trail action group position paper aldershot and district ... · 5/20/2020 · position paper...

TrailActionGroupPositionPaperAldershotandDistrictMilitaryLandsByelawsReview

Document published 20th May 2020

Figure1-TworecreationalusersexitingLongValley(B4).Anunbroken5kmstretchoffencehasbeenimposedpreventingrecreationalaccessatalltimesirrespectiveofmilitaryuse.Withoutagatetheindividualsbelievedtheirpresencewaswrong,yetthelandswerenotinuseandthusrecreationpermittedbythecurrentbyelaws.Thereason(s)DIOelectedtoreduceLongValleytorecreationalaccessinnameonlyremainsunknown

A Shared Space - Summary ThereviewoftheAldershotandDistrictMilitaryLandsByelawsrepresentsaonce-in-a-generationopportunitytoensurethelawsremainfitforpurpose;topreserveboththeprimacyofmilitarytrainingandthecoexistenceofrecreationalaccesswhenthelandsarenotinuse.Thelastdecadehasseensignificantchangestohowandwhenthepubliccanaccessthelandswhennotinuse.Approximately1650acresoflandshavebeenpermanentlyfencedandrecreationalaccessrestrictedatalltimesirrespectiveofmilitarytraining.CarparkshavebeenclosedandanaggressivepolicytodiscouragecyclingonthelandshasbeenimplementedbyDefenceInfrastructureOrganisation(DIO).Fencinghasbeeninstalledwithoutconsultationorregardtohowthepublicusethelands.CommitmentstoconsultonnewfencesviatheLocalAccessForumremainunfulfilled.Existingprovisionsintendedtomanageanti-socialbehaviourarenotapplied,yetthethreatoffencingandexclusionofallappearsacceptablepolicy.Ithastakenrepeatedpoliticalinterventiontoensurethelandsareavailableforrecreation.DIOhaverepeatedlydemonstratedtheorganisationisnotafitandproperbodytoactascustodianofaccess,andsafeguardsarerequiredtoprotecttherightsofrecreationalusers.TrailActionGroup(TAG)believesthebyelawsreviewisaperfectopportunitytoachieveapositiveworkingrelationshipbetweenrecreationalusersandDIO,topreserveboththeprimacyofaspaceformilitarytrainingwhilstrespectingthebenefitsofrecreationalaccesswhenthelandsarenotinuse.A Time for Change Thelocalcommunityispassionateandcaresdeeplyaboutthelandsandaccess.Arelationshipcentredonpartnershiphasgreaterpotentialbenefit,toworktogetherforwhatareoftenjointgoalsandobjectives.Forsucharelationshiptofunctionitmustbeequitableandthebyelawsmustreflecttherightsandresponsibilitiesofbothparties.TAGnowcallforthefollowingassurancesandadditionstothefuturebyelaws:

Enhance Recreational Access for All PreserveandenhancetheByelawsandtoprotecttherightofrecreationalaccesswhenthelandsarenotinuseformilitarytraining.

Embrace Cycling Marginalisationofresponsiblecyclistsisarecentintrusionintowhatisaperfectlyvalid,beneficialandvaluablemeansofrecreation.Restoringparitywithwalkerswillcorrectahistoricalanomaly.

Redress the Balance Itwillbeapoliticalandlocaltragedytopreserverecreationaluse,onlytobearwitnesstodegradedoreliminatedaccessandrecreationaphysicalimpossibilityasmorefencesareerected.Imposedfencinganddangersignmisuseprovidesunequivocalexpressionofintentionwithrespecttorecreationalopportunity.Alawthatpreservesrecreationalusemustalsopreserveaccess.

Table of Contents ASHAREDSPACE-SUMMARY........................................................................................................................................2

ATIMEFORCHANGE................................................................................................................................................................2ENHANCERECREATIONALACCESSFORALL....................................................................................................................................2EMBRACECYCLING...................................................................................................................................................................2REDRESSTHEBALANCE.............................................................................................................................................................2

1 BACKGROUND.......................................................................................................................................................42 THECURRENTBYELAWS........................................................................................................................................6

2.1 ALDERSHOTANDDISTRICTMILITARYLANDSBYELAWS(1976)...........................................................................................62.2 MILITARYLANDSACT(1892)......................................................................................................................................8

3 CURRENTUSEANDISSUES.....................................................................................................................................83.1 VANDALISM............................................................................................................................................................103.2 CYCLEBAN.............................................................................................................................................................113.3 GROUPGATHERINGS................................................................................................................................................123.4 FENCING................................................................................................................................................................133.5 WILDCATDIGGING..................................................................................................................................................16

4 FUTUREBYELAWSACCESSPROVISION–THEOPTIONS........................................................................................174.1 DONOTHING..........................................................................................................................................................174.2 ALLOWPERMISSIVEROUTES......................................................................................................................................174.3 PARITYWITHWALKERS.............................................................................................................................................18

5 SUGGESTEDMODIFICATIONSTOTHEBYELAWS...................................................................................................195.1 PRESERVATIONANDENHANCEMENTOFSECTION2........................................................................................................195.2 REMOVALOFSECTION4(2).......................................................................................................................................195.3 REFINESECTION4(5)...............................................................................................................................................195.4 NEWPROVISION–CHECKSANDBALANCESONRESTRICTINGRECREATION..........................................................................20

6 CONCLUSIONS.....................................................................................................................................................207 APPENDIX............................................................................................................................................................23

7.1 ABOUTTAG...........................................................................................................................................................227.2 AREAMAP–BORDONANDLIPHOOK..........................................................................................................................237.3 HANKLEYCOMMONAREAMAP.................................................................................................................................23

1 Background

§ ThevastmajorityoflandavailableforrecreationbytheresidentsofAldershot,Farnborough,Frimley,andFleetaregovernedbytheAldershotMilitaryLandsByelaws1976

§ ThebyelawsarewelloverdueforreviewandthepublicconsultationwasduetobegininApril2020aftermanyyearsofpostponement

§ Anumberoflocalaccessgroupshavecometogetherunderthe#saveyourwoods/www.byelawsreview.combannertocampaignforresponsiblepublicaccessandtoaddresswidelyheldfearsthatDIOsrecentbehaviour(removalofparkingprovision,fencing,cyclingban,etc)willmeanthattherevisedbyelawswillfurtherreducepublicaccess

TheAldershotandDistrictMilitaryLandsByelaws(1976)havegovernedmilitaryandcivilianuseofapproximately15,000acresoflandsinNorthEastHampshire,EastHampshire,SurreyandBerkshire.

Figure2-Thebyelawscoverasignificantarea.Areascolouredredarewildopenspacethatlendsitselftomilitarytrainingand(whennotinuse)outdoorrecreation.Areascolouredorangearemilitarytrainingareaswithpermanentexclusion(barracksorfiringrangeswithunexplodedordnance).Greenareasarepublicareasavailabletopublicrecreation,suchasSANGSorotheropenspaces.

TothesouthofAldershotlietwosignificantareasofmilitarytraininglands;HankleyCommonandthelandsclosetoBordonandLiphook.HankleyCommonisgovernedbyitsownsetofbyelaws1andisoutsidethescopeofthisdocumentbutamapoftheareaisincludedinappendix7.2.ThelandsaroundBordonandLiphookarecurrentlywithinscopeoftheAldershotandDistrictMilitaryLandsbyelaw.ForreasonsunknownthisareaoflandswillbesubjecttoanewbyelawandtheywillberemovedfromthescopeofAldershotbyelaws.Amapofthisareaisincludedinappendix7.1.Militaryuseofthelandsstartedin1853whentheActofEnclosureformallytookpossessionoftheestateweknowtoday.Comprisingoflowlandheath,thelandswereoflittleornoagriculturalvalue.Overthenext50yearsadditionalareasoflandswereadded,withsomelandsbeingremovedanddevelopedforhousingasthemilitaryrequirementschanged.FordecadescyclingonthelandsforrecreationorcommutehasbeenacceptedbyDIOandpredecessorsandcyclingpre-datesthe1976Byelaws.Theunderlyinggeologyofthelandslendsitselftoallweatheroutdoorrecreation.Forcyclists,open,leveltrackswithgentlegradientscontrastwithmoretestingandchallengingroutes-familiesandthemoreadventurousmountainbikerhaveusedthelandsfordecades.TheoverduereviewoftheAldershotandDistrictMilitaryLandsByelaws(1976)wasannouncedinlateJanuary2020andlocalconsultationwasduetocommenceinApril.EarlyinMarchthelocallyledcampaign#saveyourwoods/www.byelawsreview.comwaslaunchedinordertoraiseawarenessoftheforthcomingbyelawsreview.ThecampaignfocusesontheneedtosharethelandwithMoD,theirvalueasrecreationalspace,therightofaccess,andthedurationoftheconsultationperiod.Socialmediapostsfromthecampaignreachedsome95,000viewsfromthelocalareainMarchandApril,andwereactivelyengagedwith(commentedupon,liked,clickedthroughetc.)byover20,000individuals.ThecampaignalsoraisedawarenessoftherecentapproachtakenbyMoD/DIOtowardsrecreationaluse;banningcycling,closingcarparks,installationoffencingrestrictingaccessandmisuseofdangersigns.TAGfeelthatthisindicatesthelikelyoutcomeofareview;MoD/DIOseekingfurtherrestrictionstoaccessandtoexcludethepublicirrespectiveofthelandsbeinginuseornot.

1SurreyCommonsMilitaryLandsByelaws1978

Figure3-ApolicyofremovinginformalparkinghasbeenimplementedbyDIO.Hereaditchandbankhasbeenformedtopreventparking.MakingrecreationasdifficultaspossibleappearstobeDIOpolicyandthishasimplementedwithoutconsultation.

ThecampaignquicklyattractedtensofthousandsofsocialmediaengagementsandwithintwoweeksofitslaunchMoDannouncedanotherdelayuntilanunspecifieddateinthesummer.Thereasonsfordelaywerenotstated.

2 The Current Byelaws

§ ThecurrentiterationoftheAldershotMilitaryLandsbyelawswereintroducedin1976andarewelloverdueforreview

§ Section2permitsrecreationalaccesswhenlandsarenotinuseformilitarytraining§ Section4(1)forbidsentrytoanypartofthelandthatisfullyenclosed-thishasbeenrecently

usedbyDIOtofencein1650ofacresandthusremovepublicaccess§ Section4(2)limitscyclingaccesstomadeupcarriageways-effectivelyacyclingban§ ThebyelawsareastatutoryinstrumentenabledbytheMilitaryLandsAct1892

2.1 Aldershot and District Military Lands Byelaws (1976) ThelandsaregovernedbytheAldershotandDistrictMilitaryLandsByelaws(1976).TheByelawsareaStatutoryInstrument(SI)andareenabledthroughtheMilitaryLandsAct(1892).The1976Byelawsisprecededbyatleasttworevokededitions;dated1939and1950respectively.NeitherhistoricaleditionsoftheByelawsrestrictcyclinginanyway.Onehistoricalclauseispresentandremindscycliststhatfootpathsalongamilitaryhighwayarenoplaceforabicycle.ThecurrentByelawscontainsthefollowingrelevantsections:Section Intention Practice1 Describesthelandtowhichthebyelawsapply 2 Permitsrecreationalaccesswhenthelandsarenotin Permitseveryonetoenjoythe

useformilitarytraining openspaceforrecreation3 RulesandcontrolsofroadtrafficonMoDroads ThereisonlyonesignificantMoD

roadwheretheserulesapply–BourleyRoad.MostusersareunawareitisaMoDroad.

4(1) Forbidsentrytoanypartofthelandthatisspeciallyenclosed

RecentlyusedbyDIOtoremoveover1600acresoflandfrompublicusebysimplyenclosingwithafence

4(2) Limitscyclingtomadeupcarriageway Ignoredsince1976.Unenforcedandunenforceable

4(5) Preventsassemblyforpublicorprivatemeetings Ignoredbyformalandinformalgroups-thisincludesscouts,cyclinggroups,runninggroups,etc.

5 Procedureforbeingremovedfromtheland–thisisknownasbeing‘Warnedoff’

6&7 Offencesandwhocanenforcethebyelaws 8 Exemptions Thereason(s)forrestrictingcyclinginthe1976Byelawsareunknown.Itisdifficulttobelievethecivilservantdraftingthelawcouldhavepredictedthegrowthinthesportofmountainbikingduringthe1980s,yetduringthenext35yearsnothingwasdonetoenforcethelawandrestrictcycling.Thecommunityhasgrownupusingthelandforoffroadcyclingwithmanyresidentscitingthisasareasontheymovedtothearea2.

2TAGAccessReport2017–freetextresponsesto“Tellusinyourownwordswhyaccessisimportant”

Figure4-Thecyclistontheleftisbreakingthelaw.Cyclingonthelandshasbecomeacceptedcustomandpracticeandthelawnolongerservessociety.Withnomentionofunicycles,theriderontherightisfreetoenjoythespace.Thereasonstobancyclingareunknown,unreasonableandultimatelyunenforceable.

TAGarecallingfortheremovalofs.4(2)andforthenewByelawsbebroughtintolinewithhistoricaleditionsthatpreservesandrecogniseshowthelocalcommunityusesthelandsforrecreation.2.2 Military Lands Act (1892) TheMilitaryLandsActistheenablingactthatgrantspowerstotheSecretaryofStateforDefencetoenactByelawsthatgovernmilitarylands.Ofnoteisthefollowingprovisioncontainedwithins.14(2):Where any such byelaws permit the public to use the land for any purpose when not used for the military purpose to which it is appropriated, those byelaws may also provide for the government of the land when so used by the public…and for the prevention of anything interfering with the orderly use thereof by the public for the purpose permitted by the byelaws. AspartofthebyelawsreviewTAGwouldliketoseeadjustmentsmadewherebyinstallingfencingorotherrestrictionstorecreationalaccess(intentionalorotherwise)aresubjecttofargreaterscrutinyandcontrolthanpresent.ItwillbeaPyrrhicvictoryifs.2ispreservedinitsentiretyyetrecreationaccessislostoveraperiodoftimebyinstallingfencesorotherrestrictivemethods.

3 Current Use and Issues

§ Until2011,restrictionsoncyclingwerenotenforcedandlocalfamiliesnowseecyclingonthelandasaright

§ ThecyclingbanisunworkableandoutofstepwithMoDguidanceandthewidernationalneedtoencourageahealthyleisurepursuits

§ Localcyclinggroupshavedemonstratedthattheywanttoberesponsiblelandusersthroughthedevelopmentandadherencetoacodeofconduct

§ RepeatedinvitationsforDIOtoworkwithlocalcommunitygroupstoaddressissuesofcommonconcernsuchasvandalismhasbeenignored

§ Strictinterpretationofthebyelawscouldresultinallgroupgatheringsbeingbanned,thisisoutofstepwithcurrentpublicuseandcustom

§ DIOhasusedaclauserelatingtoenclosureoflandtoremove1650ofacresoflandfrompublicusewithoutanyconsultation,evenwherethatlandhasbeenavailableforpublicuseformorethan170years

§ Wildcatdiggerscreatingillegalcycletrailsareacontinuingissue-uponDIOsrequestTAGcreatedareportdiscussingpossiblesolutions-thisreporthasyettoreceivearesponse

§ DIOarenotafitandproperbodytoactascustodiansofrecreationalaccessFor35yearsrestrictiononcyclingwasnotenforcedandthelocalcommunityembracedtheopenandtraffic-freespace.Ramblingbybikehasbecomeanimportantmeansofrecreationwherenotworideseverfollowthesameroute.Theinformal,randomnatureofthetracksgrantsinfinitepossibilitiesandthisflexibleapproachhelpswhenpeopleencountertroops.TrainingareassuchasLongValley(knowntotheMoDasB4)containaround64kms/40miofinformaltrailswithin1000acresofland.TAGiscallingforchangestothecurrentbyelawstolimittheauthorityofDIOtorestrictandlimitrecreationalaccessandmandateacloserworkingarrangementwiththelocalcommunity.Therearemanyopportunitiestoworktogetheronmattersofcommoninterestandtousethepartnershiptoeducateandinformlandusers.

Figure5-Therearemanysignswarningoftherisksofusingmilitarylands,butnoneexplainingtherecreationalaccessandresponsibilitythatitbrings.Thesinglenoticeremindingthecommunityrecreationispermittedisthesmalltextburiedinthebyelaws.ThelandsareavailableforrecreationwhennotinusebutDIOdonotclearlystatethis.

ThesignsandnoticesatentrancestothelandsareindicativeofDIOpolicy;allsignageisgearedaroundhighlightingdangerandrisk.Apartfromthebyelawsnoticethereisnothingtoindicatepublicaccessforrecreationispermittedwhennotinusebythemilitary.Noristhereanyinstructionorguidanceastowhattodoiftroopsarepresentandthelandsinuse.DIOareoftenquicktocomplainofdisruptedtrainingbutthepublichasnotbeenprovidedwithclearguidanceexplainingwhatisandisnotrequired.Thesignsarepassivemessagesintendedtodiscourageanddeterrecreationalaccessirrespectiveofmilitarydemands.CommunicationofriskisimportantbuttheremustbebalancedwithrecognitionofSection2recreationalaccess,andtheresponsibilitiesofsuchaccessclearlyexplained.3.1 Vandalism The2003reportPublicAccessConsultancyfortheArmyTrainingEstate3madeaseriesofrecommendationstoimprovecommunicationwiththelocalcommunityandhelpreducevandalismetc,notleastofwhichwere:

• Encouragelocalstobe‘yourearsandeyes’

3PublicAccessConsultancyfortheArmyTrainingEstateRegionalReportATEHomeCountiesdatedAugust2003

• WorkingwithLocalUserGroupsAsalocalgroupwithwidereachingsocialmediacommunicationsTAGareideallyplacedtohelpDIOachievethesegoals.Proposalstomitigateissuesoftroopdisturbance,vandalism,nightridingandwildcattraildigginghavebeenproposedatvariouspoints.Theanti-vandaltrailscopingreportbyTAGforAshRangeshasbeendeliveredtoDIO.Specificallyintendedtoencourageresponsiblepresenceandactasavandaldeterrentthetrailhadrealpotentialtodelivercosteffectivemanagement.Thereportremainsunacknowledgedletaloneimplemented.ItisnotpossibletopredicthowacloserrelationshipbetweenlocalusergroupsandDIOwouldhaveevolved,orpreciselywhatitmayhavedelivered,butworkingforcommongoodandgoalsmayhavenegatedtherecentannouncementtospendpublicmoneyrestrictingpublicaccessatAshRanges.In2020-seventeenyearsafterpublication-TAGarepatientlywaitingforthe2003reportfindingstobeimplementedandaworkingpartnershipwithDIOestablished.3.2 Cycle Ban In2011DIOattemptedtoenforceabanonallcycling,citingthats.4(2)ofthe1976ByelawsrestrictedcycliststotarmacroadssuchasBourleyRoad.Todatenocyclisthasbeenprosecutedunderthe1976Byelawsandthisinterpretationremainsuntested.TheParishCouncilmeetingheldin2011attheChurchCrookhamMemorialHall,wherethedecisiontobancyclingwasannouncedbyDIO,createdaturningpointinthepublicviewtokeepthelandsopen.Theeventwaswidelyattendedbycyclists,runners,walkersandhorseridersofallagesandaclearmessagewasdeliveredtoDIO;theirbanwasunreasonableandunworkable.Thelargenumbersinattendanceshowedthestrengthoffeeling.Nodataorevidencethatresponsiblecyclingpresentedahigherrisk,causedgreaterinterferencetomilitarytrainingorcausedmoreharmthanpedestrianbasedrecreationwassharedoravailableforreview,yetthepolicytobancyclingcontinued.Since2011infrequentattemptstoinstructcycliststoleavethelandhavebeenreported.TherearemanyinstancesofDIOsafetymarshalsignoringtheresponsiblecyclistrecorded–thisreflectstherealitythatneitherDIOnorLandmarc(contractorstoDIO)havethemanpowertopreventresponsiblecycling.ThecyclebanimposedbyDIOdoesnotalignwithMoD’sownguidance;JointServicePublication362makesnospecialreferencetocyclingasanactivityrequiringspecifichandling,managementoranoutrightban.IndeedMoDsownwebsitesfrequentlymentioncyclingprovisiononUKtrainingareas.In2019TAGwereunofficiallyinformedbyDIOthattherewasnolongerapolicytodiscouragecyclists.Thisinformalpolicyshiftremainspubliclyunstatedyetthosestoppedbythetrainingareamarshalsreportasubtleshiftinpolicy;DIOnowpermitcyclingonfireroadsandthemaintracks,butallothertracksandtrailsremainoff-limits.Untilformaldefinitionispublishedthepublicandthose

responsibleforenforcementwillremainconfused.Thenewbyelawsmustclearlystatewhatispermittedandgiveabsoluteclarity.Thispointisdiscussedinmoredetailinsection4.TAGhasbeennegotiatingwithDOIforover8yearstoliftablanketbanontheresponsiblecyclist.Acodeofconduct4hasbeenpublishedbyTAGandiswidelyrecognisedbythelocalcommunityasthebest-practiceguidetoresponsibleuseoftheland–forexampleitstressesthatifyouseemilitaryuse,turnaroundandgoelsewhere.RecognitionofTAGasrepresentativeoftheresponsiblecyclisthastaken(andstillrequires)politicalintervention.Thecurrentsituationdoesnotencouragecooperativeandcollaborativeworkingoncommonissues-DIOcontinuetomarginaliseasignificantsectorofrecreationalusers.

Figure6-ThiscyclistisenjoyingthesunriseatCaesarsCamp.Riderswilltypicallyspendbetween1and4hoursonthelandsandthemajoritywillexercise1to3timesperweek5.Thereforerecreationaluseenjoyedbythelocalcommunitywillbemeasuredinhighhundredstolowthousandsofhoursperweek.Image©HampshireSchoolofPhotographywww.hampshirephotoschool.com

3.3 Group Gatherings Thepopularityofcyclingandwalkingonthelandshasseentheinformalorganisationofgroupevents.Typicallyarrangedonsocialmediathesegatheringsareasmuchasocialeventandoftenencouragemanytotakeexercisewhentheideaofcyclingorwalkingsoloislessappealing.

4See:https://trailactiongroup.co.uk/code-of-conduct/5TrailActionGroupAccessReport2017–todatetheonlysurveyexaminingcyclistsandtheiruseofmilitarylands

Figure7-Thecurrentbyelawscontainprovisiontobangatherings.Thedefinitionisunclearifthisincludessocialeventssuchasgroupwalksorcyclerides.

Thebenefitsofsocialeventsareextensiveandpartofwhatbuildsaresponsibleandactivecommunity.Astrictinterpretationoftheexistingbyelawsforbidssuchgatherings.TodateDIOhavemadenocommentoractionintendedtocurtailsocialgatheringsinthiswaybuttheriskofunilateraloverbearinginterpretationremains.3.4 Fencing RecentlyDIOhaveinstalledfencingtosignificantareasoflandandpermanentlyblockedmanypopularaccesspoints.Therewasnopublicconsultationwiththeimpactonrecreationalusecompletelydisregarded.FencesarejustifiedonsafetygroundsandinthecaseofLongValley(B4)heavyvehicledrivertrainingmaysupportsuchaclaimforapartoftheland.YetcontrarytopoliticalandDIOassurancesaboutpreservingpublicaccess,gateshaveremainedlockedandwarningsignsdeployedforextendedperiodswhennomilitarytrainingisunderway.Theuseofdangersignshasextendedtotimeswhenthelandshavebeenbookedforincomegeneratingcivilianevents

Figure8.-AprivateeventinLongValleyusingjust40acresfromatotalof960.Theeventorganiserhastakenreasonablestepstohighlighttheeventtorecreationalusers.DuringthiseventDANGERsignsassertedthelandswereclosedformilitarytrainingwhentherewasnosuchuse.Abuseofthedangersignsinthismannerhaserodedtherespectandvalue.

ThecurrentByelawsclearlystatesthelandswillbeavailableforrecreationwhennotinuseandthatuseisrestrictedtomilitarytraining.

Figure9-ThisnoticeappearedatAshRangescomplexinlateMarch2020.InMay2020DIOannouncedthecompleteclosureoftherangecomplexandremovalpublicaccess,citingthedecisionhadbeentakensometimeagoandwasnothingtodowithrisksassociatedwithCOVID-19.DIOnowdenyclosurewasrelatedtoCOVID-19yetthissignwasusedtopreventrecreationalaccess.Afearbasedapproach–includingthemisuseofDANGERsigns–isprevalentwithinDIOandappearstobeacceptablepolicy.ArevisiontothebyelawisrequiredtoensureDIOremainaccountablefortheiractions.

InMarch2020DIOerectedanewfence,completelypreventingrecreationalaccessforacontinuous5kmstretch-despiteDIOassurancesLongValleycanbeavailableforpublicrecreationinnameonly.TheareascoveredbytheByelawsaresignificantyetDIOpolicyandhostilitytowardsrecreationalaccessisslowlyremovingvastareasoflandsfrompublicuse.Figure10illustratestheareaslostwithinthelasttwoyearsandiflossescontinuetoaccrueatthesameratetheentireareawillbeunavailableforrecreationwithinadecadeorso.

Figure10-AreasofthetrainingestatefencedbyDIOshowninblack.Fencingandaccessrestrictions-irrespectiveofthelandsbeinginusefortrainingornot-havebeenimposedwithoutconsultationwiththelocalcommunity.Allfencingorlossofaccessdirectlyresultsindegradedcommunityrelationsandadisproportionateamountoftime–communityandpolitical–toensureaccesswhennotinuseispreserved.Thecostofwaste–bothinfinancialterms,politicaleffortandlostopportunityforcollaboration–isunknown.

TheareaknownasPorridgePots(G2)hasseennewfencesinstalledandhasremovedmanypopularpointsofrecreationalaccess.AuditingtheuseofPorridgePotstothesamelevelanddetailasLongValleyischallengingyetthereisnoreasontothinkDIOwouldnotapplythesamedraconianaccesspolicy–exclusionirrespectiveofactualuse–here.

Figure11-Screenshotfrom360mappingsiteshowingfencingintendedtoblockrecreationalaccess.Politicalcommitmentstokeepthelandsopenwhennotinusearenotmetinfullwhensuchaccessrestrictionsareimposed.Thesignisfurtherintendedtopreventrecreationbydeclaring“NoEntry”–contraveningtheprincipleofaccesswhennotinuse.

3.5 Wildcat Digging Thelooseandwell-drainednatureofthesoillendsitselftotheconstructionoftrailfeatures.Jumps,gapsandbermstendtobeconstructedonestablishedtrailsandareintendedbythebuildersto‘improve’therouteforthebenefitofthemoreadventurousrider–itisworthnotingthattheappearanceofthesefeaturesoftencorrelateswithschoolholidays.Thesectionofthelocalcommunityresponsibleisthoughttobetinybuttheiractionshaveadisproportionateandnegativeimpactonthelandandcommunity.DIOareawareofthetrailsandconstructionworkanddoonoccasionssetaboutremovingthefeatures.ThispolicyisunderstandableandbroadlysupportedbyTAG.However,thecurrentpolicyisaperpetualgameofwhack-a-molewherebyfeaturesareconstructed,ridden,foundbyDIO,flattened…andthenrebuiltandtheprocessrepeatsitself.Thecurrentbyelawscontainsprovisionstodealwithillegaldigging,specificallys.4(4),s.4(8)ands.4(13).ImpositionoffurtherfencingandrecreationalaccessrestrictionshavebeencitedbyDIOasnecessarytopreventdiggingactivities.Howeverexistingprovisionsandpowersintendedtomanageanti-socialbehaviourarenotapplied,insteadthethreatoffencingandexclusionofallappearstobethepreferredpolicy.TAGpolicytowardsillegaldigginghasalwaysbeentoworkwithinthelocalcommunity,recognisingitcanneverbeeliminatedbutreducedtoamanageablelevel.TAGwastaskedbyDIOtoidentifyareas

thatmaybesuitableasasacrificialareawherediggingandtrailbuildingcouldbepermitted.Asuitableareawaslocated.DIOthensuggestedamuchlargerareaandTAGdulyscopedandpresentedareportintoitssuitability.Thereportalsooutlinedastrategytoshutdownandmanagethewildcatdigging.Known“improved”areasweretobedeclared,inspectedandacceptedandmaintained,orflatteneddependingontheirriskprofile.ConcurrentlyTAGwouldbemakingitclearnewfeatureswerewelcomeinthesacrificialareaandanythingnewelsewherewouldbeflattenedbyTAGvolunteerworkparties.AtthesametimeTAGwouldmakeitclearthatresponsibleridersneedtosupportandendorse,anddiscouragediggingelsewhere.Itwastobealocalcommunitysolutiontosolveaproblemcausedbyafewwithinsaidcommunity.AllofthiswastobedeliveredatminimumorzerocosttoDIOandanylaboursuppliedbyvolunteers.ThereportwasdulydeliveredtoDIOattheendof2019.ItsexistenceremainsunacknowledgednorcommenteduponbyDIO-itisunclearwhytherehasbeennoresponsefromDIO.TheintentandpurposeofDIOpolicywithrespecttowildcatdiggingremainsunknown.

4 Future Byelaws Access Provision – The Options

§ Leavingthecurrentcyclingbaninplaceisunworkable,ignoresdecadesofunchallengedpublicpractice,andwillresultinasignificantaccessgroupbeingmarginalisedandunrepresented

§ Permissiverouteshavemerit,buttheyarenotamagicbullet,arestrictionregimebasedaroundtheseislikelytobeunenforceableandwillbewidelyignored

§ Bringingcyclingontoanequalfootingwithpedestrianaccessisthemostworkablesolution,andmostlikelytoensurealong-standingandmutuallyrespectfulrelationshipisformed

WithrespecttotheByelawsandcyclingonthelands,thereareseveraloptionsavailable:4.1 Do Nothing Thecyclingbanhasbeenwidelyignoredsincethe1976Byelawsreceivedassent.MembersofTAGhavebeencyclingonthelandssincepriorto1976andareawareofotherswithsimilarorlongerhistory.DIOStaffinglevelsforenforcementareunlikelytochangeandanybanwouldbecontrarytophysicalandmentalhealthbestpracticeadvicefromthegovernment.Leavingthebyelawsunchangedwillnotchangebehaviourorcompelcycliststorideelsewhere–thelawwouldremainignoredbythecommunity,butitwillensurecyclingandcyclistsremainbothmarginalisedandunrepresented.TherewillstillbeconsiderabledoubtastowherecyclistsmayandmaynotrideandcouldallowDIOtoapplyanotherdraconianinterpretationofthelawatanytime.4.2 Allow Permissive Routes Permissiveroutessuchaslineartracksandloopswherecyclingispermittedisanoptionthatcouldofferacompromisetocyclists.

However,anylackofclarityandcertaintywillservenoone.Whatmayberiddenonandwherethoseroutesare,islikelytoremainuncleartothepublic,subjecttointerpretationandpotentiallyinviteinconsistentenforcementbyDIO.Fixingrouteswillrequirelongtermmaintenance.Thenatureofthelandsisdynamicandwhilstsomeroutesrecordedaspresentinthe1888-1913OrdnanceSurveymapsremain,othershavedisappearedandbeenreplacedwithalternatives.Maintenanceofnoticesastowhatmayandmaynotbepermittedwouldbenecessaryandincurcosts.ThenearbySwinleyForestservestheformaltrailnetworkstyleofriding.ThelandscoveredbytheByelawsofferamoreinformalrelaxedapproachmainlyforlocalriders.Theinformalapproachmeansridersdonotcoalescearoundafewtracksandarenotconcentratedinspecificareas.ThetrailsatSwinleyconcentrateandcompelriderstouse“Red”or“Blue”routesandthetrailsthemselvesrequireregularinspection,maintenanceandmanagement.Thewideruserdistributiononandsizeofthemilitarylandslimitscollectiveimpactandlittleneedtomaintaintrails.Itcouldalsochangethenatureofthelandsinwhatisaverydevelopedandsometimescrowdedpartofthecountry.Safetyofthetrainingareasisparamountwhilstrespectingpublicaccessunderthebyelaws,however,DIOhaveaverypoortrackrecordinimplementingevidence-basedaccesspolicyandhaveconsistentlyfailedtomeetandpreservepoliticalcommitmentstodoso.When(notif)responsiblecyclistsmaintaintheacceptedcustomandpracticeofusingallandanyavailabletracksDIOcouldholdthecyclingcommunityasbeingirresponsiblelawbreakersandmayseektoimposeaccessrestrictions.Anycommitmentorofferof“turningablindeye”wouldnotreplacelegalcertainty.AnyproposalofpermissiveroutesonlywouldbeunlikelytoresolvethechallengesthatDIOperceive;acceptedcustomandpracticewouldprevail,andcyclistswouldcontinuetoroambeyondpermissivetrails.TAGbelievesthatspecifyinggeneralcyclingaccessandparitywiththoseonfootwithinthebyelawsisafarmoreeffectivewayforward-aswellasonethatmaintainsthetraditionalinformalaccessapproachtotheland.4.3 Parity with Walkers Effectivecyclingparitywithwalkershasexistedonthelandformanydecades–sincewellbeforethe70’suntil2011whenDIObegantoremovecyclistsfromtheland.Thebyelawsreviewprovidesacompellingopportunitytoremovereferencetocyclingbeingforbiddenonthelandsandtocorrectahistoricalanomaly.Aspreviouslydiscussed,theinclusionofcyclingrestrictionsinthebyelaws(s.4(2))enablesDIOtomarginaliseasignificantsectionofthelocalcommunity.Anoutrightbanoncyclinghasprovedbothunworkableandunreasonableinpractice.Toperpetuatethesituationisunlikelytoimprovethecurrentenvironmentandrelationshipwiththelocalcommunity.Bothclarityandparityarerequiredinlawtoenableandensurealong-standingmutuallyrespectfulrelationshipisformed,andthatrelationshipisformeduponasoundlegalfooting.ThisrelationshipwouldactasapositivebenefitforbothDIOandthelocalcommunity,wherebybothpartiesactivelyworktogetherandcollaborateonareasofmutualinterest,andthiswouldobviouslyincludetheprincipleofallowingtroopsthespacetotrainunhindered.

Anylawthatpermitsonepartytoactwithimpunityandwithoutrestrainttothedetrimentoftheotherwillonlymaintainandpersistthecurrentunworkablesituation.Thestatusquocannotbeallowedtopersist,theopportunitiesforwideranddeepercommunityengagementpresentamassiveopportunityandallusersandcustodiansofthelandsstandtobenefit.

5 Suggested Modifications to the Byelaws

§ Therighttopublicaccesstothelandswhennotinusebythemilitarymustbeenshrinedinclearandsimpletounderstandbyelaws

§ RulesoncyclingonthelandmustbealignedtowiderMoDpolicyandestablishedpublicpractice

§ AnyreductioninpublicaccesstothelandsmustbesubjecttoreasonabledemocraticchecksandbalancesandcannotbeaunilateralDIOdecision

§ RecommendationscontainedhereinshallapplytothenewbyelawintendedtogovernBordonandLiphooktrainingareas.

5.1 Preservation and Enhancement of Section 2 Ingeneraltermssection2ofthecurrentByelawsandtheprincipleofrecreationalaccesswhenthelandsarenotinuseformilitarytrainingremainsfitforpurpose.However,TAGwouldsuggestrewording;ratherthanbepermitted,topreservingrecreationalaccessasaright.Thepreservationofinuseasaclauseisimportantforbothmilitaryandrecreationaluser.Assoonasthelandsarenotinusethelandsrevertautomaticallybacktoavailableforrecreation,andanysign,noticeorindicationthelandsareinusemustonlybeappliedwhentrue.Preservingsection2willensurelocalcommunityaccessremainsclearandiseasytounderstand.5.2 Removal of Section 4(2) Asoutlinedintheprecedingparagraphsbanningcyclingisahistoricalanomalyandhasmarginalisedasignificantsectionoflocalcommunity.RecentexperiencehasprovedacyclebanisimpossibletoenforcenorisabanalignedwithwiderMoDpolicythatseekstopromotethepublicuseoflandswhennotbeingactivelyusedformilitarypurposes.TAGstronglybelievesthatanyfuturebyelawswillonlybefitforpurposeiftheydonotcontainprovisionsthatforbidcyclinginthewaythatsections4(2)doesinthecurrentbyelaws.5.3 Refine Section 4(5) Cyclingandwalkinginagroupandpartofasocialgatheringiscommonpractice.Amendingsection4(5)isrequiredtoclarifywhenandforwhatpurposeagroupgatheringisandisnotpermitted.

5.4 New Provision – Checks and Balances on Restricting Recreation DIOhavedemonstratedthattheywillignorepoliticalcommitmentstopreserverecreationalaccess.Verbalandwrittenassurancescarrylittleornoauthorityandrequirerepeatedpoliticalengagementtoensurecompliance.ArobustlegalframeworkisrequiredtocompelDIOtoactinamannerthatisrespectfulofthelocalcommunityandmaketheimpactonrecreationalaccessaconsiderationwhenplanningchangestotheestate.TheMilitaryLandsAct1892clearlyexpressesParliament’sintentionsandSection14(2)permitByelawstoprotectrecreationalaccessandpreventinterferencewiththeorderlyuseofthelands.TAGarecallingforprovisiontoplacerecreationalaccessattheheartofplanningandthatanyproposedchangestotheestaterestrictingorremovingrecreationalaccessaresubjecttoapublicconsultationofatleast30daysdurationandthatpublicresponsesbeconsideredbeforeaccessrestrictionsareenacted.SuchaclausewouldensureduediligenceandconsiderationofrecreationalrightsinallfutureplansandplacethecommunityrelationshipwithDIOonanequitableandsoundbasis.

6 Conclusions ThispositionpaperhasexaminedtheissuescurrentlyfacingpublicaccesstotheAldershotMilitaryLands.Therevisedbyelawswillprovidethefoundationuponwhichlongterm,sustainablesolutionscanbebuilt.

§ ThelocalpopulationunderstandsandsupportstheneedformilitaryprimacyonthelandbutthisshouldnotmeanthatthepublicrightofrecreationcanbecircumventedorignoredbyDIO.Thepublicrightofrecreationmustbeenshrinedinthenewbyelaws.

§ Thecurrent1976byelawsareoutofdateandnolongerfitforpurpose.Theyarenotinstepwiththerealitiesofpublicuseofthemilitarylands.GenerationsoffamilieshavenowgrownupcyclingonthelandandnowduetorecentpolicychangesinDIO,theyfacepotentialprosecution.Thenewbyelawsmustaddressthisbyallowingrecreationalcyclinguponthelandsandpreservingtheexistingpedestrianrights.

§ ThemilitarylandrepresentsthevastmajorityofopenaccesslandaroundtheFarnborough/

Frimley/Aldershot/Fleetareathatisavailableforpublicrecreation.Itisofparamountimportancetothephysicalandmentalwellbeingofthelocalcommunity.DIOmustnotbeabletoremove1000sofacresoflandfrompublicuseunilaterallyandwithoutdemocraticscrutiny.Thereforethenewbyelawsmustensurethatanyreductioninaccessissubjecttoproperchecksandbalances.

§ DIOmustbeencouragedtofindmutuallyacceptablesolutionstoproblemsonthelandby

workingcloselywithlocalcommunitygroups.Thesegroupsrepresentalargeandmotivatedresourceofpeoplewhowanttoseeallresponsibleuser-groupsco-exist.

TAGfirmlybelievesthattheforthcomingbyelawsreviewrepresentsauniqueopportunitytoresetanddramaticallyimprovetherelationshipbetweenMoD/DIOandthelocalcommunity.Thesenseofsharedspacehasservedbothmilitaryandrecreationaluserswellover150years–apragmatic,forwardlookingreviewcanensurethatthiscontinuesinthedecadestocome.

6.1 About TAG TAGwasformedin2011bylocalcyclistsasaresultofnegativepublicitysurroundingcyclingonMoDlandwiththeaimofensuringcontinuedaccesstothisvaluableresourceforthelocalcommunity.Wefeltitwasimportanttoprovidethemilitary,andotherstakeholders,withacentralcontactpointforcyclinginthearea.Thegroup’saimsarefirstlytopromoteresponsiblelanduseviaaCodeofConductforcyclistsusingmilitaryland,andsecondlytolobbytosecurecontinuedrecreationalcyclingaccesstothemilitarylandsinperpetuity.OurCodeofConductmakesclearreferencetothecurrentbyelaws,theimportanceoftheprimefunctionofthelandbeingforessentialmilitarytraining,inadditiontohowtoactresponsiblyduringencounterswithmilitaryusers.OverthelastfewyearsTAG’sfootprintandprimarycommunicationmethodshavemovedonlinetoawebsite(www.trailactiongroup.co.uk)andFacebook(www.facebook.com/trailactiongroup).Wehavealargenumberofsupportersandourpostsaretypicallyreadbythousandsoflocalresidentsandrecreationallandusers–forexampleourpostsontheinstallationofanewfencearoundtheLongValleyareawereengagedwithbyinexcessof30,000people,includingmanythousandsfromoutsidethecyclingcommunity.TheTAGcommitteeincludesmembersofthelargestcyclinggroupsandclubsinthearea–thesegroupsrepresentmanyhundredsofmountainbikers.WealsohavelinksintoCTC/CyclingUK(thenationalcyclingcharity),theracingcommunity(Gorrick),otherrecreationalgroups,andlocalcyclebusinesses.ThecommitteehasbuiltrelationshipswithDIO/MoD,theTrainingAreaMarshalls,Landmarc,localwildlifetrustsandcouncilstounderstandandrespondtotheneedsofotherinterestedgroupsconcernedwiththeland.TAGhasalsorecentlybeenaprimaryorganiserofthe#SAVEOURWOODS(www.byelawsreview.com/andwww.facebook.com/byelawsreview)campaignthatwasrecentlysetuptoensurefullpublicparticipationintheforthcomingAldershotMilitaryLandsbyelawsreview.Thestoriesandpostsmadebythecampaignhavehadhighorganicpenetrationonsocialmedia,withFacebookanalyticsforMarch/April2020showingourpostsreachedhad95,000viewsfromthelocalarea,andwereactivelyengagedwith(commentedupon,liked,clickedthroughetc.)byover20,000individuals.Finally,itisworthnotingthatTAGisnotaffiliatedwithanypoliticalpartyinanywaywhatsoever.

7 Appendix 7.1 Area Map – Bordon and Liphook TheAldershotandDistrictMilitaryLandsByelawcurrentlyincludessignificantareasintheBordonandLiphookarea.DIOhaveindicatedthisareaofthetrainingestatewillbesubjecttonewandseparatebyelaws.Thereason(s)forthisdecisionareunknownbutwefullyexpectrecreationalaccesstobepreservedandenhancedaspertherecommendationsinthispositionpaper.

Figure12-AreasofmilitarytraininglandcoveredbythecurrentAldershotbyelaw.Bordonhasundergonesignificantchangesinmilitaryuse.Thismapisbasedonexistingbyelawsmapandlocalknowledge.

7.2 Hankley Common Area Map ThemilitarytraininglandsofHankleyandElsteadCommonarecoveredbyaseparatebyelaw;SurreyCommonsMilitaryLandsBeylaws1976.Thereviewofthisbyelawisunknownbutbasedontheageislikelytobeinplanning.Wefullyexpectrecreationalaccesstobepreservedandenhancedaspertherecommendationsinthispositionpaper.

Figure13-MilitarytrainingareascoveredbytheSurreyCommonsMilitaryLandsByelaw(1978)

trail action group position paper aldershot and district ... · 5/20/2020 · position paper...

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