ECF

This Chapter is divided into 3 parts and addresses the following issues:

Part 1 surveys the wider policy context for the EU Cycling Strategy (EUCS) by identifying both European and global policy priorities.

Part 2 demonstrates how cycling can deliver on these policy priorities in a cost-efficient manner.

Part 3 explains why there is a need for EU action and lists the requests that were expressed by EU institutions in response to the call for an EU Cycling Strategy. It discusses the issue of EU competence to act and argues that the EU is well placed to take action which could not be met otherwise solely or not solely through Member States action at national, regional or local level.

This chapter is divided into 3 parts:

1.            The current state of cycling in the EU-28 with regard to cycle use, fatalities and bicycle sales;

2.            The growth potential for cycling by 2030;

3.            Overall policy objectives for the EU Cycling Strategy.

This chapter focuses on how to achieve a shift in mobility culture to reduce the big disparities in levels of cycling amongst EU cities and support them to realise cycling’s full potential. It contains three parts:

1.            Convince decision-makers to support cycling

The 2013 EU Urban Mobility Action Plan established guidelines for cities on how to develop and implement Sustainable Urban Mobility Plans. This chapter calls for a complete implementation of this action plan by 2020 and adequate measurement of its results. Looking at the EUCS’ horizon 2030, the EU should consider how to integrate, for instance, the European Mobility Week and European Sports Week into a larger and more coherent behaviour change policy. This policy should be based on lessons learnt from successful EU-funded projects that delivered highly transferable, tried and tested behaviour change campaign techniques.

2.            Encourage people to cycle more

The EU is requested to support behaviour change initiatives that contribute to more everyday cycling among people of all age groups. In many countries, in particular those with lower daily cycling levels, cycling for recreation, sports and tourism purposes is an excellent way of establishing a cycling culture that in a second phase may contribute to a culture of using the bicycle as a daily means of transportation. Thus, this chapter recommends that the EU should extend its efforts to promote cycling for the purpose of recreation, sports and tourism (e.g. by establishing a European Mobility online platform to provide a one-stop-shop for anyone interested in active tourism in Europe).

3.            Facilitate the cooperation among road users for safer cycling

Behaviour is influenced by many factors, including both hard and soft mobility measures. A combination of these can realize the full potential for cycling in EU cities and bring about a culture shift in the mobility culture. In this section, we look at training, both for cyclists as well as motorised transport users and highway codes, e.g. in the form of speed management and its enforcement, that help protect people’s physical integrity.

Good-quality infrastructure designed for cyclists is key to increasing the use of the bicycle. Cycle friendly design not only refers to street design, dedicated cycle paths and networks of cycle routes but also to good bicycle parking facilities as well as the ongoing maintenance of these facilities.

The four sections set out below look at different aspects of cycling infrastructure:

1.Infrastructure guidance

Establish EU principles for cycling infrastructure and ensure that these are fed through to all national design standards, which should focus on the user perspective.

2.EuroVelo and other cycle route networks

Include EuroVelo in the TEN-T network and issue guidance on network development at EU, national, regional and local levels.

3.Ensuring safer infrastructure for cyclists

Extend road safety audit procedures beyond the TEN-T and make sure that the needs of cyclists are considered.

4.Cycle parking

Include EPAC recharging within the remit of the Alternative Fuels Directive and work with national, regional and local authorities to provide of cycle parking with recharging points at public transport and commuting nodes.

Of the 4 pillars of road safety, regulating for safer vehicles is an exclusive EU competence. This chapter consists of 4 sections:

1.            Motor vehicle safety

Vehicle technologies have been developing at an incredible pace over the past few years, which is coming at a time when road fatalities have been levelling off. In 2014 about 26,000 people of all modes were killed in road collisions throughout the EU. Bicycle fatalities make up 8.1% of the total number of road accidents at 2,112 deaths and have fallen from 3,044 in 2005. This is excellent progress, however this is a 30% reduction of cyclist fatalities, which though good is considerably less than the drop in total road fatalities at 42%. There has also been a levelling off of cycling fatalities recently, with 2,170 recorded in 2012 and even a slight increase from 2013 at 2,001. This is mirrored by the figures for all road fatalities. This is the European Commission’s huge opportunity to kick-start the reduction in fatalities in crashes around the EU. It is also a key time since there are technologies that can really focus on stopping crashes with those outside the vehicle and on speed reduction; these are genuine firsts and could be a real revolution in road safety for cyclists, and indeed for all road users.

2.            Bicycle, EPAC and speed EPAC technical requirements

Bicycles and Electric Pedal Assisted Cycles (EPACs/pedelecs) are developed through the International and European standards bodies (CEN and ISO), while speed EPACs) are regulated through the motor vehicle type approval system for two- and three-wheel vehicles. These seem to have been successful in creating a stable environment for manufacturers to enter the single market.

3.            EPAC charger technical standards

Public charging infrastructure for electric bicycles needs to be further investigated to establish a widespread and accessible network of e-charging points for EPACs, Speed EPACs as well as eScooters.

4.            Cyclists and automated/autonomous vehicles

The end point of the current crop of new vehicle technologies will be the autonomous or even driverless motor vehicle. It is important that these vehicles are safe and that their different behaviours, manoeuvres and technologies are managed responsibly. 

This chapter has two sections:

1. Integrating cycling into the multimodal transport system

Multimodal transport, according to the European Commission, in the sense of combining “optimally the various modes of transport, exploiting each one’s strength and minimising the weaknesses. The Commission hence pursues a policy of multimodality by ensuring better integration of the transport modes and establishing interoperability at all levels of the transport system.” 

Main recommendations to the EU include:

• Integrate cycling (and bike-sharing) into all relevant multimodal transport policies, project funding, research projects, etc.

• Include the potential of cargo bicycles and promote a shift towards last-mile cycle-logistics deliveries in the upcoming Commission guidelines on urban logistics.

• Improve the conditions for bicycle carriage on all modes and define general terms and conditions under which this provision should be met.

2. Smart cycling, ITS and digital agenda

Elaborates on the technological side of delivering multimodal transport ‘Smart Cycling, ITS and Digital Agenda’.

Main recommendations to the EU include:

• Inclusion of cycling and public bike sharing data and services within the standardisation and harmonisation of multimodal and real-time transport data.

In order to achieve a substantial modal shift towards cycling, a financial and fiscal level playing field is needed. Fiscal incentives like tax breaks for cycling to work or subsidies for electric bikes are powerful tools to steer mobility behaviour and hence contribute to the EU’s societal objectives as a best return on investment policy approach.

1.            Subsidies for cycling:

a)            Funding for investments in cycling

Cycling should be streamlined into all relevant EU funding streams. The financial resources available for cycling measures should be further increased during the next Multiannual Financial Framework, and recipients should be encouraged by the European Commission to use them.

b)            Financial incentives for purchasing electric bikes

The EU and Member States should develop comprehensive e-mobility strategies, promoting not only e-cars but also e-bikes. Purchase subsidies that are adapted to market conditions can help to reap the benefits of electric bikes by increasing comfortable cycling distances and opening up cycling to new groups.

2.            Cycling-friendly public procurement

It should be an obligatory step in procurement procedures under the EU Green Public Procurement criteria to check whether the purchase of passenger cars can be replaced by bicycles (including pedelecs), and (electric) cargo bikes instead of light commercial vehicles (LCVs), including for postal services.

3.            Cycling-friendly taxation systems

a)            Pro-cycling Personal Income and Corporate Tax Regulations

National tax systems should be reformed with a view to incentivising sustainable mobility and abolishing tax subsidies for motorised transport, for example for company cars. Fiscal incentives for cycling can include tax benefits to install cycling-friendly infrastructure in companies or (direct or indirect) subsidies for commuting by bike.

b)            VAT for bike sales, bike repairs

EU VAT reform should allow Member States to apply reduced VAT rates for the purchase and repair of bicycles.

4.            Internalisation of External Costs of Car Driving

a)            Congestion charges

Congestion charges should be introduced in more European cities, on a voluntary basis. Where they are introduced, all aspects of mobility, including cycling, should be considered in a comprehensive mobility plan and credible alternatives to car use provided for accessing the charging zone.

b)            Fuel taxes

In order to achieve a level playing field for all modes of transport including cycling, the EU Energy Taxation directive should be reformed with a view to including all externalities of fuel use in price levels. Fuel taxes should be increased and reach the same level for both diesel and petrol.

This chapter gives an overview of the development and potential of European cycling as a manufacturing and supply industry, concentrating on the conditions that enable the EU to be competitive in terms of maintaining or growing its share of the industry and creating jobs in the sector. The chapter is divided into sections on industrial policy, workforce, quality management and trade.

This will maximise the contribution of the EU cycling industry to the goals of the European Union, in particular Commission President Juncker’s stated Priority #4 of a ‘Deeper and Fairer Internal Market with a Strengthened Industrial Base’ bringing industry’s weight in the EU’s GDP back to 20% by 2020, from less than 16%.”

Thanks to the production of 13 million bicycles and EPACs and bicycle parts, 90,000 jobs are generated by over 800 SMEs operating in 20 of the 28 Member States.  There has been an increase of 20,000 jobs in the sector in five years, making cycling one of the largest green employment sectors in Europe.

In its report to a DG TRADE investigation into the bicycle market, the bicycle manufacturers association EBMA reported that European companies would invest up to EUR 1 billion in the period 2013–2018 if market conditions provided a stable market and a level playing field. The industry is now creating an ambitious plan to continue this development. This new investment is needed because the industry has focussed its investment more on product development than manufacturing processes in recent years, and because much of the manufacturing base is in small to medium-sized companies.

The bicycle sector in the EU is characterised by its leadership in innovation and product development. Maintaining an EU-based manufacturing sector means further investment in innovation which is changing mobility:

•             Putting millions of electric vehicles into Europe’s transport fleet (see Chapter 1) which are a substantial reduction of congestion and improving air quality in our cities, extending the benefits of cycling described in Chapter 2.

•             Working with the public sector, the industry created the concept of public bike sharing.

•             Now the bike industry is investing in integrating the bike in future mobility systems in terms of advanced safety features and connectivity.

Global/UN-level policies – such as the Paris Agreement on Climate Change, the Sustainable Development Goals and the New Urban Agenda – carry a strong mandate to promote cycling. Cycling is part of the implementation of these global policies at a local level.

The EU has begun to implement these policies through multiple internal and external strategies. For example, the Paris Agreement is reflected in the EU’s ambitious goal to reduce GHG emissions by 80% in the EU by 2050. Furthermore, the ‘European Consensus on Development’ announces an adjustment of the development cooperation of the EU, which will be geared towards achieving the Sustainable Development Goals.

However, the strategies do not take sufficient account of the potential of cycling and active mobility to contribute to progress towards these targets. The necessary shift of priorities in the transport system is mentioned only sporadically in the documents. This goes hand in hand with the fact that only a minor portion of EU development cooperation is dedicated to comprehensive sustainable mobility planning, even though a large portion of its budget is dedicated to the transport sector.

The EU’s strategy documents form the basis for the further development of internal and external policies. It is therefore crucial that they emphasise the cross-sectoral benefits of sustainable mobility and specifically cycling in order to fulfil the Paris Agreement and the SDGs. Financial and technical cooperation programmes should tap the full potential of cycling by dedicating more funds to sustainable mobility planning and implementation. The exchange of Directorate-General for Mobility and Transport (DG MOVE) with implementing bodies is conducive to using existing knowledge for development cooperation. Finally, this knowledge should be enriched and exchanged through mutual learning with partner countries.

In order to ensure that the policies are on track and will be implemented it is necessary to deliver a functioning system that allows the potential of cycling to contribute to crucial EU policy areas. Current initiatives by NGOs, Member States (e.g. national cycling strategies), MEPs and other cycling advocates at EU, national and regional levels are insufficient to provide a systematic and coherent inclusion of relevant cycling contributions to EU policies and regulations. To achieve the positive impacts of cycling more efficiently and effectively, the benefits of cycling should be taken into consideration at the earliest possible stage of the decision-making process.

To achieve this we recommend six organisational solutions to support European, national, regional, and local institutions:

1.            Cycling Check in Policies and Inter-Service Consultation

The EU ought to look at what cycling can contribute to the implementation of its main objectives. When deciding on policies and measures, an internal scan should be performed to take account of cycling-specific interests and potentials are to be taken into account in the inter-service consultations in the European Commission.

2.            Cycling Focal Point

In order to implement many of the elements of the cycling strategy at EU level, a fully operational and dedicated focal point is indispensable.

3.            Cooperation with Public Stakeholders

Cooperation with national cycling officers and stakeholders is a major component of the mission of such a focal point.

4.            Cooperation with Private Stakeholders

Non-governmental organisations and the cycling industry are key to delivering the EU cycling strategy. Their systematic involvement is essential part of the EUCS.

5.            Cycling Clearing House and Expertise Centre

The running of a cycling clearing house/expert centre which provides good practices and information to support the implementation of the EUCS.

6.            Cycling-Friendly Institutions as a Role Model

The EU institutions should implement in their own daily activities what they advocate for others, in order to set an example of cycling-friendly organisations and workplaces.

In order to improve policies and projects at all levels of governance, they need to be monitored and evaluated over time. This requires the collection and processing of comprehensive and comparable data and statistics on cycling.

1.            Policy and project evaluation

Cycling policies and projects should be subject to evaluation in order to improve them and to draw lessons for future policies and projects. The first step, presented here, consists of identifying indicators related to the proposed policies and projects. The next step should be to further elaborate what types of evaluations (ex ante; mid-term, final or ex post) are needed for each policy or project, including what should be the main focus of these exercises, when they are needed, and who is responsible for carrying them out.

2.            Monitoring through key performance indicators

Key performance indicators are needed to assess cycle use (including gender split), bicycle business performance, safety and health effects of cycling, the cycling environment in terms of infrastructure and quality of life, the contribution of cycling to climate change mitigation and sustainable development, capacity building and governance.

3.            Common definitions and harmonisation to improve synergy among different cycling statistics

To begin with, there is a need for common definitions in order to allow comparison between statistics produced by national and local travel surveys in Europe. This should be accompanied by harmonisation strategies, in order to maintain continuity of existing time series in countries and cities who have a tradition of measuring cycling.

4.            Use crowdsourcing and big data collection for monitoring

The potential of crowd sourcing data collection on cycling infrastructure could be improved through stimulation of the community, better guidelines for contributors and addressing privacy issues through EU policy.