Evergreen Park Trail Improvement Campaign

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You may have heard that Sheboygan County Cycling (SCC) is proposing new or modified trails in Evergreen Park. If what you’ve seen online has raised concerns, you’re not alone. Below are some common questions and answers to help clarify the proposal.

What is the proposal for trails in Evergreen Park?

The proposal includes multiple phases. Phase 1 – signing existing trails – is complete. Phase 2 has a heavy focus on rebuilding, rerouting, or removing old trails. The trails within Evergreen Park are decades old and suffer from erosion. Rebuilding to meet current best practices will benefit the forest and the trail user experience. Best practices include:

• Post-2007 Sustainable Trail Guidelines (Ex. USFS, American Trails, MN DNR; WI does not currently have its own trail guidelines)
• Current federal and state requirements
• Current trail-to-area ratios to minimize environmental impact (Planning Trails with Wildlife in Mind, USFS 7.1, etc.)

Phase 2 also includes adding features such as those in the proposed kid’s bike playground to encourage more youth to visit the park.

What types of trails are being proposed?

The trails would be natural surface and sustainable, as defined in the guidelines above. Widths would range from “singletrack” (<42″) to “track-and-a-half” (42″–60″). Most would support shared use for passive recreation, such as hiking and mountain biking.

Is it possible to safely share trails of these widths?

Yes. Nearly all urban trails that allow mountain biking are shared with hikers—both in Wisconsin and nationwide. This shared use is the norm, as modern federal and state guidelines are based on the principle of accommodating multiple passive recreational users.

Do the proposed trails cause undue erosion?

No. These trails are designed to maintain erosion rates comparable to surrounding soil. Over 30 years of research show that well-built and well-maintained trails do not cause soil degradation.

If current trails are badly eroded, won’t the proposed trails be too?

First, the existing trails at Evergreen Park were not built to any standard and predate current guidelines. There are also many informal trails in Evergreen Park, which are notorious for erosion problems. Second, despite some online claims to the contrary, rerouting or rebuilding these trails will reduce erosion, not increase it. As noted above, modern trail guidelines are specifically designed to minimize erosion, and decades of research support their effectiveness.

Will construction start if the resolution is approved?

No. This is only a concept plan. Each phase will undergo its own review process through City Council. For example, Phase 2 would require design by a professional trail designer, securing local and state permits, and separate construction approval.

What about the “features” I’ve heard so much about online?

There’s some confusion about what trail “features” are. Features are items that add a skill challenge, usually built from natural, on-site materials, like rocks and logs. Lumber structures are another option for additional challenges or when necessary for drainage.

Learn more on our Evergreen Trail Improvement project page.

References and Further Information:

• American Trails – Build a Sustainable Trail that Lasts 100 Years:
  https://www.americantrails.org/training/build-a-sustainable-trail-that-lasts-100-years
• Minnesota Department of Natural Resources – Trail Planning, Design, and Development Guidelines: https://www.dnr.state.mn.us/publications/trails_waterways/index.html
• United States Forest Service – Trail Maintenance and Construction Notebook:
  https://www.fs.usda.gov/sites/default/files/fs_media/fs_document/trail-maintenance-notebook.pdf
• IMBA Trail Solutions – IMBA’s Guide to Building: https://www.imba.com/resource/trail-solutions
• Indiana University (linked from American Trails)- Foundations of Sustainable Trails: A Trail from Start to Finish (Online Training): https://www.americantrails.org/foundations-of-sustainable-trails-a-trail-from-start-to-finish-online-training
• American Trails – Building Sustainable Trails: Key Design Elements:
  https://www.americantrails.org/resources/building-sustainable-trails-key-design-elements
• American Trails – Planning Trails with Wildlife in Mind:
  https://www.americantrails.org/resources/planning-trails-with-wildlife-in-mind-introduction
• Colorado’s Guide to Planning Trails with Wildlife in Mind:
  https://cdn2.assets-servd.host/material-civet/production/images/documents/Planning_Trails_with_Wildlife_in_Mind_full_plan.pdf?dm=1741885420
• American Trails – Separate Trails Divide; Shared Trails Build Community:
  https://www.americantrails.org/resources/separate-trails-divide-shared-trails-build-community
• American Trails – FAQ: What is the Typical Width of a Shared-Use Trail?:
  https://www.americantrails.org/resources/what-is-the-typical-width-of-a-shared-use-trail
• Ross H. Martin – THE GEOMORPHIC NATURE OF MOUNTAIN BIKE IMPACTS ONSELECTED TRAIL SYSTEMS NEAR AUSTIN, TEXAS:
  https://digital.library.txst.edu/server/api/core/bitstreams/aa89a8a0-2e64-406b-b3c3-9ba8cdcfba8d/content
• Duluth Parks & Recreation – Mountain Bike Trails:
  https://duluthmn.gov/parks/trail-pages-list/mountain-bike-trails/ (Note: At time of access, showed that the largest intra-urban trail system in the nation shares singletrack trails.)
• ORA Trails – Trails Page: https://www.oratrails.org/trails/ (Note: At time of access, showed that the largest Wisconsin intra-urban trail system shares singletrack trails, even in steep bluff terrain.)
• Salesa, David, and Artemi Cerdà. “Soil erosion on mountain trails as a consequence of recreational activities. A comprehensive review of the scientific literature.” Journal of Environmental Management 271 (2020): 110990 (Note: Used as listing reference for some, though not all, scientific studies; multiple non-listed scientific papers available.)
• Fang, Wei, and Sai-Leung Ng. “Trail degradation caused by mountain biking and hiking: A multi-dimensional analysis.” Journal of Environmental Management 351 (2024): 119801
• Marion, Jeffrey L. “Trail sustainability: A state-of-knowledge review of trail impacts, influential factors, sustainability ratings, and planning and management guidance.” Journal of Environmental Management 340 (2023): 117868.
• Iversen, Evald Bundgaard, Mathilde Skov Kristensen, and Jan Arvidsen. “How can public authorities support co-production of mountain bike trails?.” World Leisure Journal 66, no. 2 (2024): 188-206
• Barros, Agustina, and Catherine Marina Pickering. “How networks of informal trails cause landscape level damage to vegetation.” Environmental Management 60, no. 1 (2017): 57-68

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A “shared-use” trail, also known as a “multi-use” trail, is a trail that is designed, intended, or used in practice by multiple user types, such as hikers, mountain bikers, horseback riders, hunters, skiers, or other users.

How common are shared-use trails?

Nearly all urban trails that allow mountain biking are shared with hikers—both in Wisconsin and nationwide. This shared use is the norm, as modern federal and state guidelines are based on the principle of accommodating multiple passive recreational users. Depending on the trail, it may also be accessible to other users like certain adaptive bikes or wheelchairs.

Can mountain bikers and hikers successfully use the same trail?

Yes! Even more narrow or “singletrack” trails can be used simultaneously by mountain bikers and hikers. These locations often deploy one or more techniques to ensure interactions between user groups are as positive as possible.

What techniques help bikers and hikers share the same trail?

There are many methods, approached using different aspects of the trail such as:

• The direction users go
• Trail width
• Speed control via trail design
• Signage
• Managing sightlines
• Trail etiquette
• Strategic interfaces with access points (parking lots, trailheads, etc.)

Together, these “User Management Techniques” create expectations for all types of users to keep on-trail interactions predictable and stress-free.

Will the proposed Evergreen Park trails be wide enough to safely share?

The majority of trail proposed is intended for, and would be designed to support, shared use for passive recreation users such as hiking and mountain biking. The trails would be natural surfaces and their widths would range from “singletrack” (<42″) to “track-and-a-half” (42″–60″). These are typical standard trail widths found in mountain bike projects across the nation. Trails may be strategically wider at key areas where user interaction is expected, or where a natural hazard is present.

Learn more on our Evergreen Trail Improvement project page.

References & Further Information:

• United States Forest Service – Trail Maintenance and Construction Notebook:
  https://www.fs.usda.gov/sites/default/files/fs_media/fs_document/trail-maintenancenotebook.pdf
• MN DNR, Parks and Trails Division, Trail Planning, Design, and Development Guidelines:
  https://www.dnr.state.mn.us/publications/trails_waterways/tgmanual/index.html
• American Trails – FAQ: What is the Typical Width of a Shared-Use Trail?:
  https://www.americantrails.org/resources/what-is-the-typical-width-of-a-shared-use-trail
• Jeff Marion and Jeremy Wimpey – Assessing The Influence of Sustainable Trail Design and Maintenance On Soil Loss (2017): https://pubs.usgs.gov/publication/70185163
• American Trails – Separate Trails Divide; Shared Trails Build Community:
  https://www.americantrails.org/resources/separate-trails-divide-shared-trails-build-community
• Duluth Parks & Recreation – Mountain Bike Trails: https://duluthmn.gov/parks/trailpages-list/mountain-bike-trails/
  (Note: At time of access, showed that the largest intra-urban trail system in the nation shares singletrack trails.)
• ORA Trails – Trails Page: https://www.oratrails.org/trails/ (Note: At time of access, showed that the largest Wisconsin intra-urban trail system shares singletrack trails, even in steep bluff terrain.)
• Dementyev, Fletcher, et al. (2023) Middle school cycling program is associated with improved mental health and wellbeing in adolescents during COVID-19:
  https://www.frontiersin.org/journals/sports-and-activeliving/articles/10.3389/fspor.2023.1255514/full
• Grapentin, Stephen, et al. (2018). How Soil, Flora and Fauna React To Mountain Bikers– An Overview of the Current State of Research. https://mountainbiketourismusforum.de/unterlagen/Environmental%20impact%20of%20mountain%20biking.pdf
• IMBA Trail Solutions – IMBA’s Guide to Building: https://www.imba.com/resource/trailsolutions
• Minnesota Department of Natural Rescources – Trail Planning, Design, andDevelopment Guidelines:
  https://www.dnr.state.mn.us/publications/trails_waterways/index.html
• Colorado’s Guide to Planning Trails with Wildlife in Mind: https://cdn2.assetsservd.host/materialcivet/production/images/documents/Planning_Trails_with_Wildlife_in_Mind_full_plan.pdf?dm=1741885420

Evergreen Park improvements would be funded primarily with private donations, plus a small portion from private and public grants that are already available. No new public funding is being sought. Ongoing trail maintenance will continue to be done by Sheboygan County Cycling volunteers without cost to the city. SCC members logged over 700 volunteer hours of mountain bike trail maintenance in Sheboygan County in 2024.

Evergreen Park has an extensive network of trails that have long been used for hiking, skiiing and mountain biking. The proposed plan would not increase the number of trails or change the existing ski trails. The plan is focused on improving environmental sustainability and safety for all users by improving drainage, reducing erosion, reducing duplicate trails, and reducing user conflict with improved sightlines and user awareness. Overall the park would see the mileage of trails reduce slightly to create a better experience for all trail users.

Evergreen Park was purchased by the City of Sheboygan in 1918 to be a place of recreation for the area's citizens. Trails have always been a major part of the park, and mountain biking has been growing in popularity there since the late 1970's. Starting in the 1990's, Evergreen Park has hosted various cycling races, including mountain bike races, triathlons, and cyclocross races, plus road races on the paved road through the park. Evergreen Park is also a popular venue for running events and is a holiday destination for Making Spirits Bright. We aim to improve the park for all users.

Evergreen Park has had trails crossing the forest for decades. This proposal is to improve the existing trails in the park and incorporate new amenities for walkers, families, and bike riders to enjoy. Many of the trails need to be repaired or rerouted to make them safer, more enjoyable, and environmentally sustainable.

This project aims to optimize and improve the environmental sustainability of Evergreen Park trails so they can be enjoyed by more people, with minimal impact on wildlife habitat.

Existing amenities such as reservable areas/shelters and the Shaw Family playground will not be impacted, and trails will remain away from these areas. Sheboygan's Department of Public Works (DPW) has been involved since the start of the concept plan to ensure that these areas are not negatively impacted.

Cycling creates no more trail noise than hiking, it's considered a "silent sport." The existing trails near the park boundaries have been used by cyclists for years. Setbacks could be considered as part of trail improvements but would likely not be necessary, especially for more heavily wooded areas which create an effective screen for nearby homes.

Evergreen Park is open to the public year round from 4:00 am to 10:00 pm. Motorized bikes are prohibited but there is currently no restriction on ebikes (electric bikes) in Evergreen Park. SCC is recommending limiting bicycle access to analog bikes & class 1 pedal assist ebikes for safety, and there will be a designated hiking-preferred trail that connects to existing trails.

Many of the existing trails that have been in place for decades were not built with erosion, drainage, or environmental impact taken into account. The proposed plan would help address this by closing and rerouting some of these trails to minimize safety and environmental impact issues such as standing water on trails, and to reduce trail closures.

One of the major goals of this project is to reduce conflicts between park users so everyone can enjoy the trails. Trail improvements would widen some trails, and improve sightlines, giving trail users more time to see each other, especially at crossings. Improved signage would show trail maps, communicate what types of users are on the same trail, and educate users on trail safety and etiquette, including staying off the trails during the spring thaw and other muddy/wet times when trails are easily damaged by hikers and cyclists.

Sheboygan County Cycling exists to support cycling and outdoor recreation in our community, and trail maintenance is a huge part of that. Our members and sponsors currently provide volunteer labor and materials to maintain Sheboygan County trails, including Evergreen Park, and are committed to doing so for the foreseeable future. SCC has partnered with the City of Sheboygan and other local communities on trail repairs and minor improvements over the last few years, including the massive cleanup of fallen trees and trail repairs in Evergreen Park following the major windstorm in the summer of 2022. SCC is a 100% volunteer driven nonprofit made up of Sheboygan County residents who love our community and its wonderful parks and trails. We welcome new members!

No, the proposed trails should not require the removal of healthy trees. Any trail built to replace old trails will flow through the trees and will be approved by the City of Sheboygan before trail building begins.

No. We are working closely with Making Spirits Bright to make sure that the electrical infrastructure for the annual holiday light show is not affected by trail construction.

Shared-use trails in Evergreen Park (designated by the yellow line on the trail proposal map) are used by our local NICA (National Interscholastic Cycling Association) team middle and high school students for practice. No changes are proposed to these trails.