Victorian State Public Land Mountain Bike Guidelines 2020
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Victorian State Public Land
Mountain Bike Guidelines – 2020
August 2020
Contents
Executive Summary............................................................................................ 2
Part One – Introduction ..................................................................................... 3
1.1 Introduction & scope ................................................................................ 3
1.2 eMTB Classification ................................................................................... 4
1.3 Purpose & application ............................................................................... 5
Part Two – Key Principles ................................................................................... 6
2.1 Guiding Principles ..................................................................................... 6
2.2 Planning Principles .................................................................................... 7
2.3 Operating Principles .................................................................................. 8
2.4 Conflict of interest .................................................................................... 9
Part Three – Applying the guidelines ............................................................... 10
3.1 Legislative context .................................................................................. 10
3.2 Managing Country Together ................................................................... 11
3.3 Management and Joint Management Plans ............................................ 12
3.4 Policy and Procedural Framework........................................................... 12
3.5 MTB Guideline ........................................................................................ 13
3.6 Significance Hierarchy ................................................................................ 14
3.7 User Types / Types of Mountain Bikers ............................................................. 16
3.8 Trail Types .................................................................................................. 17
3.9 Market Motivators and Needs ..................................................................... 18
3.10 Trail Difficulty Rating System ................................................................ 19
Appendix One – Strategic Assessment ............................................................. 20
Appendix Two – Detailed Planning Assessment ............................................... 29
1|P a g e
Executive Summary
Park Victoria and the Department of Environment, Land, Water and Planning via its entity Forest Fire
Management Victoria have prepared these guidelines to assist public land managers to evaluate new
or existing opportunities for mountain biking.
Mountain biking is the riding of purpose built bicycles to explore and enjoy the great outdoors.
In Victoria, mountain biking has become an increasingly popular and well-recognised recreational
activity on public land, offering many social, health and economic benefits.
Public land provides some of the best settings for mountain biking in Victoria. There is an increasing
demand by mountain bike riders of differing needs and abilities to access existing and new tracks.
Many of these existing and new tracks have not been formally authorised by the public land
manager, and their development and use can lead to a range of issues including visitor conflicts and
damage to critical environmental and cultural heritage values.
Public land in Victoria is managed in accordance with a legislative and policy framework that
provides direction for mountain biking activity and infrastructure. The following table provides an
overview of land categories and the type of mountain bike tracks that may be allowable on each
category of public land. These guidelines provide further information on relevant legislation,
strategic assessments and detailed planning required in decision-making. They provide a template to
be used in evaluating all mountain biking opportunities.
These guidelines also direct Parks Victoria and FFMVIC staff to their respective procedures and
processes that need to be considered, including Parks Victoria’s Visitor Experience Framework and
Placed Based Planning procedure and FFMVIC’s District Action Plan (DAP) process.
The state of Victoria acknowledges and thanks Mountain Bike Australia (MTBA) for their
consultation and contributions into the contents of this document https://www.mtba.org.au
Mountain Bike Australia is transitioning to become part of AusCycle from October 2020
http://auscycling.com.au/
Traditional Owner Acknowledgement
Victoria’s network of parks, reserves and forests form the core of Aboriginal cultural landscapes,
which have been modified over many thousands of years of occupation. They are reflections of how
Aboriginal people engaged with their world and experienced their surroundings and are the product
of thousands of generations of economic activity, material culture and settlement patterns.
The Victorian Government acknowledges the Traditional Owners of these cultural landscapes,
recognising their continuing connection to Victoria’s parks, reserves and forests and ongoing role in
caring for Country.
2|P a g ePart One – Introduction
1.1 Introduction & scope
These guidelines provide a consistent approach to assessing and managing the provision of
mountain bike opportunities on public land in Victoria.
Mountain Bike Australia (AusCycle) defines MTB as:
Riding specialised bikes on dedicated off road dirt surfaces with a focus on purpose built single track.
Mountain biking has emerged in Victoria over the past three decades to become an increasingly
popular and well-recognised recreation activity, leading to growing demand by mountain bike riders
to access existing tracks and to establish new tracks.
Well planned and designed mountain bike tracks and networks can provide a variety of
opportunities for riding in natural settings. This can lead to opportunities for connection to nature,
education and promotion of environmental and cultural stewardship, as well as enabling physical
activity as part of healthy lifestyles. Mountain biking can be provided as a tourism product and is a
growing sector that regional tourism bodies are identifying for development projects.
These Guidelines identify and recognise there is a need to provide the tools to guide a more strategic
approach to mountain bike investment/development. This strategic overlay is the domain of a MTB
Strategy. Parks Victoria and FFMVIC will be working with the Victorian Government to encourage
the development of a state MTB Strategy to inform future strategy investment in MTB trails.
This guide highlights relevant policy, procedure and legislation that should be considered when
assessing the merits of the activity of MTB in state government public land in the state of Victoria.
This document is a guideline. It is not the process, policy or formal mechanism to assess the
suitability and planning approvals of any activity and is to be utilised as guide only.
3|P a g e1.2 eMTB Classification
Mountain biking in this guideline includes use of power assisted e-bikes classified as a ‘bicycle’ and
excludes e-bikes defined as ‘motorbike’ in accordance with VicRoads classification. Vehicles are
defined in Victoria within the Road Safety Act 1986. Vehicle definitions includes bicycles.
http://www8.austlii.edu.au/cgi-bin/viewdoc/au/legis/vic/consol_act/rsa1986125/s3.html#vehicle
Definition of a power assisted bicycle:
A power assisted bicycle is identical to a pedal powered bicycle, except it has an auxiliary motor.
Power assisted bicycles have two definitions in Victoria:
• A pedal cycle with one or more auxiliary propulsion motors attached which has a combined
maximum power output not exceeding 200 watts.
• A bicycle certified as a Pedalec (compliant with European Committee for Standardization EN
15194:2009 or EN 15194:2009+A1:2011 Cycles - Electrically power assisted cycles - EPAC
Bicycles). This bicycle features an auxiliary power producing no more than 250 watts and
specifies this as a continuous rating. It also restricts the top power assisted speed to 25
kilometres per hour and requires the rider to pedal to access the power.
An e-bike MTB is defined generally, as a power-assisted pedal cycle designed for ‘non-road’ or
recreational use only, and it must satisfy all the criteria mentioned below:
• Tyres with tread blocks rather than grooves
• Front or full suspension or fat tyre section width greater than 2.6 inch
• Wheel sizes shall be a minimum of 26 inches
• Manufacturer's specifications that outline that the vehicle made strictly for "off-road" use
In addition, these vehicles should not have road motor vehicle design features, such as:
• provision for mounting a registration plate
• direction indicators
• brake light(s).
https://www.infrastructure.gov.au/vehicles/imports/import_options/orneao.aspx
A motor bike or recreational motorcycle is not classed as a bicycle if:
• the motor is not an auxiliary source of power (a person must still be able to propel the
bicycle via pedals without the motor operating).
• the motor's power output exceeds 200 watts (whether or not the motor is operating), unless
certified as Pedalec.
These are motorcycles. The rider will be required to hold a motorcycle licence and have the vehicle
registered before it can be used on the road network. Motorcycles cannot be ridden on footpaths or
bicycle paths. Motorcycle riders must wear an approved motorcycle helmet.
https://www.vicroads.vic.gov.au/safety-and-road-rules/cyclist-safety/power-assisted-bicycles
4|P a g e1.3 Purpose & application
The purpose of these Public Land Mountain Bike Guidelines (guidelines) is to assist public land
managers to provide a consistent approach to the assessment of mountain bike opportunities in
parks, forests and reserves. The guidelines provide direction on where mountain biking may be
allowed and provide advice on planning and developing mountain bike opportunities in a sustainable
manner.
The guidelines assist public land managers to make informed decisions about existing and future
mountain bike tracks that consider legislative, policy, environmental, cultural heritage, social or
safety requirements and that balance the needs of all recreational users. They are intended to
facilitate more efficient management of mountain bike tracks and to provide a clear and sound basis
of decision making on tracks at a local level.
The Guidelines provide guidance on rationalising existing unofficial networks and to how to review
proposed new networks until a State MTB Strategy is in place to inform future strategy investment
in MTB trails.
The guidelines do not provide a plan for where, how and when mountain biking opportunities should
occur on public land in Victoria, nor do they make any commitments. They do, however, provide the
basis for reviewing existing and proposed tracks, by providing criteria against which the tracks
should be measured. They enable public land managers to make informed and transparent
decisions on the track networks that will form part of a sustainable network and highlight those that
will be targeted for rehabilitation and closure.
The guidelines should be referred to prior to engaging with potential proponents of mountain biking
opportunities, to ensure subsequent discussions are appropriately informed.
For these guidelines, ‘public land managers’ refers to FFMVIC and Parks Victoria staff and ‘public
land’ refers to land managed by FFMVIC and Parks Victoria.
5|P a g ePart Two – Key Principles
2.1 Guiding Principles
The guidelines have been developed based on the following guiding principles.
i. Any decisions regarding mountain biking facilities, events and activity on public land must be
consistent with the legislative and policy framework, including the purpose of the land’s
reservation, regulations, planning policy, approved Victorian Environmental Assessment
Council (VEAC) recommendations and management plans.
ii. Mountain biking is a growing recreational activity that can provide riders with health and
well-being benefits. Mountain biking can provide social, tourism and local economic
benefits when well planned.
iii. Public land managers will seek to facilitate access for mountain biking in appropriate
locations through the provision of suitable facilities.
iv. Public land managers will work in partnership with Traditional Owners in the planning,
delivery, maintenance and/or ongoing resourcing of mountain bike opportunities.
v. The provision of mountain bike facilities must consider the impact of mountain bike
activities on public land according to environmental and cultural values, safety risks, land
capability and the needs of other public land users.
vi. Public land managers will consult with the mountain bike community and other stakeholders
in the planning, delivery, management, maintenance and ongoing resourcing of mountain
bike opportunities.
vii. Public land managers will support a Universal Design Principle-based approach to the
development and management of mountain bike infrastructure, events and ongoing
operation as per the Victorian Government’s commitments to Universal Design for equity
and maximum benefit to Victorians and the economy.
viii. In the development of new or improving existing facilities FFMVIC and Parks Victoria will
work with the community and local government to support the connectivity needed to
capitalise on any social economic and environmental benefits at a local or regional level and
in accordance with the legal framework and a strategic approach.
ix. Trails, or sections of trails, used for mountain biking that have not been authorised by the
public land manager should be closed by the land manger if planning consent cannot be
obtained. Such management actions will be communicated to the mountain biking and
wider community before the closures occur, unless there is an imminent safety risk.
6|P a g ex. In assessing the suitability of facilities, environmental, cultural, social and economic
opportunities and risks will be considered. In protected areas, protection of biodiversity
values is the primary management objective.
xi. In applying these guidelines public land managers will work in partnership with traditional
owners, community, local government and mountain bike stakeholder group.
xii. Mountain bike facilities will be proactively managed in accordance with agency asset
management practices.
xiii. A risk management approach will be used in assessing the suitability of mountain bike
facilities.
xiv. These guidelines have been informed and are consistent with the Australian Mountain Bike
Trail Guidelines https://www.mtba.org.au/news/australian-mountain-bike-trail-guidelines/
2.2 Planning Principles
In assessing the provision of a mountain bike trail on public land, the following key planning
elements should be considered, and the relevant approval processes must be followed.
Each park, reserve and forest are within a planning scheme, usually administered by local
government. Any developments are required to be considered in accordance with the Planning and
Environment Act 1987. http://www5.austlii.edu.au/au/legis/vic/consol_act/paea1987254/
The Planning Scheme identifies zones and overlays that may limit or even prohibit certain uses and
developments and expansions.
Planning zones may generally allow MTB’ing, however some detailed planning overlays may prohibit
development are found in overlays.
A planning scheme assessment may be required for all new proposed uses and developments on
public land. The following online services provide access to Victorian planning scheme information:
https://www.planning.vic.gov.au/
Indications on current usage patterns (legal or illegal) are publicly available on popular social
platforms such as :-
https://www.strava.com/heatmap#6.93/145.50177/-36.66459/hot/all
https://www.openstreetmap.org/relation/2316741#map=6/-36.333/147.217&layers=C
https://www.trailforks.com/region/victoria-3457/
7|P a g e2.3 Operating Principles
i. Relevant legislation, government policies and strategies
Public land must be managed in accordance with relevant legislation, government policies, approved
Victorian Environmental Assessment Council and, or the Land Conservation/Environment
Conservation Council or its predecessor’s recommendations and strategies, including those for the
conservation of biodiversity, threatened species and communities, catchment management and fire
management.
ii. Customary uses
Traditional Owner land management practices and customary uses are recognised as integral
components of ecosystems, and the cultural significance of other land uses since European
settlement represents a further dimension of the environment.
iii. Landscape scale
The broader context of the landscape and impacts of park and forest management on vegetation
communities will be key considerations in decision making for environmental management so that
approaches and investment in park and forests and reserves complement and build on work in the
broader landscape. The Victorian Government will work with other land managers in seeking to
achieve habitat connectivity across landscapes using park and forests as keystone areas.
iv. Planning, Engagement and Programming
Planning and programs will define objectives and outcomes for key park and forest values based on
risk assessment and priority setting. Planning and programming will be undertaken in accordance
with any approved Joint Management Plans and after engagement with appropriate Traditional
Owners. Planning will be evidence-based and undertaken openly and collaboratively with the
community. Plans and programs will be adapted considering monitoring and evaluation of
management effectiveness. A consistent approach to planning will cover multiple parks, forests and
reserves at a landscape scale and will be integrated with the management of adjacent public land
and communities.
v. Governance Arrangements and Partnerships
Governance arrangements will be formalised between all partners of supported mountain bike
opportunities. This includes formal agreement of roles and responsibilities, management,
maintenance and ongoing finance and resources. Clubs and community group support for activities in
parks and reserves (such as track construction and maintenance) must be in line with agency “friends
groups” formal arrangements.
vi. Universal Design Principles
The Victorian Government is taking a universal design approach to all future infrastructure
development, services and investment. Universal design is about making facilities and services
accessible to people of all abilities. Universal design makes everything usable for as many people as
possible from the beginning, so that changes aren’t needed later. Park and forest management
operations will take a universal design approach.
8|P a g evii. Park and forest operations
All park and forest management operations will be delivered safely, efficiently and in an
environmentally sustainable manner to relevant standards and practices. Appropriate authorised uses
will be permitted and monitored.
Inappropriate uses will be subject to “risk-based” compliance activities in accordance with priorities
and available resources. Staff should be appropriately trained and skilled to undertake management
operations, including enforcement of regulations.
viii. Climate change adaptation
The Victorian Government recognises the accumulating evidence of climate change as a critical risk to
park, forest and reserve environments and will actively pursue adaptation strategies that minimise the
impact of changes in temperature, hydrology and extreme events in Victoria’s park and forest system.
ix. Monitoring and evaluation
Management effectiveness will be monitored and evaluated to improve decision-making and program
delivery. Scientific research will be directed to informing park and forest operations and decision-
making. All management activities will be informed by adaptive planning and scientific evidence.
2.4 Conflict of interest
Avoiding actual, potential and perceived conflicts of interest is fundamental to ensuring public
confidence in government-based organisations.
Conflicts can exist between public duties and private interests. These conflicts may be:
• an actual conflict of interest—there is a real conflict between an employee's public duties
and responsibilities and private interests
• a potential conflict of interest—an employee has private interests that could conflict with
public duties
• a perceived conflict of interest—situations where a third party could form a view that an
employee's private interest could improperly influence the performance of duties, now or in
the future.
An employee's personal, professional or business interests and the personal, professional and
business interests of individuals or groups with whom they are closely associated. Private interests
may be:
• pecuniary—actual, potential or perceived financial loss or gain
• non-pecuniary—favours or prejudice resulting from friendship, animosity or other personal
interests.
Demonstrable self-interest and assessment of public land recreational activity permissibility may be
perceived as a conflict of interest. Many conflicts of interest are unavoidable as part of everyday
life. It is how we manage them that is important. If you think that you may have a conflict of interest:
at a minimum staff should complete a declaration form and discuss further with your manager.
9|P a g ePart Three – Applying the guidelines
3.1 Legislative context
Public land managers must refer to current legislative and planning tools, organisational policies and
procedures, and any relevant Regulations and approved recommendations from the Victorian
Environmental Assessment Council (VEAC), and its predecessors, to determine if a mountain bike
track is compatible with the purpose of the reservation of the land being managed. The table below
is a general permissibility guide, subject to tracks meeting all legislated planning requirements.
Table 1: Mountain Bike Riding track permitted by land category
Land Sub Category Open `MVO’s Multi-use Down Hill Purpose built
Category Public Management Trails Trails Single Track
Vehicles only
Roads roads
2WD
and
4WD
Protected National & State Park Yes Yes Yes1,3,6 Yes 1, 3,6 - by Yes 1,3,6 – by
Areas exception exception
Wilderness Park, Wilderness 4
No No No No No
zone, Remote & Natural Area,
Reference area
Nature Conservation Reserve Yes Yes6 No No No
Non- Regional and Metro Parks Yes Yes Yes Yes Yes3,6
Protected National Heritage Park Yes3 Yes3 Yes3 Yes3 Yes3
Areas Historic and Cultural Features Yes Yes Yes Yes Yes
Reserve
Natural Features Reserve - Yes Yes Yes Yes Yes
including: - Bushland Area,
Cave, Geological &
Geomorphological features
area, Highway Park, Lake
Reserve
Mineral Spring Yes Yes Yes Yes Yes
Streamside Area Yes Yes Yes Yes Yes
Wildlife Area / State Game Yes Yes Yes1,2,6 Yes 1,2,6 Yes 1,2,6
reserve
Alpine Resort Yes Yes2 Yes2 Yes2 Yes2
Forest Park and State Forest Yes Yes Yes Yes Yes
Community use area: - Yes Yes Yes Yes Yes
Education area
Earth resources: - Stone Yes Yes Yes No No
reserve
Category Heritage river Yes Yes Yes5 No5 No5
overlay Natural catchment area Yes Yes Yes5 No5 No5
1. Permitted under certain circumstances
2. Seasonal Activity
3. If provided for in a management plan.
4. There should not be any public roads in a wilderness park and forest
5. Subject to underlying park and forest category
6. Subject to appropriate set asides being created
10 | P a g e3.2 Managing Country Together
Victoria’s unique network of public land is integral to the protection of Aboriginal cultural
landscapes.
Public land managers are committed to working in partnership with Victoria’s Traditional Owners to
collectively protect and nurture natural and cultural heritage. Aboriginal people have lived
throughout Victoria for more than a thousand generations. Land forms the basis of Aboriginal
existence and identity which, along with water and natural resources, were subject to access and use
rights and sustainably managed according to traditional laws and customs.
FFMVIC and Parks Victoria respect the rights of Aboriginal peoples and are working towards
implementing the following principles which must be respected in providing for mountain biking
activity:
i. Managing for cultural and environmental values: Aboriginal cultural and natural values will
be considered at least of equal importance in the management of public land.
ii. Recognition of Traditional Owner priorities and aspirations: Park and forest management
planning will align with the priorities and goals of Traditional Owners.
iii. Locally tailored approaches: Projects, management activities and engagement processes
will be tailored to meet the social protocols, capacity and priorities of Traditional Owners.
iv. Traditional Owner control of cultural heritage: Tangible and intangible heritage will be
managed in the appropriate way, as determined by Traditional Owners.
v. Recognition of traditional culture, knowledge and history: Traditional knowledge, culture
and history will be integrated appropriately into the way park, reserves and forests are used
and managed, in collaboration with Traditional Owners who have the responsibility to speak
for Country.
vi. Managing potential impacts: Any ground disturbance activity that causes visible impact in
public open space is obligated to consider potential impacts to cultural landscape values.
vii. All Formally Recognised Traditional Owners are represented by Traditional Owner
corporations.
https://www.aboriginalvictoria.vic.gov.au/acknowledgement-traditional-owners
11 | P a g e3.3 Management and Joint Management Plans
Metropolitan, National and State Park and State Forest may have a management plan that
articulates the vision, goals, outcomes, measures and long-term strategies for each park or forest
management area.
Management plans guide the future management of the park or forest and are prepared in
consultation with the community. A key part of the management planning includes the
identification of zones, and for park and forests, overlays which provide further prescriptions for
management. Some zones are defined through legislation, such as Wilderness Zones, while others
are set through the management plan, such as Conservation Zones or Special Protection or Special
Management Areas. These plans are a useful resource in planning for mountain biking.
Some legislation has superseded Management Plans and will need to be considered regardless of
actions in Management Plans. These guidelines will be updated as new or updated legislation is
released.
Restricted and prohibited access in Management plans are facilitated via set aside determinations.
These set asides are a means by which actions in approved management plans may be implemented,
including where activities may or may not be permitted and under which conditions. Set asides are
enforceable and breaches of conditions may be penalised.
In some land categories, cycling is restricted to open public roads and management vehicle only
roads. In most other areas, cycling is allowed unless areas are ‘set aside’ through a set aside
determination to prohibit or restrict cycling. Each set aside needs to be consistent with an approved
management plan or supported by appropriate community consultation.
3.4 Policy and Procedural Framework
i. Parks Victoria - Policies
Policies are approved by the Board and compliance is mandatory. Policies establish what we do and
why we do it. Where more detailed information is required, refer to procedures, manuals and
guidelines http://warnawi.parks.vic.gov.au/policiesproceduresandforms/Pages/Policies.aspx
ii. Parks Victoria - Procedures and guidelines
Procedures, guidelines and manuals inform you how to comply with our policies. Procedures are
approved by the Chief Executive Officer and compliance is mandatory. Guidelines and manuals are
approved by Executive Directors and compliance may be discretionary.
http://warnawi.parks.vic.gov.au/policiesproceduresandforms/Pages/Procedures,-manuals-and-
guidelines.aspx
iii. Department of Environment Land Water and Planning– Forest Fire Management Victoria
Procedures, guidelines and manuals inform how staff are to comply with our policies. These are
viewable on Ada (DELWP’s Intranet).
12 | P a g e3.5 MTB Guideline
The assessment process outlined below enables the standard and consistent assessment of the
suitability of public land for mountain biking. The process can apply to both existing tracks
(authorised or unauthorised) and proposals for new tracks.
It does not replace any policy, procedure or legislative requirement as a matter of course.
i. Step 1 is to conduct a Strategic Assessment (see Appendix One) to consider the strategic
context, any social and economic impacts, any physical, environmental and heritage impacts
and safety and resourcing factors. This step will be informed by the Guiding Principles
above and the Legislative Framework - see Section 3.1
ii. Step 2 is to make a recommendation for the track or track network. It is important to
remember that if assessing a track network, multiple recommendations can be made (e.g.
close three tracks, maintain two tracks and modify one track). Appendix One – Strategic
Assessment
iii. Step 3 is for the recommendation to be approved or endorsed by a delegated public land
manager. The approver will be determined based on the risk and financial delegations of
FFMVIC and PV.
iv. Step 4 is to complete the required action for the approved recommendation. This may lead
to undertaking minor works to formalise a track, closing a site or track (and
decommissioning any associated assets), undertaking a Detailed Planning Assessment
and/or a trails plan is required to be completed before any formalisation of tracks can occur.
Appendix Two – Detailed Planning Assessment.
v. Formal approvals via the relevant legislation are then required as applicable.
It is important to ensure sufficient resources are allocated to complete each step. It may prove
valuable to allocate resources to undertake a specific number of Strategic Assessments and Detailed
Planning Assessments (as required) in one year, taking into consideration that ad hoc proposals may
also be received, requiring additional resources.
13 | P a g e3.6 Significance Hierarchy
Establishing the scope and scale of a new trail network is essential to
Local Significance
ensure networks of the right type, size, scale and extent are
established in the right locations. Development strategies include A mountain bike facility for a small
location significance, distribution, event requirements and trail community and/or a tourism resource
model detail. The trail significance hierarchy gives a quantitative that caters for day trips.
justification for identifying the size of a trail network.
Regional Significance
A significance hierarchy system will be defined under the emerging
National Mountain Bike Management Guidelines to inform A mountain bike facility for a small
appropriate size and scale of mountain biking facilities. population center or large community
The significance hierarchy typically comprises three levels: and/or a tourism resource that caters for
National, Regional and Local. The quantitative criteria for the short breaks or weekend trips.
significance of a location include:
National Significance
▪ Minimum supporting infrastructure requirements
▪ Length of trails and number of loops A mountain bike facility designed for a
large population center and/or a
▪ Proportion of single track
tourism resource that caters for at least
▪ Minimum site area required a week of unique riding opportunities.
▪ Proximity to major transport links / airports / highways
▪ Accessibility from major highways
▪ Exclusion zones (to be determined at the regional level)
The establishment of a diverse range of locally, regionally and nationally significant locations within a single
region will result in an internationally significant destination to cater for visitors from across a broad spectrum
of markets and user types.
An appropriate level of significance for individual trail developments must be established in the initial stages
of any new trail planning, and the following questions can help to determine the appropriate significance level
within the hierarchy:
▪ What is the proposed significance of the trail system to both local and wider communities in terms of both
economic and social impacts?
▪ What is the significance of the proposed trail system in terms of wider recreation and access issues?
▪ Will the development of the proposed trail system have impacts that are felt nationally, regionally, or
locally (community level)?
▪How many people and communities does the proposed trail system likely affect – positively or
negatively?
Locally Significant Locations
Locally significant locations cater for community based trail use with tourism demand limited to day visits.
Facilities are developed within a 10-15km zone from population centres unless servicing existing recreation
and camp sites, or significant population centres where alternate opportunities do not exist.
Locally significant locations can develop around the trail town and trail centre models but can also be
stand-alone individual and networked trail systems.
They contain limited services and infrastructure but can still host events. Excluding long distance trails, up to
20km of trail may be developed with the majority being single track forming at least two loops. Locations
of local significance may develop limited trail types and classifications and can expect demand from surrounding
regionally and nationally significant locations.
14 | P a g eRegionally Significant Locations
Regionally significant locations cater for small population centers or large communities and/or tourism
resources that cater for short breaks or weekend trips. Facilities should be developed within a 15-20km zone
and be focused around a primary trail center or trail town model.
They provide a minimum level of service and infrastructure and can host national and regional events.
Excluding long distance trails, regionally significant locations contain at least 20km of trail with the majority
being single track, forming at least two major loops.
Locations of regional significance should encompass broad trail types and classifications. Regional locations will
see demand for trails from surrounding nationally significant locations.
Nationally Significant Locations
Nationally significant locations capture the tourism market for at least a week of unique riding and can
provide a large recreation resource for a major population center. They are developed to cater for
international, interstate and intrastate tourism as a priority and facilities fall within a 20-25km zone. Trail
development is focused around a primary trail town model and can include trail centers, networks or
individual trails as part of the hub.
Excluding long distance trails, locations should contain over 80km of trail with the majority being single track,
forming at least four major loops. Locations of national significance should develop all trail types and
classifications where appropriate.
These locations will experience very high demand and should provide a high level of services and
infrastructure to riders and also have the ability to cater for major international and national events.
Similar to the development of Blue Derby (refer Case Study link below), staged development should be
implemented to prove the benefits of the network. It is generally recommended that a location is developed
to a regional level of significance before expanding.
https://www.mtba.org.au/wp-content/uploads/CCJ17427-Blue-Derby-Case-Study.pdf
The benchmarks of 80km and intended length of visitor stay should be reviewed and adjusted based on
the relevant geography within a region when undertaking regional landscape management planning. A
nationally significant facility is not required in all regions or locations to have positive outcomes and provide
the benefits of mountain biking. The appropriate level of development should be determined in planning
stages as detailed in the recommendations section.
15 | P a g eThe table below ranks how critical, preferable, or non-essential the key requirements are for each location
significance level.
Key Requirement National Regional Local
Trail Quantity > 80km > 20km < 20km
Tourism Market
Recreation Resource
Single track
Accommodation
Critical
Café
Preferable
Visitor Services
Non Essential
Visitor Information
Car Parking N
Toilets o
Showers
n
Bike Sales and Repair
Bike Hire -
Trail Signage e
Trail Mapping s
Event Infrastructure
s
Diversity of Trail Types
Diversity of Classifications e
n
3.7 User Types / Types of Mountain Bikers
t
Experience Sought Classification Sought Market
Potential i
Leisure Includes general cyclists of all ages and abilities and Generally, seek Large
a
potentially the largest market. They ride infrequently, often White and
have limited skills and require very accessible trails. Not Green l
members of clubs and more likely to use highly accessible classification trails.
routes close to home, or make the journey to trail facilities Progress to blue
with amenities and services such as bike hire, cafés and trails.
toilets.
Enthusiast Purely recreational mountain bikers with moderate skills Mostly, Green and Moderate
and variable fitness, and ride weekly. They are typically aged Blue classification
29-49 and form the existing market majority. Typically, don’t trails. Progress to
compete in events and possess limited outdoors experience. Black trails.
Prefer trails with good trail signs, seek technical but not too
challenging trails. Most likely to take short breaks to MTB.
Sport Competitive mountain bikers, who ride regular routes multiple Green to Double Small but
times a week and are members of mountain bike clubs, they Black influential
are a small but influential market. They are willing to seek less
accessible trails, have a high fitness level and are technically
proficient but may have limited outdoor skills. They ride a
very wide variety of trails.
16 | P a g eAdaptive Riders with mobility challenges who require modified or All Classifications as Small
mountain specialised riding equipment to participate, such as hand per the Adaptive Trail
biking cycles. There is an emerging group of people who use off- Rating (ATR) system
road hand cycles to participate.
Independent Skilled outdoor enthusiasts who ride once a week and are White to Black Small
technically proficient with good level of fitness. Generally,
a small market. Often involved in other outdoor activities,
capable of planning their own rides and ride a very wide
variety of trail classifications. Adventure is more important
than the technical challenge & seek more remote trails.
Gravity Highly skilled technical riders who seek very challenging Blue to Double Black Small
trails, typically ride at least once a week and are often
members of clubs. They represent a small market that
requires purpose-built trails often with an uplift facility,
which are repeatedly used in a concentrated manner. Gravity
riders seek specific trails with the highest classifications.
3.8 Trail Types
Description
Cross Country Primarily single track oriented with a combination of climbing and descending, and natural trail
(XC) features of varying technicality. Cross country trails appeal to the majority market and can cater for
timed competitive events. Typically, bikes are lightweight with shorter travel, dual suspension or
have no rear suspension.
All Mountain Like cross country and primarily single track oriented, with greater emphasis on technical descents,
(AM) with non- technical climbs. All mountain trails can cater for timed competitive events. All mountain
trails may use uplift to the trailhead. Bikes are typically light weight with medium-travel dual
suspension.
Downhill Purely descent trails with emphasis on steep gradients for speed and technical challenge with a
(DH) focus on skill development, can cater for timed competitive racing. Downhill trails usually require
uplift to the trailhead. Bikes are designed for descending, built for strength over weight and
typically long-travel dual suspension.
Freeride (FR) Typically, descent focused trails with emphasis solely on technical challenge and skill development.
Feature built and natural terrain technical features, drops and jumps. Appeals to the more experienced
market, caters for competitions judging maneuvers and skills. Bikes typically medium to long-travel
dual suspension built for strength.
Park (PK) Built feature environment with emphasis on maneuvers, skill development and progression. Appeals to
wide market including youth and can cater for competitions judging aerial maneuvers. Can include jump
tracks, pump tracks and skills parks. Typically, dirt surfaced but can include hardened surfaces. Bikes are
typically built for strength, with short travel suspension.
Touring (TO) Typically, long distance riding on reasonably uniform surface conditions and lower grades. Touring
trails are dual direction linear trails or long-distance circuits with a focus on reaching a destination.
Touring trails can include rail trails, access/fire roads and single track. While there is a limited market
for long distance mountain biking, touring trails can be ridden in sections making them accessible to
all. Bikes may be carrying panniers or towing trailers, and are usually robust with limited suspension,
however, for short sections or day trips most mountain bikes are suitable.
17 | P a g e3.9 Market Motivators and Needs
The experiences sought, needs and preferences of the different mountain bike user types, trail facility models,
infrastructure and supporting facilities are considered in the development of mountain biking facilities.
Different rider types are driven by varying motivators, depending on whether they are riding for recreation or
undertaking travel. Primary motivators are controllable factors that influence destination choice, including:
Market Motivator Needs
Diversity A large quantity and variety of trail types and classifications located in varied
terrain and topography.
Uniqueness Facilities that provide an iconic, memorable and fun experience by riding in a unique
setting. Typically, in a natural landscape, with high visual and emotional value, and
often connected to an attraction.
Quality A range of high quality experiences predominantly on single track that is purpose
designed and built for mountain biking. High quality information, services and
infrastructure are also important.
Accessibility Trails located within close proximity of population centers and short stay
accommodation to promote use for recreation, competition and tourism. Cohesive, well
signed, mapped and promoted trails. Connectivity to other trails, transport, services and
infrastructure increase accessibility from the trails. Visitor services to improve
accessibility for less experienced users.
Community A developed mountain bike community offering market credibility, sense of belonging
and camaraderie through events, volunteer support and social engagement.
The different user types value different motivators depending on whether they are undertaking
travel or riding recreationally, as outlined below.
Type Reason for Recreation needs & Travel needs & motivators Trail Types Sought
mountain motivators
bike travel
Leisure Secondary Accessibility & Accessibility & Uniqueness Cross country single
Quality track and Touring trail
Enthusiast Primary Accessibility & Diversity & Quality Cross country, All
Quality mountain Single track
and bike park
Sport Primary Diversity Community & Diversity Cross country, all
mountain single track
Independent Secondary Diversity Uniqueness & Diversity Cross country, all
mountain single track,
and touring trail
Gravity Primary Accessibility Community & Quality Freeride, downhill single
track and bike park
18 | P a g e3.10 Trail Difficulty Rating System
The MTBA Trail Difficulty Rating System (TDRS) outlined below provides seven levels of difficulty for
mountain bike trails. The TDRS enables visitors to understand the nature of the trail before
beginning their ride and allows them to plan their ride for enjoyment, appropriate level of challenge
and safety.
Difficulty Short Description
Very easy
Wide trail with a gentle gradient smooth surface and no obstacles
Suitable for beginner cyclists with basic bike skills, and most bikes
Easy
Wide trail with a gentle gradient smooth surface
Some obstacles such as roots, logs and rocks
Suitable for beginner cyclists with basic mountain bike skills, and off-road bikes
Easy with Intermediate Sections
Likely to be single track with a moderate gradient, variable surface and some
obstacles
Some obstacles such as roots, logs and rocks
Suitable for mountain bikers with mountain bikes
Intermediate
Single trail with moderate gradients, variable surface and obstacles
May include steep sections
Suitable for skilled mountain bikers with mountain bikes
Intermediate with Difficult Sections
Suitable for competent mountain bikers, used to physically demanding routes
Expert large and unavoidable obstacles and features
Challenging and variable with some steep climbs or descents and loose surfaces
Difficult
Suitable for experience mountain bikers, used to physically demanding routes
Navigation and personal survival skills are highly desirable
Expect large, dangerous and unavoidable obstacles and features
Challenging and variable with long steep climbs or descents and loose surfaces
Some sections will be easier to walk
Extreme
Suitable for highly experience mountain bikers, used to physically demanding
routes
Navigation and personal survival skills are highly desirable
Severe constructed trails and/or natural features, all sections are challenging
Includes extreme levels of exposure and/or risk
Expect large and unavoidable obstacles and features
Some sections will be easier to walk
https://www.mtba.org.au/wp-content/uploads/Trail-Difficulty-Rating-System-Australian-MTB-Management-Guidelines-Web-V2.pdf
19 | P a g eAppendix One – Strategic Assessment
A Strategic Assessment can be applied for all existing, unauthorised mountain bike tracks and networks and all proposals received by FFMVIC and Parks
Victoria, and networks where modification/upgrade works are proposed.
The objectives of this Strategic Assessment are:
• to assess the viability of proposals to upgrade an existing mountain bike track or network or develop a new track or network; and
• to assess the viability of formalising or rationalising an existing mountain bike track or network (both formal and informal).
The track or network will be assessed against criteria related to the Guiding Principles to determine the appropriateness of providing for mountain biking as
a recreation activity at a defined site.
Proposals for new tracks or facilities
Proposals for a new mountain bike track or network, or requests to formalise “informal networks”, that are initiated by groups or individuals should be first
discussed with the public land manager and then assessed in accordance with these guidelines.
The Strategic Assessment will support staff to make a recommendation in relation to a proposal to proceed or be declined. If a recommendation to
‘proceed’ is approved, a requirement is triggered to undertake the next stage, a Detailed Planning Assessment (see Appendix Two) to support decision
making regarding the technical design of the track or network, maintenance requirements and partnerships to be put in place to maintain the track
network. It is important to note that it is not possible to authorise a club or group to occupy or manage an area of national park on behalf of Parks Victoria,
whereas this may be possible in regional parks, State forests, metropolitan parks and some reserves.
Existing tracks
The Strategic Assessment will support staff to make a recommendation for an existing track or network (both formal and informal) to be maintained,
modified, upgraded or closed. If a recommendation of ‘maintain’ or ‘modify’ is approved, staff can organise to complete the necessary work to formalise
the track. If a recommendation of upgrade is approved, a requirement is triggered to use the Detailed Planning Assessment to support decision making
regarding technical design and future maintenance arrangements.
20 | P a g eWhen completing the Strategic Assessment, all possible impacts should be considered (both positive and negative) which are likely to be caused by, or
currently being caused by, mountain biking, as well as an analysis of the significance and acceptability of those impacts. Where impacts are unknown the
land manager should apply the precautionary principle unless further information from the proponent. Each identified impact is to be categorised as
minor, moderate or major. To determine the likely significance of the impact, staff should consider the extent and nature of the impact. It is important that
the broader track network and all associated infrastructure be considered when undertaking the assessment.
Definitions
Impact - to have an influence and effect by MTB actions on existing environmental conditions prior to activity.
Minor - Minimal or small influences on environmental values including understory, surface and vegetation. No track creation. Use of existing MVO’s
Moderate - Increased visual impact on environmental values. Ground surfaces modified, vegetation impacts. Track generation obvious.
Major - Obvious impact on environment. Heavy track creation and modifications created with further influences of erosion and vegetation evident.
Minor Moderate Major
Technical Trail Features
Better known as TTF's, can sometimes be the difference between an okay trail a great trail. TTF include berm, drop off, table top, rock garden, log drop,
water bar, trail filter, tread armouring, switchbacks, step up, roller, natural features, gap jumps etc.
For more information see https://www.trailforks.com/ttfs/
Sustainable
Activity or design that continues for a prolonged period of time with minimal, or no ongoing impact, on the environment that the action is taking place
within. https://www2.delwp.vic.gov.au/corporate-plan/home/sustainable-development-goals
21 | P a g eThis Strategic Assessment must be completed by the land manager (with input from the proponent, where the proponent is not the land manager)
Site Details Assessment Type
Park/Forest Land Manager review of existing tracks to
Name formalise / rationalise
Proposal to upgrade existing tracks or develop
Land Manager(s)
new tracks
Track(s) Name
Land Manager Assessment Completed by
Name : _______________________________
Track ID / Asset
No.
Title : ________________________________
Date : ________________________________
Length of track Existing: Total:
network New:
Brief description of track or track network, type of mountain biking and why this assessment is being undertaken
(Attach a map defining the area being assessed, including the trail head and any associated infrastructure, and identifying the track or track network being
assessed as well as its connections to any other nearby existing networks)
22 | P a g eLegal Permissibility
Use the Legislative Framework (Section 3.1) as a reference to complete this section and contact park and forest planning and policy areas if unsure of anything.
If cycling is not allowable on the land tenure proposed, then Strategic Assessment should not continue.
It is necessary to determine if the mountain bike track or network will move into land not managed by FFMVIC or PV (e.g. water authority, local council) as this
may require negotiation with the landowner.
Applicable legislation / management Land category Is cycling allowable? Comments
guidelines
e.g. Yarra Bend Park and Forest Regulations e.g. Yarra Bend Park and forest e.g. Yes, unless in areas set aside as e.g. The current approved Set Aside permits cycling
2008 areas where bicycles are prohibited or in XXXXX (describe areas). Does the set aside need
restricted. to be revised?
Assessment criteria
Proposed
Potential Is the impact(s) mitigation
impacts or minor/moderate/major? action Satisfied
risks (if moderate or major, it is (or further (Yes / No / Maybe)
(positive & mandatory to complete the next work/investigation (can the impact be adequately
Key questions to consider Yes / No negative) column) required) addressed?)
Strategic Context
Are you aware of any documents that restrict mountain
biking in the park/forest?
(e.g. government policy, joint management plan, regional
tourism plan, regional/local plans or strategies)
Is mountain biking in the park/forest consistent with
relevant PV/FFMVIC park and forest management plan?
Do the park/forest management objectives enable
mountain biking?
23 | P a g eProposed
Potential Is the impact(s) mitigation
impacts or minor/moderate/major? action Satisfied
risks (if moderate or major, it is (or further (Yes / No / Maybe)
(positive & mandatory to complete the next work/investigation (can the impact be adequately
Key questions to consider Yes / No negative) column) required) addressed?)
Is the trail network (if completed as proposed) likely to draw
riders from a local, regional or state-wide catchment?
Proposed target market of trail network – See section 3.6
And the trail type and grades of the proposed trails.
e.g. There is no point building double black diamond
downhill trails adjacent to a new residential development
that will cater to young families.
Social and economic
Is there a mountain biking group associated with the track
network?
Is there a demand for mountain biking as a recreation
activity in this area?
Are there existing and popular (consistently well used)
mountain bike tracks nearby (within a 50km radius) that can
service this demand?
Is the track network and broader area used by other
visitors?
(e.g. horse riders, walkers)
Does the track network conflict with other recreation
opportunities?
Is there any evidence to estimate likely future levels of use
of the track network?
(use existing knowledge of park and forest, visitors,
anecdotal evidence and any available market research,
benchmarking against comparable MTB networks)
Given the estimate of likely levels of use by riders and the
catchment the track network is likely to draw from (i.e.
local, regional or state-wide), will the track network
contribute to existing or generate new economic benefit to
nearby communities/businesses?
24 | P a g eProposed
Potential Is the impact(s) mitigation
impacts or minor/moderate/major? action Satisfied
risks (if moderate or major, it is (or further (Yes / No / Maybe)
(positive & mandatory to complete the next work/investigation (can the impact be adequately
Key questions to consider Yes / No negative) column) required) addressed?)
Are there potential partners to support the track network? List potential Indicate anticipated level of Indicate any
Who are they? partners support further
work/investigation
required
Will the new trail proposed elevate the trail network to a
new classification? See section 3.6 - From local to regional.
Will this cater to an unmet demand?
Physical, environment and heritage
Does the track network go through any sensitive park/forest
management zones or reference areas?
Is mountain biking likely to result in unacceptable impacts
on soil quality or land stability?
Is mountain biking likely to result in unacceptable impacts
on a waterbody, watercourse, wetland or natural drainage
system?
(e.g. is the track located close to a waterway?)
Has/is any vegetation to be cleared or modified?
Is the site susceptible/at risk to damage from Phytophthora
cinnamomi or other pathogens (e.g. Myrtle Rust)?
Does the current or proposed trail location unacceptably
threaten any significant flora and fauna values?
(refer to species Action Statements)
Under ‘potential impacts or risks’, detail:
• any listed species present
• status of the EVC (e.g. least concern, endangered) and if
a native vegetation assessment and potentially an EPBC
referral is required.
• If any treaties apply?
(e.g. Ramsar)
25 | P a g eYou can also read
