R A I L - T O - T R A I L S C O N S E R V A N C Y • 1

And Rail-Trails

A Legacy for the Future

RailbankingRailbanking

Rails-to-Trails Conservancy1100 Seventeenth Street, NW

Washington, D.C. 20036202.331.9696 • (F) 202.331.9680

www.railstotrails.org

July 2006

RAILS-TO-TRAILS CONSERVANCY—

creating a nationwide network of trails

from former rail lines and connecting

corridors to build healthier places for

healthier people.

On the cover: Katy Trail State Park, Missouri

“One of the fascinating things about the [Katy Trail] project was that here youhad the Missouri River, which is one of the most famous rivers in the UnitedStates; yet, people would drive across it on a bridge and that’s the closest theygot. The Katy Trail opened up the river for people to become acquainted with.”

— Columbia, Missouri, Mayor Darwin Hindman

R A I L S - T O - T R A I L S C O N S E R V A N C Y • 1

T he construction and development of ournation’s system of rail lines was nothingshort of a marvel. At its 1916 peak, more

than 270,000 miles of track crisscrossed theUnited States, carrying freight and passengersand fueling the economy and growth of a nation.

Just as the miles of rail line peaked, however, othermethods of increasingly popular transport eclipsedthe rail industry’s dominance. Some railroad linesbecame underused and unprofitable. In the1970s, several major railroads went bankrupt.

The U.S. Congress, which began to regulate therailroads through the Interstate CommerceCommission in 1887, passed a law in 1980 tohelp keep the rail lines solvent by allowing railcompanies to abandon unprofitable lines withrelative ease. But with abandonment came thedisappearance of rights-of-ways as legal entitiesand the opportunity for lines to be broken intohundreds of parcels of land that are expensiveand extremely difficult to reassemble. As carriersbegan abandoning rail lines at an alarming rate(4,000 to 8,000 miles per year), Congress realizeda valuable resource was being lost forever.

In an effort to conserve these corridors while stillallowing rail carriers to discontinue use on unprofit-able lines, the Congress included a unique andprescient provision within the National TrailsSystem Act Amendments of 1983. The Rails toTrails Act allowed the federal government toregulate the disposition of soon-to-be abandonedrailroad lines to preserve the right-of-way in casethe need for future rail use arose, and make wayfor the development of alternative transportationuses for railway corridors, including trails. Thisprocess is called “railbanking.”

Because of the 1983 Act, more than 2,450 milesof rail lines have been converted into more than100 multiple-use trails. Preserving these valuablerights-of-way has created attractive new recreationand transportation resources in communitiesnationwide.

The railbanking process, however, is not withoutits detractors. The law surrounding ownership of

rail corridors is somewhat unclear and opponentshave challenged Congress’s authority to facilitaterails-to-trails conversions through railbanking.But in 1990, the U.S. Supreme Court unani-mously upheld the Trails Act as a valid exercise ofCongress’s power under the Commerce Clause ofthe U.S. Constitution.

Through railbanking, Congress has preserved atremendous resource: America’s rail corridors.Railbanked lines remain intact and can beconverted back into rail use should the need everarise, and in their interim use as trails theyencourage active and connected communitiesand create business and tourism opportunities.

EXECUTIVE SUMMARY

Great Allegheny Passage, Pennsylvania — This 202-mile trail is comprisedof some rail-trail corridors and contains several railbanked miles. It hasbeen lauded by U.S. Congressman John P. Murtha who said, “The trail isalready attracting a lot of people, and we’re just starting to market it. It’sa major asset for our region, not only because of the tourist dollars it’sattracting, but also because it’s a key piece of our economic rebuildingefforts.”

R A I L BR A I L BR A I L BR A I L BR A I L BA N K I N G N AA N K I N G N AA N K I N G N AA N K I N G N AA N K I N G N AT I O N W I D ET I O N W I D ET I O N W I D ET I O N W I D ET I O N W I D ETotal Number of Railbanked Corridors 256Total Number of Miles 4,628Number Open as Trails 102Miles Open as Trails 2,451Number of Trails Under Development 112Miles Under Development 1,683

2 • R A I L B A N K I N G

At the turn of the century, the country’slabyrinth of rail lines hauled food tomarket, moved the coal that heated cities,

and took settlers into the Western frontier. It hasbeen said that the trains that moved iron orefrom the Mesabi Range to the steel mills of theGreat Lakes helped win World War II.

These railroad corridors were assembled at greatpublic cost and through the painstaking labor ofgenerations of workers. The federal governmentgranted more than 130 million acres of federalland to railroads, and it is estimated that buildinga single mile of rail required a full day’s laborfrom ten men.

In 1887, the United States Congress began toregulate railroad traffic through the InterstateCommerce Commission (ICC) and has continuedto be a steward of this vast national resource byprotecting those hard-built rights-of-way and

striving to keep what remains of the corridorsystem intact.

In 1920, when railroads first began to struggleand wane, the Congress began to regulate theabandonment of rail lines to ensure that railcorridors remained dedicated to transportation.Decades later Congress foresaw the appeal ofpreserving these corridors by facilitating theirconveyance for other public uses. Through theRailroad Revitalization and Regulatory ReformAct of 1976 (4-R Act), Congress imposed condi-tions that prevented the disposition of railroadrights-of-way for 180 days to allow for possibletransfers for public use, including for trails.

The rail systems continued to struggle, however,and in 1980 Congress passed the Staggers RailAct, which required the ICC to exempt most railabandonments from regulation. As a result, therate of rail abandonments by major carriersaccelerated to between 4,000 to 8,000 miles ayear. By 1990, the 270,000-mile system hadcontracted to 141,000 miles.

Looking for a RemedyAs thousands of lines each year were abandoned,the railroads could remove tracks and ties andeither sell off the land or allow it to be claimedby adjacent landowners. The nation was losingits system of rail corridors and preservationbecame a critical issue of national policy.

The railroads still needed a way to be relieved ofthe burden of maintaining unprofitable andunused lines, and the idea of transferring finan-cial and legal responsibility of these lines to thirdparties, including trails, was again considered.But interested communities and potential trailmanagers who wanted to purchase unusedrailroad corridors for conversion into trails facedmajor obstacles under the existing system. Thebiggest challenge came from nearby landowners,who wrongly concluded that when a railroadstopped running trains across tracks and securedpermission to abandon its common carrierobligations to provide service on the line, it also

RAIL LINES TO RAIL-TRAILS

Historic Union Pacific Rail Trail, Utah — Railbanked in May1998, this 28-mile trail is today a high-altitude adventure,drawing mountain bikers, equestrians, runners and cross-country skiers from in and around Park City.

R A I L S - T O - T R A I L S C O N S E R V A N C Y • 3

L O N G E S T L O N G E S T L O N G E S T L O N G E S T L O N G E S T OPEN OPEN OPEN OPEN OPEN R A I LR A I LR A I LR A I LR A I L - T R A I L- T R A I L- T R A I L- T R A I L- T R A I L SSSSS

*Katy Trail State Park Missouri 225 miles

*Milwaukee Road Corridor (John Wayne Pioneer Trail) Washington 145 miles

Soo Line Trail Minnesota 148 miles

George S. Mickelson Trail South Dakota 114 miles

Blue Ox Trail (Voyageur Trail) Minnesota 107 miles

State Line Trail Michigan 102 miles

Paul Bunyan State Trail Minnesota 110 miles

*OC&E Woods Line State Trail Oregon 96 miles

White Pine Trail State Park Michigan 92 miles

*Rice Lake to Superior Trail Wisconsin 90 miles

* Railbanked trails

abandoned its property interests. This perceptionled to disputes and litigation over land rights,and, because state laws were ill-equipped tohandle these disputes, defending against litiga-tion became prohibitively expensive and timeconsuming for trail agencies.

The U.S. Congress, long a steward of railroadrights-of-way, hit on an innovative solution tothe problem of abandoned rail lines, disappearingrights-of-way, and the loss of transportationresources the nation worked so hard to build:railbanking. Section 8(d) of the National TrailsSystem Act, passed by Congress in 1983, allowed arailroad to free itself of an unprofitable rail lineby donating, selling or leasing the right-of-way toa qualified private or public agency for interimuse as a trail. By employing the railbankingprogram, corridors that might otherwise beabandoned have been preserved as trails, movingpeople, instead of trains, through much neededgreen spaces nationwide.

Preserving Critical CorridorsRailbanking prevents a line from being deemedabandoned when a qualified agency or groupagrees to maintain the corridor as a transporta-tion route for pedestrians and cyclists, and topreserve its integrity as a transportation routeshould another carrier decide to resume service onthat line. Fewer than 10 percent of the country’s

Minuteman Bikeway, Massachusetts — This popular 10.5-mile rail-trail wasrailbanked in July 1992 and opened in September 1996. Following thepath of Paul Revere’s historic ride through suburban Boston communities,the Minuteman is one of the country’s most heavily used trails, providingsafe passage for recreational users and bicycle commuters.

rail-trails have been railbanked. However, theprocess has been essential in preserving some ofthe country’s longest and most scenic corridors, aswell as essential links in the nation’s system ofpublic trails.

Because of railbanking, cyclists can today pedal acontinuous 145 miles along Washington’shistoric Milwaukee Railroad corridor, and manyin traffic-packed suburban Maryland can escapefor a quiet walk on the Capital Crescent Trail andeven use it as an alternative way to work. And afamily can explore 150 miles of developed trailalong the longest railbanked corridor, the 321-mileCowboy Line Trail through Nebraska’s Sand Hills.

4 • R A I L B A N K I N G

Capital Crescent Trail, Washington D.C., and Maryland — This 11-mile gem of a trail connects Silver Spring, Maryland, with theDistrict’s Georgetown neighborhood. When freight trains stopped running, most of the corridor was railbanked in 1988. Openedas a rail-trail ten years later, the Capital Crescent is now home to urban walkers, bicyclists, and inline skaters zipping along thePotomac River.

How Railbanking Works

Railbanking allows a rail carrier to transfer anunprofitable line — by sale, donation or lease— to a capable public or private entity (calleda “trail manager”) that is willing to assumefinancial responsibility for the managementof the right-of-way. When a trail is railbanked,instead of abandoned, the land remainsunder federal jurisdiction, and any state lawsthat might extinguish the trail manager’sright to use the corridor are preempted.

The full process works as follows:

➺ Either a public agency or a qualifiedorganization can request to railbank atrail by sending the request to the SurfaceTransportation Board (formerly the ICC).A statement of willingness to assumefinancial and legal responsibility mustaccompany the request. Since the rail-road company must agree to negotiate arailbanking agreement, a copy of the

request for railbanking must be served onthe railroad at the same time it is sent tothe Surface Transportation Board.

➺ If the railroad agrees to enter into nego-tiations with the trail manager, it candecide to donate, lease or sell the land tothe trail agency.

➺ Once management of the trail had beentransferred, the trail manager can removerailroad tracks and ties or the railroad cansell them. The trail agency cannot buildany permanent structures on the right-of-way.

➺ A railbanked line is subject to possiblefuture restoration of rail service. Anyrailroad can apply to the Surface Trans-portation Board to resume rail service onthe corridor.

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“[A trail] helps the economy, attracts tourists and makes people healthy. …Go to Congress, and the city counciland state legislators, and start getting them to buy into [the idea of improving the] built environment.”

— Health and Human Services Secretary Tommy Thompson encourages local governments

to transform unused railroad rights-of-way into exercise paths, May 2004

R A I L S - T O - T R A I L S C O N S E R V A N C Y • 5

T he trails movement has many passionateadvocates, communities that are dedicatedto their trails and avid users. But some

rail-trails also have staunch opponents, and the1983 implementation of the Trails Act promptlybecame the subject of litigation.

Trail opponents filed a number of challenges inan attempt to curtail the authority of the ICC(now the Surface Transportation Board) to issuerailbanking orders. The courts have uniformlyrejected efforts by trail opponents to attackrailbanking orders by challenging an interim trailmanager’s ownership or use of a railbankedcorridor. The courts have also rejected efforts bytrail opponents to add burdensome proceduralrequirements to the railbanking process.

In 1990, the U.S. Supreme Court unanimouslyupheld the Trails Act as a valid exercise of Con-gress’ power under the Commerce Clause of theU.S. Constitution, stating; “Congress apparentlybelieved that every line is a potentially valuablenational asset that merits preservation even if nofuture rail use for it is currently foreseeable.”

A separate set of challenges concerned whetherthe conversion of a rail line into a trail takesprivate property without compensation inviolation of the Fifth Amendment. The U.S.Supreme Court declined to address this issue andheld instead that such “takings” claims must bebrought in the U.S. Court of Federal Claims(previously called the U.S. Claims Court), pursu-ant to the judicial review mechanism for assert-ing claims against the federal government.

Several compensation claims have since beenfiled against the U.S. government by trail oppo-nents. The Claims Court ultimately ruled in onecase, Preseault v. United States, that the Trails Actdid not effect a taking of any property interest.The decision was initially upheld by a three-judgepanel of the U.S. Court of Appeals for the FederalCircuit. This decision, however, was subsequentlyvacated by the full Federal Circuit, and a newdecision was issued that reversed the ClaimsCourt’s holding.

RAILBANKING IN THE COURTS

In its new decision, the Federal Circuit held thatthe application of the Trails Act in the Preseaultcase effected a taking of property because, underthe Court’s interpretation of Vermont law, therailroad easement would have otherwise beenextinguished, and the adjacent property ownerswould have regained the property. The decision,however, made clear that the federal government,and not the trail manager, was solely responsiblefor the payment of any compensation owed. Thecase was remanded to the U.S. Court of FederalClaims for a determination of what amount, ifany, the federal government must pay.

There are now a number of “takings” cases pend-ing in courts around the country and in the U.S.Court of Federal Claims. Many of the cases filedin the federal district courts on behalf of personsasserting compensation claims for less than$10,000 have been certified as class actions, onbehalf of all persons claiming a compensableinterest in the railbanked corridor. One case hasbeen certified as a state-wide class action. Thusfar, 12 cases have been fully resolved eitherthrough settlement or the entry of final judgmentby the courts. The United States has paid outapproximately $3 million in these takings cases,most of which represents payments for attorney’sfees and costs rather than just compensation.

Trail of the Coeur d’Alenes, Idaho — Running 74 milesthrough Idaho’s Silver Valley, the trail stretches west from theMontana border and extends, for 15 miles, through theCoeur d’Alene Reservation. After being railbanked in 2001,the U.S. Court of Appeals for the D.C. Circuit rejected achallenge to the railbanking order.

6 • R A I L B A N K I N G

Recreation, Health andAlternative Transportation

T he highways that replaced rail lines as themajor method of transportation in thiscountry have also bound Americans to

their cars — for better and for worse. In manycommunities, built without sidewalks or bikelanes, it can be difficult if not impossible to walkor ride a bicycle, and it shows in the congestionon roads and in the expanding waistbands ofAmericans.

The U.S. Department of Health and HumanServices estimates that 64 percent of Americansare overweight or obese. Even more alarming:One in three children in this country is heavyenough to be at risk for developing healthproblems because of their weight. And once adultdiseases such as high blood pressure, type 2diabetes and high cholesterol are now commonlyfound in overweight youth.

The USDA’s Dietary Guidelines recommend atleast 60 minutes of daily exercise for children andteens and at least 30-60 minutes everyday foradults. Trails provide close, safe, traffic-free paths

for walkers, joggers, inline skaters, cyclists and, insome areas, snowshoers and cross-country skiers.Rail-trails are also part of a nationwide initiativelaunched by Congressman James L. Oberstar (D.-Minn.) to create safe routes that will encourageschool children to walk and bike to school.Studies have also shown that using trails andhaving these resources nearby increases the rateof regular physical activity.

Rail-trails are simply the ideal place for familiesand communities to become more active and, asa result, they are in considerable demand. TheMinuteman Bikeway in Massachusetts gets morethan 2 million visitors a year, and the PinellasTrail in Florida 1.2 million. The crowds on thesetrails and so many others show rail-trails arecherished by locals and visitors, and the SurfaceTransportation Board has received railbankingrequests from towns and cities nationwide.

At the heart of railbanking, of course, is thepossibility that the line could be converted backinto rail use. Railbanking has preserved theselines so they can be quickly reconverted, andused for freight rail, a high-speed train, light railor any other type of rail service. Some corridorsare used as “rails-with-trails,” where these corri-dors serve as alternative transportation, masstransit and recreational corridors.

As traffic grows worse, developing alternativecommuting options are a must for many townsand cities. In a 2005 traffic survey by ABC News,Time Magazine and the Washington Post, abouthalf of all Americans said traffic in their area isworse now that it was five years ago and they fearthe trend will continue. Railbanking preservestransportation corridors and, in their interim useas trails, provides alternative commuting routesfor walkers and cyclists and can connect residentsto bus and rail lines.

Atlanta, for example, is creating a network ofcommuter and recreation paths that will connecttrails with transit stations, light rail, bus lines,colleges and tourist attractions to help ease thecity’s notorious traffic. Its newest development isthe 22-mile Beltline, which will turn old rail lines

THE BENEFITS OF TRAILS

Burke-Gilman Trail, Washington — This 27-mile rail-trail, railbanked inNovember 1998, traces the waterways along Seattle’s northern half, linkingindustrial centers, the University of Washington, and residentialcommunities with outerlying parks and farmland along the SammamishRiver.

R A I L S - T O - T R A I L S C O N S E R V A N C Y • 7

into a recreation and transit loop. In addition toadding more green space to the community, threenew stations of the city’s Metropolitan AtlantaRapid Transit Authority will be added to connectthe Beltline to the city’s existing transit network.

Business and TourismRail-trails create myriad outdoor recreationopportunities. The long, uninterrupted stretchesof rail corridors, some hundreds of miles, havebecome destinations for weeklong excursions, daytrips and quick escapes. Rail lines were often builtalong river valleys and the trails along thesecorridors bring people in touch with their localwaters, hills, forests and historic attractions, andconnect towns and sights. The 225-mile Katy TrailState Park in Missouri, railbanked in 1987, bringsresidents and visitors alongside that state’smighty river and is one of several rail-trails thatlie on the path followed by Lewis and Clark.

Because they provide scenic and often historicallysignificant paths, rail-trails have become draws

Ojai Valley Trail, California — A 5-mile extension to this charming 10-mile trail was railbanked in June 1996. Parallel asphalt and dirttracks accommodate walkers, bicyclists, inline skaters and equestrians.

not only for local residents but also for visitors.Cafes, inns, hotels and bike shops have croppedup along trails to serve both locals and tourists.The trails boost local economies and often createnew business opportunities in communitieswhere other industries are waning. In Pittsburgh,for example, the Three Rivers Heritage Trailsystem — with portions aided by railbanking —has brought new life to the former rail lines thatonce hauled coal and steel in and out of the city.The area is now a riverfront draw for walkers,cyclists, and the residents who have returned tothe city’s downtown.

Rail-trails enhance the quality of life in thecommunities in which they are located, in addi-tion to offering transportation alternatives andnew business opportunities. Above all, rail-trailshelp preserve America’s railroad history and, whenrailbanking is used, preserve this valuable resourcefor our nation’s future rail and transportationneeds.

“This facility and all its interconnected modes will make our waterfront accessible to a greater number of visitors —without overwhelming it with automobiles.”

— Burlington, Vermont, Mayor Peter Clavelle regarding the railbanked Burlington Waterfront Bikeway

8 • R A I L B A N K I N G

Trail Name State length on ROW total length

Open Rail-Trails on Railbanked Corridors

Delta Heritage Trail (Barton-Lexa) AR 4.3 4.3Fresno-Clovis Rail-Trail CA 13 13Ventura River Trail (Ojai Valley Trail Extension) CA 6 6Mineral Belt Trail CO 6 12.5Suwannee River Greenway at Branford FL 4.5 11.5Kewash Nature Trail IA 13 13Laurens IA 1.5 1.5Perry to Rippey Trail (Three County Trail) IA 9 9Raccoon River Valley Trail IA 56 56Sauk Rail Trail IA 13.4 33.2Shell Rock River Trail (Butler County Trail) IA 5.5 5.5Summerset Trail IA 10.83 12Three Rivers Trail IA 36 36Vinton to Dysart (Old Creamery Trail) IA 15.3 15.3Wabash Trace Nature Trail IA 63 63Winkel Memorial Trail IA 6 10Nampa to Stoddard Trail ID 1.5 1.5Trail of the Coeur d’Alenes ID 72 72Weiser River Trail ID 55 55Bill Chipman Palouse Trail ID, WA 7.45 7.45Joe Stengel Trail IL 7 7Long Prairie Trail IL 14.6 14.6Lowell Parkway Bicycle Path IL 3.5 3.5Madison County Transit Schoolhouse Trail IL 11.5 11.5McHenry County Prairie Trail IL 21 25Cardinal Greenway IN 10 10Flint Hills Nature Trail (Herington) KS 4 4Flint Hills Nature Trail (Ottawa) KS 1 1Haskell Rail-Trail (formerly Lawrence Rail-Trail) KS 1.1 1.1Landon Nature Trail (South Topeka) KS 1 1Prairie Spirit Rail-Trail KS 33 33Shortgrass Prairie Trail (Protection to Clark County Line) KS 2 2Muhlenberg County Rail-Trail KY 6 6Tammany Trace LA 27.5 27.5Minuteman Bikeway MA 10.5 10.5Capital Crescent Trail MD, DC 11 11Saint John Valley Heritage Trail ME 0.4 18Alpena to Hillman MI 20 20Alpena to Mackinaw Trail MI 26.05 26.05Marquette West Connector MI 3.69 3.69Marquette to Munising MI 37.3 37.3Rogers City Trail MI 6.7 6.7Avon to Sauk Centre (Lake Wobegon extension) MN 28 28Frisco Greenway MO 4 4Frisco Highline Trail MO 35 35Grant’s Trail MO 6.2 6.2Katy Trail State Park MO 223.5 226Crosstie Walk (Cleveland) (Downtown Walking Trail) MS 0.6 0.6Longleaf Trace MS 41 41Dunn-Erwin Rail-Trail NC 5 5Cowboy Trail NE 150 150

R A I L S - T O - T R A I L S C O N S E R V A N C Y • 9

Trail Name State length on ROW total length

Field Club Trail NE 2 2Oak Creek Trail NE 12 12Steamboat Trace Trail NE 21.4 21.4White River Trail NE 10 10Pat McGee Trail NY 12.14 12.14Vestal Rail Trail NY 2.1 2.1Richland B&O Trail OH 18.4 18.4Old Frisco Trail OK 8.2 8.2Astoria Riverwalk OR 5.1 5.1OC&E Woods Line State Trail OR 100 105Springwater Corridor OR 14 14Springwater on the Willamette OR 3 3Panhandle Trail (Allegheny County) PA 6.85 6.85Pine Creek Trail PA 54.5 54.5Pittsburgh Riverwalk at Station Square PA 1.5 1.5Snow Shoe Trail PA 19 19Warren/North Warren Bike Trail PA 2 2Youghiogheny River Trail (North) PA 41 43George S. Mickelson Trail SD 114 114Caprock Canyons State Park Trailway TX 64.2 64.2Chaparral Trail TX 29 29Denton Branch Rail-Trail (Trinity Trails System) TX 8 8Katy Trail (Dallas) TX 3.74 3.74Lake Mineral Wells State Trailway TX 20 20New Boston to Dekalb TX 14 14Trail de Paris TX 0 2.58Historic Union Pacific Rail Trail State Park “The Rail Trail” UT 28 28Little Mountain Rail Trail UT 10 10Hanging Rock Battlefield Trail VA 1.58 2Beebe Spur VT 4.05 4.05Burlington Waterfront Bikeway VT 7.6 7.6Missisquoi Valley Rail-Trail VT 26.5 26.5Cascade Trail (Sedro-Woolley to Concrete) WA 22.3 22.3East Lake Sammamish Trail WA 11 11John Wayne Pioneer Trail WA 145 145Klickitat Trail WA 31 31Snoqualmie Valley Trail Extension (1 mile gap) WA 10 10Yelm-Tenino Trail WA 7 7Cedar River Trail WA, WA 16 16Algoma to Casco Junction WI 12.4 12.4Bayfield County Snowmobile Trail WI 55 65Cattail Trail WI 17.8 17.8Eisenbahn State Trail WI 12 12Fox River Trail (Green Bay to Greenleaf) WI 13.5 13.5Ice Age Park Multi-Use Trail WI 4.2 4.2Mountain-Bay State Trail WI 80.5 83.4Rice Lake to Superior Trail (Chippewa Falls to Superior) WI 90 90Tomorrow River State Trail WI 15 15Greenbrier River Trail WV 77 77Panhandle Trail (Colliers to WV/PA Line) WV 4.4 4.4Wyoming Heritage Trail (Rails to Trails) WY 22 22

Rails-to-Trails Conservancy1100 Seventeenth Street, NW

Washington, D.C. 20036202.331.9696 • (F) 202.331.9680

www.railstotrails.org