HomeMy WebLinkAboutAgenda 12-09-2025; 12-4 - Information Item - Memorandum - Update on Orange County Trails Plan 1
Department of Environment,
Agriculture, Parks &Recreation
MEMORANDUM
TO: Travis Myren, County Manager
FROM: David Stancil, DEAPR Director
DATE: December 9, 2025
RE: Update on Orange County Trails Plan
This memorandum and the attached presentation and materials are intended to
provide an update on the Orange County Trails Plan project.
In February of this year, Orange County and its project consultant Gensler, Inc.
began work on the creation of an Orange County Trails Plan. The Orange County
Parks and Recreation Council (PRC) is serving as the steering committee for the
project, and two working teams have been formed to assist with the project — an
internal multidepartment staff group, and a partner group with representatives
from trails and open space organizations and entities.
As seen in the attached presentation, project kickoff and engagement strategy
planning began early this year along with creation of a project website. Data
gathering and initial feasibility assessment was conducted during the spring,
including both reviews of existing plans and documents and on the ground field
analysis. A first round of community engagement workshops was held in late-
May, supplemented with an online survey that enabled participants to experience
and participate in the workshop stations and exercises. This feedback and data
were used with the prior data analysis to develop a visioning survey this summer.
Two meetings were held with the County's Bicycle and Pedestrian Plan staff and
consultant to ensure coordination between the plans, as well as check-ins with
the inter-department and partner teams. A second round of public workshops
were planned and held in late-September. These workshops were augmented by
pop-up events at the County Roadshow and at Soccer.com Center during a
soccer game night. At the workshops, participants were asked to view a draft
trails plan and react to proposed trail segments, as well as vote on priorities. A
Orange County Department of Environment, Agriculture, Parks & Recreation
PO Box 8181, Hillsborough, NC 27278
Phone: (919) 245-2510
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second online survey, again offering a digital version of the workshop
experience, was created and publicized using a variety of methods, and this
survey ran from mid-October through November 9.
Gensler, County staff and the Parks and Recreation Council have been at work
this fall creating the basic framework of a draft Trails Plan, along with a
preliminary trails segment map and prioritization ranking. Thematically, the
framework that has emerged to date is focused on using the analysis of existing
conditions and trends, evaluations of existing plans and trail systems, alignment
with other policies and initiatives (such as the County Strategic Plan, the adopted
Parks and Recreation Master Plan, draft Bicycle and Pedestrian Plan and draft
Land Use Plan). Basic organizing concepts have emerged around creating
connections between existing trail systems and open spaces or places of public
interest in the towns and county, and addressing accessibility for all residents,
particularly historically underserved communities.
The public feedback and reaction to the initial draft map and prioritization is
provided in the attached presentation, along with Project Goals, a Vision
Statement crafted from PRC and public feedback, and draft Guiding Principles.
The draft has been shared with the interdepartmental and partner work teams for
review and comment.
Next steps for the project would involve the completion of the draft Trails Plan,
using the data analysis, public feedback to date and any Board direction from
tonight's update. The final draft plan, complete with proposed trail connections,
priorities, cost estimates and other supporting standards and documents, is
planned to be presented to the Board in February. Before continuing to this step,
Gensler and staff wished to share the work to date with the Board and receive
any feedback or direction as the draft Plan is created. Estimated costs
associated with the eventual Trails Plan and creation of prioritized trails as
reflected in that document will be developed as part of the draft plan to be
presented in February.
Gensler and staff would invite any feedback and direction from the Board as the
draft Trails Plan is created, to be brought for Board consideration in February.
Please let me know if any I may provide any additional information.
Attachments
Copies: Caitlin Fenhagen, Deputy County Manager
Orange County Department of Environment, Agriculture, Parks & Recreation
PO Box 8181, Hillsborough, NC 27278
Phone: (919) 245-2510
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Board of County Commissioners �R
Trails Plan U
December 9, 2025
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ORANGE COUNTY Gensler
NORTH CAROLINA Department(Environment,
Agriculture,Parks&Recreation
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Trails Plan Team
Orange County, NC Consultant Team Steering Committee
Department of Environment, Gensler Parks and Recreation Council
Agriculture, Parks, and Recreation Raleigh, NC Natalie Ziemba, Chair GiGi Rashdi
(DEAPR) Township: Hillsborough Township: Eno
David Stancil Louise Flinn, Vice Chair Chloe Reid
Director ; Township: Bingham Township: Chapel Hill
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Logan Cason Trevor Robinson
Marabeth Carr Township: Hillsborough Township: Eno
Landscape Architect Elaine Asal
Strategy Director Gregory Husketh Navya Sharma
Township: Hillsborough Township: Chapel Hill
Kalani Allen A -'k. Alissa Martucci Xilong Zhao
Communications Manager ) Township: Hillsborough Township: Chapel Hill
Maggie Moriarty
Abby Mattingly Township: Chapel Hill
Administrative Support Mikayla Hernandez Allen Parker
Strategist Township: Cheeks
DRAM�EIXINTY Gensler Orange County Trails Plan I Board of County Commissioners Update
Trails Plan Project Overview
The Orange County Trails Plan is intended to be
both a physical plan and policy implementation
guide developed through: Orange County
Trails Plan
Recommendations Repnrl Table of Contents
01 iNrxo°ucrlam
• Analysis of existing conditions and trends ;t�
• Evaluation of existingplans and trailsystems
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Alignment with other policies and initiatives
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• Community input R04 ECIOMMENNDAnONS
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The result of this planning effort will be a ob peps°�
comprehensive, coordinated trails vision for
Orange County with policy recommendations
and guidance for implementation over the
next 20 years.
DRAr`acfi�aN Y r, Gensler Orange County Trails Plan I Board of County Commissioners Update
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Project Goals
Five Trails Plan project goals were identified by the Parks & Recreaction Council
and highlighted by the community during the visioning process.
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Spark enthusiasm Develop a Trails Create a Expand access to Identify new and
for countywide Plan that reflects comprehensive excellent parks and existing trail
trail connectivity the community's network of recreation segments to
with an equitable, vision and aligns connectivity opportunities fora complete the
inclusive, and with other county between key points broader Mountains to Sea
engaging outreach and municipality of interest including population, Trail (MST)
process. efforts, such as work, home, school, especially in rural section in Orange
the Bicycle and commerce, and areas of the county. County.
Pedestrian Plan. public transit.
Gensler
Orange County Trails Plan I Board of County Commissioners Update
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Project Roadmap We are here
JAN FEB MAR APR MAY JUNE JULY AUG SEP OCT NOV DEC JAN FEB
Engagement
Task 1
Community Outreach Project Kick-off& Project Vision Public Draft Trail Network
&Public Engagement Engagement Strategy Website FAQs Workshops Visioning Survey Workshops Survey
CouncilTask 2 Parks&Recreation d of CountyCommissioners
Project Steering 0 Committee& :•: s0a 1
iia 09 41 46 :�a
Reporting
Task 3 Data Gathering
GIS Mapping&
Analysis
Task 4
Priority Trail Corridors:
Site Assessment&Cost Feasibility
Estimate
Task 5 Drafting of Segments Drafting of Trails Plan
Orange County Trails •`'i'' Refinement per feedback
Plan from the Board
Alignment
Task 6
Additional Outreach,
Coordination
Meetings
. . . .
DRAM�EOUNTY Gensler Orange County Trails Plan I Board of County Commissioners Update
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Outreach,
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Community Engagement Research
During project start-up, the team reviewed a variety of documentation including previously adopted plans
and past outreach efforts. The community engagement for the Trails Plan has built upon what we learned,
including these six key takeaways:
Engagement with
A multi-channel engagement There is significant community interest in:
under-represented approach including in-person • Balancing the preservation of environmentally
groups (based on workshops, digital feedback sensitive areas with increased access to parks and
previous county opportunities, and more has recreation facilities
been successful in the past for • Multi-modal connectivity across the count
outreach) will be Y Y.
critical for delivering a capturing a wide range of especially between parks, open spaces, and
widely supported Trails perspectives. points of interest
Plan. This includes:
• African American, Within the community, there is Approx. 50% of the sites The Mountains to Sea
Hispanic/Latino, & strong support for environmental identified in the 2030 Trail (MST) connection
Asian community protection, climate action, and Parks & Rec Master Plan is a top priority and a
members investing in parks and trails have been constructed/ prominent part of the
• Youth throughout the county. completed to date. Trails Plan.
DRAM�EIXINTY Gensler Orange County Trails Plan I Board of County Commissioners Update
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Outreach Strategy
Tasks 1, 2, and 6 have been critical for developing a community supported Trails Plan.
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123 --
Promotional Materials Orange County
1 1 Trails Plan ,
•
, , I Social media campaigns on Community Workshops 1
1 1 Instagram & Facebook
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Project ' Trails Plan
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' Web Page ; ' e-Newsletter
Change County ,
Graphics on digital displays
Trails PlanSign-ups Community .Informational web aroundthe county ----- .....
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I page with project i 1 • 4 newsletters
' details, roadmapI ' sent to Trails Plan I I Printed fl posted at
and resources , flyers' 1 ' I y p
i i i email list i i county parks and key points ,
of interest in the Orange County
Hosts the — Trails Plan
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i i i Included project i i community and distributed ! Community Workshops ,
newsletters, i , progress updates, 1 i through CHCCS
promotional i engagement 1 '
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workshopi I 1 1
i i recaps, and i I Digital advertisements in _--
i materials, and , i advertising , , existing Orange County join us! 1
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i FAQs 1 1 upcoming 1 1 publications/ newsletters
i 1 i events/activities 1
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JRAx�EIXINTY Gensler Orange County Trails Plan I Board of County Commissioners Update
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Community Engagement
Community stakeholders were engaged through a series of in-person and online activities, including:
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Steering ; Visioning ; September ; Pop-up ; Draft Trail
Committee ; ; Participants ; ; Workshop ; ;Event Participants ; ; Network Survey
Meetings Two May Vision Attendees Respondents
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• March: Kick-off Workshops:i i 62 attendees i i • Two September i i October 12: i i Alternate way for i
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• Workshops i County Roadshow i the community to
i April: Vision i i July/August i ' i ' i ' provide input on
workshop co- i i Vision Survey: i i • Designed to i i October 16: i the draft network,
i creation i 72 respondents i gather feedback i Soccer.com i ' if they were not
' ' ' on the draft Trails
Visioning i g i i i Center i i about to attend
i i i Designed to i i Plan network so i i i ' the workshops
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i report-out i I gather input on i ' the plan can be i ' i ' p i
September: i i the community's i i refined to align i i i ' Feedback is
Update & Sept. i i vision for trail i i with community's
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workshop details connectivity ' i vision i i i currently being i
i p i i i i i i i i reviewed i
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Gensler Orange County Trails Plan I Board of County Commissioners Update
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Visioning Insights
From the vision workshop and online survey inputs (what we heard), the following insights emerged.
Participant Snapshu°L Community Priorities
• 96% of participants were Orange County residents, • Connecting key destinations and completing
representing all townships. the county's Mountains to Sea Trail (MST)
segment emerged as top priorities.
• This representation will help ensure the plan reflects the
needs of both long-term and newer residents, as well as • Connections drawn by the community
non-residents who use the county's outdoor spaces. connect a variety of valued outdoor spaces,
organizations, and gathering spaces.
Current Use
• Top activities like walking, hiking, and socializing are Foundation for the Future
occurring at a variety of parks & trails across the county. • Key themes of safety, mobility, natural
• 36% Recreation & Fitness beauty, and accessibility rose to the top as
• 25% Socializing & Gathering people described their visions.
• 20% Connecting with Nature
• 19% Relaxation & Reflection • This input directly shaped the project goals,
• Current use shows that these facilities are central to health, vision statement, and guiding principles.
recreation, and a sense of community.
Gensler Orange County Trails Plan I Board of County Commissioners Update
Vision Statement
Orange County will be a place where a safe, inclusive
network of trails connects people of all ages and abilities
to each other, to nature, and to the places they love.
These trails will make it easy to travel by foot or bike
rather than car, encourage healthy movement, strengthen
our communities, and foster equitable access to the
natural beauty that defines the Piedmont region.
O,A G aN YGensler Orange County Trails Plan I Board of County Commissioners Update
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Creating Guiding Principles
Following the vision workshop, online survey, and Parks and Rec Council meetings, a set of draft guiding
principles was developed to create a foundation for the Trails Plan. An inclusive engagement process has
ensured these guiding principles reflect a diverse collection of community voices.
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InputsI
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(What we heard)
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DR GE Gensler Orange County Trails Plan I Board of County Commissioners Update
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Draft Trails Plan Guiding Principles
Reflect Local Character
Trails should seamlessly integrate into the surrounding landscape and reflect the unique
identity of each community they pass through — from rural to urban and everything in
between — to foster a stronger sense of identity and place across Orange County.
Prioritize User Safety
Safety is essential for encouraging trail use. Thoughtful trail design with universal access,
adequate visibility, clear wayfinding, and safe crossings should be at the forefront to keep
pedestrians and cyclists safe and comfortable.
Cultivate Community Wellness
The trail network should help build a happier, healthier community by supporting physical
activity, mental health, and social well-being through opportunities for recreation,
relaxation, and connection with nature.
DRAM�EIXINTY Gensler Orange County Trails Plan I Board of County Commissioners Update
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Draft Trails Plan Guiding Principles
Advance Access & Equity
All Orange County residents—regardless of age, ability, income, or location—deserve safe
and convenient access to outdoor exploration. The trail network should prioritize
connectivity to historically underserved areas, promote inclusion, and ensure diverse
community needs are met.
Expand Travel Options
To be effective, the trail network should provide viable alternatives to vehicle transportation
and encourage more active modes of travel, like biking or walking, by connecting key points
of interest across the county.
Design for Longevity
f Trails should be designed and constructed using best practices that promote long-term
resilience, ease of maintenance, and adaptability, allowing the network to evolve as the
county grows and community priorities change over time.
DRAM�EIXINTY Gensler Orange County Trails Plan I Board of County Commissioners Update
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Proposed Trail Segments
A total of 12 trail segments* are being proposed for the draft Trails Plan. f
• UNC Campus to University Station (Rail to Trail via NCRR Cogen Line) t
• Chapel Hill to Hillsborough (Cogen to Cates Creek Park via NC 86& Waterstone Dr)
• MST - Alamance County to Seven Mile Creek Natural Area (Nature trail) moi- iJ
• MST- Eno River State Park to Durham (Nature trail)
• MST - Seven Mile Creek Natural Area to Hillsborough Riverwalk (Nature trail) � 1
• Cedar Grove Park to Kings Highway Park (Nature trail via Eno River)
• MST - Alamance County to Seven Mile Creek Natural Area (Road route)
• Little River Park to Cedar Grove Park (Nature trail via Northeast Park& Breeze Farm)
• Mebane to Hillsborough (Road route via US 70 to West Hill Ave/Occoneechee Mtn)
• Little River Park to Cedar Grove Park (Road route via Northeast Park& Breeze Farm)
• Carrboro/Chapel Hill to Hillsborough (Road route via Old NC86)
• Lake Michael Park to Panther Branch Nature Preserve to Hillsborough (Road route via Lebanon Rd)
*Initial draft trail segments. Some segments may duplicate or parallel others and be refined as the Plan
progresses.
J, EcaUN11 Gensler Orange County Trails Plan Board of County Commissioners Update
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Draft Trail Priority Evaluation Criteria
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Each trail segment in the proposed
network will be evaluated against a set Local Need
of five criteria to determine the - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -
project's level of priority. These ,' - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -
criteria are listed to the right. Estimated Total Project Cost
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Alignment with guiding principles and - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -
level of community support are being
Connectivity to Existing Infrastructure �
informed by feedback received at the
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September workshops, October pop- _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _
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ups, and Draft Trail Network survey.
Alignment with Guiding Principles
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� Level of Community Support �
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DRAM�EIXINTY Gensler Orange County Trails Plan I Board of County Commissioners Update
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Draft Prioritization
The following is a preliminary ranking of the 12 proposed trail segments in order of priority, based on
information received to date. This is a work in progress that has been shaped by community input and will
be revised with other criteria.
1 MST- Eno River State Park to Durham (Nature trail)
2 Chapel Hill to Hillsborough (Cogen to Cates Creek Park via NC 86 & Waterstone Dr)
3 MST- Seven Mile Creek Natural Area to Hillsborough Riverwalk (Nature trail)
4 MST - Alamance County to Seven Mile Creek Natural Area (Nature trail)
5 UNC Campus to University Station (Rail to Trail via NCRR Cogen Line)
6 Carrboro/Chapel Hill to Hillsborough (Road route via Old NC86)
7 Cedar Grove Park to Kings Highway Park (Nature trail via Eno River)
8 Mebane to Hillsborough (Road route via US 70 to West Hill Ave/Occoneechee Mtn)
9 MST - Alamance County to Seven Mile Creek Natural Area (Road route)
10 Little River Park to Cedar Grove Park (Nature trail via Northeast Park& Breeze Farm)
11 Lake Michael Park to Panther Branch Nature Preserve to Hillsborough (Road route via Lebanon Rd)
12 Little River Park to Cedar Grove Park (Road route via Northeast Park& Breeze Farm)
DRAM�E caUNIY 'ft Gensler Orange County Trails Plan I Board of County Commissioners Update
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Next Steps
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and tonight. February 2026. -
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Visioning Insights
Key findings from the May vision workshops and online Trails Plan survey are summarized below.
a Participant Snapshot �2 Community Priorities
96%of participants Township Representation Participants emphasized the importance
were Orange / of connecting key destinations like parks,
County residents, asr HILLSBOROUGH
with representation CHAPEL HILL libraries, markets,and schools through
BHAPELH a safe,accessible trail network.The
from all seven 107 $% ENO
townships—especiallyINGHAM
RESIDENTS Mountains to Sea Trail (MST)also emerged
5%CEDAR GROVE
Hillsborough,Chapel 3%CHEEKS as a top priority, reinforcing regional
Hill,and Bingham. 3% LITTLE RIVER connectivity goals.These priorities are
evident in the connections drawn by
This representation Length of Residency workshop participants,which are mapped
will help ensure the in blue and overlaid with the points of
plan reflects the `lrr interest below.
Yrs �
needs of both long- 2-5 Yrs —
term and newer 5-,Yrs Priority Connections
residents,as well as 7-lo Yrs
those who use the 10-20 Yrs '
county's outdoor 20,yrs
spaces but live Whole life
- 1
outside its borders. 0 5 io 15 20 25 so 35 ao 45
NUMBER OF RESPONSES ` p
1111 7
Current Use of Parks&Trails
Top activities like walking, hiking,and socializing are occurring �
in all parts of the county.This current use shows that parks and
trails are central to health, recreation,and a sense of community.
36%Recreation&Fitness 20%Connecting with Nature _
• Walking(73 votes) Wildlife observation(50 votes)
• Hiking(60 votes) Birdwatching(31 votes)
• Biking(26 votes) Clean-up events(10 votes) -- —�
• Sports(20 votes) Gardening(3 votes)
• Other/unspecified(67 votes) Other/unspecified(42 votes)
25%Socializing&Gathering 19%Relaxation&Reflection Top Points of Interest
• Meet-ups with friends(57 votes) Sitting/enjoying nature(51 votes) ® Nature and Outdoor Spaces
• Family outings(38 votes) Picnics(30 votes)
• Community events(30 votes) Reading orjournaling(16 votes) OcconeHillsborough Riverwalk(64 votes)
• Playing(19 votes) Yoga or meditation(10 votes) Blackwood
Mountain State Natural Area(31 votes)
• Other/unspecified(25 votes) Other/unspecified(19 votes) Blackwood Farm Park(29 votes)
Q Organizations and Institutions
• Orange County Public Library(47 votes)
• Brumley Family Nature Preserve(Triangle Land
Foundation • Conservancy-40 votes)
• Chapel Hill Public Library(28 votes)
Safety, mobility, natural beauty,and accessibility emerged as critical Q Gathering Spaces
components as people described their visions for the Trails Plan. Weaver Street Market votes)votes)
• Eno River Brewing(26 votes)
Top Goals Priority Audiences Ideal Outcomes Wooden Nickel Pub(20 votes)
1. Create more parks, 1. All ages(youth to seniors) 1. Preservation of
trails,open spaces 2. Pedestrians natural beauty
2. Connect points of 3. Cyclists 2. Safer Community-informed Planning
interest throughout experience for
the county Key Themes cyclists and
3. Increase access to 1. Network of connectivity pedestrians Community input directly shaped the
outdoor spaces for a 2. Connection to nature 3. Reduced vehicle
broader population 3. Safety dependency project goals,vision,and guiding principles.
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Orange County Trails Plan
Project Update • November 2025
What is the Trails Plan project?
The Trails Plan is a new Orange County Trails Plan (OCTP) and will serve as both a physical plan and
policy implementation guide developed through an analysis of existing conditions and trends, evaluation
of existing plans and trail systems, and other policies and initiatives.The outcome of this process will
be a comprehensive trails plan that utilizes trail planning principles, a community engagement process,
relevant data and analysis of trends, identification of opportunities and strategies, means and methods of
coordination among different jurisdictions and trail systems, and an implementation plan with performance
measures that track progress on achieving the goals and objectives of the plan.
The result of this planning effort will be a comprehensive, coordinated trails vision for the County,with
corresponding policy recommendations and guidance for implementation of the plan over the next 20 years.
The anticipated product will be a user-friendly, graphically pleasing document, reflecting concise goals,
objectives, and policy recommendations.
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What's Next?
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Trails Plan Update ,
December to the BOCC Fall Survey Update
_________ ______�
" Between October 13 and
An update on the Orange County Trails Plan November 9, an online survey was
project will be shared with the Board of County ;� available for community members who �`,
Commissioners at the December 9 business were unable to attend the second round
meeting. Feedback and direction from the Board will of Trails Plan workshops in person. A total
be incorporated into the draft plan this winter, then of 65 people provided feedback on the
shared for formal consideration in February 2026. draft trail network, guiding principles, and
priority trail segments. These insights are
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now being reviewed and incorporated into
Want to learn more? the Trails Plan to ensure community
Visit orangecountync.gov/TrailsPlan for perspectives shape the final ;
more information on the project including recommendations.
,
the roadmap, upcoming events, and more.
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