14 across
Hesitant
setter
would
back
lines
on
article
(7)
Hesitant setter would back lines on article (7)
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The definition is at the beginning of the clue.
How the clue works
The definition is Hesitant. "Setter would" gives you I'D, which gets flipped by back to give DI, then you add THE as the article and RY for railway lines — stack them together and there's your answer.