Document that supports and guides the development of natural corridors, unpaved trails, recreational waterways for non-motorized boats (blueways), and paved trails.
HILLSBOROUGH COUNTY
June 2024
Community Infrastructure & Planning Department
HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Accommodation Statement
In accordance with the requirements of title II of the Americans with Disabilities Act of 1990 ("ADA"), Hillsborough County will not discriminate against qualified individuals with disabilities on the basis of disability in its services, programs, or activities. Persons with disabilities who need an accommodation for this document should email the Hillsborough County ADA Officer or call (813) 276 - 8401; TTY: 7 - 1 - 1.
HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN Approved by the Board of County Commissioners, June 5, 2024
BOARD OF COUNTY COMMISSIONERS
Ken Hagan, Chair
Michael Owen, Vice Chair
Donna Cameron Cepeda, Chaplain
Harry Cohen
Gwen Myers
Pat Kemp
Joshua Wostal
Many thanks to everyone who contributed to the Greenways and Trails Master Plan Update, including residents, government agencies and County departmental staff.
Special recognition goes to the Hillsborough Greenways Committee for their invaluable involvement throughout the entire plan update process.
PARTNERS
Hillsborough Greenways Committee
Hillsborough County Capital Programs
Hillsborough County Conservation and Environmental Lands Management (CELM)
- Jan K. Platt Environmental Lands Acquisition and Protection Program (ELAPP)
Hillsborough County Engineering and Operations Hillsborough County Parks and Recreation
Hillsborough County Office of the County Attorney
Plan Hillsborough
- Hillsborough County City - County Planning Commission
- Hillsborough Transportation Planning Commission (TPO)
Florida Department of Transportation District 7
Florida Department of Environmental Protection, Division of Recreation and Parks, Office of Greenways and Trails
Southwest Florida Water Management District (SWFWMD) City of Plant City
City of Tampa
City of Temple Terrace
PROJECT TEAM
Hillsborough County Community and Infrastructure Planning Department
Pritchett Steinbeck Group
Patel Greene and Associates
Cover: Brooker Creek Preserve
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Upper Tampa Bay Trail
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GREENWAYS AND TRAILS MASTER PLAN
Table of Contents
78
2
Executive Summary
Appendices
A. Demographics and Growth
79
Public Engagement
3
B. Existing Greenways Net- work Inventory
Vision Plan
6
85
Prioritization Results
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89
C. Greenway and Mobility Connections
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Vision Plan
D. Maintenance and Opera- tions
96
Introduction
12 14 18 26 27 35
Background
E. Policy Evaluation
97 102 130
Existing Greenway Network
F. Public Engagement
Public Engagement
G. Plans Review
Greenways Vision
134
H. Vision Greenways Scored
Objectives
39
Action Plan
Prioritization Process
40 44 49 55 72 76
Planning Cost Estimates
Funding Strategies
Design Guidance
Recommended Next Steps
Conclusion
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Wilderness Trails in Flatwoods Conservation Park
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Hillsborough County Greenways and Trails Master Plan Executive Summary
JUNE 2024
The County's Greenways Master Plan, originally devel- oped in 1995, envisioned a comprehensive network of trails serving various groups through different facility types. Over the years, the County has diligently worked towards its implementation. In 2022, a review and update of the plan commenced involving commu- nity engagement to assess if the original vision and goals still align with community needs. “ Greenways ” is an inclusive term used to refer to paved trails, unpaved trails, blueways (or water trails), and/or natural corridors. The greenway network may be used by people on foot, on bicycle, on horseback, or paddling. The following document contains three sections: the Vision Plan, the Action Plan, and an Appendix. The Vi- sion Plan provides the background of the existing greenways network in Hillsborough County, a sum- mary of the community engagement that informed
the Plan, and the Vision Map and Objectives that will guide the future development of greenways in Hillsborough County. The Action Plan describes the prioritization process for ranking the Vision greenway projects, and in- cludes planning - level cost estimates for select pro- jects, funding strategies, and design guidance. The Appendix contains the detailed metrics that in- formed the plan, such as projected future popula- tion growth, the availability of greenways to under- served populations, and user trends. The Appendix also offers a full inventory of existing greenways, a review of previous plans that relate to this Master Plan, a complete public engagement report, de- tailed prioritization results, information on the maintenance and operation of greenways, and an evaluation of the progress since the 1995 Green- ways Master Plan.
Figure 1: Master plan update process
Assess Existing Conditions
Develop Vision Plan
Prioritize Needs
Develop Action Plan
Public Engagement
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EXECUTIVE SUMMARY
In May 2022, Hillsborough County began a public engagement process to ensure that the updated plan resonated with the needs and desires of the community. To achieve this, the county emphasized early and continuous engagement with a diverse range of community stakeholders. The public engagement process was multifaceted. During the summer of 2022, the County organized community listening sessions. These sessions were designed to gather feedback on potential new greenways and suggestions for improvements. In fall 2022, community workshops were held to present drafts of the greenways vision map and the criteria for prioritizing greenway projects. Attendees participated in a visual preference survey to gauge public opinion on various greenway features. Online engagement was another crucial aspect of the public engagement process. The county main- tained an online hub that featured various projects, including the Greenways and Trails Master Plan up- date. This hub, with approximately 40,000 subscrib- ers, was used to launch two surveys that largely rep- licated the content presented at these public meet- ings. An interactive mapping tool allowed survey takers to show the location of their ideas for new greenways and greenway improvements.
A final online engagement opportunity was available in fall 2023 with the draft plan and sought comments on the draft. The Hillsborough Greenways Committee collaborated with the County team and provided feedback and guidance throughout the process, ensuring that the plan aligns with the community ’ s needs and desires. The Committee held eight public meetings over the course of over a year to discuss the plan update. The County collaborated with a variety of community stakeholders, including advocacy organizations like Bike Walk Tampa Bay, Florida Wildlife Corridor, and the Sierra Club of Tampa Bay. Municipal governments, youth organizations, utility companies, and businesses also played a role in shaping the master plan. The 2024 update of the Hillsborough County Green- ways and Trails Master Plan is a testament to the pow- er of public engagement. By actively involving the community at every step, the county has ensured that the master plan reflects the collective vision of its resi- dents, paving the way for a green and sustainable fu- ture.
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Hundreds of ideas were collected through the online surveys, Community Listening Sessions, Com- munity Vision Workshops, and follow - up corre- spondence over the course of the one - year Green- ways Master Plan update process. At the Summer 2022 Listening Sessions and corre- sponding online survey, participants gave their feedback on what makes an ideal greenway. Being safe from traffic, close to nature, and shaded were the top preferences. Participants also placed lines and comments on a map to indicate where they would like to see future greenways. These markings became part of the Vision Map. In the Fall 2022 Vision Workshops, participants re- sponded to the draft Greenways Vision Map and proposed Objectives. Participants also gave input on their priorities for future greenways, which led to the following criteria for prioritizing projects:
• Access to Opportunity (Education and Transit) • Community Access • Connections to Nature • Demand Indicators • Economic and Employment Opportunity • Network Connectivity • Proximity to Other Key Public Facilities • Safety By using these measures, based on community val- ues, to prioritize greenways, the County can focus their resources and efforts on the greenways that will benefit residents and visitors the most.
What other features makes an ideal greenway?
OPEN RESPONSES FROM COMMUNITY LISTENING SESSIONS & SURVEY #1 (SUMMER 2022)
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Where should new greenways be located?
AGGREGATED PUBLIC INPUT FROM ALL SOURCES (SUMMER 2022)
WORKING MAP
August 29, 2022
MAP
At the Community Listening Sessions and in the online survey, participants were invited to share their ideas for new greenways and ways existing greenways in Hillsborough County could be im- proved.
LEGEND
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
EXECUTIVE SUMMARY
The Vision Plan was developed through extensive stakeholder engagement during the summer and fall of 2022. Its two main components are the Vision Plan map series, which shows the envisioned greenway network, and the objectives, which describe how the Vision should be realized. The Vision Plan includes paved greenways, unpaved greenways, blueways, and natural corridors. The Hills- borough County paved greenway vision connects the existing facilities throughout the county into a com- prehensive network spanning the entire county with an additional 289 miles of trails. In addition to long - standing projects like connecting the Upper Tampa Bay Trail, the vision includes connections proposed in community plans, as well as connections with in - development trails in municipalities, like the Plant City Greenway. Unpaved trails provide recreational opportunities through parks and along waterways. The vision for Hillsborough County ’ s unpaved trail network creates 121 miles of new connections within and between conserved land throughout Hillsborough County.
The blueways in the vision network, if imple- mented, would add 37 miles of new paddling trails, connect the Alafia River and the Little Manatee River all the way to Tampa Bay, and provide new blueway connections through Up- per Tampa Bay Park. Blueway implementation includes the construction of launches and the placement of navigational signs and markers along the route. The Vision also includes Natural Corridor Op- portunity Areas. These lands are approved sites for the Jan K. Platt Environmental Lands Acqui- sition and Protection Program (ELAPP), and in- dicate locations where land may be conserved in the future. These areas form part of the vi- sion for natural corridors, which are intended to function primarily to protect natural resources and to provide passive recreation.
Facility Type
Existing Miles (as of March 2023)
Total Vision Plan Miles at Buildout
Paved Greenways
80
369
Unpaved Greenways 367
488
Blueways
45
82
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EXECUTIVE SUMMARY
The tables shown on the following two pages contain the top - ranked projects of each type: paved green- ways, unpaved greenways, and blueways. The pro- jects are shown in alphabetical order. The greenway lengths are approximate and may change as projects proceed.
A prioritized list of greenway projects in an adopt - ed plan gives Hillsborough County a roadmap for project funding and implementation. The full list of projects with their scores and rankings in in Appen- dix H.
Rocky Creek Trails Nature Preserve
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Table 1: Top - tier paved greenway projects, in alphabetical order
Name
From
To
Length (mi)
Brushy Creek Greenway
Dale Mabry Hwy
Rocky Creek
6.5
Cross County Greenway (Brandon/East Rural) Cross County Greenway (Brandon/East Rural)
Tampa Bypass Canal Trail
Lakewood Dr
3.5
Tampa Bypass Canal SR 574
0.2
Hamner Tower Greenway
Hamner Tower
Sweetwater Creek
2.0
Hillsborough Ave/Tampa Bay Greenway
Pinellas County
Memorial Bikeway
4.8
Kirby Canal
Veterans Expwy
N St Peter Ave
3.9
Memorial Bikeway
Upper Tampa Bay Park Upper Tampa Bay Trail
George Rd
6.9
Memorial Bikeway
Memorial Hwy
2.3
River to Canal Greenway
56 th St
Tampa Bypass Canal Trail
2.5
Shell Point Road
Cedar Dr
15th St SE
3.2
South Coast Greenway / Mariella Johns Smith Trail Phase IVA Sun City Center South Coast Greenway / Mariella Johns Smith Trail Phase IVC 19th Ave South Hillsborough Pipeline Trail Segment A (excl. Lithia Pinecrest Rd) Sweetwater Creek - Carrollwood Greenway
CR 674
Willow Rd
3.2
US 41
30th St
2.2
Brandon Pkwy
Hometown Ln
6.4
Bay Lake
Gunn Hwy
2.4
US 301 - Canal to Alafia
Tampa Bypass Canal Trail
Boyette Rd
8.8
Wimauma Connector
US 301
Edina St
2.3
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Table 2: Top - tier unpaved greenway projects, in alphabetical order
Name
Length (mi)
Alafia River Hiking Trail
4.0
Bell Creek Trail
2.9
Hillsborough Preserve Connector
31.3
Table 3: Top - tier blueway projects, in alphabetical order
Name
Length (mi)
Alafia to Bay Blueway
13.6
Upper Tampa Bay - Channel A Blueway
2.6
Table 4: Top - tier under development projects, in alphabetical order
Name
Length (mi)
George Rd
2.0
South Coast Greenway/Mariella Johns Smith Trail: Phase VI Gibsonton (US 41)
2.1
Tampa Bypass Canal Segment 2
4.3
Upper Tampa Bay: Phase IVA/IVB
3.0
This updated Hillsborough County Greenways and Trails Master Plan was approved by the Board of County Commissioners at their regular meeting on June 5, 2024.
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Rocky Creek Trails Nature Preserve
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Hillsborough County Greenways and Trails Master Plan Vision Plan
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
VISION PLAN
The Greenways Master Plan was first adopted in 1995 to guide the development of a network of greenways across unincorporated Hillsborough County. The goal of the plan is to provide direction to County staff and stakeholders for the implementation of greenways. As a policy document, the plan provides direction to Hillsborough County staff and agency and industry stakeholders for the implementation of greenways. This update to the Greenways Master Plan is an op- portunity to evaluate the 1995 plan ’ s vision, objec- tives, and recommendations. Key elements of the plan update include:
· Create greenways design guidance · Determine next steps
The master planning process relies on understanding the current conditions, conducting extensive public engagement to develop a Vision Plan, prioritizing the needs, and developing an Action Plan which consists of cost estimates with potential funding sources, de- sign guidance, and recommended next steps ( Figure 1 ). The purpose of the Greenways and Trails Master Plan is to document the current greenway network and establish prioritized, implementable actions to guide investments that meet the community ’ s needs. The plan focuses on connecting existing and planned greenways in Hillsborough County to create a network of paved trails, unpaved trails, blueways (waterways for non - motorized recreational use), and natural corri- dors for recreation, transportation, and preservation.
· Document existing conditions · Develop a Vision Plan · Conduct public engagement · Establish project prioritization · Develop planning cost estimates
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Corridors identified may be used by a wide variety of users: people on foot, on bikes (including mountain bikes, road bikes, and traditional and pedal - assist bikes), on horseback, in kayaks and canoes, and on stand - up paddle boards, although not all trails ac- commodate all users. User compatibility and the dis- tinct needs of different user types are discussed in this plan. Some corridors will be primarily natural, with lit- tle or no access to people, but which promote the healthy functioning of natural systems and provide habitat and mobility for wildlife. The plan recommendations refine the vision of the county ’ s greenway network and provide guidance for future policies, projects, programs, and work plans. This plan suggests potential greenway corridors, but in many cases more detailed work will be needed to determine specific alignments. The community ’ s overarching vision for the Hills- borough County greenway network is a system of connected paved trails, unpaved trails, blueways, and natural corridors that provide opportunities for recre- ation, transportation, and conservation. This vision is at the core of the Greenways and Trails Master Plan. Many of the County ’ s greenways protect important natural and historical resources and integrate compat- ible recreational and educational activities. The Coun- ty ’ s greenways and conservation lands together are some of the community ’ s most valuable assets be- cause they move people, preserve ecological systems and wildlife habitats, and provide ecosystem services
such as stormwater management in flood - prone are- as.
The following document contains three sections: the Vision Plan, the Action Plan, and an Appendix. The Vision Plan provides the background of the existing greenways network in Hillsborough County, a sum- mary of the community engagement that informed the Plan, and the Vision Map and Objectives that will guide the future development of greenways in Hills- borough County. The Action Plan describes the prioritization process for ranking the Vision greenway projects, and includes planning - level cost estimates for select projects, fund- ing strategies, and design guidance. The Appendix contains the detailed metrics that in- formed the plan, such as projected future population growth, the availability of greenways to underserved populations, and user trends. The Appendix also offers a full inventory of existing greenways, a review of pre- vious plans that relate to this Master Plan, a complete public engagement report, detailed prioritization re- sults, information on the maintenance and operation of greenways, and an evaluation of the progress since the 1995 Greenways Master Plan.
Figure 1: Master plan update process
Assess Existing Conditions
Develop Vision Plan
Prioritize Needs
Develop Action Plan
Public Engagement
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
VISION PLAN
Balm Boyette Scrub Nature Preserve
The Hillsborough County Greenways and Trails Net- work is a system of interconnected paved trails, un- paved trails, blueways, and natural corridors that pro- vide opportunities for recreation and transportation. This section contains definitions of elements of the greenway network, a description of different types of greenway users, the history of greenway planning and improvement efforts in Hillsborough County, and a brief summary of the benefits of access to greenways. Definitions Throughout this Greenways and Trails Master Plan, the following key terms are used to describe elements of the Greenways and Trails Network: Paved trails are designed to be part of a transporta- tion system, providing routes removed from traffic for a variety of users. The primary users of paved trails are bicyclists and pedestrians, including pedestrians using mobility devices such as manual or motorized wheel- chairs. While they may also provide a recreational ex- perience, paved trails differ from other types of trails with their ability to provide a mobility function and can serve as a supplement to on - road bike lanes, shared roadways, bike boulevards, and paved shoul- ders. Paved trails can be located within a roadway right - of - way or within an independent right - of - way,
such as a utility corridor, old rail grade, or adjacent to a waterway. Unpaved trails are paths with a natural surface (such as dirt or crushed shell) designed primarily for recreational purposes. They do not necessarily con- nect to destinations. Unpaved trails are largely de- signed for users to experience the outdoors and may be enjoyed by a variety of users such as people on foot, on bicycles, including mountain bicycles, and on horseback. Blueways , or water trails, are any traditionally navi- gable waterways defined as having the capacity, in terms of length, width, and depth, to enable a kay- ak, canoe, or other type of non - motorized craft to make successful progress through the waterway, regardless of the presence of shallow rapids, ex- posed cobble, or other objects that may impede passage. In practice, blueways span a wide array of levels of challenge, from standing water to challenging whitewater. Blueways may be designated on rivers or streams, or along specific routes through larger open bodies such as lakes or bays.
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Natural corridors are comprised of natural features such as rivers, creeks, coastal and freshwater wetlands, wooded uplands, wildlife corridors, and other natural areas. These corridors often follow rivers and streams, but can also include intact woodland or scrub areas and other open land. They are primarily for land con- servation, protection of waterways, and wildlife mobil- ity, and may have limited access for recreation. “ Greenways ” is an inclusive term used to refer to all of the above types of corridors. While “ greenway ” and “ trail ” are used interchangeably in common parlance, this plan will seek to follow the definitions above, ex- cept when referring to the entire greenway and blue- way system. For ease of reading, these will be referred to as the “ greenway network ” or “ greenways ” as an inclusive term.
Who Uses Hillsborough County Greenways?
The County ’ s greenway network attracts many types of users, all of which have unique needs and expectations—they may want to explore nature, exercise vigorously, or just take a breath of fresh air. Broadly speaking, the ways people use greenways fit into the following categories:
• Walk, hike, run, wheel, skate • Bicycle • Equestrian • Paddling
These different users sometimes have different needs for facilities and amenities. And how they use the greenways can sometimes create con- flict – people on mountain bike and people on horseback may both be able to use unpaved greenways, and greenway planning and use by individuals needs to be done carefully and with safety in mind to reduce those conflicts.
Kayaking on the Hillsborough River
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
History
Advent of Greenways Planning in Hillsborough County In the early 1990s, the Board of County Commission- ers (BOCC) saw the potential for meeting important community mandates for recreation and conservation through the creation of a network of interconnected greenways. The Board formed the Greenways Adviso- ry Committee, a citizen group with broad representa- tion, to assist in developing the county ’ s first green- ways plan. Through the assistance of the National Park Service Rivers, Trails, and Conservation Assistance Program, which provided planning expertise and guidance, the planning process emphasized public participation and helped to inform citizens about the importance of greenways. The result of this process was the 1995 Hillsborough Greenways Master Plan. Building a Greenways Network In the early 1990s, the Board of County Commission- ers envisioned a network of interconnected green- ways that would provide new opportunities for out- door recreation as well as routes for non - motorized travel. Since then, Hillsborough County and its partners have continued working towards a complete greenways network.
Hillsborough Greenways Committee The Hillsborough Greenways Committee was appoint- ed by the BOCC to help develop the plan, and the Na- tional Park Service provided planning expertise and guidance. The Committee reflected the county's di- verse citizenry and interests. The 1995 Greenways Master Plan was the realization of that vision. County departments and agencies serve on the HGC as non - voting members. The Plan ’ s next steps (in the Action Plan section of this document) include those related to the Committee. Intergovernmental Coordination The City of Tampa received National Park Service sup- port to develop a Greenways and Trails Master Plan. The Tampa Greenways and Trails Master Plan was ap- proved by Tampa City Council on February 1, 2001. In August 2012, the City of Tampa and Hillsborough County committees began meeting jointly. This con- tinued through 2017. The Hillsborough County Metropolitan Planning Or- ganization (MPO) developed a Greenways and Trails Plan Update in 2016, which provided an updated study complementary to the 1995 plan and focused on paved trails. The MPO revised their Trail Facilities map in 2019. 2022 - 2024 Update: Hillsborough Greenways and Trails Master Plan The County began its update to the Hillsborough County Greenways and Trails Master Plan in 2022. The updated plan was approved by the BOCC on June 5, 2024.
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Why Greenways? The greenway network provides many benefits to people who live, work, and play in Hillsborough Coun- ty. Trails provide places for physical activity, contribute to a multimodal transportation network, connect peo- ple with nature, and spur economic development. Natural corridors preserve natural environments and provide dedicated space for wildlife and vegetation. Open space preservation. Conserving natural re- sources is an important piece of the legacy we will leave for Hillsborough County ’ s future generations. Natural corridors preserve open spaces in the face of rapid development, protecting habitat for the many animals, insects, and plants that are important and unique to our region. Natural corridors also improve water and air quality, as they mitigate stormwater run- off, encourage water table recharge, and provide space for trees that reduce carbon dioxide in the at- mosphere. Health. The United States Centers for Disease Control and Prevention has found that moderate physical ac- tivity can substantially improve one ’ s physical health, mental health, and quality of life. 1 Greenways provide inexpensive opportunities for active lifestyles by dedi- cating space for people to walk, wheel, jog, and bike. Greenways and trails also offer access to nature where people can relax and recharge.
Recreation. The greenway network provides a dedi- cated space for people to exercise outdoors and enjoy the natural environment. Many greenways are also connected to parks, water - based activities, and other areas for play. Active Transportation. Greenways that are integrated with the sidewalk, bikeway, and public transit networks can serve as active transportation corridors, connect- ing people to the places they need and want to go. As greenways should be physically separated from vehic- ular traffic, they can also often provide a more com- fortable active transportation experience for people of all ages and abilities. Economic Development. As a desired community asset, greenways often increase adjacent property val- ues, which benefits property owners, developers, and local government agencies. They also attract business- es and tourists, spurring economic investment and activity. Greenway access near businesses has been shown to increase sales revenue. 2
Old Fort King Trail
Sources: 1. The Centers for Disease Control and Prevention, Physical Activity and Health: A Report of the Surgeon General, (1999). https://www.cdc.gov/nccdphp/ sgr/pdf/execsumm.pdf
2. Greenville Health System, Swamp Rabbit Trail: Year 2 Findings, (2014). https://www.rutherfordcountync. gov/document_center/Outdoor% 20Recreation%20 - %20 Economic%20Impact%20Analysis/SRT%20Impact%20 Study%20Year%202%20Final.pdf
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
VISION PLAN
As of 2022, the current greenways network in Hills- borough County, as shown in Figure 2 , is made up of 493 miles of greenways. This includes approximately 80 miles of paved greenways, 367 miles of unpaved trails, and 45 miles of blueways. Of the unpaved trails, 237 miles are open to equestrian use. Trails are owned and maintained by a variety of agen- cies. These include Hillsborough County, Southwest Florida Water Management District (SWFWMD), Flori- da Department of Transportation (FDOT) District 7, and Florida Department of Environmental Protection (FDEP). The following maps include Conserved Lands. This map feature represents Parks & Recreational areas, acquired sites for the Jan K. Platt Environmental Lands Acquisition and Protection Program (ELAPP) and other identified preservation areas and public lands. Some areas identified as being conserved from a range of government entities and those identified as notewor- thy due to their features, which may include wetlands or other hydraulic areas, are also included.
Existing Greenways: Paved Greenways Paved greenways in Hillsborough County accommo- date people on foot and on bike. Hillsborough County paved greenways are shown in Figure 3 and listed in Appendix B. Paved trails tend to be located in more urban parts of the county, but there are also paved trails within parks (such as the popular Flatwoods Loop) and along roads in more rural and suburban areas. Pavement creates a facility that is accessible to people of all abilities and makes walking and biking easy and efficient. The statewide SUN Trail network was established as a statewide system of high priority paved shared - use path corridors in Florida, and some of the paved paths in Hillsborough County form part of that developing network.
Old Fort King Trail
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Figure 1 - 7. Hillsborough County Greenways Network Figure 2. Hillsborough County existing greenways network
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Figure 1 - 9. Existing paved trails Figure 3. Existing paved trails
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HILLSBOROUGH BLUEWAYS A Unique Greenway Experience
Existing Greenways: Unpaved Sur- face Hillsborough County has many miles of unpaved greenways, most of which are within parks, pre- serves, and other conservation land. These trails can accommodate people on foot and on bike, and some are specially designated for people on horseback. Figure 4 on page 22 shows the trails designated for equestrian use as well as the oth- er unpaved trails. Unpaved trails are well - suited to conservation areas and are most commonly used for recrea- tion. They provide a closer connection with the natural environment and have a lighter impact on sensitive areas compared to paved trails. They can be implemented in a variety of surface types, including dirt, gravel, crushed shell, and wooden boardwalk. Unpaved trails are used by people on foot, on bikes (including mountain bikes), and on horseback. Existing Greenways: Blueways Blueways provide a unique greenway experience for both residents and visitors, and can be found along various navigable waterways such as the Hillsborough River, as well as inlets in Tampa Bay. Blueways are for those using non - motorized wa- tercraft like kayaks, canoes, and stand - up paddle- boards. The Tampa Bay shoreline, along with the streams and rivers that feed into it, features some of the best blueway paddling routes in Florida. Blue- ways include facilities and amenities that help paddlers safely and conveniently find and access launch sites and navigate through the water. An inventory of the County ’ s existing blueways is provided in Appendix B. Blueways and Launch Ramps are shown in Figure 5 on page 23.
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Figure 1 - 10. Existing equestrian and unpaved trails Figure 4. Existing unpaved trails
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Figure 5. Existing blueways and launch ramps
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Regional Connections Florida has a growing greenway and trail network comprised of regional, state, and even national facili- ties. Figure 6 illustrates the most recent priority land and paddling trails identified by the Florida Depart- ment of Environmental Protection ’ s Office of Green- ways and Trails; the department is currently updating the priorities and opportunities. The Gulf Coast Trail is a land trail priority within Hills- borough County, the Coast - to - Coast paved trail skirts the northwest corner of the county, and the existing Upper Tampa Bay Trail is shown as part of the priority network (inset). The inset map also shows planned sections of the South Coast Greenway and Mariella Johns Smith Trail, including one section that has been built since the State map was published, the Old Fort King Trail extending to Pasco County along US 301, and the Tampa Bypass Canal Trail.
Natural Corridors The 1995 Greenways Master Plan identified Natural Corridors, all riverine corridors, that are intended to function primarily to protect natural resources and to provide passive recreation. The identified Natural Corridors are: Little Manatee River, Alafia River, Upper Hillsborough River, and Cypress Creek. The plan also identified other creek corri- dors, such as Rocky, Brushy, Pemberton, and Bull- frog, that should not allow recreational activities. Figure 7 shows the rivers and streams identified as natural corridors in the 1995 plan, along with land that has been conserved by Hillsborough County ’ s Environmental Lands Acquisition and Protection Program (ELAPP) and other conserva- tion agencies.
Figure 6. Florida's land and paddling trail priorities, 2023
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Figure 7. Existing natural corridors (conserved land)
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
VISION PLAN
Walk Tampa Bay, Florida Wildlife Corridor, and the Sierra Club of Tampa Bay.
In May 2022, Hillsborough County embarked on a mission to update its 1995 Greenways Master Plan. The primary objective was to ensure that the up- dated plan resonated with the needs and desires of the community, guiding both current and future decisions related to greenway projects and en- hancements. To achieve this, the county empha- sized early and continuous engagement with a di- verse range of community stakeholders. This in- cluded residents, business operators, special inter- est groups, government agencies, and members of the Hillsborough Greenways Committee (HGC). The overarching goal was to develop a vision for a greenway system that would appeal to both resi- dents and visitors. The public engagement process was multifaceted. The Hillsborough Greenways Committee, a key player in this initiative, held eight public meetings over the course of more than a year to discuss the plan update. The broader community was also ac- tively involved. During the summer of 2022, the county organized community listening sessions and an online survey. These activities aimed to gather insights on how residents currently use the greenways and their aspirations for the future. By fall 2022, community workshops were set up to present drafts of the greenways vision map and the criteria for prioritizing greenway projects. Ad- ditionally, a visual preference survey was launched to gauge public opinion on various greenway fea- tures. The county's outreach efforts were extensive. They collaborated with a myriad of community stake- holders, including advocacy organizations like Bike
Municipal governments, youth organizations, utili- ty companies, and other businesses also played a role in shaping the master plan. To ensure maxi- mum participation, the county organized several community listening sessions in different locations. These sessions, held in July and August 2022, were designed to gather feedback on potential new greenways and suggestions for improvements. Fol- lowing these sessions, the county held community vision workshops in November 2022. These work- shops provided a platform for residents to review and comment on the draft Greenways Vision Map and other performance measures. Online engagement was another crucial aspect of the public engagement process. The county main- tained an online hub that featured various pro- jects, including the Greenways and Trails Master Plan update. This hub, with approximately 40,000 subscribers, was used to launch two surveys that coincided with the summer Community Listening Sessions and the fall Community Vision Work- shops.
A final outreach opportunity to provide comments on the draft plan was held in fall 2023.
The 2024 update of the Hillsborough County Greenways and Trails Master Plan is a testament to the power of public engagement. By actively in- volving the community at every step, the county has ensured that the master plan reflects the col- lective vision of its residents, paving the way for a green and sustainable future.
HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
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VISION PLAN
The Vision Plan is intended to guide the develop- ment of greenways across unincorporated Hills- borough County. The Vision Maps, shown on the following pages , represent the community ’ s high - level vision for a complete Hillsborough County greenway network. The Vision Maps show the three types of greenways separately: paved greenways ( Figure 9 ), unpaved greenways ( Figure 10 ), and blueways ( Figure 11 ). The indi- vidual greenways are conceptual and do not have specific alignments. The Vision Maps were devel- oped through extensive stakeholder engagement and include greenways from existing community plans and trail concepts already in development. The engagement map can be found in the Ap- pendix F. Figure 8 shows the existing mileage of each type of greenway, along with the approximate mileage (depending on alignment) in the Vision Plan.
Figure 8: Existing and Vision Mileage by Greenway Type (Paved, Unpaved, Blueways)
Facility Type
Existing Miles (as of March 2023)
Total Vision Plan Miles at Buildout
Paved Greenways
80
369
Unpaved Greenways
367
488
Blueways
45
82
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Natural Corridors The following Vision Maps include Natural Corridor Opportunity Areas, shown as green hatched lines. These lands are approved sites for the Jan K. Platt Environmental Lands Acquisition and Protection Pro- gram (ELAPP), and indicate locations where land may be conserved in the future. These areas form part of the vision for natural corridors, which are intended to function primarily to protect natural resources and to provide passive recreation where appropriate.
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Paved Greenways Vision Map Paved trails are accessible facilities that can accommodate all users on foot or on wheels. The Hillsborough County paved greenway vision connects the existing facilities throughout the county into a comprehensive network spanning the entire county with an additional 141 miles of trails. In addition to long - standing pro- jects like connecting the Upper Tampa Bay Trail, the vision includes connections proposed in community plans, as well as connections with in - development trails in municipalities, like the Plant City Greenway.
The greenways in Figure 9 are classified into families. These families are organized around a central facility and include that facility and the trails that feed into it.
Upper Tampa Bay Trail
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Figure 9: The Paved Greenways Vision Map
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Unpaved Greenways Vision Map Unpaved trails provide recreational opportunities through parks and along waterways. The vision for Hillsborough County ’ s unpaved trail network ( Figure 10 ) creates 125 miles of new connections within and between conserved land throughout Hillsborough
County. Proposed trails include ambitious projects like the Grand Alafia Hiking Loop, a 30 - mile loop that con- nects multiple parks along and south of the Alafia Riv- er, and the Preserve Connector, which would create a continuous hiking experience stretching from Fish Hawk Creek to Cockroach Bay. The network does not identify which trails are for which users (e.g. mountain bikes or equestrian access).
Rocky Creek Trails Nature Preserve
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Figure 10: The Unpaved Greenways Vision Map
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Blueways Vision Map Figure 11 shows the blueways that have been identified as part of the vision network. These blueways, if im- plemented, would add 37 miles of new paddling trails, connect the Alafia River and the Little Manatee River all the way to Tampa Bay, and provide new blueway connections through Upper Tampa Bay Park. Blueway imple- mentation may include the construction of launches and the placement of navigational signs and markers along the route.
Kayaking on the Hillsborough River
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Figure 11: The Blueways Vision Map
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VISION PLAN
These objectives are statements that articulate the shared vision of the community and provide guiding principles for planning and maintaining the Hills- borough County greenways network. They are state- ments with longevity – they were crafted during the 1995 Greenways Master Plan ’ s development and re- cently revisited by the current Hillsborough Green-
ways Committee and updated to reflect the values of the community as heard during public outreach. The Vision Plan ’ s objectives should be reviewed regularly to ensure they still reflect the community and its goals. However, these objectives towards a long - range vision should be able to stand the test of time with only small revisions on occasion.
Figure 12: Objectives of the Hillsborough County Greenways and Trails Master Plan
• Involve the public during greenways planning efforts and reflect the diversity of community needs and desires. • Encourage all stakeholders to advocate for development of the greenway system. • Communicate progress on Plan implementation on a regular basis. • Build support for greenways by collaborating with diverse users, agencies, citizen groups, community organizations, landowners, and local businesses. • Connect greenways to one another, including those in other jurisdictions and neighboring counties. • Connect greenways to community destinations such as schools, parks, neighborhoods, jobs, and access to opportunities. • Promote access to greenways through non - motorized infrastructure.
PUBLIC AWARENESS, PARTICIPATION, AND SUPPORT
CONNECTIONS AND DESTINATIONS
• Provide opportunities for recreation, active transportation, education, interpretation, and conservation of natural and historic resources throughout the greenways system.
USES AND FUNCTIONS
• Guide greenways design to minimize user conflicts, provide needed amenities, ensure safety and privacy, reflect local context, and protect resources. • Encourage and support biophilic design and greening of green- ways.
DESIGN
• Tailor management of greenways to function, use, safety (of users and wildlife), and sensitivity of the resources.
MANAGEMENT
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Figure 12 (cont.): Objectives of the Hillsborough County Greenways and Trails Master Plan
• Ensure compatible use of lands adjacent to greenways without pre- venting economically beneficial use. • Encourage private sector provision of services needed by greenway users.
PRIVATE ENTERPRISE
• Employ a prioritizing process for phasing development of the green- way system. • Coordinate within the County and with partners to implement the plan. • Identify local champions from a variety of backgrounds and partner- ships to support Plan implementation. • Emphasize a voluntary rather than regulatory approach. • Identify and use effective land and waterway protection techniques.
IMPLEMENTATION
• Identify and pursue funding for the acquisition, development, and maintenance of greenways. • Advocate for adequate funding of the greenways program.
FUNDING
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Conclusion The many concepts shown in the Vision Plan (and in the associated Vision Maps) reflect the community ’ s needs and desires for a complete greenway network in the future. The concepts do not reflect alignments or designed projects, and there may be obstacles that prevent specific concepts from becoming reality. To help the County and its implementing partners know where to focus limited resources on a long list of needs, the Vision concepts were taken through a prioritization process and compared against perfor- mance measures that reflect the community ’ s values.
The next section of this document, the Action Plan, contains a description of the prioritization process methodology and results. In addition, the Action Plan presents planning - level cost estimates of greenway improvements, funding strategies, and design guid- ance. The Action Plan concludes with a list of action - able next steps for the implementation of the Vision Plan.
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
Wilderness Trails in Flatwoods Conservation Park
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Hillsborough County Greenways and Trails Master Plan Action Plan
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HILLSBOROUGH COUNTY GREENWAYS AND TRAILS MASTER PLAN
ACTION PLAN
Performance Measures
The Greenways and Trails Master Plan ’ s extensive Vision Map consists of proposed greenways identi- fied through previous planning efforts, the existing conditions evaluation, and public engagement. To set the stage for implementing the plan ’ s rec- ommendations, each potential project—which ex- ists as a conceptual corridor, not a specific align- ment or segmentation—has been evaluated and prioritized based on how well it is expected to meet key needs of the County. The results will help the County understand which needs should be studied further and possibly de- velop specific alignments. The basis for this prioritization procedure is the following series of performance measures that serve as prioritization criteria: Access to Opportunity: A more complete green- ways network can provide the County ’ s residents, particularly those who rely on non - auto modes of transportation, with a viable way to travel to desti- nations that lead to increased opportunities for success. Two access to opportunity measures were
identified: one related to school access (proximity of proposed greenways to schools and colleges) and one related to transit access (proximity to HART fixed route bus service, which, while not providing service to all areas, in turn provides transit access throughout much of the County). Community Access: The County ’ s greenways net- work should be expanded in such a way that it provides enhanced transportation and recreational opportunities to historically underserved commu- nities. The Plan Hillsborough Nondiscrimination and Equity Plan (2021) identifies focus areas for a more equitable distribution of resources that could be better served based on Census Tract - level race and ethnicity, age, sex, language, income, and dis- ability demographics. Connections to Nature: As the County ’ s popula- tion swells, citizens have stressed the importance of maintaining opportunities to connect with their natural environment. Greenways of all kinds offer a way for this to happen. This measure considers el- ements such as shade, separation from motor ve- hicle traffic, and biophilic design principles.
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