and communities are helping to make the changes.

Vermont has also geared up to take full use of the National Recreational Trails Act funds. Forty percent of the fund will go to projects on state lands. Fifty-three percent will be for grants to communities and trails organizations which will be required to provide a 20 percent match either in-kind or cash. A five-person committee recommended by the Vermont Trails and Greenways Council will rate and rank the non-state projects according to criteria determined by the council. Using a fast track application process, most of the funds will he used during the 1993 construction season.

The Vermont Trails and Greenways Council has also been working aggressively to have its stateside share of the state gas tax from off-highway recreational vehicles appropriated by the legislature. Working with guidance from Governor Dean, Transportation Secretary Garahan and individuals on the House and Senate Transportation Committee, Vermont should meet the deadline to comply with the law in the Recreational Trails Act.

Much of the success of Vermont's development of a comprehensive integrated approach to trails and greenways is due to the Vermont Trails and Greenways Council. Unlike most state trails committees, the Vermont Trails and Greenways Council is not appointed. Rather, it is made up of volunteers. Its membership consists of representatives from municipal, state and federal governments, trails organizations and interested individuals. But what really makes the council unique is that also serving on the council are representatives of landowner organizations. The timber, farming and private property owners who provide the resource base for approximately 75 percent of the state trails are also well represented. While this sometimes makes for long meetings, the dialogue that takes place has been most productive. Some of the by-products have been the development of a landowner relations policy and the printing and distributing of a "When Landowners Share: Show You Care" brochure to educate recreational users of land about how they should treat landowners.

The council has been the energy and ideas behind most of the good trail ideas. Projects have ranged from getting funds from the Agency of Transportation, to working with the governor, proposing legislation, planning conferences and, of course, helping write the state trails plan.

None of the success would have been possible without the special commitment of a group of volunteers. The idea of a state trails council is worthy of consideration.

15 Steps to Create a Trail or Greenway in Your Community

Every trail or greenway project is not going to be the same, but there are more similarities than dissimilarities. The following is a brief outline of the 15 steps involved in creating a trail or greenway. You can use this pattern to get started, or as a checklist if you are in the middle stages.

* Come up with the idea. The idea for the trail might happen when you visit another greenway, talk to a neighbor about the lack of biking safety or hear about available transportation funding. Once you talk to someone else, you are both on the road to a greenway.

* Write articles about trails and greenways for the local paper. This is going to make your job easier in the future when you go asking for money or land. People will know what a greenway, bike path or walking trail are because you told them in the newspaper articles.

* Gather together a group and talk about the possibilities. This group doesn't need to be formal. One early discussion can include the potential users of your facility and if you want a name for your group or the path.

* Take a map and mark public lands, elementary and high schools, shopping areas, housing district and offices. Look at the general destinations and identify the property owners between those destinations. By the way, do not put a line on the map where your trail will go until you have talked to the involved landowners!

* Talk to the involved landowners. Ask them their ideas about a greenway. Ask if they will become part of the initial group looking at the feasibility of a greenway.

* Seek guidance from local and state agencies. Check out potential funding sources. Find out what might be involved in obtaining necessary permits. Apply for the transportation planning money.

* Prepare a more professional map. Make a line for the route if the property owners have agreed they want their land to be part of the plan.

* Publish the map in the local paper. Write detailed articles for the paper and talk about those serving on the committee.

* Hold large public meetings with the maps. Have rough plans prepared to discuss with the group. Seek initial funding, remembering ISTEA and LWCF.

* Begin major fundraising locally, statewide and nationally. Grant applications have due dates. Now is the time to start turning in the applications.

* Acquire the land through a formal arrangement. Land can be donated, given by a deed of easement if necessary, purchased in fee simple. If the property owner wants to wait longer to see if the project will go through, they can sign a letter of intent which, as a side benefit, helps build support for the trail.

* Prepare the plans and specifications. Depending on the sources of money, these plans and specs will vary in detail. For a hiking trail, plans can be more vague. For a bicycle or pedestrian path using transportation funds, design standards must be followed. And don,t forget to apply for necessary permits.

* Begin construction. If the project is a bicycle or pedestrian path, this will happen after going out to bid and selecting the most appropriate contractor. If the project is a simple trail on public land and permission to construct the trail has been given, construction can begin after gaining the necessary permit.

* Say thanks to all who donated money, land, volunteer time or just enthusiasm.

* Maintain and enhance the path. Plant flowers, cut grass, put in bench and start planning for the greenway extension.