Cycle network and route planning guide

Print version: Chapter 2: The planning and policy context (PDF, 83 KB, 4 pages)

The planning and policy context

Cycle network and route planning takes part within a legal, transport, social and administrative context - and can't take place in isolation from it.

Those planning for cycling need to understand transport and the law affecting it, plus the variety of government roles, policies and strategies at national, regional and local levels.

This section outlines this larger context, and then discusses cycling strategic plans - why we have them, what they should contain, and how they fit with the bigger picture. Cycle network and route planning is only one part, alongside others, of preparing a cycling strategic plan.

2.1 Cycling as transport

At its most essential, cycling is a means of transport, and in this respect is no different from the car. In both cases, about three-quarters of trips are for utility (practical, day-today) purposes, and one-quarter for leisure (New Zealand Travel Survey, LTSA 2000), with significant variations by location and ages of road users.

Most journeys are short. About two-thirds of all vehicle trips are less than six km (LTSA, 2000), which is an easy cycle ride for most people. Cycling's travel range can be extended by cycle carriage on buses and trains, or secure parking at stations.

Cycling can potentially take place from all origins to all destinations, and is not restricted to a small number of routes.

2.2 Transport and the law

Law includes not only Acts of Parliament, but also common law, which is understood and accepted by everyone and defined by law court judgements.

Common law includes everyone's duty to care for their own safety and to avoid causing harm to others. For example, in a crash we need to establish not only who should have given way, but also whether those involved were trying to avoid danger to themselves and others.

Under common law everyone has the right to travel unimpeded along all public roads, except where legal restrictions have been imposed (for example, prohibiting walkers and cyclists from using motorways). Road controlling authorities (RCAs) are obliged to safeguard this right for all lawful road users, including cyclists.

Legislation includes Acts of Parliament, as well as Rules and Regulations made by people or organisations to whom Parliament has delegated this power (for example, the Minister of Transport for Land Transport Rules). The main laws relating to cycling are found in the Traffic Regulations, which are currently being converted to the Road user rule and the Traffic control devices rule. In these rules, cyclists are regarded as drivers of vehicles and their obligations are in most respects the same as those of motor vehicle drivers. There are also relevant rules on the use of land under the Resource Management Act 1991 in regional and district plans.

2.2.1 Bylaw powers

Local authorities and road controlling authorities have power to enact bylaws for areas within their responsibility. Bylaws can cover activities on the road (for example one-way traffic and contra-flow cycle movement, speed limits, parking, and restrictions on cyclists' use of some roadways) and off the road (for example restrictions on cycling within parks and reserves).

2.3 Guidelines

Guideline documents do not have force of law, but are recognised as best practice when adopted by legally responsible bodies, such as RCAs or other government agencies. This publication is a guideline. The official New Zealand guide to road and path design is Austroads Guide to traffic engineering practice: Part 14: Bicycles (1999). Transit New Zealand has prepared a cycle design supplement (CDS), which is the official guide to its application in New Zealand. Also relevant is the New Zealand Manual of traffic signs and markings, Parts 1 and 2 (Transit New Zealand/LTSA 1998 and 2004).

2.4 National transport strategies

The New Zealand Transport Strategy (2002) contains the government's position on transport. Its overall vision is: By 2010 New Zealand will have an affordable, integrated, safe, responsive and sustainable transport system.

Broader objectives include:

• creating an integrated mix of transport modes
• protecting and promoting public health
• assisting safety and personal security
• enhancing economic, social and environmental wellbeing
• ensuring environmental sustainability
• improving access and mobility, including walking and cycling.

Promoting walking and cycling is recognised as one of five priority areas because of its contribution to the strategy's vision and objectives. This priority is now enshrined in the Land Transport Management Act 2003, so Transfund New Zealand now funds the promotion of walking and cycling in a separate output class.

2.4.1 National walking and cycling strategy

The draft walking and cycling strategy Getting there - on foot, by cycle (October 2003, expected to be finalised during 2004) provides more details. It articulates a vision of: A New Zealand where people from all sectors of the community choose to walk and cycle for transport and enjoyment - helping ensure a healthier population, more lively and connected communities, and a more affordable, integrated, safe, responsive and sustainable transport system.

It sets out a wide range of actions that would make cycling a more attractive mode of travel. Priorities relevant to cycle planning include:

• expand our knowledge and skill base to address walking and cycling
• encourage planning, development and design that support walking and cycling
• provide supportive environments for walking and cycling in existing communities
• improve networks for long-distance cycling
• address crime and personal security concerns around walking and cycling
• improve road safety for pedestrians and cyclists.

The LTSA is preparing a Pedestrian and cyclist safety framework, which addresses safety issues.

2.5 Regional land transport strategies

Each regional council is required to develop a regional land transport strategy (RLTS) with help from a regional land transport committee (RLTC). RLTCs are required by law to represent a range of road users, and some now include cycling representatives.

Although regional councils do not directly manage the roads, all projects in their regions must take RLTSs into account. RLTSs also carry weight in Transfund New Zealand's decisions on funding RCA projects and packages.

Some regional councils have supplemented their RLTS with a regional cycling strategy.

2.6 Road controlling authorities

RCAs have direct responsibility for the road system. They usually own the roads and public paths, and (often through contractors) construct, improve and maintain them. RCAs have powers to regulate road users' behaviour, for example by banning parking, creating one-way streets and installing traffic signals.

As well as being a local authority, every city and district council is an RCA and highways. In some areas local authorities manage state highways on Transit New Zealand's behalf (for example, Rotorua and Marlborough).

2.7 Other local council responsibilities

Local councils have other roles, besides that of RCA, that affect transport and cycling.

2.7.1 Resource Management Act 1991

Under the Resource Management Act 1991, councils prepare district plans and regional councils regional plans. Both types of plan include rules regulating what may or may not happen.

2.7.2 Reserves Act 1977

Under the Reserves Act 1977, local councils are responsible for managing various types of reserve land.

Off-road cycle paths are often located on recreation reserves. Councils may allow for these in their relevant reserve management plans.

2.7.3 Local Government Act 2002

The main Act governing local councils' activities is the Local Government Act 2002, which includes the power to declare a path a cycle track. Under the Act, councils prepare and consult on annual plans setting out proposed spending during the coming year, and long term council community plans (LTCCPs) outlining spending over the forthcoming 10 years. The public submission processes of these plans may be used to argue for spending on provision for cyclists.

2.8 Integrated transport planning

Integrated transport planning aims to embrace a range of perspectives traditionally covered separately, including:

• a variety of forms of transport (for example car, bus/rail, cycling and walking)
• the relationships between transport and land use
• the contribution transport makes to other economic, social, health and environmental objectives.

This type of planning may become more significant in light of Transfund New Zealand's Allocation Process Review (2003/2004) which encourages integrated proposals. Cycling should be integrated into all transport planning.

2.9 Other government strategies

Actions to promote cycling are implied under other strategies as well, such as those covering energy efficiency, urban design and form, preventive health and environmental protection. Non-transport, agencies such as the Energy Efficiency and Conservation Authority (EECA) and Sport and Recreation New Zealand (SPARC) have sometimes taken the lead in significant cycling promotion initiatives. These include EECA's support for school travel plans, projects and organisations, and SPARC's cycle-friendly employer schemes.

Mass cycle rides can be a significant encouragement
element for a cycling strategy. (Photo: Roger Boulter)

2.10 Cycling strategic plans

Cycling strategic plans need to address engineering, education, enforcement and encouragement - the four Es (Geelong Bike Plan Study Steering Committee, 1977). This guide focuses on planning for the engineering element of cycling strategic plans.

Appendix 1 provides guidelines on matters recommended for inclusion in cycling strategic plans. Funding is available from Transfund New Zealand for their preparation.

Typically, cycling strategic plans aim to increase the number of cycle trips while reducing cyclist injuries. This appears to be realistic as many cities in the world have achieved it, for example York in the United Kingdom and Portland in the United States. Because traffic dangers deter cycling, improving cycle safety is an essential part of cycle promotion. There is evidence that higher cycling numbers result in a lower crash risk (Jacobsen, 2003).

Reducing traffic volumes and speeds may do more to improve cyclist safety than providing cycling facilities, depending on the circumstances (Institution of Highways and Transportation et al, 1996). Consequently, a cycling strategic plan needs the support of more general traffic and transport strategies (Koorey, 2003).

The quality of provision for cyclists will re?ect the commitment to increasing cycling's share of total journeys. Lower quality facilities require more skill to negotiate and may not attract new, less con?dent cyclists.

2.11 Document hierarchy

Figure 2.1 shows how cycling strategies at regional and local levels relate to some of the other policy and strategy documents referred to in this section.

Figure 2.1: Document hierarchy

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Page created: 30 September 2004