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1
Global outlook
on WalkinG and CyClinG
Policies & realities from around the world
Share
The
Road
UN Environment wishes to thank all donors, authors, contributors and reviewers:
Donor: FIA Foundation for the Automobile and Society.
Author: UN Environment Transport Unit: Gail Jennings
Editor: UN Environment Transport Unit: Carly Koinange
Acknowledgements
Published by the UN Environment, September 2016
Copyright © UN Environment 2016
Publication: Global Outlook on Walking and Cycling 2016
ISBN No: 978-92-807-3616-8
Job Number: DTI/2060/PA
This publication may be reproduced in whole or in part and in any form for educational or non-prot
services without special permission from the copyright holder, provided acknowledgment of the source
is made. UN Environment would appreciate receiving a copy of any publication that uses this publication
as a source.
No use of this publication may be made for resale or any other commercial purpose whatsoever
without prior permission in writing from the UN Environment. Applications for such permission, with a
statement of the purpose and extent of the reproduction, should be addressed to the Director, Division
of Communications, UN Environment, P. O. Box 30552, Nairobi 00100, Kenya.
Disclaimers
Citation
Mention of a commercial company or product in this document does not imply endorsement by UN
Environment or the authors. The use of information from this document for publicity or advertising
is not permitted. Trademark names and symbols are used in an editorial fashion with no intention on
infringement of trademark or copyright laws.
We regret any errors or omissions that may have been unwittingly made.
© Images and illustrations as specied.
Cover photo: Sticks and Stones Design Agency, Nairobi.
This document may be cited as:
UN Environment 2016.Global Outlook on Walking and Cycling 2016
UN Environment, Nairobi
A digital copy of this report is available at: http://www.unep.org/Transport/SharetheRoad
Research Contributors:
All data collection and analysis for this report was undertaken by Gail Jennings, Patrick Muchaka and
the University of Cape Town (Sean Cooke and Mark Zuidgeest).
Country Contributors:
We would like to extend our sincere gratitude to everyone who took the time to respond and provide us
with as much information as they could, many of whom are from data-poor and resource constrained
organizations and countries.
Alemán Dolores Barrientos
Mexico´s Representative Ofcer
Barratt Sam,
Chief of Public Advocacy & Communications
Communications Division
Bert Fabian,
Programme Ofcer, Transport Unit
Energy, Climate and Technology Branch
Economy Division
Conado Andre,
Cities and Lifestyles Unit
Sustainable Lifestyles, Cities, and Industry Branch
Dumitrescu Elisa,
Focal Point for the Climate and
Clean Air Coalition and Eastern Europe
Transport Unit
Energy, Climate, and Technology Branch
Economy Division
Ernes Kamala,
Programme Ofcer
Transport Unit
Energy, Climate, and Technology Branch
Economy Division
Mwangi Amos,
Transport Unit
Energy, Climate and Technology Branch
Economy Division
Reviewers:
Design and Layout:
Sticks and Stones | www.sticks-and-stones.co.ke
Eric Lu Sava and Joseph Chege
Other organizations
Pardo Carlosfelipe,
Executive Director, Despacio
Vetch Liana,
Environmental Consultant
Khayesi Meleckidzedeck,
World Health Organization
Tsang Victor,
Programme Ofcer
Gender and Social Safeguards Unit
Ofce for Operations and Corporate Services
Tully Oona,
Managing Publisher
Communications Division
Wothaya Susan,
Share the Road Programme Africa Lead
Transport Unit
Energy, Climate, and Technology Branch
Economy Division
UN Environment
United Nations Human Settlements Programme
Holzwarth Stefanie,
Urban Mobility Unit
Urban Basic Services Branch
4
Denitions
Active mobility
/ transport
NMIMTs
Low income
country and
middle-income
country
BRT
A term used largely in Europe, Latin America and in some West African
countries for NMT
Non Motorized (NM) and Intermediate Modes of Transport (IMTs). This
denition includes walking, head, shoulder or back loading, the use of
wheelbarrows, hand-carts (‘mikokoteni’), animal transport (horses, camels,
donkeys, mules and oxen as beasts of burden), animal-drawn carriages (such
as sledges), bicycles and tricycles to transport passenger and freight
The World Bank classies countries into four income groups. These are
set each year on 1 July. Economies were divided according to 2016 GNI per
capita using the following ranges of income:
• Low income countries had GNI per capita of US$1,025 or less
• Lower middle income countries had GNI per capita between US$1,026
and US$4,035
• Upper middle income countries had GNI per capita between US$4,036
and US$12,475
• High income countries had GNI per capita above US$12,476
Bus Rapid Transit
IMT Intermediate Means/Modes of Transport. IMT broadly refers to low-cost
transport innovations that increase the load carrying capacity beyond head,
shoulder or back loading and/or increase travel speeds beyond walking. They
include low engine capacity vehicles such as motorcycles and motor tricycles
and sidecars or trailers attached to these
5
NMT
NMVs
VRU
NMT
Performance
UD or UA
NMT
commitment
Non-Motorized Transport (walking, cycling, animal-drawn transport,
intermediate transport, skateboarding or other non-motorized modes)
Non-motorized vehicles
Vulnerable road users (includes motorcyclists)
In this context, NMT performance refers to how safe, pleasant and acceptable
it is to use NMT modes. Further detail can be found on page 38
Universal Design or Universal Access: the concept of designing the built
environment and transportation facilities to be usable to the greatest extent
possible by everyone, regardless of their age, ability, or mobility, visual or
other impairments
An NMT commitment, in this context, refers to a deliberate plan of action
taken by national government to guide decisions and to achieve a particular
outcome. Commitments are usually ofcial written documents: policies;
laws, legislation or regulations; strategies; engineering or design guidelines;
frameworks; or planning documents. Such Commitments are endorsed or
signed by government ofcials to legitimise the document and demonstrate
that it is considered in force
TABLE OF
CONTENTS
Foreword
Page 7
Introduction
Page 8
Focus on
vulnerable
groups in
African NMT
policies
Page 32
Country
Summaries:
Africa
Page 41
Country
Summaries:
Latin
America
Page 72
Country
Summaries:
Asia
Page 64
References
Page 93
Method
Literature Review...10
Data Collection.......10
Limitations..............11
Country Reports......11
References..............11
NMT Index
Discussion.............30
Public transport
transformation or
improvement..........31
Global status of walking
and cycling
Levels of NMT commitment..15
Key NMT policy themes.........20
Devolution of NMT
planning to local level............22
Goal setting and
measurability.........................24
Promotion of NMT modes.....28
Funding for NMT....................30
7
Foreword
Around 140 people will die in road accidents while you read this report;
one every thirty seconds. That’s 1.3 million dead mothers, fathers and
children in 2016, with more each year we fail to x the problem.
By 2030 that will add up to almost 30 million lost friends and family.
There would be an international scandal if the world knowingly let
the entire population of Australia, Ghana or Nepal die in just 15 years.
Yet we quietly accept more than that will die in road accidents. Even
worse, we accept it knowing there are alternatives. That’s why this
report highlights both the risks and some startlingly simple solutions.
Around the world, many people rely on walking and cycling for
transport. Many more begin and end each trip on foot. Such
affordable, people-powered transport offers huge social, economic
and environmental benets for urban and rural areas. But many of
these people risk their lives every time they travel. More than a quarter of the people killed in road
accidents are pedestrians; a number increasing steadily due to a tragic lack of investment.
In fact, transport has hard hitting consequences for almost every aspect of the life for drivers, cyclists
and pedestrians. For example, it generates nearly a quarter of all carbon dioxide emissions and is the
fastest growing contributor of greenhouse gasses. It also feeds air pollution that is killing seven million
people a year and increasing health problems like bronchitis, asthma, heart disease and brain damage.
However, we can reverse those trends and make rapid progress towards ending poverty, healing our
planet and making it secure by 2030. For example, many Kenyan children can’t get to school because
they live so far away. With some 500 pedestrians dying in Nairobi each year, it’s easy to see why parents
are unwilling to risk their child’s life. Many of the children who do walk arrive late or tired, especially girls
who must also nd time and energy for housework. The Kenyan Government, World Bicycle Relief and
World Vision are changing this by helping local communities distribute and maintain bikes for students.
Newly trained mechanics have jobs; students arrive on time and ready to learn; and their families more
easily transport water to their homes, goods to market and sick people to health facilities.
Scaling up that kind of change starts by deciding to take the rst step, which can be as simple as creating
a cycling and walking policy. This report looks at ideas from around the world, including the policies for
decision makers and the realities for citizens, to show what really works.
As the population heads towards nine billion, we need to design mobility for our people instead of mobility
for our cars. I hope this report will inspire decision makers from across the public and private sector to
explore where they live and work on foot and on two wheels, assess their commitments and adopt more
of the great ideas from this collection.
Erick Solheim
Excecutive Director
UN Environment
Introduction
Rio de Janerio
©Bikeworldtravel
9
Walking and cycling are more than low-carbon modes of transport that enhance urban quality and
facilitate social cohesion; they are cheap, exible, personal modes without which the majority of people
in low- and middle-income countries are unable to participate in the economy and community, or access
education, health-care and other urban services.
At the same time, many low- and middle-income countries are undergoing rapid, debilitating and
unconstrained urbanisation, and local and national authorities are buckling under severe pressure to
plan, guide development, provide services, and manage their cities. One consequence is that cities and
rural areas exhibit poor accessibility and mobility, and the needs of people remain unmet.
Better walking and cycling environments can change this. Access and mobility are key not only to
sustainable mobility but to sustainable development. NMT, primarily walking and cycling, is the most
sustainable form of movement, whether as a local access or an arterial or mobility mode. Yet NMT only
often recieves marginal recognition in many low- and middle-income countries – whether in policy and
legislation, or in budget, resource and space allocation. These same countries have the worst global
road safety rates (between 40-80% of fatalities in low-income countries are NMT users), and the highest
rates of poverty, unemployment and associated ill-health and limited life opportunities.
There is an urgent need to improve this environment and signicantly reduce the risks of injury or death,
and facilitate a shift to lower carbon modes. Even where governments are resource-constrained, a solid
commitment to NMT can change the experiences of millions of pedestrians and cyclists every day.
Thus the purpose of this report has been to document the inclusion of NMT in national or city policies
in a sample of low- and middle-income countries in Africa, Asia and Latin America, which we achieved
through a survey, and detailed policy content analysis.
In particular, we wished to investigate whether the existence of a country NMT policy in some way
correlates with the safety of people who walk and cycle every day.
The index is not a ranking of top ‘NMT countries or cities’ with rst and last position, but an index and
report of key ndings, in which we began to explore whether NMT policies lead to safer roads, and how
policies and their outcomes could be strengthened. The Index (see page 28) reports on the intersection
between the level of NMT commitment in a country, and the safety and comfort of NMT users.
The report concludes that countries have certainly made a start in policy development; every participating
country has at least one national transport commitment that recognises the value of non-motorised
modes in their country, cities and rural regions. However, our index suggests that the implementation
of NMT policies to date has not yet led to substantive changes in the reality for pedestrians and cyclists;
road fatalities, discomfort and risk remain unacceptably high.
To this end, the report makes a number of recommendations based on our research, which we believe
will increase the impact of this emerging and valuable commitment to non-motorized transport modes
in low- and middle-income countries.
10
Method
Literature review
Before beginning this survey and analysis, we undertook a literature review to better understand the
essential components of an NMT policy, and the core actions required in order to create an enabling
environment for better walking, cycling and other NMT modes (such as cycle rickshaws and handcarts).
(Refer to References, page 95.)
The literature suggests that a combination of both standalone and integrated NMT policies; political will;
clear, measurable goal-setting as part of local strategies; a variety of supporting policies; and trafc
calming or speed- and vehicle-reduction interventions; will produce cities and countries where walking,
cycling and other NMT modes is signicantly more safe, attractive, comfortable and desirable.
Data collection
Secondly, we compiled a detailed database of individual stakeholders from at least four countries within
East Africa, four from Southern Africa, and ve from Asia and Latin America1. Our goal was to survey at
least 20 countries. Stakeholders were selected from within government or civil society who were likely
to have insight into and knowledge of NMT policy status and access to data in their region, country or
city. Each stakeholder was invited to add to the stakeholder list. These stakeholders were from a range
of independent or university institutes, global agencies, non-government organisations, consultants,
individual activists or government ofcials.
Over a period of three months (March-May 2016), we contacted each person on the database at least
three times – by either email, social media, text or telephone call – asking them to ll in a fairly detailed
online survey. We explained matters of condentiality, the purpose of our survey and the intended output.
We also asked each stakeholder to upload or email NMT policies, strategies or other important NMT
documentation from their country or city.
11
Indicators and data quality
As an indicator of commitment we used questions relating to:
• the number and type of NMT standalone and supportive policies and other commitments;
• evidence-based planning;
• monitoring, evaluation and reporting methods;
• institutional capacity and nancing;
• local-level planning;
• and civil society involvement.
As an indicator of performance (how safe, pleasant and acceptable it is to use NMT in each country) we
used:
• NMT fatalities per 100 000;
• and the quantity of bicycle infrastructure, where available.
A challenge in attempting to assess ‘performance’ has been this lack of existing, available or veriable
data, in particular mode share (rural vs urban), mobility and trip rates, vehicle/foot miles travelled, and
fatality data. We know that this is a constant challenge in developing countries and cities. As a result,
what is not addressed or included in our index calculation are levels or rate of motorization and the way
in which these intersect with fatality numbers; injury rates; mobility and trip rates and risk ratios per
mode.`
Limitations
Neither our index nor the accompanying country summaries and analysis captures every country or
local commitment or action that is being taken in support of NMT. Nor were we able to take into account
multiple nuances or subtle indicators when developing the weighting (refer to our note on data, page
10). Further, the index does not indicate the duration of time a country has had an NMT policy in place.
Instead, this is a rst step in broadly identifying the characteristics of NMT policy commitments, the
challenges in sourcing comparative and useful data, and developing an overview of the status of NMT
policy development in particularly developing and emerging economies.
12
Our survey asked respondents to answer whether a country has some level of national NMT commitment
(in this context, an NMT Commitment refers to a deliberate plan of action taken by national government
to guide decisions and to achieve a particular outcome, see Denitions, page 4). The graphs below
indicate simply whether or not a country has a national NMT commitment (yes/no). Further details about
specic country policies are available under the section Country summaries, page 37.
Policy attention has in recent years turned to NMT, perhaps because of attention paid to the intersection
of poverty and transportation in line with the United Nations Sustainable Development Goals (SDGs).
Every responding country has listed at least one policy document that states an intention to give walking
and cycling increased attention. These commitments vary, from relatively insubstantial sections in a
general transport or mobility policy, to standalone national NMT policies (such as Uganda and South
Africa). (Refer to gure 2 on page 12).
This section reports on and discusses key ndings of our survey, which asked questions relating to
NMT commitment and NMT performance. Specically, this section summarizes ndings on national
NMT commitments (whether countries do have some level of NMT commitment); the type of NMT
commitment and supportive documentation (whether these are, for example, national acts, plans, by-
laws or other policies); whether NMT planning is conducted at local level; monitoring, evaluation and
reporting; the way in which NMT modes are promoted; the quality of NMT infrastructure; funding issues;
and data quality and institutional capacity.
The answers to survey questions are summarized by continent (Africa, Asia and Latin America) and
reported in both narrative and graphic format. In some instances, examples from specic policies are
given.
Levels of NMT commitment
Key Findings
13
Does your country or national
transport authority have a
national NMT commitment?
Does your country or national
transport authority have a
national NMT commitment?
Does your country or national
transport authority have a
national NMT commitment?
Does your country or national
transport authority have a
national NMT commitment?
79%
21%
World Africa
(n-13)
Asia
(n-6)
Latin America
(n-4)
69%
31%
83%
17%
75%
25%
Yes No
Yes No Yes No
Yes No
n=sample size per region.
[Figure 2: Level of NMT commitment, globally and by region]
14
Type of NMT commitment
n=sample size per region.
[Figure 3: Type of NMT commitment by region)
This survey question asked respondents for a greater level of detail regarding NMT commitments –
whether these were national NMT Acts, funding policies, NMT chapters in a general transport policy, etc.
Every responding country has listed at least one document that states an intention to give walking and
cycling increased attention, whether this be a city, regional or national document. These commitments
vary, from relatively insubstantial sections in a general transport or mobility policy to standalone national
NMT policies (such as Uganda and South Africa) – the most type of NMT commitment being an NMT
chapter in a general transport policy.
Neither NMT policies nor transport departments on their own are able to reverse the trend of road
fatalities, motorization and congestion, and deteriorating urban and air quality. Many of the Latin
American and Asian countries have developed integrated Urban Mobility or Sustainable Mobility plans
and policies – in collaboration with environmental or urban planning units. South Africa’s national
department of transport works in collaboration with national agencies such as The SA National Roads
Agency, and the Department of Environmental Affairs.
Type of NMT commitment
15
0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%
n=sample size per region.
[Figure 5: : Goal setting and measuring, by region)
n=sample size per region.
[Figure 4: Policies to support NMT provision and commitment, by region]
Type of supportive document
NMT reporting
Type of supporting policy
This survey question asked respondents for details of policies or programmes that supported the
overarching NMT commitments and together could contribute to safer and more comfortable NMT
environments. Supporting policies include trafc-calming policies, public transport integration plans,
enforcement policies, etc. Vehicle parking policies were the most commonly reported supporting policy
in Africa and Asia, while Latin America reported vehicle restriction and trafc calming policies. End-of-
trip facilities are poorly represented, and in Africa in particular, a lack of promotion policies is evident.
16
• Facilities design and maintenance plans
• Funding strategies
• Road safety concerns
• A recognition of the environmental
• Poverty and equity impact of increased and
improved NMT use
• The importance of inter-modal integration
Key NMT policy themes
Country
National Recognition that a strategy or
policy is required
Modifications to road space (incl traffic
calming and speed reduction)
Regulation, enforcement & legislation
Pedestrian facilities
Maintenance
Funding for NMT projects
Inter-modal interface
Safety
Focus on women & vulnerable groups
Recognition of environmental role
Recognition of barriers
to NMT use
Information & promotion
Training and education
Recognition of role of advocacy
Recognition of equity & poverty
Capacity building
Purchasing assistance
Support for micro-projects
Rural footpaths
Stakeholder engagement & user needs
Universal Design
Objectives
Measures, monitoring & evaluation
Bicycle facilities and parking
Action Plan
X X XX X XX X XX X X X
X+XX-X XX X X
X X X XX X X
• The need for promotion
• Information and training
• The importance of stakeholder engagement
• Provision for NMT vehicle purchase assistance
and support for micro-enterprise
• And a focus on women, children, and/or rural
access
Common themes within NMT polices or chapters include:
+-X X X X XX X XXXXXX XXX
-X X X XXX X X
X X X XX X X XX XX X +
X+X X X + + + + + +X X+++ X X
X X X X-X X-X X-X+ +
+- - - X X X XXX X X XX X X XX X X +X
Argentina
(Sustainable mobility plan)
Bangladesh
(General chapters)
Burundi
(Concept document)
Cape Town
(Standalone city policy)
Chile
(Santiago city plan)
Brazil
Cote d’Ivoire
(Abidjan transport master
plan)
Ghana
(Chapter in a national
policy)
India
(NMT chapter in general
policy)
17
X X X X X X
-XX X
X X X X
X X X X XX X X-X X XX X X X X X
X X X XX
-X X X X X X X
X XX XX X
X X X +
X X X
-X X+X+X X+
Country
National Recognition that a strategyror
policy is required
Modifications to road space (incl traffic
calming and speed reduction)
Regulation, enforcement & legislation
Pedestrian facilities
Maintenance
Funding forr NMT projects
Intermodal interface
Safety
Focus on women & vulnerable groups
Recognition of environmental role
Recognition of barriers
to NMT use
Information & promotion
Training and education
Recognition of role of advocacy
Recognition of equity & poverty
Capacity building
Purchasing assistance
Support for micro-projects
Rural footpaths
Stakeholder engagement & user needs
Universal Design
Objectives
Measures, monitoring & evaluation
Bicycle facilities and parking
Action Plan
X-X X X X X
+X X X-X X X X -- X X X +-X X X X +
+ + X X X X-+X X -- X X X X X-+ + X+X
X X-X X X-X-X X
X X X X X ++ X X X X X+X X X X XX +X X X +X
– Existing but weak commitment or engagement with the issue
X Engagement with the issue on some level
+ Strong engagement with the issue
NOTE
Only countries for which a supporting document was available are included in this table.
Malawi
(National transport policy)
Namibia
(Local – Windhoek)
Nepal
(Local chapter)
Nigeria
(Local - Lagos)
Nigeria
(National cycling policy)
South Africa
(Stand alone national policy)
Tanzania
(Chapter in a national policy)
Uganda
(Stand alone national policy)
Rwanda
(Chapter in a national policy)
Kenya
(Standalone city policy)
Zambia
(Rural Access and
mobility programme)
National NMT policies set the strategic direction for NMT in a country, while implementation and
promotion is more usually a local competency. This survey question asked respondents for details of
city, regional or provincial NMT commitments – although the majority of respondents indicate that such
planning has taken place, this seldom includes standalone NMT plans or strategies.
The NMT commitments we have gone through offer all-encompassing visions and objectives, making
general statements committing to favouring NMT modes above motorized modes or putting people rst;
establishing a network; providing safe infrastructure; increasing mode shares; improving regulations
and enforcement; bringing about a more equitable allocation of road space; or encouraging greater use
of non-motorized modes by offering central nancial assistance for this purpose.
These are important policy statements, but remain too broad to implement, and there is insufcient
devolution of NMT focus to local level, where the effective, on-the-ground NMT planning and
implementation at local level happens. (Refer to the gures below).
Local NMT planning
18
Africa
(n=13)
77%
23%
Yes No
Is there a city, county, region or province in your country that has
developed their own NMT Commitments?
Asia
(n=6)
Latin America
(n=4)
83%
17%
n=sample size per region.
[Figure 6: Devolution of NMT planning to local level, by region]
Yes No Yes No
0%
100%
India, South Africa and Brazil mandate cities and metropolitan areas to develop their own
mobility strategies or integrated transport plans; and even where not mandated, many cities
have drafted such documents. Only a few cities within the surveyed countries have drafted
standalone local NMT policies – in particular, within South Africa, Kenya, Ghana, India, Brazil
and Argentina. (Refer to gures above).
South Africa’s National Land Transport Act 5 of 2009 (NLTA) stipulates that every municipality
must produce a Comprehensive Integrated Transport Plan (ITP), which includes an NMT strategy.
Each province must produce a Provincial Land Transport Framework (PLTF), which must also
contain a chapter on NMT.
19
Bicycle-specic planning:
Although we received no pedestrian strategies during our research process
(pedestrians are usually subsumed under general NMT categories), a number of
countries or cities have recognized the signicant differences between walking
and cycling modes and have developed bicycle mobility strategies, such as Nigeria
(national), Cape Town (South Africa), Medellin (Colombia) and Sao Paulo (Brazil).
Santiago (Chile) (Refer to gure 7) has developed a citizen-led Cycle Strategy without
the initial national policy direction.
Sao Paulo Brasil
©Curitiba, PR
20
Monitoring, evaluation and reporting
This discussion reects on ndings from the survey as well as the policy analysis (see page 16, Key NMT
Policy Themes), and briey considers the extent to which respondents’ policies include detailed action
plans with measurable goals and reporting strategies.
A number of the NMT policies in our surveyed countries are relatively new, and perhaps it is too soon
to except a signicant impact. Nairobi’s policy was nalized in 2015; a number of the Brazilian mobility
strategies are two or three years old; and South Africa’s policy was drafted in 2008 but has not yet to be
nalized.
What is concerning, however, is that where NMT commitments have been in place for at least ve years
or more, the policy outcome or impact is insufciently measurable. Few cities or regions are able to
measure the changes they have sought to bring about in many instances because baseline data is not
available. An exception is Santiago (Chile), which has been able to show an almost doubling of its bicycle
mode share in ten years.
Few NMT commitments have been translated into action-oriented strategies (Refer to gure 7), or offer
measurable goals, indicators, monitoring, verication and evaluation plans. There is inadequate evidence
of policy success, and insufcient data by which to measure success. With the exception of Nairobi and a
number of draft South African city policies (which note that developing indicators and collecting baseline
data should be a priority action), few quantify their success criteria.
Nairobi City’s NMT Policy sets a good precedent by setting measurable targets for specic increases in
mode share, within specied time frames: from 47% to 50% for trips up to 5 km by 2025 (walking), and
from 2% to 10% for trips up to 15 km by 2015 (cycling). Further, the Policy aims to reduce the percentage
of road users who consider NMT as a mode for the poor to 40% by 2020.
The NMT Policy’s goal is to reduce pedestrian fatalities from 500 (2015 data) to 50 or less by 2025, and to
reduce cyclist fatalities from 20 (2015 data) to 5 by 2025.
Not only do vague or general goals mean success is difcult to measure, but it leaves civil society and
other interested parties less able to hold authorities accountable for making good their commitments.
Largely, when Monitoring & Evaluation(M&E) is undertaken, these assess output rather than outcome
or impact (as one example, South Africa assesses performance in terms of the number of kilometers of
bicycle lanes constructed).
Nairobi differentiates between output and outcome indicators in its NMT Policy, for example noting that
the output of safe NMT crossings will lead to the outcome of reduced NMT crashes.
M&E is a key concern in Uganda’s national NMT Policy, which notes that there is very little monitoring
or assessment of existing facilities for bicyclists and pedestrians. To remedy these concerns, the Policy
commits the government to establishing a National Road Safety Authority (NRSA) and a Multi Sectorial
Transport Regulatory Authority (MTRA). ‘The Government will charge NRSA with coordinating the
monitoring of the progress of its NMT strategy and inform Government of inadequate situations.’
21
New York, USA
©Benis Arapovic
22
Does your country or relevant
national transport authority
report on its NMT successes or
challenges?
World
39%
43%
Yes No Don’t Know
11%
Does your country or relevant
national transport authority
report on its NMT successes or
challenges?
Africa
(n=13)
Yes No Don’t Know
16%
36%
46%
4%
7%
11%
14%
25%
0% 5% 10% 15% 20% 25% 30%
publically available Annual Report
other means
internally available reports or reviews only
publically available Annual Performance
media releases
NMT reporting form
0%
8%
15%
15%
15%
0% 2% 4% 6% 8% 10% 12% 14% 16% 18%
publically available Annual Report
other means
internally available reports or reviews only
publically available Annual Performance
media releases
NMT reporting form
NMT reporting type
NMT reporting type
n=sample size per region.
The survey also asked respondents to note whether they report on NMT successes or challenges, and
in what way they do so. Media releases are the most common form of reporting, and no respondent
reported publishing annual reports that included NMT successes.
23
[Figure 7: Goal Setting and Measuring by region]
Does your country or relevant
national transport authority
report on its NMT successes or
challenges?
Asia
(n=6)
50%
33%
Does your country or relevant
national transport authority
report on its NMT successes or
challenges?
Latin America
(n=4)
Yes No
50%
50%
0%
0%
17%
17%
33%
0% 5% 10% 15% 20% 25% 30% 35%
publically available Annual Report
internally available reports or reviews only
other means
publically available Annual Performance
media releases
NMT reporting form
0%
0%
0%
0%
50%
0% 10% 20% 30% 40% 50% 60%
publically available Annual Report
other means
internally available reports or reviews only
publically available Annual Performance Review
media releases
NMT reporting form
NMT reporting type
NMT reporting type
17%
Yes No Don’t Know
n=sample size per region.
24
Generally, bicycle policies seem to be drafted with the overarching goal to increase mode share,
while pedestrians plans within general NMT commitments seem more geared toward providing
for those who already walk, in terms of infrastructure and safety.
Yet while all policies note that NMT ‘should be promoted’ in some way, few (with an exception
of Namibia) pay attention to the complexities of behaviour change processes. The Sustainable
Urban Transport Master Plan for Windhoek, for example (2013) notes that ‘it is increasingly
important that campaigns in developing countries focus on the hard and soft measures
simultaneously, in which improved NMT facilities are provided concurrently with campaigns to
change the perception of NMT modes and users being inferior.‘
We did not source detailed strategic communication or promotional campaign materials as part
of this research process, and have made this assessment based on the policy documentation
provided or sourced.
Promotion of NMT modes
25
Where bicycle or pedestrian infrastructure has been provided within the countries surveyed,
evaluations (if conducted at all) have found them almost routinely to be of poor or haphazard
quality, disconnected and insufciently part of a network (with a few exceptions in South Africa
and Brazil), (Clean Air Nepal, 2015; Tefe, 2008; Joshi et al, 2015); Jennings et al, 2017)
Even in Curitiba, Brazil, writes Mikael Colville-Andersen, CEO of the Copenhagenize index, “much
of the bicycle infrastructure does not accommodate urban life…” The quest for livable cities in
Brazil is an urban planning battleground with polar opposite focuses on vehicle infrastructure
and bicycle infrastructure.’ João Guilherme Lacerda, consultant with NPO Transporte Ativo in
São Paulo, says “bicycle infrastructure is talked about but is not a priority”. Another problem,
besides lack of political will, is lack of expertise in cycle planning.
In Accra, Ghana, consultants (Tefe, 2008) concluded that ‘there were many design aws in
the Accra case which reduced the capacity and even rendered the track useless (with cyclists
abandoning sections and using the motor trafc carriageway).
Uganda’s 2012 NMT Policy states that ‘even recently installed NMT infrastructure such as
pedestrian crossings on highways have been incorrectly located…’
South Africa, Tanzania, Chile, China and India have drafted high-quality engineering design and
construction guidelines for bicycle and pedestrian facilities (Refer to gure 8), although these
remain guidelines rather than requirements. The UN Environment Share the Road programme
has developed NMT design guidelines for Africa, which can also be adapted for other regions.
The guidelines include pedestrian infrastructure, cycle ways, modications to the road space,
intermodal interface matters, and social infrastructure (UN Environment).
Quality of pedestrian and bicycle
infrastructure and availability of guidelines
26
Funding for NMT
Data quality and institutional capacity
This discussion reects on ndings from the policy analysis (see page 29, Key NMT Policy Themes) and
Country summaries (see page 37, as well as References, page 91).
Funding for NMT interventions is almost always a concern, although Nairobi City (Kenya) has taken the
bold step to commit to ensuring that at least 20% of its existing and future road construction budget is
allocated to NMT and public transport infrastructure and services.
In South Africa, the funding of NMT infrastructure is facilitated through the Public Transport Infrastructure
and Systems Grant (PTISG), administered by the country’s national Department of Transport, which
invites local authorities to submit budget proposals for development and implementation of non-
motorized transport facilities.
In Brazil, the Brazilian Urban Mobility Law (2012) requires municipalities with more than 20 000 inhabitants
to prepare urban mobility plans, and then apply for national funding.
In Mexico, respondents note that funding is still skewed in favour of private vehicles - in 2011, 66% of the
total resources allowed to public works, went to automobile infrastructure. In comparison, 22% of the
total was allocated to public space, public transport and cycling infrastructure (ITDP, 2012).
In order to understand data quality and institutional capacity, our survey asked questions regarding
the collection of national household travel data, mode share and fatality data, and whether institutions
employed staff solely responsible for NMT
Overwhelmingly, data is a substantive gap in NMT planning, and transport planning in general, in
developing cities (see for example Bruun, 2016; and SSATP, 2015). Very few of our survey respondents
reported collecting household travel survey data, or were able to provide evidence that they report on
actions and outcomes. Few were able to provide analysis of user needs, details of mode share, or fatality
data (with Ghana and Nairobi being notable exceptions). Yet this is key to evidence-based planning, and
the revising of policies and programmes.
Data was a challenge for our research team when preparing the index and analysis. Many of the survey
entries were partial, and we have attempted to verify and supplement information through online
searches using both scholarly and general searches. Only a few respondents uploaded documents by
which we would verify the information provided. This work largely reects the data and information
provided by country respondents. We thus acknowledge that the summary of ndings presented here
might not reect the accurate or most recent picture – and we look forward to preparing an updated
report.
27
n=sample size per region.
[Figure 8 : NMT planning capacity, by region]
n=sample size per region.
[Figure 9 : countries collecting household travel survey data,by region]
Yes No Don’t Know
Yes No Don’t Know
Africa
(n=13)
8% 15%
77% Asia
(n=6)
67%
Latin America
(n=4)
25%
75%
8% 38%
54% 66%
17% 25%
75%
33%
Does your relevant national transport authority employ an
ofcial who is solely responsible for NMT?
17%
Does your country conduct a national household travel survey?
Africa
(n=13)
Asia
(n=6)
Latin America
(n=4)
28
NMT index and method
Method
We used the survey data collected (see page 31 for detailed method) to draft an index that we
hope will help to better understand the relationship between the level of policy commitment to
NMT and the safety of NMT users within a country.
Our survey questions were designed to provide data for two ‘axes’ on the index: NMT commitment,
and NMT performance. Our survey also attempted to solicit responses that indicate the degree
to which countries exhibit political will; have drafted clear, measurable goals and engage
supportive policies, trafc-calming and vehicle-reduction programmes. Answers were given a
weighting (using a pair-wise comparison method over a ve-scale rating).
Axis description
What is the level of commitment a country displays toward NMT?
How safe, pleasant and acceptable is it to use NMT in each country?
Questions related to the number and type of NMT standalone and supportive policies and other
commitments:
Questions related to the day to day reality for people walking and cycling:
Indicators
Indicators
Policy and planning
Performance
• Evidence-based planning
• Monitoring
• Evaluation and reporting method
• Institutional capacity and nancing
• Local-level planning
• Civil society involvement
• NMT fatalities per 100 000
• Quantity of bicycle infrastructure
Argentina
Singapore
Austria
Denmark
Turkey
Latvia
Portugal
Hungary
Brazil
Chile
South Korea
Colombia
Nigeria India
Nepal Bangladesh
Namibia
Ghana
Rwanda
Kenya
Mozambique
Cote d’Ivoire Uganda
Madagascar
Zambia
Tanzania
South Africa
Malawi
Weak performance, weak policy
Strong performance, weak policy Strong performance, strong policy
Weak performance, strong policy
0%
0% 50% 100%
25% 75%
50%
100%
25%
75%
Policy and planning
Performance and Implementation
29
[Figure 10: Depiction of the intersection between NMT performance/action NMT commitment]
Key
Respondents were asked "does your city have a formal public transport implementation programme?"
- % YES - % NO
NMT Index
1
3
2
4
30
Discussion
Every country included in this report exhibits at the least an interest in NMT, and has some form of
national commitment or plans to develop a national policy. Nevertheless, Denmark nds itself alone in
the very top right quadrant (one), which is not surprising. Denmark, one of the safest and most pleasant
countries to walk or cycle in, along with a number of other countries from the developed world, was
included as a proof of concept to validate the model.
South Korea, Chile and Colombia have been earning a reputation as countries to watch for best practice
within the developing world context, and this matrix bears this out.
India, Uganda, Tanzania and South Africa have relatively strong national policy environments (including
design guidelines and supportive policies), and Uganda and South Africa each have a standalone national
NMT policy. Thus, because of the way in which expert panel weighted the data (see page 34 for detailed
method), these countries cluster toward or within the ‘strong policy commitment’ half of the matrix.
However, each scores low in terms of NMT performance (both rank high among countries in which
NMT users have a beyond acceptable risk of fatality), and therefore fall into the lower quadrant (strong
policy commitment but weak performance). South Africa and India are the only two countries to fall
squarely within the lower right quadrant, quadrant four. Although together with many of their cities,
these countries publish a signicant number of NMT policies, plans, regulations and other supporting
publications, and a high level of NMT planning is required from provinces and local authorities (a high
policy commitment), their roads remain among the most dangerous globally for pedestrians as well as
cyclists, with a relatively unchanging high fatality rate (low NMT performance).
If a higher weighting had been given to countries with city NMT policies then Kenya, Namibia and Brazil
would have shifted further toward quadrant four.
Each of the countries in quadrant three (weak NMT performance and weak policy commitment) has
lower levels of motorization and urbanization than South Africa and India; this may account for their
lower fatality rates. In addition, South Africa is burdened with the spatial legacy of apartheid, which sees
pedestrians using freeways (highways) as crossings (with high fatality rates – Behrens, et al). Malawi has
an exceptionally high rate of bicycle transport (as much as 90% of wheeled transport on rural roads are
cyclists); therefore the higher rate of fatalities is not unexpected. Nuanced data that would have enabled
us to combine risk ratio, fatalities per trip, and levels of motorization, would have enable a more ne-
grained analysis.
Our ndings therefore, despite the limitations of the study, suggest that the NMT policies and plans in
developing countries have not yet made sufcient impact, or been inadequately enforced, implemented
or assessed for effectiveness, as the risk for NMT road users remains unacceptably high. NMT planning
is relatively new in the developing world, and we recognize and support the emerging interest and
commitment to this mode.
31
Of particular interest to us was the role quality public transport, public transport transformation or
improvement, or Bus Rapid Transit (BRT), might play in pedestrian and cyclist safety, or as a catalyst
to NMT planning. The characteristics of BRT as a concept inherently give it the potential to serve
marginalised road users, and as a surface mode (rather than rail) are able to be better integrated with
urban space and non-motorized transport (NMT) facilities (Venter, 2013). BRT is widely held to improve
road safety on and around trunk corridors. Around an 88% reduction in trafc fatalities has been reported
in the Transmilenio corridor (Venter, 2013).
Tiwari and Jain (2012) have estimated the impacts of the Delhi BRT on accident risk for cyclists and
pedestrians, showing that risk has been reduced to near-zero for cyclists and bus users, but that
pedestrians are still at risk from motor vehicles.
We asked respondents to answer whether their country either had public transport transformation plans,
or had recently enacted public transport improvements. The chart below overlays countries reporting
public transport improvements upon the above index, suggests that the assumptions above have validity:
an emphasis on improving public transport access seems to correlate with a safer NMT environment.
Public transport transformation or improvement
Sao Paulo Brasil
©Curitiba, PR
32
People who walk, cycle and use two- and three-wheelers are the most vulnerable group
of road-users. The majority of people killed on Africa’s roads are young breadwinners
(62% are between the ages of 15 and 44, and three out of every four deaths are males).
(Jobanputra, 2013; Ogendi et al., 2013; Masaoe, 2013). Yet women, children, the elderly and
the disabled face additional challenges, with the hardships that transport-disadvantage
brings. These vulnerable groups have poor mobility overall, which inuences their
access to health-care, education and other economic opportunities; they are less able to
access and afford transport facilities, make use of the facilities that do exist, purchase
intermediate transport vehicles or bicycles, or make use of Non Motorized and Intermediate
Modes of Transport [NMIMT] vehicles to earn a living and improve their mobility.
A number of African, Asian and Latin American policies pay particular attention to the
needs of these vulnerable users. Here we focus on African policies:
South Africa’s NMT Policy (draft, 2008) is explicit that NMT policy should serve marginalized
people, which it denes as women, the disabled, children, rural communities and the
poor. The policy notes the all-encompassing role of transport in a society: ‘a key indicator
in social, political and economic development, transport is not simply about mobility and
infrastructure, but also about socio-cultural roles and responsibilities that impede the
development of women and girls, including the impact on women and children accessing
health services, educational facilities and employment, as well as participating in key
decision-making forums.’
The rights of people with disabilities are protected by the country’s constitution. When
it comes to mobility planning for people with disabilities, South Africa tries to serve the
broadest denition of disability, which includes people with prams, pregnant women,
children, people accompanying children and walking in groups, elderly people, people
with disabilities and people carrying or moving loads), cyclists and Animal-Drawn
Vehicles (ADVs). This type of planning approach is usually referred to as Universal Access
or Universal Design.
Universal Design [UD] principles are also central to Uganda’s National NMT Policy (2012),
to ‘ensure that there is appropriate pedestrian access everyone, including the elderly,
men and women in wheelchairs, people with small children and those with various
disabilities, including mobility problems and visual impairment.’
The policy goes as far as to remind planners that UD features such as ramps, hand-rails,
Focus on vulnerable groups in African NMT policies
33
a lack of obstructions, and clear signs,have a negligible effect on overall costs when
included at the design stage’ and that these must be included in all new and refurbished
NMT transport infrastructure.
In Ghana, the National Transport Policy (2008) commits the state authority to consider
‘accessibility for women, children, the aged and physically challenged’ in transport
facilities.
Malawi and Zambia, which like Ghana has a large rural population, are committed to
ensuring that the rural transport needs of women and other vulnerable groups are met
(Malawi National Transport Policy, draft, 2014; Zambia’s Rural Accessibility and Mobility
Programme), through promoting access to NMIMTs, and to ensure that NMT facilities
are sufciently integrated to serve the needs of women, children, the elderly and the
disabled.
Kenya’s national and local policies recognize that women and girls are more likely to fall
into poverty because of their lack of access to transport facilities and options.
The Integrated National Transport Policy (2009) notes that the transport burden is borne
mostly by women and girls, and that there is ‘an urgent need to balance the load by
reducing women’s time spent on transport activities around the village, such as fetching
water, collecting rewood, trips to market centres, health clinics, grinding mills, and the
time spent on harvesting.’ The policy proposes, in particular, to ensure that NMIMTs are
therefore more accessible to women.
Nairobi’s NMT Policy (2015) highlights the fact that women and children have difculties
travelling without assistance, and that more than other road users, fear being robbed and
harassed. The elderly, children and people with disabilities are other users vulnerable
to criminal attack and anti-social behaviour. When planning NMT routes and facilities,
safety and security needs therefore need to be carefully attended to.
Namibia’s Sustainable Urban Transport Master Plan (SUTMP, 2013) is especially detailed
when it comes to NMT planning and education facilities, and challenges motorists to
understand that children are relatively unpredictable and that due to their size, are
difcult to see. ‘As such, it is necessary to design a forgiving NMT network in the vicinity
of this vulnerable user group, to accommodate safe travel to and from school. This will
include facilitating physical separation from moving trafc where possible and crossing
priority over vehicles.’
34
Figure 12: The ratio of women:men killed in road-trafc related deaths (not only NMT related). The rst
column shows the ratio of female:male road fatalities; the second two columns show the number per
100 000.
Source: Age-standardized death rates (15+ years), road trafc accidents, per 100 000. Adapted from World
Health Organisation, 2012. Global Health Observatory data repository. Accessed on 30/08/16
from http://apps.who.int/gho/data/view.main.53100.
Argentina
Bangladesh
Brazil
Burundi
Cote d’Ivoire
Chile
China
Colombia
Denmark
Ghana
Kenya
Madagascar
Malawi
Mexico
Mozambique
Namibia
Nepal
Nigeria
Republic of Korea
Singapore
South Africa
Uganda
United Republic of Tanzania
Zambia
1:3,47
1:3,48
1:4,65
1:3,18
1:2,23
1:4,07
1:1,96
1:4,84
1:2,88
1:2,27
1:5,75
1:2,38
1:2,77
1:4,11
1:1,48
1:1,87
1:2,15
1:2,14
1:3,20
1:3,77
1:2,94
1:2,57
1:1,36
1:2,04
7,6
7,3
11,3
11,9
17,2
5,6
15,6
7,4
2,6
18
9,1
16,7
15
6,5
22,3
18,9
18,1
25,8
6,9
2,6
16,2
25,6
29,9
20,4
26,4
25,4
52,5
37,8
38,3
22,8
30,5
35,8
7,5
40,9
52,3
39,7
41,6
26,7
32,9
35,3
38,9
55,1
22,1
9,8
47,7
65,8
40,8
41,7
Ratio Female Male
Figure 13: 65% of countries surveyed (not only in Africa) included a strong engagement on women and
vulnerable groups; 30% included some engagement, while 5% did not include women and vulnerable
groups as a separate focus.
65%
5%
30%
No focus on
vulnerable groups
Some focus on
vulnerable groups
Strong engagement
with vulnerable groups
35
Conclusions
A question we asked ourselves, and our respondents, is why, in the face of the long-standing
and growing evidence of NMT use, and the value of non-motorized travel, countries have been
slow to provide for this mode. Why does it seem that we are unable to reverse motorization and
fatality rates?
A key government ofcial from one of Africa’s largest economies told us that ‘the use of cars …
is based on a colonial legacy of associating motorized transportation with education, afuence
and elevated status in society. Therefore, the attitude towards NMT tends towards negativity.
Thus the use of bicycles, walking and wheeling are associated with the poor.’ This is echoed by
work conducted in South Africa, by the National Department of Transport and the Council for
Scientic Research (CSIR): ‘No one wants to be associated with poverty’ (Mashiri et al., 2013a).
Nigerian transport ofcials have described to us how ‘acquiring a car is a goal for most citizens
who believe riding a bicycle [or walking] is less safe, less convenient, and less attractive, making
the forecast decline of NMT a self-fullling prophecy….’
This is of course not unique to the African continent. Mikael Colville-Andersen suggests that
many other larger cities [in Latin America] see building motorways a sign of progress. As Joshi
& Joseph have described the situation in India: ‘The marginalisation [of NMT] is seen in the
backdrop of an emerging automobile culture linked with rising incomes, post-liberalisation and
skewed notions of modernity. The continued dominance of motorized modes seeks to claim a
larger share of road space mirroring the social power structure.‘
Before beginning this survey and analysis, we undertook a literature review to better understand
the essential components of an NMT policy, and the core actions required in order to create an
enabling environment for better walking, cycling and other NMT modes.
The literature suggests that a combination of both standalone and integrated NMT policies;
political will; clear, measurable goal-setting as part of local strategies; a variety of supporting
policies; and trafc calming or speed- and vehicle-reduction interventions; will produce cities
and countries where walking, cycling and other NMT modes is signicantly more safe, attractive,
comfortable and desirable.
36
Five recommendations for national and city policy makers
to save lives, reduce pollution and get cities moving
Introduce a national or city NMT policy if you don’t have one. Use our
policy checklist as a guideline on what to include. If you do have a
policy do you need to revise it?
Set aside at least 20% of the total transport budget to fund NMT
programmes at national and city level.
Set quantiable and measurable goals, then collect the data you need
and evaluate your success. If you don’t know if and how your policy
is working, you won’t know whether you are heading in the right
direction. Have the courage to change course.
Access and mobility affects everyone and almost every area of our
lives. So include a diverse range of stakeholders in your planning
and implementation. Ask users where they walk or ride and what
they need. Pay particular attention to more vulnerable users, such
as women, children, the elderly and people with mobility challenges.
Don’t try to replicate what other cities or countries do without taking
your local context into account
‘Political will’ is not only about developing and implementing policies,
but about actively championing NMT as a mode of equal status to
private cars... For as long as NMT is seen as a low-status alternative,
it will not receive the road space, budgets and attention it deserves.
Note
These recommendations are based on the research presented in the key ndings section, the survey, literature review and policy content
analysis, and refer specically to ways in which to strengthen the NMT policy environment and impact. For general NMT recommendations
and infrastructure guidelines please refer to www.unep.org/Transport/sharetheroad/.
Take the rst step
Budget for NMT
Measure the Miles
Work Together
Do as you say
37
COUNTRY SUMMARIES
Introduction
The summaries that follow briey describe the key NMT commitments and policy goals or policy
statements of 28 countries from Africa, Asia and Latin America. These countries are included either
because respondents provided detailed information or the policy documentation itself. The full policies
and documents are available for download, and further details can be found on page 92, References.
Each summary includes an indication of the country’s national NMT commitment, local NMT commitment,
and the status of civil society involvement.
A table indicating mode shares and fatality rates of each country is included on the following page. Each
country of which there is a summary is included in the table, even if no mode share or fatality data is
available.
An icon (see Legend on page 39) indicates the NMT status of each country, for example, whether the
country has a standalone NMT policy, an NMT chapter in a general transport policy, a regional NMT
plan, a bicycle-specic policy, etc.
38
Non-Motorized Transport and walking in particular, is the major mode of transport in all
countries surveyed (with the exception of Singapore), with mode shares of between 20-65%. In
African cities, cycling is a minor mode, with shares of less than 1%-5% (with the exception of
rural Malawi, Zambia and Burundi). In Asia and Latin America the share of cycling higher and
in some Chinese cities, as high as 60%. Cycle rickshaw travel is a signicant mode in Indian and
Bangladeshi cities (e.g. 29% in Dhaka).
COUNTRY OVERALL NMT
MODE SHARE
APPROX. MODE
SHARE: WALKING
APPROX. FATALITY
RATE: WALKING
APPROX. MODE
SHARE: CYCLING
APPROX. FATALITY
RATE: CYCLING
Burundi
Cote d’Ivoire
Ghana
Kenya
Madagascar
Malawi
Mozambique
Namibia
Nigeria
Rwanda
South Africa
Tanzania
Uganda
Zambia
60% (Bujumbura)
*
73%
49%
*
46%
22%
30%
50%
45-70% (Dar)
50%
56%
15%
2%
5%
14% (country)
*
14-17% (country)
*
*
*
*
3%
11% (country)
8%
12%
80-90%
(rural)
*
9%
2% (Nairobi)
*
80-90% of trafc
on rural roads are
bicycles
*
1% (Windhoek)
*
*
0.5-2%
*
*
*
60% (Bujumbura)
*
64.4%
47% (Nairobi)
*
47% (country)
*
21% (Windhoek)
*
*
30-60%
*
50%
40%
*
35%
42%
47% (country)
*
49% (country)
*
35% (country)
30%
*
50%
31% (country)
40%
37%
NMT Modal Share and Fatality Rates
Africa
39
Singapore
South Korea
Argentina
Brazil
Chile
Colombia
Mexico
*
28%
*
28-47%
*
*
*
*
26.7
*
*
39% (Santiago)
*
*
27%
39%
10%
20%
39%
29%
30%
*
1.7 %
*
*
3.9% (Santiago)
5% (Bogota)
*
9%
5%; 16% motorized
two-three wheelers
2%
3%
8%
5%
1%
COUNTRY OVERALL NMT
MODE SHARE
APPROX MODE
SHARE: WALKING
APPROX FATALITY
RATE: WALKING
APPROX MODE
SHARE: CYCLING
APPROX FATALITY
RATE: CYCLING
*General or disaggregated data not available as part of the comparable WHO dataset.
[Figure 1: NMT Modal Share and Fatality Rates]
Latin American
Bangladesh
China
India
Nepal
50-70%
65%
40-70%
42.5%
2-11%%
8%
4% (bicycles) 34%
two-three wheelers
50-60% (bicycle
rickshaw) 4-7%
bicycle
11-55%
11-21%
1.5%
20-30%
30-65%
40-50%
40%
32%
26%
9%
49%
Asia
40
Legend
Active civil society
& social enterprise
Bicycle-specic
policy
Bicycle
Infrastructure
University
bike-share
Bike-share
City
NMT plan
Regional
NMT plans
Pedestrian Priority
Programme
Chapter in a
general policy
Standalone national
NMT policy
Thinking about
NMT
Design
guidelines
41
COUNTRY SUMMARIES:
AFRICA
Kikuyu Town
Nairobi, Kenya
©Sticks&Stones
42
Burundi
Burundi
Bujumbura
National commitments
In 2015, with the assistance of UN Environment Share the Road, the Ministry of Transport,
Public Works and Equipment undertook an environmental and social impact assessment for an
NMT pilot corridor in the capital city, Bujumbura.
Ultimately, the project aims to develop a national NMT Plan, increase national coordinated
capacity in NMT planning and air pollution management, and dramatically improve the road safety
record of the country. The country is preparing a budget for an NMT design study, and already
its roads policy indicates that at least 1.5 m must be set aside for pedestrian and bicycle use.
Burundi has developed a National
Capacity Building Project and
Non-Motorized Transport
Development project document
(2016), which plans to integrate
NMT, public transport and
individual motorized transport to
improve the efciency of urban
mobility, and to encourage a
change in attitude toward NMT
and public transport.
43
Côte d’Ivoire
Côte d’Ivoire
Yamoussoukro
Abidjan
National commitments
Pedestrian facilities are inadequate or non-existent, and the number of crashes in which
pedestrians are involved has been increasing noticeably over the years. In 2015 the Cote d’Ivoire
Ministry of Construction, Housing, Sanitation and Urban Development (MCLAU), together with
JICA (Japan International Cooperation Agency) produced a document titled Project for the
Development of the Urban Master Plan in Greater Abidjan. Concerns about pedestrian safety
and urban quality are frequently raised in the document, with the directive to provide facilities
such as crosswalks, pelican crossings, and pedestrian bridges/underpasses. In addition, narrow
or poorly maintained sidewalks along the urban roads are to be improved.
Within the section on residential design, the urban master plan proposes the development of a
network of sidewalks and bicycle paths that provide interior circulation, as well as connections
to nearby schools, shops, or other activity centres.
The Cote d’Ivoire urban
master plan in greater Abidjan
recognizes both walking and
cycling as key feeder modes
to public transport, and notes
that linked networks ‘should
be easy to access, aesthetic,
clean and safe.’ Transit malls
and ‘walking streets’ are to be
promoted.
44
Accra
Ghana
Ghana
In Ghana, ‘cycling is socially not seen as an acceptable means of mobility, and conditions for
pedestrians are not conducive, as road infrastructure design does not provide for safe and
passable sidewalks’ (SSATP,2014). Infrastructure for NMT in urban centres and schools is
inadequate. There are also a lack of safety measures for IMT operators, hawkers and others
who make use of the few available facilities.
National commitments
Ghana has in recent years undertaken steps to developing an NMT policy framework, although
NMT policy is scattered across a number of policy documents. A range of different agencies and
Ministries are responsible for their implementation and delivery.
NMT Infrastructure shall
be developed to improve
affordability and accessibility
for urban and rural
communities – aiming for
10% of passenger movement.’
(National Transport Policy
2008)
45
Local commitments
The municipal assemblies (local governments) of Tema & Ashaiman, Sekondi-Takoradi and Accra have
prepared Active Mobility (NMT) master plans.
This National Transport Policy (2008) recognizes the value of NMT as a mode that ‘alleviates
congestion, cuts travel time, increases mobility at low cost, promotes tness and is environmentally
sound.’ In a chapter dedicated to NMT, the Policy states that: ‘NMT Infrastructure shall be
developed to improve affordability and accessibility for urban and rural communities – aiming
for 10% of passenger movement.‘ Strategies include raising awareness of the benets of NMT
among drivers and potential users, an analysis of user needs, the provision of regulations, NMT
facilities and bicycle credit schemes, and stricter safety enforcement.
The vision for draft urban transport in Ghana (Urban Transport Policy Framework of the Urban
Transport Policy 2008) is ‘an affordable, safe and efcient urban transportation system that
supports the overall development and competitiveness of the urban area.’ As part of this policy
there are also a number of NMT-supporting policy statements.
Further, the National Road Safety Policy also focuses on the safety of pedestrians, cyclists and
other vulnerable road users (e.g. motorcyclists).
In October 2015 the Ghana Ministry of Transport and National Road Safety Commission launched
a stakeholder engagement process with the aim of developing a standalone national NMT policy.
46
Kenya
National commitments
The Kenya Urban Roads Authority (KURA) is mandated to oversee and implement NMT infrastructure
and planning, and to advise the Ministry of Transport and city authorities how best to provide NMT
facilities. However, according to respondents, NMT provision remains poor and insufcient.
Within the Kenya Ministry of Transport: Integrated National Transport Policy (Moving a Working Nation)
(2009), there is a chapter with specic reference to NMIMTs (non-motorized and intermediate means of
transport).
The Policy recognises that NMIMTs are already in use in various parts of the country, but that ‘no action
has been taken to integrate them into the national transport network so that they can effectively play a
complementary role to road and other transport modes for both passengers and goods.’
The National Trafc Act provides for all Local Authorities (county governments under the Kenya
Constitution, 2010) to develop by-laws for managing trafc, while agreements between the government
and development partners have enabled the agencies to support the city urban mobility projects
(Mitulllah et al, 2016).
The Vision of the Nairobi
City County Government
is to be a County where
NMT is the mode of
choice for short and
medium trips.
Local commitments
There have been several cycles in the development of specic walking and cycling policy in Kenya. The
City Council of Nairobi (CCN) Strategic Plan for 2006-2012 did not provide for NMT, although it indicated
that the road network would be enhanced (Mitulllah et al, 2016). However, with support from UN
Environment, the Nairobi City County Government launched a NMT Policy in March 2015.
Nairobi
Kenya
47
The expected output indicators are:
• Increased NMT space coverage
• Increased services along NMT
facilities
• Safe NMT crossings (street
signals, footbridges,
underpasses, marked
crossings)
• Better designed streets
• Improved NMT user satisfaction.
The expected outcome indicators
include:
• Increased modal share of
cyclists and public transport
• Reduced NMT crashes
• mproved multi-modal network
that includes pedestrian
walkways & cycling lanes.
The overall objectives of this policy
are to:
• Increase mobility and
accessibility
• Increase transport safety
• Improve amenities for NMT
• Increase recognition and image
of NMT in Nairobi County
• Ensure that adequate funding/
investment is set-aside for NMT
infrastructure.
Civil society and social enterprise
In Kenya there are more than ten million school-age children. Many of them have difculty getting
an education due to distance. 10,6% live too far from school while 50% live 3+ miles away. One in 10
never completes primary school. Walking long distances increases tardiness, fatigue and absenteeism.
Decreased attendance and low enrollment are particularly acute for girls who carry the burden of
household chores.
In 2015, World Bicycle Relief distributed 3 000 sturdy bicycles to 22 schools across three counties in
partnership with the Ministry of Education and World Vision Kenya. Locally formed Bicycle Supervisory
Committees select the students most in need and oversee bicycle use.
Now students with bikes arrive at school on time, safe and ready to learn. Other family members use the
bicycle to ferry garden produce to market, transport the sick to health facilities, access water and mills,
and visit distant relations. In Kenya, distance is one of the main reasons students drop out of secondary
school.
At least one eld mechanic for every 100 bicycles has been trained to maintain the bicycles and provide
spare parts. This helps keep students in school and leads to increased economic opportunities for
mechanics and their families.
This Nairobi NMT Policy is an exemplar in many respects, particularly when it comes to intensive
stakeholder engagement, and developing clear indicators and goals, linking measurable outputs and
outcomes to objectives.
Nairobi’s National NMT Policy, subtitled ‘Toward NMT as a mode of choice’, aims to develop and maintain
a transport system that fully integrates NMT as part of the Nairobi transport system. It provides a clear
set of actions and aims, as well as an action and implementation plan, a pilot project/evaluate approach,
as well as a ‘quick wins package’ – ‘interventions that can be implemented in a short time using existing
general information, using small investments at many locations, and having high easily measurable
immediate impacts’.
48
Madagascar
Although data has been difcult to source about transportation in Madagascar, it is clear that NMT is a
signicant mode. Head loading, ox-carts, canoes and bicycle-travel are key modes in this largely rural
country. Poor maintenance and erosion have rendered a signicant portion of the road network (mostly
unpaved) unsafe. Transport has been widely recognized as a barrier to the provision of and access to
health services in rural areas.
National commitments
In April 2000, Madagascar adopted a comprehensive transport sector policy and strategy, which aimed to
focus on strategic planning, sector oversight and coordination, and rehabilitate transport infrastructure
to appropriate levels. The World Bank reports that unfortunately since the political crisis of 2009, there
has been little tangible progress in further transport sector reform.
Civil society and social enterprise
In February 2015, a partnership between Transaid (an international development charity that facilitates
local transport solutions) and Malagasy NGO Lalana developed a training curriculum for bicycle
assembly, maintenance, repairs and management of bicycles for community health workers – enabling
these workers to visit more people in a day, travel further, and attend to emergencies quicker.
Since 2011, the organization has also facilitated an emergency transport initiative to reduce maternal and
neonatal deaths, using non-motorized modes. The Madagascar Community-Based Integrated Health
Programme operates in 7 districts in the country. Bicycle ambulances and carts are manufactured in
Madagascar itself, as part of an ‘Enterprise Box’ project that also sells and repairs bicycles.
Madagascar
Antananarivo
49
Malawi
National commitments
Malawi’s rst Transport Policy was drafted in 1999, and revised in 2004 and again in 2014. Its goal
is to ‘ensure the development of a coordinated and efcient transport infrastructure that fosters
the safe and competitive operation of viable, affordable, equitable and sustainable transport
services.’
The National Transport Policy includes a short chapter on NMT, noting that ‘there is a need
for specic consideration of NMT users to ensure that walking and cycling are promoted as
healthy, sustainable, economical and non-polluting means of transport in both rural and urban
areas, and that the people of Malawi have the right to walk and cycle in safety.’
Malawi
Lilongwe
‘The people of Malawi
have the right to walk
and cycle in safety.’
Malawi National
Transport Policy 2014
The following policy statements
indicate the direction for NMT
planning for Malawi:
• To raise the prole of NMT in
planning and programming for
transport
• To promote incorporation of
facilities for NMTusers including
women, children, the elderly and
disabled
• To promote equality among all
road users
• To improve awareness of the
social and cultural issues
surrounding NMT
• To ensure proper maintenance
of the facilities provided.
50
Mozambique
Mozambique
Maputo
Makola
National commitments
In 2012 Mozambique adopted ProMaputo, a development
programme that also serves as an urban plan, land use and
infrastructure development policy for its capital, Maputo,
and neighbouring Matola. In 2014 Mozambique formulated
a Project for the Comprehensive Urban Transport Master
Plan for the Greater Maputo, which addresses the lack of
policy and plans for a public transport network and road
improvements, and includes a pre-feasibility study for priority
projects identied in the master plan.
The Master Plan has a vision to provide ‘socially and
environmentally sustainable urban transport systems’. The
Master Plan does not include bicycle planning, and currently
there are no bicycle facilities.
Civil society and social enterprise
In 2015 Mozambikes (a Mozambican for-prot social venture company that customises and
develop bicycles for the local market) formed a partnership with US-based Alta Planning and
Design to prepare a Maputo Bicycling Safety and Mobility Study. This study included a phase 1
pre-feasibility study for a bicycle lane network in Maputo, and the potential for incorporating
bicycle facilities within the planned BRT corridor.
51
Namibia
National commitments
In 2012, the City of Windhoek, together with the Ministry of Works
and Transport and other stakeholders, began the development
of a Sustainable Urban Transport Master Plan (SUTMP) for the
capital. The goal of the master plan was to provide for ’efcient,
affordable, equitable, safe and convenient public and NMT for
residents of the city and its surroundings’.
The SUTMP takes an unusually nuanced approach to barriers
to NMT, and pays attention to social, nancial, infrastructure,
Namibia
Windhoek
Civil society and social enterprise
BEN Namibia is a local non-prot organization (founded 2005) that imports new and second-
hand bicycles, parts and accessories from overseas partner organisations and distributes them
through local bicycle enterprises. BEN helps establish these enterprises by training local people
in bicycle mechanics and small business management, and supports them in managing their
own social enterprise, with prots used to support local grassroots initiatives such as orphan
feeding programmes and kindergartens.
As of July 2016, BEN Namibia has imported and distributed more than 47 000 bicycles through its
projects. BEN Namibia has partnered with 60 community-based organizations, mainly focused
on home-based care services for people living with HIV/AIDS and orphans and vulnerable
children. Bicycles are distributed to volunteers and staff who use them to greatly improve
the efciency of their work. Through these partnerships, the organization provides bicycles
to children living long distances from school and to low-income earners. A new project is a
bicycle-based recycling scheme, with the aim of collecting household recyclable waste using
bicycle trailers and creating more local employment opportunities.
institutional and administrative barriers to increase the use of walking and cycling. The Master
plan also includes an exceptionally comprehensive and detailed action plan and budget.
In addition, Windhoek and the Ministry are developing an NMT Strategy based on the SUTMP,
which will cover network development, quality standards, a communication/information strategy
and accompanying pilot measures.
52
Nigeria
Although around 30% of Lagos’ mobility is on foot or by bicycle, the interaction between pedestrian and
motorized vehicles in Lagos is unplanned and dangerous. There is almost no recognition of this mode,
with few segregated trafc facilities for pedestrians (such as walkways, zebra crossings, footbridges,
underpasses and signs), and bicycle lanes. As a result, pedestrians share the roadway with motorized
transport. Where efforts have been made to provide facilities, these are under-used because of poor
enforcement; many walkways are used as parking lots, trading and storage areas for abandoned material.
However, a National Cycling Policy and Strategy and a pedestrian manual do exist in draft form.
National commitments
At the federal or national level, there is no standalone policy on NMT. Such a policy will require a
paradigm shift from car-oriented to NMT systems. Nigeria has 36 states and a Federal capital;
of these, only Lagos state is consciously developing a NMT policy (see below).
The fundamental goal of Nigeria’s National Policy on Transportation (2015) is to develop an
‘adequate, safe, environmentally sound, efcient, affordable, preferred and integrated transport
system within the framework of a progressive and competitive market economy. The purpose
of the National Transport Policy is to establish a framework that can guide the planning and
development of transport activities in a systematic and sustainable manner for the social and
economic development of Nigeria.’
NMT is situated within the context of tourism, sport, and recreation, and the Policy aims to
stimulate the use of NMT for these purposes.
In the Policy’s chapter on road infrastructure, NMT (pedestrian mobility in particular) is given
prominence, with stated objectives to:
• Provide facilities for alternative modes – walking and cycling
Nigeria
Abuja
Lagos
‘Unfortunately, the more
people and cities progress
economically, the more active
transportation keeps zzling
out of existence in low-
income areas. But there are
still some localities in which
cycling is viewed with pride.’
53
Local commitments
LAMATA’s 2013 NMT and Safety plan recognizes that NMT has been usually ignored by
policymakers when dening transport plans, preferring motorized transport because they
regard it as technologically driven. This preference has orientated policies and actions leading to
an unsafe and less attractive NMT. LAMATA has committed to developing a cycling and walking
policy for Lagos in 2016’
Among the catalysts for improved NMT facilities has been the introduction of the Bus Rapid
Transit (BRT) service, where all arterial roads, intersections and the most common walking
routes towards BRT and LRT stations represent key elements for the establishment of
accessibility improvements.
Attitudes to NMT in Nigeria
Our respondents provided a vivid picture of the status of NMT in Nigeria. As Dr Anthonia Ekpa
(Director, Road Transport & Mass Transit Administration, Federal Ministry of Transport) notes, the
use of cars is based on a colonial legacy of associating motorized transportation with education,
afuence and elevated status in society. Thus the attitude towards NMT tends to be negative, and the
use of bicycles, walking, and other NMT modes are associated with the poor. As such, it is in rural
areas (villages) or semi–urban communities populated by the urban poor where the use of bicycles
is predominant. Even in such communities, the proliferation of motorcycles (popularly called okada)
and tricycles (keke) has made it increasingly difcult for Nigerians to appreciate and value NMT.
NMT has traditionally been considered as ‘not modern’ and not worth including in transportation
plans (LAMATA, 2014). ‘Many people were born into walking as a matter of necessity rather than
choice. Now, bicycle riding and walking are considered symptomatic of poverty in Nigeria. Acquiring
a car is a goal for most citizens who believe walking or riding a bicycle is less safe, less convenient,
and less attractive, making the forecast decline of NMT a self-fullling prophecy.’
And in most instances, they are right about the inconvenience of NMT. In most cities, trees are not
planted along the roads to give shade, thus hence cycling or walking under intense sun becomes
burdensome. NMT travel times are long and unproductive, while there is considerable lack of
facilities. ‘The political attitude toward pedestrians is often neglectful or hostile. Pedestrian space is
continually being eroded. The lack of policy on NMT means that motorists drive on pedestrian lanes
with impunity, thereby endangering the life of legitimate users.’
• Develop a multimodal 10-year transport network plan for major cities to include strategies
for the development of pedestrian, cycling, public transit facilities and services along the
roadway network.
The policy commits government to developing and implementing a strategy for public transport,
that walking and cycling become a desired choice of travel for residents and reducing reliance
on the private car. In addition, the Draft National Policy on Cycling 2014-2017 aims to ‘make our
cities’ roads cycle friendly, and get 20% of Nigerians cycling by choice before the end of 2016.
54
Rwanda
Kigali
Rwanda
NMT and IMT should be
encouraged ‘not only by providing
infrastructure but by ensuring that
pedestrians and other NMT users
feel safe and secure in their
environment and that services and
land use is orientated towards the
NMT network.’
The Strategic Transport Master
Plan for Rwanda, 2012
National commitments
The vision of Rwanda - Vision 2020 – is to deliver modern infrastructure and cost effective and
quality services with due regard to safety and environmental concerns.
Walking and cycling are not mentioned explicitly in the 2008 Transport Sector Policy, although there
is a clear focus on the need to improve access, contribute to poverty reduction, and reduce air-
pollution and congestion – all of which NMT is able to facilitate.
In 2011, Rwanda embarked upon a partnership with UN Environment Share the Road to develop a
concept paper for the development of walking and cycling facilities for urban and semi-urban roads
(FABIO, 2011).
The objective of the concept caper was to ‘emphasize the need for provision of NMT road infrastructure
in the urban and rural classied national road networks in Rwanda. ‘The concept paper included
ideas for improving road design for both walking and cycling and a national NMT policy.
The Strategic Transport Master Plan (STMP) for Rwanda, 2012, recognizes that Africa in general
has been lagging behind other developing regions in its adoption of NMT and IMT, to some extent
because policy makers view motor transport as the only feasible alternative. Further, planning
and decision-making processes do not take into account the mobility needs of rural people simply
because of the gap in data.
The STMP contains signicant reference to NMT, and notes that both NMT and IMT should be encouraged
‘not only by providing infrastructure but by ensuring that pedestrians and other NMT users feel safe and
secure in their environment and that services and land use is orientated towards the NMT network.’
A key strategy in the document is the reduction of pedestrian fatalities.
South Africa
Bloemfontei n
Pretoria
55
South Africa
National commitments
South Africa’s key guiding NMT document, published by the national Department of Transport in 2014,
is its NMT Facility Guidelines. This 165-page illustrated document includes information about policy and
legislation, planning, maintenance, pavement materials and draft designs.
This is not the country’s rst core NMT commitment, however. In 2008 South Africa published its rst
South Africa’s Draft NMT Policy, the vision and objectives of which are reproduced in the detailed Country
Report (online ref).
South Africa’s Transport Strategy and Action Plan (2007) is a central policy document on public transport,
noting that NMT is the key aspect of the ‘rst mile’ and ‘last mile’ of a trip. The intention is to introduce
public transport that would reduce unacceptable walking distances and improve high quality NMT links
to public transport.
Both the National Road Trafc Act 93 (1996) (NRTA) and the National Road Trafc Regulations (2000) (NRT
Regulations) make provision for NMT. In addition, the National Department of Transport is developing a
National Transport Masterplan (NatMap 2050), which will include and promote the integration of NMT
and public transport.
‘Non-Motorized Transport will
be a sustainable and stimulant
mode of transport for social and
economic development within
an integrated efcient transport
system.’
South African National NMT
Policy (draft 2008)
Cape Town
Johannesburg
Ekurhuleni
Rustenburg
Tshwane
Stellenbosch
56
In 2015, South Africa’s draft NMT Policy (2008) was included in an updated form in the
(draft) National Roads Policy, and has three primary objectives:
• To increase the role of NMT as one of the key transport modes
• To integrate NMT as an essential element of public transport and provide a safe
NMT infrastructure
• To allocate adequate and sustainable funding for the development and promotion of
NMT.
Local commitments
100% of the national government’s NMT budget is spent on policy development, as infrastructure and
other supporting work is delegated to provincial or local authorities.
In South Africa, the cities of Cape Town, Ekurhuleni, Johannesburg, Rustenburg, Tshwane, and
Stellenbosch each have prepared a number of standalone NMT commitments, as have the provinces of
the Western Cape and Gauteng. These are available online, and beyond the scope of this report, which
selected only one city for detailed discussion.
Civil Society and social enterprise
South Africa is well served by civil society organisations that focus on NMT (mostly cycling. One such
organisation in Qhubeka (qhubeka is a Nguni word that means to carry on, to progress, or to move forward),
which supplies bicycles to people who need them, in return for work done to improve communities, the
environment or academic results.
Research by Statistics South Africa indicates that 11 million out of a possible 17 million students in South
Africa walk to school, with ‘walking all the way’ being the primary means of travel. Of students walking to
school, half a million walk for more than an hour – up to 6 km each way – thus impacting concentration
and learning ability.
The challenge of distance results in increased tardiness, frequent absenteeism, exhaustion and often
the complete withdrawal of the child from the education system. Bicycles are the most effective and
economical method of quickly addressing this problem.
Research by Statistics South Africa indicates that 11 million out of a possible 17 million students in South
Africa walk to school, with ‘walking all the way’ being the primary means of travel. Of students walking to
school, half a million walk for more than an hour – up to 6 km each way – thus impacting concentration
and learning ability.
57
Over 60% of students who walk to school in South Africa are in the lowest income group and rural
students (8,1%) are more likely than urban (3%) or metropolitan (2.7%) students to walk more than 60
minutes to school.
The challenge of distance results in increased tardiness, frequent absenteeism, exhaustion and often
the complete withdrawal of the child from the education system. Bicycles are the most effective and
economical method of quickly addressing this problem.
• A child’s commute time to school is reduced by up to 75% with a bicycle
• A bicycle increases a person’s carrying capacity by ve times
• Healthcare workers can visit more than double the amount of patients per day with a bicycle
• Marks improve by an average of 25% for children who ride a bicycle to school
• Schools where children ride bicycles see attendance rates rise by 18% on average
Durban, South Africa
©lcswart
58
Tanzania
Deteriorating road infrastructure means that the conditions are unpleasant for walking and
cycling. In some parts of the city, sidewalks for NMT are almost non-existent, and even where
they do exist they are occupied largely by parked cars. The sidewalks are generally not paved,
which creates a poor walking environment and leads to pedestrians walking in the road (Bruun
et al, 2016).
National commitments
In 2011 a new national transport policy was drawn
up with support from International Development
(DFID), which supported public transport,
BRT and land use planning, and facilitated the
establishment of Dar es Salaam Urban Transport
Tanzania Dar es Salaam
Authority (DUTA) as a central coordinating body on urban transport issues. The World Bank is now
funding the introduction of the BRT system named DART (SSATP, 2015).
This Draft National Transport Policy emphasizes rural NMT and IMT modes as well as urban pedestrians.
It makes no mention of bicycle transport.
One of its policy objectives, under the chapter on rural mobility, includes the promotion of rural mobility
‘through [the] introduction and adoption of different forms of NMTs / IMTs, and provision of complementary
safe and affordable motorized rural transport services for all rural communities.’
The Policy commits government to promote ‘developing and facilitating the introduction and adoption
of NMTs / IMTs for short distance travel and transport in rural communities… [and the] provision of safe
and affordable long-distance motorized travel and transport services penetrate all rural communities.
The NMTs/ IMTs will be publicised and, where appropriate, their initial adoption will be supported with
technical advice and nancial loans.’
Under the chapter on improving and managing the urban road network, the Policy commits government
to ‘improve the road network together with improved pedestrian facilities and at the same time enhance
management of the urban road network, especially in Dar es Salaam and emerging cities.’
The Tanzanian government is
committed to ‘improv[ing] the
road network together with
improved pedestrian facilities
and at the same time enhance
management of the urban road
network, especially in Dar es
Salaam and emerging cities.’
Tanzania National Transport
Policy (2011)
59
Uganda
Kampala
Uganda
Walking and bicycling are healthy,
sustainable, economical and non-
polluting means of transport:
the citizens of Uganda have the
right to walk and cycle in safety,
while conforming to appropriate
regulations, in their pursuit of work
and family tasks and in accessing
social and economic activities and
services.’
Mission statement: Uganda National
NMT Policy, (2012)
Despite increasing motorization in Uganda, non-
motorized transport modes are still the main
means of transport in the country. The majority of
people of Uganda do not use motorized transport
daily, but depend on walking, carrying and the use
of bicycles for their basic livelihoods and access requirements. Walking and
cycling are extremely important for rural people to access water, fuel, wood,
elds and livestock, education, health and work.
This increasing motorisation, combined with inadequately maintained infrastructure, has made NMT
unsafe, in both urban and rural areas. The needs of NMT are routinely omitted from the designs of
road improvements (NMT Policy, 2012). Roads were designed (if at all) and constructed without taking
into account the needs of pedestrians and non-motorized vehicles. As a result of low density, poor
residential areas and lack of roads, many people have to walk long distances in order to be served
by public transport. Both bicycles and motorcycles are used as a mode of for-hire transport, either
for passengers or goods, and it is common to see a bicycle carrying a load twice the size of the rider.
60
National commitments
Uganda has a National Transport Master Plan (2008) which sets a 15-year scenario for future
development and management of the transport sector, including a transport sector investment
plan, and an outline of the required institutional and regulatory framework and its implementation.
National NMT Policy (2012) – Uganda
In October 2012 the Uganda Ministry of Works and Transport published a standalone NMT,
which notes that NMT is the most popular means of transport in Uganda, but ‘also the
most unsafe’. This policy attempts to redress this through the achievement of the following
objectives:
• Increase the recognition of walking and cycling in transport, planning, design, &
infrastructure provision
• The provision of safe infrastructure for pedestrians and cyclists
• Resources for walking and cycling in being mainstreamed in agencies’ nancial planning
• The development and adoption by all agencies of universal design standards that provide
for access to all sectors of the community
• An improvement in regulation and enforcement to enhance safety for pedestrians and
cyclists.
The policy also pays particular attention to Universal Design, and notes that everyone has
the right to the road, as ‘the hierarchy of presumed rights has no legal or moral basis and
cannot be justied. Further, it states that ‘men and women have equal rights to own and use
bicycles and that gender discrimination should be actively discouraged.’
Among other commitments as a result of the policy, national government of Uganda will
now require that:
• All national road designs, and related infrastructure such as bridges, should include
a non-motorized transport statement explaining how the needs of pedestrians and
cyclists have been incorporated into the designs. This should include a statement as to
the adequacy of the hard shoulder width close to trading centres.
• All relevant construction and maintenance contracts should require a NMT statement
explaining how the needs of pedestrians and cyclists should be incorporated into the
works. Government will require the relevant bodies to verify that there is compliance
with these requirements.
61
Monitoring and evaluation is a key concern in the Policy, which notes that there is very little
monitoring or assessment of existing facilities for bicyclists and pedestrians. To remedy these
concerns, the Policy commits government to establishing a National Road Safety Authority
(NRSA) and a Multi Sectoral Transport Regulatory Authority (MTRA). ‘The Government will
charge NRSA with coordinating the monitoring of the progress of its NMT strategy and inform
Government of inadequate situations.’
The Policy actively encourages the involvement of both civil society and the media, who should
be ‘encouraged to engage in the process, identify problems and encourage appropriate
solutions.’
The Policy proposes that every relevant public organization should have a designated ofcer
responsible for reporting NMT issues relating to that organization. Their concerns should
include facilities for pedestrians and cyclists within that organization (for staff and visitors)
and the work that the organization does that is relevant to pedestrians and bicyclists
Civil society and social enterprise
Bicycle-share for university students in Kampala
As part of a project called Promoting Cycling in Kampala, funded by UN Habitat and the Dutch
Cycling Embassy, a pilot bike-sharing scheme was introduced from 2013 at Makerere University
campus. The local implementing partner, Uganda Sustainable Transport-Network (UST-
Network), engaged in various other activities and events such as car-free days, fun rides and
advocacy meetings with relevant authorities.
Village bicycle ambulances
In 2012, the Village Ambulance was created by Kampala-based NGO Pulse, to provide affordable,
high-quality transportation in rural areas, and is now 400 bicycle ambulances are in use in 35
districts in Uganda. The NGO estimates that for every village ambulance, two lives are saved
per week.
©Dustin McBride
Jinja, Uganda
62
Zambia
Transport has been recognized by Zambia’s national government as key to reducing poverty,
facilitating trade both nationally and internationally and as an avenue to increase access to
social services such as health and education.
Promotion of IMTs in Zambia
The focus in Zambia is on Intermediate Modes of Transport (IMTs), since rural footways and roads are
rudimentary and do not permit any motorized transport.
In Zambia the rst IMT project ran between 1998 and 2005. This project aimed to increase access and
improve the levels of ownership of IMTs. This project was known as the Rural Travel and Transport
Programme and was funded by the World Bank. According to an independent review, the project achieved
many successes, such as improving mobility of people to the markets and other socio-economic amenities
as a result of IMTs acquisition by some beneciaries. IMTs, especially donkeys, greatly contributed to
poverty reduction in terms of mobility and agricultural inputs.
The successor programme to RRTP was the Rural Accessibility and Mobility Programme, also funded by
the World Bank; it ran from 2006 to 2016. The programme had two components: Community Transport
(CTI) Infrastructure, and IMTs.
National commitments
The Transport Policy of 2002 sought reforms in the road sector and was the
result of consultations with several international and national stakeholders.
The Policy led to the enactment of laws governing
road trafc, public roads, and national road
funding.
In 2013, the then Ministry of Transport Works
Supply and Communication (now the Ministry of
Transport and Communication) started to revise
the 2002 Transport Policy due to challenges
and demands on the transport infrastructure
and service provision. A consultant was hired
to prepare a new Transport Policy and the new
Policy will be ready in 2016.
Zambia Lusaka
63
Civil society and social enterprise
Emergency transport
More MAMaZ (More Mobilising Access to Maternal Health Services in Zambia) is a programme that aims
to increase the use of maternal and newborn health services among rural communities. The programme
works through government and community-based structures, building district capacity. MAMaZ was
funded by UK Aid and was operational from March 2010 to May 2013. MORE MAMaZ is funded by Comic
Relief in partnership with TRANSAid and was implemented from March 2014 to September 2016.
The programme makes use of Emergency Transport Services, which uses bicycle ambulances to reduce
the access barrier in rural areas between communities and health facilities. The bicycle ambulances are
strong with a full canopy for privacy and protection from the elements and a canvas stretcher for ease of
cleaning and repair. They have a high ground clearance to enable easier maneuvering in rough terrain,
sand and through shallow streams.
Transport costs, including the transport of emergency cases, put a strain on often already limited district
health budgets, making emergency ambulance services difcult to sustain. Where free ambulance
services are not available the cost of emergency transportation to a referral hospital is often a barrier
to accessing health services for people living in remote rural areas. Research has indicated that a large
percentage of the three mortality rates (infant, child and maternal) could be reduced by providing or
supporting some intermediate modes of transport. More than 60% of people in developing countries
live more than 8km from a healthcare facility and the need for timely and highly responsive health care
services is made more urgent by the HIV/AIDS crisis in many countries.
©World Bicycle Relief
Lusaka, Zambia
64
COUNTRY SUMMARIES: ASIA
©Galyna Andrushko
Dhaka, Bangladesh
65
National commitments
In 2005 the government of Bangladesh formulated a Strategic Transportation Plan (STP) in cooperation
with the World Bank, and in 2010 followed this with the Dhaka Urban Transport Development Study.
The Study further recommended the implementation of pedestrian facilities such sidewalks, paths,
and trails, and proposed rickshaw improvements, such as a programme for the re-licensing of
rickshaw owners and operators and a means to improve the skills of the drivers and the quality
of the vehicles, rickshaw stands, segregated lanes and route maps. The Study proposed separate
lanes and crossings for bicycles, and supporting local industries for manufacturing bicycle to make
them affordable.
The Dhaka Integrated Transportation Study (DITS) strongly supported the use of the bicycle
as an alternative to motorized travel and as a replacement of the rickshaw. In this context, the
recommendations were the:
• Expansion of credit schemes for bicycle purchasing
• Promotion of bicycle use among students through bank credit or grants
• Strengthening NGOs working in the urban sector to encourage bicycle use (Tiwari et al, 2008).
Our project respondents are concerned, however, that Bangladesh as yet has no formal or ofcial
NMT policy commitments, and that the outcomes of the STP, above, have under the guise of
‘improvements’ at times resulted in the banning of NMT vehicles from some of the main corridors.
Bangladesh The vision for urban
transport in Dhaka is ‘it
achieves a sustainable
social and economic growth,
ensures social equity, and
ensures a healthy and
secure urban environment.’
Dhaka Urban Transport
Development Study (2010)
Bangladesh
Dhaka
66
China
Beijing
Lanzhou
Dunhuang
Guangzhou
Shenzen
Huizhou
Wuhan
Tianjin
Harbin
China
The majority of Chinese cities don’t need to promote bicycling as a mode of transport, as mode shares
are well into the double digits; ‘but they do need to defend the modal share the bicycle currently has’
(ITDP, 2010). The challenge facing the urban transport system in Chinese cities is that the modal share of
public transport and non-motorized transport modes is decreasing gradually, while private vehicle trips
increase rapidly (Tiwari et al, 2008).
Design Guidelines in China therefore recommend a network of segregated bicycle lanes, and suggest
a density of one bicycle road every 1 to 3 km, one segregated bicycle lane every 400 to 60 m, and one
painted bike lane or branch road and path to residential apartment buildings every 150 to 200 m. The
guidelines recommend that a bicycle lane be 1 m wide, adding 0.25 m where such a lane is next to a curb
or median. Planning guidance assumes that a bicycle lane will handle 1 500 bicycles per meter of the
lane width and 1 000 per hour at the intersection (Clean Air Asia, 2013).
Bike-share
• Jiangmen
• Shenzhen
• Dungguan
• Guangzhou bike-sharing scheme,
largest in the world, launched in
June 2010 along the BRT corridor
• The Lanzhou bike sharing system
opened in June 2014.
NMT improvement policies and projects
• Tianjin
(Heping District in the city center)
• Yichang
• Guangzhou
• Harbin
• Huizhou
• Wuhan
• Lanzhou
• Yichang
Complete Streets
• Yichang
• Lanzhou
• Tianjin
• Dungguan
• Harbin
67
India
Pune Hyderabad
Chennai
Mumbai
India
Indian cities have seen enormous growth and spatial expansion over the
past few decades, and daily commutes have extended signicantly (Joshi
& Joseph, 2015). Commuters have thus begun using ‘faster’ modes such
as motorcycles or motorized vehicles, although underinvestment in public
transport meant that bus eets have became less efcient. To facilitate the
mobility of private vehicles, roads were routinely widened and highways built
‘People occupy center-
stage in our cities and all
plans should be for their
common benet and well
being.’
National Urban Transport
Policy, India, 2008
at the expense of walking, cycling, or other street activities (Joshi & Joseph, 2015).
Yet despite the recent decrease in mode-share, non-motorized modes still dominate the modal share
of Indian cities, and even in the megacities (population > 8 million), the modal share of NMT ranges
between 40% and 50%.
National commitments
The Indian Roads Congress (IRC) formulated Guidelines for Pedestrian Facilities in 1989, with the basic
aim of reducing pedestrian conicts with vehicular trafc (HAD).
In 2006 India developed its National Urban Transport Policy (NUTP, 2006), which acknowledges that
there are certain sections of society, especially the non-motorized commuter groups, which face mobility
challanges.
The NUTP drafted a vision to ‘recognise that people occupy center-stage in our cities and all plans
should be for their common benet and well being.’
Among the policy objectives were to:
• Bring about a more equitable allocation of road space with people, rather
than vehicles, as its main focus.
• Encourage greater use of public transport and non-motorized modes by offering central nancial
assistance for this purpose.
The policy promised funding support and priority to the construction of segregated cycle paths, bicycle
parking and pedestrian crossings, under the Jawaharlal Nehru National Urban Renewal Mission
(JnNURM, 2005-12), to enhance safety and the use of non-motorized modes, for possible replication in
other cities.
Cities were encouraged to explore the possibilities of public bicycle programmes. Although pedestrian
and bicycle facilities were created as part of Indian cities’ BRT services, these have received criticism for
poor design.
Local commitments
In 2007 the national ministry indicated that each city is to develop a Comprehensive Mobility Plan (CMP)
focusing on the mobility of people rather than vehicles and accordingly give priority to pedestrians, NMT,
and all modes of public transport.
The Pune CMP (2008), for example, makes provision for NMT uses by committing to provide separate
bicycle lanes of at least 2 m wide. Parking may need to be relocated to make way for the NMT facilities
at certain locations.
The Master Plan of Delhi 2021 species that all roads should be made pedestrian, disabled- and bicycle-
friendly; Delhi has also developed a Bicycle Sharing Policy, and instituted a pilot project in Dwaka.
Mumbai, Vishakapatnam, Aizawl, Gurgaon each have NMT specic city plans, which may be viewed
at India’s Sustainable Urban Transport project site (www.sutpindia.com), a collaboration between the
government of India and the Global Environment Facility , 2013 In Chennai, the Corporation of Chennai
has partnered with the Institute for Transportation and Development Policy (ITDP) to build protected cycle
lanes, pedestrian plazas, and greenways. ITDP has also advised the city on the introduction of a public
cycle-sharing system. Other cities such as Coimbatore, Gandhinagar, Pondicherry, and Tiruchirapalli
have sought technical advice from ITDP to launch similar cycle sharing systems.
Hyderabad is developing a bicycle master plan as well as an NMT policy and strategy.
68
© dp Photography
Rajkot, India
69
Nepal
Though the share of NMT (walking and cycling) is signicantly high compared to other travel modes,
it has not been prioritized in urban transport planning. Pedestrians walk on narrow and poorly
maintained sidewalks, and cyclists share the roadway with motorized trafc.
A walkability study (assessment of pedestrian infrastructureand services) in 2010 showed
that 94% of surveyed road stretches in Kathmandu are categorized as‘Not Walkable’.
National commitments
In 2012 JICA (Japan International Cooperation Agency) undertook a survey to make recommendations
on trafc improvement in the Kathmandu Valley – many of these proposed improvements involved NMT.
The Kathmandu Sustainable Urban Transport Project, founded in 2015, is being implemented with
the assistance of the Asian Development Bank, and consists of four major improvement components
comprising public transport, trafc management, pedestrianisation, and air quality.
In addition, Nepal has an Environment-friendly Vehicle and Transport Policy (2014), which aims to provide
a subsidy scheme for the promotion of electric and non-motorized vehicles.
Bicycle lanes in Kathmandu
A 2.7 km bicycle lane was recently built in Kathmandu, but it is neither designed nor constructed well,
say our respondents - ‘improper network and connectivity deter the cycle uses from using the track.
Instead of using the existing cycle track, people prefer to use the carriageway.
Nepal Kathmandu
Kathmandu’s masterplan (draft, 2012) includes the following NMT recommendations:
• Separation from vehicles is crucial in the central commercial and heritage areas where walking is the
most important travel mode.
• Establish a pedestrian network plan as the most primary travel mode.
• Bicycles have the potential to become citizens’ means of daily transportation. The future masterplan
shall take into account the latent possibility of bicycle use in Kathmandu Valley.
• Promoting walking and cycling will not only contribute to decreasing the vehicles but also contribute
to improved environment in air quality and noise and to decrease the energy consumption.
70
Singapore
Singapore is known for its policies supporting public transport and congestion tax, and as a
city state that pays signicant attention to sustainability. Singapore’s Land Transport Master
Plan (launched in 2008 and updated in 2013) is a ‘people-centered’ plan that aims to achieve
efciency through multi modal integration. The focus is very much on public transport, but does
also cover walking and cycling.
To enhance pedestrian safety, Singapore has implemented pedestrian crossing lines with
enhanced dash markings, trafc calming markings and ‘pedestrian crossing ahead’ road
markings. The City has installed road studs that ash in tandem with the green crossings to
alert motorists to stop for pedestrians on the road.
Since the development of the Land Transport Master Plan, Singapore has started working
towards becoming a bike-friendly city; the initiative started with construction of 1 500 bike
parking facilities in the Mass Rapid Transit stations. This led to provision of signalized bike
crossing facilities in many junctions. The main objective was to promote bicycles as an access
mode to public transport. The Park Connector network promotes corridors and legalized the
sharing of footpaths between pedestrians and cyclists.
This initiative has led to development of a National Cycling Plan. Under this plan, the rst
strategic step is to provide off-road dedicated cycle lanes, to facilitate cycling between towns
and to connect major transport notes.
‘We will foster mutual
accommodation and
graciousness among
the public transport
commuters, motorists,
cyclists and pedestrians
who share our road space.’
Land Transport Master
Plan,
Singapore, 2013
Singapore
Singapore
71
South Korea
National commitments
In 1995 the Republic of Korea established a ‘Cycling
Promotion Law’ with an investment of 478 billion won. This
initiative was supported by a second national plan with an
additional investment of 500 billion won. (Clean Air Asia 2013).
With increasing investment and facilities, bicycling trip mode
share increased from 1.85% in 1995 to 2.4% in 2002.
By 2007 the country had enlarged cycling infrastructure such
as bike lanes and parking facilities and improving safety and
benets of cyclists. Nearly 1500 kilometers of bike paths were
available in Korea by 2009 (Clean Air Asia, 2013).
Yet despite this investment and bicycle-friendly legislation,
the level of bike use remained insufciently unchanged (Choi,
2014). To enhance the effectiveness of cycling policies, the
Ministry of Public Administration and Security developed
a ‘National Cycling Master Plan’ and encouraged local
governments to set up their own master plans and promote
cycling in 2008 (MOPAS, 2008).
South Korea
Seul
Local commitments
In 2008 the City of Seoul introduced a ‘City Cycling Master Plan’, with the aim of increasing the bike share
of transport of 1.6% in 2008 to 4.4% by 2012, and to 10% by 2020. However, meaningful increase in the use
of bikes has not yet been demonstrated (Choi, 2014).
In order to further support cycling as a transport mode, authorities under the green growth initiative
and its ve year plan have targeted an increase in bike trip mode share to 5% by 2013. Under the new
initiative, to promote bicycling, a smart phone application provides bike riders with information on such
matters as public bicycles, bike paths, and transfer points is being promoted.
South Korea’s bicycle master plan proposes the following targets for 2019
(Clean Air Asia, 2013):
• Build a total of 17 000 km of dedicated bicycle lanes and 30 000 km of bikeways (painted) in South
Korea as a whole by 2019
• Achieve 10% of bike trip mode share and achieve 30% of commuting ratio
• Decrease 30% of bike accidents
• Achieve 15% of bike trip mode share in 10 pilot cities
• Achieve 20% of bike tourism among total
• Invest 1 trillion won (approximately 0.8 billion USD) to construct bike infrastructure
72
COUNTRY SUMMARARIES: LATIN AMERICA
©Sujit Padwardhan
73
Buenos Aires, Argentina
© dp Photography
74
Argentina
Argentina’s Pedestrian
Priority Programme aims
to ‘put pedestrians rst,
make bold changes to
public spaces to strengthen
the diversity of activities,
and promote social and
functional recovery’. (2008)
Local commitments
Although Argentina has no national NMT commitment or policy, Buenos Aires as well as several
smaller towns and local governments have made a concerted effort in the last few years to
support and encourage sustainable transport modes.
In 2008, Buenos Aires developed a Pedestrian Priority Programme as part of the Healthy Mobility
initiative within the Ministry of Urban Development. It was designed to ‘put pedestrians rst,
make bold changes to public spaces to strengthen the diversity of activities, and promote social
and functional recovery’. Primary objectives were to promote pedestrian trafc, encourage
more active lifestyles and improve the environmental conditions of the city (PEARL, 2015).
In 2009, Buenos Aires launched its Sustainable Mobility Plan (Plan de Movilidad Sustentable),
aiming to improve access to daily needs, prioritize NMT and public transport, bring order to
general trafc, decrease congestion, and reduce trafc accidents and casualties (Escayol, 2015).
In line with the Sustainable Mobility Plan (www.buenosaires.gob.ar/movilidad), the city
restructured its 20-lane 9 de Julio avenue into a public transit corridor, with 100 blocks of
pedestrianisation, a 300 km bicycle network, a public bicycle system (ecobici), and a number of
pedestrian-priority intersections. Ecobici now features 200 automated stations, 3 000 bicycles
and 24-hour service.
Argentina
Buenos Aires
75
Complementing these interventions are policies that encourage the installation of bicycle
parking, education programmes, and credit assistance to purchase bicycles. Bicycle transport
now makes up 3.5% of all trips in the city. Before the construction of the separated cycle ways
and the inauguration of the bike-sharing programme, the cycling share in Buenos Aires was
a mere 0.4% (Escayol, 2015). The bike lanes are not without their detractors, though, with the
Copenhagenize index (2015) noting that many of the protected bike lanes are narrow, bidirectional
stretches along the curb.
Bicycle priority planning in Buenos Aires
In 2007 the city passed the Sistema de Transporte Público de Bicicleta law (Public Bicycle
Transportation System) that mandated the creation of a bicycle-share network together with
secure bike infrastructure (Escayol, 2015).
The Bicicletas de Buenos Aires (Bicycles of Buenos Aires) strategy identied four main focus
areas:
• To develop a network of protected cycleways
• To provide adequate and sufcient bicycle parking
• To implement a bike sharing scheme
• To promote the use of bicycles among commuters (Escayol, 2015)
By the end of 2012, the share of cycling had increased from 0.4 % to 2% (Escayol, 2015). Today,
more than 3.5 % of commute trips are by bicycle.
Soft loans to purchase bicycles
Due to import controls, high tariffs and the small scale of the national bike industry, bicycles
in Argentina can cost triple the price that they do in the US (Escayol, 2015). In 2012, the city
government made it easier to purchase bicycles via soft loans, in partnership with the state-
owned Bunco Ciudad de Buenos Aires; the programme consisted of a line of loans to nance
bicycle purchases, payable in 50 installments and with zero percent interest rates.
By the end of January 2013, the Bunco Ciudad de Buenos Aires had granted more than 3 300
loans to purchase bicycles; 200 of the loans were given to pensioners.
76
Brazil
Brasilia
Brazil
Brazil’s sprawling urban development
is particularly inequitable and
unsustainable, where workplace
and leisure opportunities are
concentrated in the central areas
while poorer people live on the periphery, with
inadequate infrastructure and amenities. This
spatial inequity causes long travel times and
distances, and are people highly dependent on
transport systems. Most motorized trips are made
by bus, but congestion, noise and air pollution
levels are high. Individual modes (such as private
National commitments
In 2003 the Ministry of Cities was created by the federal government, and within this Ministry, the National
Department of Transport and Urban Mobility was established to formulate and implement the National
Policy for Sustainable Urban Mobility. Key to this Policy was the integration of transport and urban
development policy in order to provide broad and democratic access to urban space, prioritising public
and non-motorized transport and ensuring secure, socially inclusive and sustainable mobility.
In 2012 the National Secretary of Transport and Urban Mobility and the presidency signed the Brazilian
Urban Mobility Law, with the stated goal to promote urban mobility with a safe, socially inclusive and
equitable use of public space, contributing to the construction of sustainable cities. The Urban Mobility
Law was explicit in favouring NMT at the expense of motorized transport, and public transport at the
expense of individual motorized modes.
The concept of equity is key – to ensure access of all citizens to the urban mobility system, in particular
of those with reduced mobility. This right covers both those who make use of public transport and those
who use sidewalks and crossings. The Act also commits the state to promote the use of bicycles, control
emissions, and improve enforcement of public spaces.
The law states that municipalities with more than 20 000 inhabitants should, by 2015, have their urban
mobility plans.
cars and motorcycles) are becoming more popular. Motorcyclists are the main victims of road crashes.
Overall, the majority modes are bicycle and pedestrian travel. This mobility crisis experienced by
Brazilian cities has led to a renewal of interest in improving public transport and planning for NMT.
Sao Paulo
Rio de Janeiro
Joinville
77
Local commitments: Joinville
The City of Joinville is the third largest municipality in the southern region of Brazil, after Curitiba and
Porto Alegre. Joinville has prepared a master plan that focuses specically on non-motorized transport
(here known as active transport) (Master Plan for Transportation Active, City of Joinville, 2015)
Among the key issues in the Master Plan is the need to promote the accessibility of public places; the
safe movement of people and goods; and to ensure the right of access to inclusive and environmentally
sustainable mobility. The Joinville Plan promotes non-motorized modes, and establishes priority actions,
instruments, targets and indicators for walking and cycling improvements.
Currently, 23% of trips in the city are made on foot and 11% by bicycle. The Plan aims to support the
pedestrian mode share, and increase the bicycle mode share to 20%. Proposed actions include the
construction of sidewalks and bike paths, and the development of a walkability map, paying particular
attention to destinations within a 5-10 minute walk.
The Ministry has also produced a free Guideline for Cyclists (Carthila do Ciclista), Ministry of Cities, which
provides information about routes, how to lock a bike, travel on public transport with a bicycle, and how
to read bicycle signage – in association with the World Resources Institute.
Local commitments: Rio de Janeiro
Rio de Janeiro featured in the Copenhagenize Index 2013 Bicycle Friendly Cities as the 12th best city for
bicycles in the world. The city has had bicycle lanes since 1991, when as part of its preparation for the rst
Earth Summit in 1992 it created a cycle lane along the Copacabana Beach, at the expense of a car lane.
Neighbourhoods farther along the coast, such as Ipanema and Leblon, extended the network and today
Rio de Janeiro has more than 300 km of separated bicycle infrastructure.Rio as well as Sao Paulo has
bicycle-share systems. Bike Rio was launched in 2011, and is a partnership between the municipal
government and Banco Itau. The system has 4 000 bicycles and 400 rental stations.
Many Brazilian cities host car-free Sundays for cycling, walking, rollerskating, skateboarding, and other
active modes. In Rio de Janeiro, the entire stretch of the beachfront from Copacabana to Leblon is closed
to trafc.
Local commitments: Sao Paulo
In 2014, São Paulo provided more than 108 km of protected bike lanes, citywide, and its bicycle share
system reached more than 1 500 bikes at 158 stations. The city’s new Master Plan (2014) addresses
pedestrian accessibility in particular, and eliminates along public transport corridors citywide.
These restrictions will reduce approximately 4 000 parking spaces, or more than 10%.
78
Chile
National commitments
In 2015, the Ministry published what is now the core NMT document in Chile, a
manual for inclusive road design. Its key goals were to support national urban
development policies regarding NMT, and provide technical knowledge to
decision-makers related to NMT. The publication developed out of the 2014
National Urban Development Policy, which recognized the way in which
motorized trafc had monopolized public and urban space.
The vision of the Vialidad Ciclo-Inclusiva is that streets operate from a
user-centered design: the document seeks to deliver guidelines for safe
and comfortable road infrastructure that delivers satisfaction to users and
results in a better urban experience for all. Non-motorized modes are
recognized as accessible, equitable, affordable and sustainable modes. The
Guidelines set out the following objectives:
• That bicycles must be recognized and integrated into multi-modal trafc
• That all urban roads are cycle-inclusive
• That bicycle paths are by default considered in roads planning, trafc
volume and speed-permitting
• Where trafc volumes and road speeds are inappropriate for shared
spaces, exclusive facilities will be provided.
Chile
Santiago
79
Civil society action and local commitments
A signicant participatory effort led by citizens (Living City) as well as local and regional
governments, with support from a Dutch NGO, has seen the increase of cycling’s modal share
in a relatively short period (2006-2012) to 3% (Sagaris, 2014). Today, thanks to this ongoing civil
society engagement, Chile and Santiago in particular has an NMT Master plan as well as funding
policies, and a new design manual for inclusive streets.
In 2009, through a participatory action-mapping process, cyclists’ evaluation of existing
infrastructure became a part of the diagnosis that led to a signicant update of Santiago’s Cycling
Master Plan (Sagaris, 2014). The Santiago Cycling Master Plan Commission met regularly in the
regional government’s chamber throughout 2008 and 2009, developing objectives and involving
a broad and expanding set of actors, including neighbourhood associations, recyclers (who use
cargo-bikes based on tricycles) and other groups not directly involved in cycling (Sagaris, 2014).
The Santiago NMT Master plan aims to raise walking from 38% to 40% mode share by 2020,
and cycling form 4% to 20% by 2020. The idea is to target trips under 2 km as walking trips – by
ensuring that grocery stores/basic supplies/ primary schools are all within such a distance.
In 2013, the Bikesantiago public bicycle scheme was launched in Santiago’s Vitacura and
Barnstaple neighbourhoods.
Santiago Chile
©Claudio Olivares Medina
80
National commitments
Key policies and plans for sustainable transportation in Colombia are the National Development
Plan, the National Urban Transport Policy, and the Action Plan for Sector Mitigation
(Transportation).
The National Urban Transport Policy focuses on structuring, and restructuring, passenger
transport systems in the cities of Colombia, and pays particular attention to NMT and road
safety, and to supporting and promoting mass transit.
The 2014-2018 National Development Plan (Law 1753 of 2015) made explicit mention of NMT
in article 31 (noting nancing needs and investment plans for NMT) and article 32, where the
state committed to taking action to increase the use of NMT modes (journeys on foot, bicycle or
tricycle). Article 204 commits the Ministry of Transportation to designing a strategy to include
bicycle and NMT facilities in future road projects.
In 2016 the Sustainable Urban Mobility Unit, funded by the World Bank and attached to the
Department of Transport and Trafc of the Ministry of Transport, published a guideline for cycle
infrastructure in Colombia Cities, drafted as a result of expert national and international input,
including citizen groups and workshops.
Colombia
Colombia
Bogota
Postobon
Medelin
81
Local commitments: Bogota
Bogotá, the capital of Colombia with almost 8 million people, is internationally recognised for
its sustainable transport actions, in particular the 55 km TransMilenio BRT. The city also has
an impressive network of bicycle lanes, of around 350 km) and a mode share of cycling trips of
around 5%. There is also a current commitment to build 120 kilometers of bikeways between
2016-2019 and to double cycling trips in that period.
Bogotá was the rst substantial case of carbon crediting in the transportation sector, used for
the nancing of vehicle procurement for the TransMilenio BRT system. The certication of the
carbon credits was based on the scrapping of old buses and replacement with more energy
efcient vehicles and improved system operation (Massink et al, 2011).
Car and vehicle parking restrictions, through a license tag system and prohibition from Bogotá’s
central city streets during peak hours, are further key interventions (Cervero, 2005).
Bogotá is also what Cervero calls an extraordinary example of matching infrastructure hardware
with public-policy software: Latin’s America’s most extensive network of cycleways, local parks,
the world longest pedestrian corridor, and the planet’s biggest Car Free Day, in existence since
1974, where the city closes 120 km of main roads for seven daylight hours to create a ciclovia
(cycling way) for cyclists, runners, skaters, and pedestrians. By 2005, 43% of the city’s transport
investment budget goes to ancillary policy measures (Cervero, 2005).
Local commitments: Medellin
Medellin has a free public bike system, EnCicla, with has 50 stations, and 1 300 bicycles,
integrated to the mass transport system of the city through the Metro and Metropla’s stations.
The system was developed as part of Medellin’s Metropolitan Bicycle Master Plan. The goal is
that by 2030, 10% of total trips in the Aburra Valley are by bicycle.
Civil society and social enterprise
Postobón, one of Colombia’s largest beverage companies and long-time sponsor of Colombian
professional cycling, is using Buffalo Bicycles from World Bicycle Relief to improve education
quality and performance in rural communities. To date, their program Mi Bici has provided
1 740 bicycles to students, teachers and community leaders in two districts where travel times
average 45 minutes to two hours – even with access to a local bus. Postobón has observed that
students with Buffalo Bicycles have reduced their commute by up to one hour plus absence
rates have decreased by 80% on average.
82
Mexico
At present, Mexican cities are dominated by motorized modes and recent estimates suggest an ‘alarming’
trend in increased use of private cars, the vehicle eet may reach 70 million vehicles in 2030 (CTS-INE,
2010). Thus, challenges of trafc congestion and air pollution resulting especially from an old vehicles
eet and lack of investments in NMT experienced in Mexico City, are replicated throughout the country.
On average, Mexicans spend 2 hours per day in transport (Source: Mario Molina Centre), time which is
not only lost to social lives, but also results in economic losses.
According to a study by the ITDP in 2012, the negative externalities of congestion, local pollution, noise,
emissions of greenhouse gases and car accidents in ve metropolitan areas of Mexico (Valley of Mexico,
Monterrey, Guadalajara, Puebla-Tlaxcala and Leon) that constitute 42% of the urban population and 40%
of the vehicle eet of the country; generated a social cost equal to 4% of the total GDP of these cities.
Additionally, transport governance is fragmented in the country, and there is no single entity at national
level responsible for sustainable urban mobility. Nor are there any national policies (ITDP 2012) that
co-ordinate sustainable transport matters. In this extent, the Secretariat of Agrarian, Terrestrial and
Urban Development (SEDATU) was created in 2013 to generate public policies on cities and housing
development as well as the administration of national territories; on the other hand, the infrastructure is
led by the Secretariat of Communications and Transportation (SCT); the environmental regulation is led
by the Secretariat of Environment and Natural Resources (SEMARNAT); and the transport governance is
coordinated and invested by state and city entities. As an example of better governance on environmental
challenges, the National Commission for the Megalopolis (CAMe) was created in 2013 to coordinate
political decisions on the atmospheric basin of the central area of Mexico composed by six states (Mexico
City, State of Mexico, Hidalgo, Morelos, Puebla and Tlaxcala). Moreover, Alternatives to car use are still
scarce, a problem even exacerbated by an investment of only 12% of national infrastructure budget in
the improvement of public transport and walking access and 65% into maintenance and new street
infrastructure (2012).
Mexico
Mexico City
83
National commitments
In 2007, in response to the signicant challenges, Mexico City developed the Green Plan (Plan Verde), which
included programmes on transportation and mobility. Together with an Integrated Urban Transportation
Programme and a bicycle mobility strategy, the city has focused on the development of mass transit and
NMT (Pearl, 2015). The goals included the following goals:
• Improve the quality and availability of public transportation
• Lower the number of private vehicles on the roads
• Promote NMT
• Speed up mobility on the road
• Foster a road culture that respects cyclists and pedestrians
On regular Sundays for the past nine years (since 2007), part of the Paseo de la Reforma, the biggest city
centre street, is closed to cars to provide space for pedestrians and cyclists as part of the “Muévete en
bici” (Bike Move). This event has grown to become the fth largest car-free day in Latin America, with 48
km of streets closed to motorized trafc (City Fix). In 2008 the Ministry of Environment opened a Non-
Motorized Mobility Strategy Ofce to coordinate the building of better bike infrastructure, integrating
cycling into the wider transport system, creating a cycling culture, and increasing access for all the
city’s residents to cycling. Pedestrianization of the city’s historical centres and neighbourhoods began
in 2010. Cycling-infrastructure was introduced as part of the “Programa de Corredores de Movilidad No
Motorizada” (Non-Motorized Lanes Programme), adding 31 km of bicycle lanes.
“Ecobici” public bicycle system (bike-share) is one of the success stories of promoting sustainable uses
of transport. The public bike share system was launched in 2010 as part of the city’s Bicycle Mobility
Strategy and NMT Master Plan of Mexico City. It began operations with 85 stations and currently has 444
with a coverage area of 32 km. EcoBici users are surveyed and the system evaluated every year. It counts
around 30,000 uses during week days and it has been used 36 million times since 2010 (Source: Ecobici
website) and makes it the 4th biggest public bike share scheme in the world.
All in all, Mexico City has constituted the national reference on NMT programmes; “Muévete en bici” is
being replicated nationwide and bike-share systems have been implemented at least in three cities: “Mi
Bici” in Guadalajara, “Huizi” in Toluca and “Smartbike/Cycloshare” in Puebla (ITDP, 2016).
84
Policy development and content check list
Policy development
Policy Content
1. Vision
2. ‘Problem statement’
3. Mission statement and goals
4. Clear, measurable objectives
5. A measurable strategy that will achieve these objectives
6. Indicators: on what basis will you measure success?
7. Baseline data and data collection strategy: Where are you now, and how will you measure change?
8. Do you have a detailed action plan, with time-lines and performance measures
9. Do you have other directorates, units and government tiers on board?
10. Have you asked users and stakeholders for their needs and priorities?
11. Have you asked for peer or international review?
12. Have you undertaken a gap analysis?
• What laws, by-laws and regulations are missing in your current policy environment?
• Does this policy plan to develop the relevant regulatory measures?
13. Provision or requirement for local planning
• Does this policy plan to develop the relevant regulatory measures?
• What policies, strategies and other planning are cities and districts required to do, as a result
of this national policy?
• What training is in place to ensure that these cities or counties know how to master plan?
• Does your NMT policy require or support the development of supportive local policies, such as
trafc calming, pedestrianisation, car-free events, law-enforcement, etc
85
14. Infrastructure
• Do you have technical infrastructure guidelines
• Are there plans for pedestrian facilities and maintenance
• Are there plans for bicycle facilities and maintenance
• Do you have bicycle parking designs
• Trafc-calming measures
• Trafc signaling priority and signage policies
• Speed-reduction measures
15. Focus areas
• Intermodal planning (access to public transport)
• A focus on women, children and other vulnerable groups?
• Microenterprise opportunities within NMT?
• Purchase assistance for NMT vehicles?
• Rural footpaths and bridges
• Animal-drawn transport and intermediate modes
• A safety and enforcement plan?
• Capacity building for staff and contractors
16. What will you do with your policy now?
Do you have:
• A market-segmented promotion strategy?
• A communication plan?
• Stakeholder engagement strategy
• A funding strategy?
• A monitoring, evaluation and revision plan?
• A stakeholder and media reporting plan?
17. What human and other resources do you need in order to implement this policy?
86
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