4037ENV Transport Planning Transport Literature Review

Planning for bicycling: A review

Michael Tanko: Undergraduate s2738758 Word Count: 1,666 Submission Date: 15 October 2010

Introduction Growing concerns of environmental sustainably and traffic congestion have led to bicycling increasingly being considered as a solution to transportation problems. Bicycling is an environmentally benign mode of travel that is inexpensive, compact, time efficient, equitable1 and offers significant health benefits (McClintock, 2002a, 2003; Pucher and Buehler, 2008; Tolley and Turton, 1995). These social, environmental and economic benefits are increased by its high substitutability potential for the majority of existing car journeys, a third of which are distances of less than 3 kilometres (Brg et al., 2001), an ideal distance for bicycling (Pharoah, 2003). However, apart from in some European countries, bicycling remains a fringe mode of transport. This review of the current literature will investigate the reasons for this, then suggest how planning, both by physical infrastructure and policy measures, can contribute to increase bicycling levels.

Barriers or enablers to cycling The majority of research has identified safety as the single greatest factor affecting whether or not people choose to cycle (Pucher and Buehler, 2008; Pucher et al., 2010a; Rietveld and Daniel, 2004). However, it has been argued by many that it is far less of a dangerous activity that what attitudes in society perceive it to be2 (Dekoster and Schollaert, 2000; Pucher et al., 2010a). This division between real and perceived danger is significant, with high-perceived danger identified as a major contributor to decrease bicycling and vice-versa (Pucher and Buehler, 2008). The convenience and flexibility of bicycling is another issue often cited in the literature regarding choice of bicycling. Some argue that bicycling is a highly flexible form of transport, allowing for door-to-door travel and trip chaining3 without the inconvenience of traffic congestion, while also being faster than walking (McClintock, 2003). Others however, highlight restrictions such as unpredictable weather conditions, differing topography, and lack of ability to transport items as inhibitors to the convenience and flexibility of bicycling (Clarke, 2002).

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The image and status of bicycling has also been identified as a factor contributing to its popularity (Dekoster and Schollaert, 2000; McClintock, 2002b). Some believe that in areas without a historical tradition, it is stigmatised as a poor mans form of transport (McClintock, 2002a; Tolley, 1990). Conversely, in areas with an existing bicycling culture, such as European cities and/or college campus towns, bicycling can be viewed as a respectable, fashionable, or even dignified form of transport4 (McClintock, 2003).

Promotion though infrastructure Physical infrastructure in the form of well designed cycle paths, cycle lanes and parking facilities are significant contributors to promoting bicycling5 (Bauman et al., 2008; Dekoster and Schollaert, 2000; McClintock, 2002a; Pucher and Buehler, 2008, 2009; Pucher and Dijkstra, 2000; Pucher et al., 2010a, 2010b). It is recommended that this be achieved through a hierarchy of paths from highway to local streets with different infrastructure characteristics for each. At the top of this hierarchy are rural and main thoroughfare roads with speeds over 60km per hour where a physical barrier separating bicycle and car traffic is widely advocated (Bohle, 2000; Jensen, 2007; McClintock, 2002a; Ploeger, 2003; Pucher and Dikstra, 2000), as shown in Figure 1. This addresses the issue of vehicular traffic being the greatest identified threat to cyclists (Pucher et al., 2010b). At the road network level below on urban streets it has been suggested that integrating car traffic and cyclists is possible with the assistance of traffic calming techniques (Dekoster and Schollaer, 2000; Morrison et al., 2004; Smith, 2002). The majority of the literature also supports a reduction of motor traffic speeds to 30km per hour in these areas. The methods for achieving this reduction, however, is not only a law requiring this which simply could be ignored, but street design methods such as road narrowing, chicanes or speed bumps which physically restricts speed (Bauman et al., 2008; Dekoster and Schollaert, 2000; Jensen, 2007; McClintock, 2002a; Pucher and Buehler, 2008; Pucher and Dijkstra, 2000, Pucher et al., 2010a, Pucher et al., 2010b). In this environment a clearly defined cycle lane beside car traffic is deemed sufficient for cyclists (Figure 2).

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Figure 1: Segregated cycle path in Bristol, England. Source: Bicycling England 2008

Figure 2: Traffic calming techniques such as chicanes and speed bumps restrict vehicle speed, making the unprotected cyclist safer. Milwaukee, USA. Source: West North 2009

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Finally, at a completely localised suburban level integration of cars, cyclists and pedestrians is possible and even desirable, modelled on the Woonerf (home zone) concept, originating in the Netherlands (Figure 3). This arrangement facilitates traffic at very low speeds (less than 10km per hour), relying on informal relationships that encourage greater respect between road users (Pucher and Buehler, 2008; Department of Transport, 2007; Hartman, 1997; Pharoah, 2003; Tolley, 1990; Yeates, 2002). However, it has been observed that infrastructure measures should not come at the expense of a direct route, which is a major consideration of cyclists (Dekoster and Schollaert, 2000; Hartman, 1997; Hlsmann, 1997; McClintock, 2002a; Pucher and Buehler, 2008; Rietveld and Daniel, 2004) As such, this cycling network should be designed on a citywide scale6 with an interlinked grid pattern that is permeable to allow through access to cyclists7 (Department for Transport, 2007; Ploegler, 2003). Another important infrastructure consideration is end-of-trip facilities such as parking racks, lockers and showers, the availability of which increase the potential for cycling (Brunsing, 1997; Holladay, 2002; Martens, 2007; Pharoah, 2003; Pucher and Buehler, 2008, Pucher et al., 2010a, 2010b; TRB, 2005). Much of the literature points to strategically placing these facilities at work places (Dekoster and Schollaert, 2000; Rye and McGuigan 2001, Pucher et al. 2010a) or public transportation hubs8 in an effort to promote integration and maximize the wide geographic feeder potential of bicycling (Brunsing, 1997; Holladay, 2002; Martens, 2007; Pucher and Buehler, 2008, 2009; TRB, 2005). Brunsing (1997), Holladay (2002) and Pharoah (2003) also emphasise the need for cycling and public transport to work together to shift transport away from car use, instead of bicycling decreasing public transport patronage, whereby creating no net benefit9. This cooperation also has the benefit of minimising parallel networks of public transport and cycle paths that compete with each other. Although infrastructure provision has seemingly supported bicycling, it is worth mentioning that the extent to which it increases bicycling numbers is currently unsupported with quantitative data. Instead, links between greater feelings of safety and convenience provided by infrastructure is often simply assumed to increase cycling levels10 (Pucher et al., 2010a).

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More effective land use planning has also been suggested to facilitate greater cycling (Dekoster and Schollaert, 2000). As demonstrated by the popularity of bicycling in compact cities of Europe (The Netherlands and Denmark) it has been suggesting that increasing densities and promoting mixed use developments will encourage cycling by reducing distances to facilities to trip lengths coverable by bicycles, while at the same time discouraging car use (Pucher et al., 2010a). However, the relevance of density on travel patterns (Mees, 2009; Newman and Kenworthy, 1989) is still a topic of debate, and as a result the relationship between density and bicycling levels isnt certain.

Figure 3: A Dutch Woonerf. Source: Pedestrian and Bicycle Information Center

Promotion through information programs and policy As well as providing infrastructure, it has been widely agreed that a coordinated program of cycling education and policy is an important part of encouraging cycling (Dekoster and Schollaert, 2000; Hartman, 1997; Hlsmann, 1997; McClintock, 1997, 2002b, 2003; Pucher and Buehler 2005, 2008, 2009; Pucher and Dijkstra, 2000; Pucher et al., 2010a, 2010b). However, unlike infrastructure measures, which are commonly agreed upon, the literature identifies the effectiveness of information and policy programs as more contentious. ! &!

Positive policies include education programs that focus on the economic, health and environmental benefits of bicycling and challenge misconceptions about constraints such as weather and topography11 (Pucher and Buehler, 2008). They also highlight the disadvantages of car use (McClintock, 2002b, 2003; Pucher et al., 2010a). In theory this is seen to help lift cyclings social acceptability to increase its popularity2 (McClintock, 2002b; Roberts, 1997). However, the reliability of data on the effectiveness of travel behaviour change programs so far is lacking and needs to be improved before their actual effect is known (Moreton and Mees, 2005; Pucher et al., 2010a), especially for cycling. For example, Pucher et al. (2010) identified the data from these programs as mainly focusing on vehicle trip reductions, with little being said about the effect on bicycling levels (Pucher et al., 2010a). Within policy it has also been identified that disincentives are needed to promote bicycling (Pucher et al., 2010a, 2010b). Some of these include legislation that enforces speed limits and punishes drivers that are inconsiderate of cyclists (Hlsmann, 1997; Pucher et al., 2010b). The majority of these polices, though, are focused on decreasing car ownership and use, which has been identified as a necessity to allow bicycle use to expand (Pucher et al., 2010a). Examples include greater taxes on car ownership and increased fuel levies, which are common in Western Europe (Pucher et al., 2010b; Rietveld and Daniel, 2004). However, it has been noted that the success of implementing these negative polices can pose difficulties where they are politically unpopular, such as policies impinging upon car ownership and use in the United States (Pucher 2005, Pucher et al. 2010b). One particularly controversial issue within Australian bicycling policy is mandatory helmets laws. Traditionally, this has been viewed as a positive policy that promotes greater safety. However, current literature (Curnow, 2003, 2005; Voukelatos and Rissel, 2010) has cast doubt on this assumption. It has been argued that the legislation has only served to attach a perceoption of danger to bicycling and create an inconveniencing barrier that has decreased its popularity13 (Dowe, 2010). Subsequently, it has been questioned to what effect this has had on bicycling levels in Australia. In any case, this highlights the effect policies can have on bicycling.

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Conclusion While most agree that a coordinated approach of mutually reinforcing physical infrastructure combined with pro-bicycle polices increases the instance of cycling, the exact relationship remains tenuous with a lack of literature linking specific measures with the actual impact on the amount of increases in bicycling. This occurs both for the effect of infrastructure provision and education programs and policies. More substantive quantitative research is therefore required to determine the cause-effect relationship of these measures to better inform practice for cycling planning in the future.

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Pucher, J and Buehler, R 2005. Why Canadians Cycle More than Americans: A Comparative Analysis of Bicycling Trends and Policies, Transport Policy, May 2006, Vol. 13, pp. 265-279. Pucher, J and Buehler, R 2008, Making Cycling Irresistible: Lessons from The Netherlands, Denmark and Germany, Transport Reviews, 28: 4, 495 528. Pucher, J and Buehler, R 2009. Integrating bicycling and public transport in North America. Journal of Public Transportation 12 (3), 79104. Pucher, J, Dill, J, Handy, S 2010a, Infrastructure, Programs and Policies to Increase Bicycling: An International Review, Preventive Medicine, Vol. 50, No. S1, January 2010, pp S106-S125. Pucher, J, Garrard, J, Greaves, C 2010b, Cycling down under: a comparative analysis of bicycling trends and policies in Sydney and Melbourne, Journal of Transport Geography 2010, doi:10.1016/j.jtrangeo.2010.02.007 Rietveld, P and Daniel, V 2004. Determinants of bicycle use: do municipal policies matter?, Transportation Research Part A 38, 531550. Roberts, J 1997 The economic case for green modes In: Tolley, R. (Ed.), The Greening of Urban Transport. Wiley, Chichester, pp. 299306. Rye, T and McGuigan, D 2001. Green Commuter Plans: Do they work?, accessible at: <http://www.scotland.gov.uk/Resource/Doc/156447/0041992.pdf>. Smith, G 2002, Homezones and traffic calming: implications for cyclists, Chapter In: McClintock, H (Ed.), Planning for Cycling: principles, practice and solutions for urban planners, Woodhead, Boca Raton, USA. Tolley, R 1990 Introduction: trading-in on the red modes for the green, Chapter in: Tolley, R. (Ed.), The Greening of Urban Transport. Wiley, Chichester. Tolley, R and Turton, B 1995. Transport Systems, Policy and Planning: A Geographical Approach, Longman, Scientific and Technical, Harlow, Essex. TRB, 2005. Integration of Bicycles and Transit, TCRP Synthesis Report 62, Transportation Research Board, National Research Council, Washington, DC. Voukelatos, A and Rissel, C 2010, The effects of bicycle helmet legislation on cycling-related injury: the ratio of head to arm injuries over time, Journal of the Australasian College of Road Safety August 2010. Wardlaw, MJ 2000 Three lessons for a better cycling future, British Medical Journal 2000; 321 : 1582 doi: 10.1136/bmj.321.7276.1582. West North 2009, Off-Milwaukee: a bike route, accessible at: <http://westnorth.com/2009/10/21/off-milwaukee/> Yeates, M 2002. Making space for cyclists: A matter of speed?, Chapter in; McClintock (Ed.), Planning For Cycling: Principles, Practice and Solutions For Urban Planners, Woodhead Publishing Ltd. United Kingdom.

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Appendix

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NOTES 1. Pucher and Buehler (2008) show that cycling levels are almost equal amongst different social classes, suggesting a highly equitable form of transport (Pucher and Buehler, 2008). Furthermore, Tolley (1990) shows that the relative cheapness of bicycles allows for greater access to services by a wider range of the community without access to a car (Tolley, 1990). 2. Many have commented on the exaggeration of safety concerns of cycling, highlighting the fact that the health benefits of cycling far exceed the dangers (Pucher et al., 2010a, Dekoster and Schollaert 2000 p34) 3. This is especially significant for women as their travel patterns invariable include trip chaining (Lehner-Lierz, 2003), so in one way cycling can be see as more flexible to their needs. However, women also depend more on public transport (Lehner-Lierz, 2003), so if public transport and cycling integration were lacking then cycling may become less appealing to women. 4. This is reflected in the fact that there are far more utilitarian journeys in Europe than in other countries where the main purpose of cycling is for recreation (Pucher and Buehler, 2008 However, for cycling to have significant environmental benefits it has been noted that it needs to become a serious transport option for everyday commuting trips (Pucher and Buehler, 2008) 5. Not all agree with this assertion though. The Vehicular Cycling movement in particular states that the safest method of cycling is by integrating cyclists fully into traffic and training them to behave in the same manner the vehicular traffic (Wardlaw, 2000), without the need for cycle paths (Forester, 2001). Indeed Forester, the main proponent of the theory believes cycle paths to be more dangerous (Forester, 2001). However it has been assessed (Boston Bicyclist, 2010) that even if cycle ways do not actually increase safety, the point is that they create a perceived feeling of safety, which has been show by many (Pucher et al., 2010a) McClintock, 2002a) to contribute to people being more likely to cycle, a point which is lost on VC theorists. 6. Pucher et al. (2010b) demonstrate the need for a large-scale network through analysis of the Sydney and Melbourne bikeway networks. It was shown that these facilities were mainly confined to the inner city, with the suburbs largely neglected. This resulted in links between inner and outer areas often overlooked and black spots emerging within the network (Pucher et al., 2010b) As a result the gains made by cycling in the inner city were far outweighed by the majority of car use still rampant in the suburbs due to inadequate cycling infrastructure being provided in these areas. 7. McClintock (1997) observed that even if a safer route is provided, most cyclists are unwilling to take that route if it involves more than about 10 per cent extra distance (McClintock, 1997). This contributes to a debate within cycling about to what degree to cater toward speed vs. safety in infrastructure provision, and as an implication what cyclists to cater for who value either safety or speed more highly. 8. In this case cycling integration with public transport is by the park and ride model. However, another method is the cycle-ride-cycle or sandwich model (Holladay, 2002). Park and ride requires space for secure storage and restricts trip chaining. Alternatively taking bicycles onto transport needs no such storage and offers the potential for greater flexibility of trip chaining. However, this creates logistical problems of storage on the train/bus/tram, especially during peak hour, as discussed in Brunsing (1997), Holladay (2002) and briefly in Pucher et al. (2010a). The trend of public bicycle hire schemes (Brisbane City Council, 2010) may be the solution to this issue, offering flexibility to cycle from public transport.

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9. It has been noted however in Pucher et al (2010b) that unburdening over capacity public transport by cycle can also have its place (Pucher et al., 2010b). On the other hand, though, better public transport can decrease cycling levels if it is quicker and more convenient than cycling (Pucher et al., 2010b) 10. It has been identified that these facilities improve the perceived safety and convenience to cyclists. In Pucher et al. (2010a) both revealed preference and stated preference studies identified a general feeling of greater safety when riding on segregated pathways (Pucher et al., 2010a). However quantitative data that identifies the real impact on safety by cycle ways is currently absent from the literature. Also absent is quantitative data relating the exact relationship between how greater safety increase the amount of people cycling. 11. Often these factors are overemphasised by potential cyclists who see them as restrictions to bicycling that cannot be overcome (McClintock, 2002). However, it has been demonstrated that even in many wet and cold mountainous region such as in Switzerland cycling can consist of up to 30% of overall journeys (Dekoster and Schollaert, 2000). Also, while it is true that the urban sprawl common in non-European countries pose difficulties to the viability of cycling (Clarke, 2002), Pucher and Buehler (2008) have shown some success of infrastructure and policies increasing bicycling in low density Portland, USA (Pucher and Buehler, 2008). 12. Another education policy that has been widely advocated is driver training to instil a greater sense of consideration from drivers for cyclists (British Medical Association, 1992; Dekoster and Schollaert, 2000; Litman et al., 2001). Also education for children has been identified as a factor to not only increase bicycling (Pucher and Dijkstra 2000) but also to encourage the next generation of bicyclists (Dekoster and Schollaert, 2000; Lehner-Lierz, 2003) 13. It has been suggested that helmet laws actually make cycling seem more dangerous that what it actually is by creating this need for special. In Australia, where helmets laws are mandatory it has been suggested as one of the reasons for the low cycling levels. The argument is that if there were no helmet laws, there would be more cyclists, and the safety is numbers theory says overall it would be safer (Elvik, 2009). Cyclist would then have the numbers to be able to lobby more effectively for cycle paths and other needs, further increasing safety (Dowe, 2010), and reducing the need for helmets at all.

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