The North Cornwall Trail

The aim of this study is to investigate the opportunity of connecting rural towns and villages in North Cornwall with a safe route that promotes cycling and walking by providing physical separation from traffic, for both utility and leisure journeys.

Cornwall Council has requested a high level options appraisal for the proposed North Cornwall Trail, including the following:

• The Dismantled Railway from Wadebridge to Lydford (Section 3.1 of the report)

• The Camel Trail extension from Wenford Bridge to Camelford (Section 3.2 of the report)

• Delabole to Camelford Link (Section 3.3 of the report)

This study includes the viability of each option in terms of deliverability, environmental constraints and number of landowners.

Sustrans has been asked to undertake a high level review and investigate the options available for developing a North Cornwall Trail, connecting to the Camel Trail and ultimately linking up with onward routes in West Devon.

The study compares different route options which are considered to be indicative and will require further investigation.

This opportunity to develop a new multi-use trail following the route of the former railway line, would provide the provision for healthy active lifestyles for residents and visitors to North Cornwall. The trail would link existing well used trails in Cornwall and Devon to create an extensive off road, segregated network for walkers and cyclists.

The initial proposals for this trail were developed by Sustrans in 2005. With the release of the Government’s bold vision for walking and cycling – Gear Change, it is timely to update these proposals and assess options which can be put forward for further in depth appraisal.

Sustrans and the Institute of Transport & Tourism produced a report on the “Camel-Tarka Link” in 2005, an economic assessment and market feasibility study.

The report assessed the potential of the proposed trail as a tourism and recreational facility to promote economic development in the area. A summary of the findings are as follows:

• The tourism sector is a significant employer in the South West accounting for around 7% of regional GDP.
• There is evidence to suggest that the provision of off highway cycling and walking routes are more likely to encourage increased usage, especially with inexperienced cyclists and those with young families.
• Routes (or route stretches) of around 40km/25mls are sufficient for most cyclists. Many will cycle shorter distances, say between 16-25km/10-15mls.
• A trail network that appeals to tourers as well as day and holiday cyclists would enable the study area not only to gain from an existing visitor base established by the Camel and Tarka Trails over the last twenty years but also to develop into other markets.

Cornwall Council commissioned an economic impact study of the Camel Trail in 2016, which assessed the impacts of usage on employment and income.

The report also assessed the user experience and carrying capacity of the trail. A summary of the findings are as follows:

• Overall, the results of the study showed that the Camel Trail is a well used and well loved natural resource by both residents and visitors alike.
• There were 424,000 visits to the Camel Trail in 2015 generated by 256,000 unique users.
• 67% of users were cycling on the trail equating to 283,000 cyclists. Of those cycles 150,000 were hired from providers on the trail.
• 113,000 users were walking (with or without a dog), 17,000 used it to keep fit/exercise, 8,000 were horse riding and 4,000 used it to commute to work.
• The Padstow to Wadebridge section of the trail accounted for approximately half of all usage of the trail.
• Approximately £6.7 million pounds was spent by users whilst on the trail.
• User spend generated approximately £13 million pounds of business turnover and supported approximately 260 actual jobs.
• Survey findings suggested that the majority of users (79%) feel any future increase in capacity will have a negative impact upon their enjoyment of the trail.

In July 2020, the Department for Transport (DfT) published ‘Gear Change – A bold vision for cycling and walking’.

This document represents an exciting step change in ambition when providing for walking and cycling and a clear vision for a complete transformation of our transport system. The health, environmental and economical benefits of active travel are highlighted and clear actions are laid out for local government and policy makers.

The Propensity to Cycle Tool (PCT) and Census Data Analysis assessing current travel patterns in the area.

The PCT is a strategic planning tool. Different visions of the future are represented through various scenarios of change, including the target to double cycling in a decade and the more ambitious ‘Go Dutch’ scenario, wherein Dutch cycling levels are reached in England.

• The Propensity to Cycle Tool (PCT) data relates to Commuting and Schools trips which have a potential to be cycled.

• This data may be of limited value when looking at a long distance rural route which will serve a primarily leisure function.

• The National Travel Survey (Table NTS0409b) shows that in 2019 the average length of a cycle trip was 5.2km.

• Local Transport Note 1/04 suggests that “journeys up to three times [the average distance] are not uncommon for regular commuters” travelling by bike.

• The PCT dataset has been filtered to include only journeys of 15.6km in length and below. The data was then filtered further to include only trips between the LSOAs located along the route alignment. LSOA stands for ‘Lower Layer Super Output Area’, covering roughly 3,000 people.

The results from the PCT analysis are shown in table 1.1 below. They show that levels of utility/commuting cycling in this area of Cornwall are low.

As you can see, 66% of commuting trips under 15.6km in length are travelled by car between the LSOAs on the NCT alignment. Obviously a large proportion of these couldn’t be completed using NCT but there is certainly potential for more trips to be cycled. 

Table 1.2 shows levels of cycling exhibited in each PCT scenario and the increase on the 2011 Census baseline. 

The gender equality scenario

This scenario shows almost a doubling in the levels of cycling in the area. This suggests that women are less likely to cycle for commuting purposes in this area than in other parts of the country.

In the 2011 Census, women accounted for 48% of all English and Welsh commuters but only 27% of all cycle commuters. This gender disparity is seen across the country, with no local authority having a proportion of female cyclists greater than 50%. In places such as the Netherlands where cycling accounts for a high proportion of trips, women cycle at least as much as men.

The ‘Gender Equality’ scenario seeks to capture a situation in which these gender disparities are eliminated. In this respect, it differs somewhat from the other scenarios, as it does not use distance and hilliness data to model propensity to cycle. Instead it assumes that male propensity to cycle remains unchanged – i.e. there is no change in the number of male cycle commuters – and that female propensity to cycle rises to match male propensity. This scenario has the greatest relative impact in areas where the rate of cycling is highly gender-unequal.

The Go Dutch scenario

This scenario represents what would happen if English and Welsh people were as likely as Dutch people to cycle a trip of a given distance and level of hilliness. This scenario thereby captures the proportion of commuters that would be expected to cycle if all areas of England and Wales had the same infrastructure and cycling culture as the Netherlands (but retained their hilliness and commute distance patterns).

In this instance, the Go Dutch scenario sees cycling levels increase six-fold which suggests a lack of infrastructure is a key barrier in the study area.

The E-bikes scenario

This scenario models the additional increase in cycling that would be achieved through the widespread uptake of electric cycles ('e-bikes'). This scenario is built as an extension of the Go Dutch scenario, making the further assumption that all cyclists in the Go Dutch scenario own an e-bike.

The data shows that there would be more than a 10 fold increase in cycle commuting in this scenario suggesting that e-bikes significantly reduce the barriers to cycling for people in this area which are quite likely to be distance and hilliness. This also suggests that there is almost certainly a considerable of latent demand in the area. 

This section provides an appraisal of the routes from Wadebridge to Lydford, Wenford Bridge to Camelford and Camelford to Delabole. 

It includes an overview of the viability of each option in terms of deliverability, environmental constraints and number of landowners. 

Deliverability Risk Categories

The Red, Amber & Green (RAG) ratings throughout this section are calculated based on the risk categories shown in Table 3.1 and how relevant to the route section they are. All scores are assigned using professional judgement based on experience and available information.

Ecological constraints

The trails have the potential to impact on an internationally protected Special Areas of Conservation (SAC) shown in blue on the maps below, and nationally protected Sites of Special Scientific Interest (SSSI), shown in pink.

Ancient woodland, an irreplaceable habitat afforded protection through planning, is shown on the maps in green.

Additional ecological constraints are detailed in each section and discussed in the accompanying ecology report.

High level costs

High level cost estimates have been given for each scheme in the summary tables throughout this section. These costs are based on a similar scheme using an old railway line currently underway in south Cornwall, the Saints Trails scheme from Newquay to Perranporth.

This scheme has very similar issues to the North Cornwall trail, with railway structures, being overgrown and remote. The current total cost estimate for the Saints Trails scheme is £13M for a 14km length.

This translates as approximately £0.85M per km for an off road trail and approximately £0.95M per km for more challenging construction including land negotiation and bringing structures back into use.

This 70km route follows the dismantled North Cornwall Railway (NCR) from Wadebridge in Cornwall to Lydford in Devon. The NCR was a popular tourist train carrying tourist and local passengers from 1856 until it’s eventual closure in January 1967.

In the 50 plus years since it’s closure the old track bed has been unmaintained and has in large part become overgrown with mature trees and woodland. Farmland- arable, grazing and game production also make up a large part of its length.

There are 144 individual landowners along the route. There are also a number of tourist camping and accommodation sites as well as other businesses and development along the route.

A 4km section of the railway has been restored coming into Launceston as the Steam railway tourist attraction.

Many cuttings have been filled in to extend the size of farmers' fields, some bridges and embankments have gone to make way for road improvement schemes and some parts are now covered with housing. 

The proposed trail seeks to link the existing Camel Trail in Cornwall to the Tarka Trail in Devon, via the Granite Way and Devon Coast-to-Coast. It would run from Wadebridge, on the Camel Trail, through the towns of Delabole/Camelford and Launceston in Cornwall before crossing the Cornwall/Devon border to Lydford in Devon.

Over the 70km route there are multiple settlements of varying size. Wadebridge at the start of the route has a train station but other than that there are no other train stations on the route. This keeps these small communities reliant on cars for most journeys.

There are quite a few points along the route where further engineering improvements will be needed to enhance the safety of crossings on highways and if not resolved would be a significant barrier to the use of the trail.

This route has been split into 11 smaller sections that will be briefly described and summarised in sections 3.1.1 to 3.1.11 below.

Historical Railways Estate were approached for details of the structures in their ownership between Wadebridge and Lyford.

The Historical Railway Estate includes legacy bridges, abutments, tunnels, cuttings, viaducts and similar properties associated with closed railway lines.

33 structures were noted along the 70km stretch in total, including overbridges (bridges over a road), underbridges (bridges underneath a road) and tunnels.

All these structures are found on public highway and are in varying states of repair. Some are being used as road bridges and therefore maintained by the local highways authority. Others stand unused and overgrown.  

There are approximately 49 unmaintained structures on private land that would also require restoration and continual maintenance.

• Create shorter routes along the length for community cohesion and more local utility/commuter trips.
• There is private farmland alongside the former railway that could be used to construct a shared path, subject to agreement from landowners. 
• As well as providing a valuable recreational trail it would offer important commuting links close to urban areas and in the main would be located on traffic-free routes.
• Recreational trails offer a sustainable way of increasing tourism whilst also providing a valuable resource for the local population.

• No or few Rights of Way currently exist along the alignment.
• Multiple structures that will need adopting by local authority before being bought back into public use creating a liability risk.
• Large number of land negotiations adding to cost and time.
• Ecological constraints throughout the route.
• Proximity to rivers creating a flood risk.
• Budget - total cost estimate of approximately £60.3M

This section could be developed as a stand-alone project as it connects Wadebridge and St Kew Highway where schools and employment areas are located and provides access to the various businesses along the route.

Summary of section 1, deliverability and elevation profile

While this section could be developed as a stand-alone project, it would have limited value as it does not link to any significant destinations. 

Summary of section 2, deliverability and elevation profile

This section could be developed as a stand-alone project as it provides access to school, businesses and places of work in Delabole.

Summary of section 3, deliverability and elevation profile

While this section could be developed as a stand-alone project, it would have limited value as it does not link to any significant settlements or destinations. However it has high strategic value when combined with the Delabole and Camelford link scheme.

Summary of section 4, deliverability and elevation profile

This section could be developed as a stand-alone project, but it would have limited value as it does not link to any significant destinations.

Summary of section 5, deliverability and elevation profile

This section could be developed as a stand-alone project, but it would have limited value as it does not link to any significant destinations.

Summary of section 6, deliverability and elevation profile

Again this section could be developed as a stand-alone project, but it would have limited value as it does not link to any significant destinations.

Summary of section 7, deliverability and elevation profile

This section could be developed as a stand-alone project as it connects smaller settlements to Launceston town where schools and employment areas are located and provides access to the various businesses along the route.

Summary of section 8, deliverability and elevation profile

This section could be developed as a stand-alone project as it connects smaller settlements to Launceston town where schools and employment areas are located and provides access to the various recreational sites and businesses along the route.

Summary of section 9, deliverability and elevation profile

While this section could be developed as a stand-alone project, it would have limited value as it does not link to any significant destinations. It would have more strategic value if combined with the sections either side linking Launceston to Lydford.

Summary of section 10, deliverability and elevation profile

This section could be developed as a stand-alone project as it connects smaller settlements to Lydford and beyond, where schools and employment areas are located and provides access to the various tourist destinations and businesses along the route.

Summary of section 11, deliverability and elevation profile

The current alignment of National Cycle Network (NCN) route 3 from Wadebridge to Camelford uses the off road Camel Trail along the River Camel, which currently ends in Wenford Bridge village. The route then follows the narrow, windy and sometimes steep C roads through to Camelford for approximately 15km. 

The opportunity to provide a continuous new path to extend the Camel Trail for 12km along the Camel River valley has been investigated.

The Camel Trail is one of the most popular recreational routes in the country, attracting over 400,000 visitors a year. It is therefore an important asset to the local economy.

The extension has the potential to improve the local community's access to nature and to create local sustainable jobs.

The preferred route alignment is shown on the map below. The route crosses the river from west to east a number of times, depending on which side is more suitable.

Generally, the East bank offers most of the best opportunities with long stretches of flat land which is currently not in agricultural production. However, there are three points along the river where the river side is marked by very high, sheer, cliff type geography that is impassible.

The River Camel is designated a Special Area of Conservation with the primary reasons being its importance to the Bullhead fish, Otters and as a spawning ground for Atlantic Salmon. The existing old sessile oak and accompanying Ancient Woodland form notable but fragmented habitats along its length.

This route extension travels through sections of farmed open valley and some steep rock faces or heavily wooded areas which may be challenging to implement both logistically but also in order to win support.

There are 34 private landowners along the route – and land use includes farmland, a number of small hamlets, holiday rental businesses. 

There are a number of existing Footpaths where it may be possible to upgrade with higher rights for cyclists. The Footpath would need extensive widening and resurfacing.

There are 6 road bridges and 3 foot bridges along the route. The foot bridges are necessary to navigate the river from west to east as required.

The road bridges are on quiet C roads and could be easily crossed much like on the camel trail going south.

The three foot bridges are not wide enough or suitable for shared use and therefore would need completely upgrading.

• High impact route linking the larger towns of Wadebridge and Bodmin to Camelford.
• Extending an already popular route increasing tourism and boosting the local economy.
• Improvement for the National Cycle Network (NCN) by creating a new section of off road traffic free path.
• Footpaths already exist along the route that could more easily be upgraded for higher rights.
• Less hilly than other options as follows river valley.

• Engineering solutions required to cross river multiple times adding to cost.
• Large number of land negotiations adding to cost and time.
• Ecological constraints throughout the route, as close proximity to SSSI and Ancient Woodland.
• Close proximity to river creating a flood risk.

Summary of section, deliverability and elevation profile

There is currently no provision for cyclists between Delabole and Camelford. Cycling activity in the area is low for this reason. Current plans for the A39 Atlantic Highway, Camelford Development, north and west of the town, will provide a much safer environment for walkers and cyclists due to lower traffic volumes in the town. Providing this type of infrastructure would attract visitors to the area and allow them to travel car free.

The preferred route alignment from Delabole to Camelford is shown on the map below. The route follows the same alignment as Section 3.2.1 Delabole to Slaughter Bridge, of the old dismantled railway route.

Just before Slaughter Bridge the route deviates south across open farmland before joining up with an existing public byway for around 1km. It then joins the public highway at Trevia, a settlement just outside Camelford, before heading on road into Camelford itself.

This route travels through large sections of farmed land, with multiple areas of mature woodland along the alignment. There are 13 private landowners and it also crosses two C roads and a B road along the way.

The old trackbed along the dismantled railway section is no longer intact and is overgrown in most places. The public byway surface would need upgrading and widening.

• High impact route linking Delabole and Camelford, suitable for commuting and utility journeys.
• Predominantly an off road and scenic route.
• Strategically can link with dismantled railway and/or Camel Trail extension routes if progressed.
• Uses existing byway for 1.1km and highway which already have rights of way for multi-use.
• Gradients much flatter than other options, with a gain of 86m over 6km, avoiding steep ravine.
• Ties in with A39 Atlantic Highway plans using the pedestrian crossing at Trevia.  

• Longer distance than a more direct route using the desire line.
• Large number of land negotiations adding to cost and time.
• Ecological constraints throughout the route, within 1km of a SAC and a SSSI.
• On road section into Camelford with fewer segregated options – however bypass will reduce traffic flow.  

Summary of section, deliverability and elevation profile

Value vs Deliverability

This section evaluates which stand alone projects could be worth investigating first. Table 4.1 shows the RAG rating scores and the strategic value of each section of the dismantled railway and the other schemes.

The score is calculated using the RAG rating colours where red = 4, amber = 2 and green = 0.

Table 4.2 shows which sections are less or more challenging to deliver against how valuable they are. It shows that the dismantled railway sections 3,4, 8 & 11 and the Delabole to Camelford Link are the most valuable sections/schemes that could be less challenging to deliver.

Delivery next steps:

It is recommended that the first scheme to be further investigated with a more in depth feasibility study and concept design is the Delabole to Camelford Link.

Smaller projects

Some of the appraised sections along the dismantled railway alignment are worth developing as stand-alone projects, but the overall value of the 70km route connecting rural communities in North Cornwall and Devon is greater than the sum of the parts.

An incremental approach is possible as land and funding become available, but it would be preferable to develop the whole route within a relatively short period of 5-6 years.

Ecological constraints

Due to the protected sites, unique landscapes, habitats and species that are found in this area, the scheme must be designed with care to ensure they are protected.

The route options have been considered against locations of legally Protected Sites, Ancient Woodland and the Priority Habitats Inventory to give an indication of potential ecological constraints to the scheme.

Planning permission will not normally be granted for proposed developments if the development is likely to have an adverse effect on a protected site and the proposals will be subject to separate scrutiny and licensing by Natural England.

Priority Habitats are habitats of principal importance for the conservation of biodiversity in England and have to be considered under planning policy.

This means that significant adverse impact on these habitats should be avoided and measures which reduce any such negative impact should be explored. Failing that, losses of such habitats should be compensated for as part of the development proposals.

Some of these habitats are deemed irreplaceable, and planning permission may be refused for development resulting in the loss or deterioration of irreplaceable habitats. Irreplaceable habitat includes ancient woodland, ancient hedgerows and lowland fen.

Further information about the ecological constraints to the scheme including maps of priority habitats and impact on protected species is detailed in the accompanying ecology report.

Ecology next steps:

• Early engagement with Natural England and the Environment Agency will be essential to the success of delivery for any of these alignments.
• A Preliminary Ecological Assessment (PEA) will be needed at the next stage of the process, to assess what surveys and mitigation will be required.
• An Arboricultural survey should be done to assess the Ancient and other woodland areas, before an Environmental Risk Assessment can be completed for planning.

Land Negotiation

Land negotiation is arguably the key factor in the delivery of these schemes as there is such a high number of different land owners that need to be consulted. The use of compulsory purchase or compulsory bridleway creation powers can strengthen negotiations. Experience shows that the threat of these powers can be sufficient to bring a landowner to the table.

Creating a public bridleway by agreement is the preferred option, but this is subject to confirmation by all landowners along the route and suitability of the alignment in terms of gradient and available width. A willingness to use compulsory powers (for bridleway creation or purchase) may be needed in some cases to persuade landowners to reach agreement. If bridleway status is not possible throughout, a long lease to create a permissive path for walking and cycling may be an alternative.

Land Negotiation next steps:

• Detailed Land Registry search to find out land ownership including large estates and council owned land.

Bringing former railway structures back into use

Ownership of many of the former railway structures along the dismantled railway route rests with the Secretary of State for Transport as part of the former ‘Burdensome Estate’. These structures are managed on behalf of the Secretary of State by the Highways England Historical Railways Estate Team. In our experience, securing access over or under these structures is likely to require transfer of these assets from the Secretary of State to a statutory body, capable of taking on their management.

Whilst the structures will have been subject to an inspection regime by the Highways England Historical Railways Estate team, bringing them back into use may require varying amounts of work, depending on their condition. A structure that has public access needs to be maintained in a higher condition than one that is disused.

Railway structures next steps:

Cornwall Council would need to be prepared to take on responsibility for the structures along the alignment. Recent experience suggests that the Highways England Historical Railways Estate Team, acting on behalf of the Secretary of State for Transport won’t permit public access to these structures as to do so will increase the liability and require them to be maintained in a better condition. In their view if they are to be used for walking and cycling paths then they should be taken on by the Local Authority.

The overall approach to the scheme is detailed below, with indicative costs for the next step, Step 2. Step 1 includes this report and Steps 2-5 are subject to funding being confirmed.

Step 1 - Initial Study - Completed by Sustrans

Step 2 - Scheme feasibility design and Strategic Outline Business Case (SOBC)

Objectives and indicative costs:

• Engineering design review, identify preferred option - £40k
• Environmental constraints and Preliminary Ecology Assessment (PEA)- £35k
• Identify land requirements and issues - £15k
• SOBC report including a value for money assessment - £45k

Total £135k

Step 3 - Consultation and engagement

Objectives:

• Identify landowners and stakeholders
• Commence negotiations for early land assembly
• Input into local development plans

Step 4 - Detailed design and planning

Objectives:

• Complete statutory processes
• Acquire remaining land

Step 5 - Tender and construction

Objectives:

• Trail opens for use
• Full supporting behaviour change programme to promote healthy lifestyles and visitor use.