trail action group position paper aldershot and district ... · 5/20/2020 · position paper...
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TrailActionGroupPositionPaperAldershotandDistrictMilitaryLandsByelawsReview
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TrailActionGroupPositionPaperAldershotandDistrictMilitaryLandsByelawsReview
Figure1-TworecreationalusersexitingLongValley(B4).Anunbroken5kmstretchoffencehasbeenimposedpreventingrecreationalaccessatalltimesirrespectiveofmilitaryuse.Withoutagatetheindividualsbelievedtheirpresencewaswrong,yetthelandswerenotinuseandthusrecreationpermittedbythecurrentbyelaws.Thereason(s)DIOelectedtoreduceLongValleytorecreationalaccessinnameonlyremainsunknown
TrailActionGroupPositionPaperAldershotandDistrictMilitaryLandsByelawsReview
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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.
TrailActionGroupPositionPaperAldershotandDistrictMilitaryLandsByelawsReview
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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
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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.
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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
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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
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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”
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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
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§ ThecyclingbanisunworkableandoutofstepwithMoDguidanceandthewidernationalneedtoencourageahealthyleisurepursuits
§ Localcyclinggroupshavedemonstratedthattheywanttoberesponsiblelandusersthroughthedevelopmentandadherencetoacodeofconduct
§ RepeatedinvitationsforDIOtoworkwithlocalcommunitygroupstoaddressissuesofcommonconcernsuchasvandalismhasbeenignored
§ Strictinterpretationofthebyelawscouldresultinallgroupgatheringsbeingbanned,thisisoutofstepwithcurrentpublicuseandcustom
§ DIOhasusedaclauserelatingtoenclosureoflandtoremove1650ofacresoflandfrompublicusewithoutanyconsultation,evenwherethatlandhasbeenavailableforpublicuseformorethan170years
§ Wildcatdiggerscreatingillegalcycletrailsareacontinuingissue-uponDIOsrequestTAGcreatedareportdiscussingpossiblesolutions-thisreporthasyettoreceivearesponse
§ DIOarenotafitandproperbodytoactascustodiansofrecreationalaccessFor35yearsrestrictiononcyclingwasnotenforcedandthelocalcommunityembracedtheopenandtraffic-freespace.Ramblingbybikehasbecomeanimportantmeansofrecreationwherenotworideseverfollowthesameroute.Theinformal,randomnatureofthetracksgrantsinfinitepossibilitiesandthisflexibleapproachhelpswhenpeopleencountertroops.TrainingareassuchasLongValley(knowntotheMoDasB4)containaround64kms/40miofinformaltrailswithin1000acresofland.TAGiscallingforchangestothecurrentbyelawstolimittheauthorityofDIOtorestrictandlimitrecreationalaccessandmandateacloserworkingarrangementwiththelocalcommunity.Therearemanyopportunitiestoworktogetheronmattersofcommoninterestandtousethepartnershiptoeducateandinformlandusers.
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Figure5-Therearemanysignswarningoftherisksofusingmilitarylands,butnoneexplainingtherecreationalaccessandresponsibilitythatitbrings.Thesinglenoticeremindingthecommunityrecreationispermittedisthesmalltextburiedinthebyelaws.ThelandsareavailableforrecreationwhennotinusebutDIOdonotclearlystatethis.
ThesignsandnoticesatentrancestothelandsareindicativeofDIOpolicy;allsignageisgearedaroundhighlightingdangerandrisk.Apartfromthebyelawsnoticethereisnothingtoindicatepublicaccessforrecreationispermittedwhennotinusebythemilitary.Noristhereanyinstructionorguidanceastowhattodoiftroopsarepresentandthelandsinuse.DIOareoftenquicktocomplainofdisruptedtrainingbutthepublichasnotbeenprovidedwithclearguidanceexplainingwhatisandisnotrequired.Thesignsarepassivemessagesintendedtodiscourageanddeterrecreationalaccessirrespectiveofmilitarydemands.CommunicationofriskisimportantbuttheremustbebalancedwithrecognitionofSection2recreationalaccess,andtheresponsibilitiesofsuchaccessclearlyexplained.3.1 Vandalism The2003reportPublicAccessConsultancyfortheArmyTrainingEstate3madeaseriesofrecommendationstoimprovecommunicationwiththelocalcommunityandhelpreducevandalismetc,notleastofwhichwere:
• Encouragelocalstobe‘yourearsandeyes’
3PublicAccessConsultancyfortheArmyTrainingEstateRegionalReportATEHomeCountiesdatedAugust2003
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• 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
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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
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Figure7-Thecurrentbyelawscontainprovisiontobangatherings.Thedefinitionisunclearifthisincludessocialeventssuchasgroupwalksorcyclerides.
Thebenefitsofsocialeventsareextensiveandpartofwhatbuildsaresponsibleandactivecommunity.Astrictinterpretationoftheexistingbyelawsforbidssuchgatherings.TodateDIOhavemadenocommentoractionintendedtocurtailsocialgatheringsinthiswaybuttheriskofunilateraloverbearinginterpretationremains.3.4 Fencing RecentlyDIOhaveinstalledfencingtosignificantareasoflandandpermanentlyblockedmanypopularaccesspoints.Therewasnopublicconsultationwiththeimpactonrecreationalusecompletelydisregarded.FencesarejustifiedonsafetygroundsandinthecaseofLongValley(B4)heavyvehicledrivertrainingmaysupportsuchaclaimforapartoftheland.YetcontrarytopoliticalandDIOassurancesaboutpreservingpublicaccess,gateshaveremainedlockedandwarningsignsdeployedforextendedperiodswhennomilitarytrainingisunderway.Theuseofdangersignshasextendedtotimeswhenthelandshavebeenbookedforincomegeneratingcivilianevents
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Figure8.-AprivateeventinLongValleyusingjust40acresfromatotalof960.Theeventorganiserhastakenreasonablestepstohighlighttheeventtorecreationalusers.DuringthiseventDANGERsignsassertedthelandswereclosedformilitarytrainingwhentherewasnosuchuse.Abuseofthedangersignsinthismannerhaserodedtherespectandvalue.
ThecurrentByelawsclearlystatesthelandswillbeavailableforrecreationwhennotinuseandthatuseisrestrictedtomilitarytraining.
Figure9-ThisnoticeappearedatAshRangescomplexinlateMarch2020.InMay2020DIOannouncedthecompleteclosureoftherangecomplexandremovalpublicaccess,citingthedecisionhadbeentakensometimeagoandwasnothingtodowithrisksassociatedwithCOVID-19.DIOnowdenyclosurewasrelatedtoCOVID-19yetthissignwasusedtopreventrecreationalaccess.Afearbasedapproach–includingthemisuseofDANGERsigns–isprevalentwithinDIOandappearstobeacceptablepolicy.ArevisiontothebyelawisrequiredtoensureDIOremainaccountablefortheiractions.
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InMarch2020DIOerectedanewfence,completelypreventingrecreationalaccessforacontinuous5kmstretch-despiteDIOassurancesLongValleycanbeavailableforpublicrecreationinnameonly.TheareascoveredbytheByelawsaresignificantyetDIOpolicyandhostilitytowardsrecreationalaccessisslowlyremovingvastareasoflandsfrompublicuse.Figure10illustratestheareaslostwithinthelasttwoyearsandiflossescontinuetoaccrueatthesameratetheentireareawillbeunavailableforrecreationwithinadecadeorso.
Figure10-AreasofthetrainingestatefencedbyDIOshowninblack.Fencingandaccessrestrictions-irrespectiveofthelandsbeinginusefortrainingornot-havebeenimposedwithoutconsultationwiththelocalcommunity.Allfencingorlossofaccessdirectlyresultsindegradedcommunityrelationsandadisproportionateamountoftime–communityandpolitical–toensureaccesswhennotinuseispreserved.Thecostofwaste–bothinfinancialterms,politicaleffortandlostopportunityforcollaboration–isunknown.
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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
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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.
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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.
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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.
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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.
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TAGfirmlybelievesthattheforthcomingbyelawsreviewrepresentsauniqueopportunitytoresetanddramaticallyimprovetherelationshipbetweenMoD/DIOandthelocalcommunity.Thesenseofsharedspacehasservedbothmilitaryandrecreationaluserswellover150years–apragmatic,forwardlookingreviewcanensurethatthiscontinuesinthedecadestocome.
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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.
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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.
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Figure13-MilitarytrainingareascoveredbytheSurreyCommonsMilitaryLandsByelaw(1978)