Ministry of Urban Development

Asian Development Bank

Guidelines and Toolkits

for
Urban Transport Development
in
Medium Sized Cities in India

Module 5:
Guidelines for
Non‐Motorised Transport Measures:
Policy and Options

October 2008

PADECO Co., Ltd.

Tokyo, JAPAN
 Preface

The Guidelines and Toolkits for Urban Transport Development were prepared by a Technical
Assistance on Urban Transport Strategy (TA 4836‐IND) funded by the Asian Development Bank.
These documents are to be used by decision makers and practitioners in states and municipal
governments concerned with urban transport development in medium‐sized cities in India. In
addition, officials within the central government may usefully refer to these documents when
appraising projects for funding by the Jawaharlal Nehru National Urban Renewal Mission
(JNNURM).

The initial set of Guidelines and Toolkits consists of the following five modules:

Module 1: Comprehensive Mobility Plan: Preparation Toolkit

Module 2: Bus Rapid Transit (BRT): Toolkit for Feasibility Studies
Module 3: Bus Service Improvement: Policy and Options
Module 4: Parking Measures: Policy and Options
Module 5: Non‐Motorized Transport (NMT) Measures: Policy and Options

Guidelines for other topics are also under preparation and will be circulated at a later stage.

These Guidelines and Toolkits focus on the planning process and policy options, and serve
more as checklists of available measures and the tasks required to solve urban transport
problems, rather than providing technical guidelines for the development of detailed transport
measures. Such detailed technical design guidelines are referred to wherever possible within
these documents for the convenience of users.

This module (Module 5) provides guidelines for developing non‐motorized transport (NMT
measures. The guidelines are intended to assist decision‐making by providing various policy
options and their implications with reference to domestic and international experience.
Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

Acknowledgement

The Guidelines and Toolkits were prepared for the Ministry of Urban Development (MoUD),
Government of India, under the direction of an Advisory Group on urban transport consisting of
Shri S.K Lohia, Director (UT) MoUD, Shri O.P Agarwal (Vice President, IUT), Shri G.P Garg
(Advisor, UMTC), Shri Cherian Thomas (MD, IDFC), Prof. Geetam Tiwari (IIT Delhi), Prof.
Shivanand Swamy (CEPT, Ahmedabad), Prof. P.K Sarkar (HOD, Transport Planning
Department, SPA Delhi), Mr. Vinobha Singh (Dy. Director, Transport, Wilbur-smith Associates),
Shri B.S Diwan (Member Secretary, IUT) who gave valuable assistance and comments during
the advisory committee meetings to the authors throughout the duration of the TA.

The consultant team for the preparation of the Guidelines and Toolkits consists of Dr. Chiaki
Kuranami (Team Leader), Mr. Christopher Rose, and Mr. Satoshi Ogita of PADECO Co., Ltd
(Tokyo, Japan). Ms. Sonia Kapoor Arora (Senior Transport Specialist), Ms. Kanika Kalra
(Senior Transport Specialist) and Mr. Sandeep Sharma of the Institute of Urban transport (IUT)
also assisted the team throughout the TA with research, technical assistance, organization of
workshops and logistical support.

The team would like to convey their special appreciation to Shri J.B Kshirsagar (Chief Planner,
TCPO), Mr. Hubert Nove-Josserand (World Bank), Mr. Hideaki Iwasaki (ADB), Mr. Hiroaki
Yamaguchi (ADB), Mr. Prodyut Dutt, and Mr. Markus Roesner for giving their valuable
comments on earlier drafts. Comments made by the sub-group on NMT at the Goa Workshop,
held between 15 and 17 June 2008, were particularly useful in revising the final version of the
module. The sub-group discussion was chaired by Mr. Pradeep Sachdeva, Mr. Ashish Anand, Mr.
Bipulnanda Pathak, Mr. Praveen Jain, Mr. G.H. Reddy, Mr. Satyakam Sahu, Mr. Y.P. Sachdeva,
Mr. Sushil Maheshwari, Mr. Pankaj Kumar, and Mr. H. Iwasaki.
Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

Table of Contents

SECTION I INTRODUCTION ................................................................................................. 1

Use of the Guidelines .................................................................................................................... 1
FAQs on NMT Planning................................................................................................................ 1

SECTION II NMT POLICY AND STRATEGY ...................................................................... 3

NMT Policy................................................................................................................................... 3
NMT Best Practice ........................................................................................................................ 3

SECTION III DESIGNING MEASURES FOR NON MOTORIZED VEHICLES ............. 6

Overview of the Planning Process ................................................................................................ 6
Step 1 – Diagnose Existing Situation ............................................................................................ 6
Step 2 – Consider Policy Options.................................................................................................. 8
Step 3 – Consider Potential Measures......................................................................................... 11
Step 4 – Select Appropriate Measures......................................................................................... 16
Step 5 – Design Appropriate Measures ....................................................................................... 18

SECTION IV DESIGNING MEASURES FOR PEDESTRIANS ........................................ 20

Overview ..................................................................................................................................... 20
Step 1 – Diagnosis....................................................................................................................... 20
Step 2 – Consider Policy Options................................................................................................ 22
Step 3 – Consider Potential Measures......................................................................................... 22
Step 4 – Select Appropriate Measures......................................................................................... 26
Step 5 – Design Appropriate Measures ....................................................................................... 27

SECTION V ANNEXES ........................................................................................................... 28

Annex 1 International Case Studies ............................................................................................ 28
Annex 2 Indian Case Studies ...................................................................................................... 39

List of Tables

Table 1 Typical NMV Use in Indian Cities ................................................................................ 7

Table 2 Advantages and Disadvantages of Mandatory and Advisory Measures ........................ 9
Table 3 Comparison Between Mixed and Segregated Approach.............................................. 10
Table 4 Types of NMV Lane .................................................................................................... 18
Table 5 Recommended NMV Lane Width................................................................................ 19
Table 6 Maximum NMV Demand by Type of NMV Lane....................................................... 19
Table 7 Types of Pedestrian Crossings ..................................................................................... 23
Table 8 Japanese Standards for Footpath Width ....................................................................... 27

List of Figures

Figure 1 Stages in Designing an NMV Scheme....................................................................... 6

Figure 2 Trunk Cycle Route ................................................................................................... 11
Figure 3 Road Area Allocated for NMVs with Physical Segregation (Indonesia) ................ 12
Figure 4 Road Area Allocated for Cycles with Physical Segregation (China) ...................... 12

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Urban Transport Development Measures: Policy and Options

Figure 5 Road Prohibiting Motorized Vehicles at Certain Times of the Day (China) ........... 13
Figure 6 Road Prohibiting Entry of Motorized Vehicles from One Direction (UK).............. 13
Figure 7 Cycle Ramp at Steps ................................................................................................ 14
Figure 8 Attractive Cycle Route ............................................................................................. 14
Figure 9 Wheel Holding Cycle Parking Facility.................................................................... 15
Figure 10 Basement Cycle Parking Area Concept................................................................... 15
Figure 11 Required Cycle Measures According to Vehicle Flow and Travel Speed ............... 17
Figure 12 Pedestrian Demarcation and Crossing (Tokyo, Japan) ............................................ 23
Figure 13 Pedestrian Crossings with Dedicated Phase for Pedestrians (Tokyo, Japan) .......... 23
Figure 14 Pedestrian Zones (Cambridge, England) ................................................................. 24
Figure 15 Ramps for Wheelchairs Users (Tokyo, Japan)......................................................... 24
Figure 16 Tactile Coloured Surfacing for Visually Impaired Pedestrians (Tokyo, Japan)....... 25
Figure 17 Pedestrian Walkways Connecting Buildings ........................................................... 25
Figure 18 Access by Escalator and Elevator to 2nd Level Pedestrian Areas (Tokyo, Japan) ... 25
Figure 19 Pedestrian Area with Lighting and Covered Walkway for Shelter (Tokyo,
Japan)....................................................................................................................... 26
Figure 20 Landscaping Adjacent to Pedestrian Path (Tokyo, Japan)....................................... 26

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Abbreviations and Acronyms

ADB Asian Development Bank
ATC Area Traffic Control
BOT Build-Operate-Transfer
BRT Bus Rapid Transit
BRTS Bus Rapid Transit System
CBD Central Business District
CDP City Development Plan
CMP Comprehensive Mobility Plan
CTTS Comprehensive Traffic and Transportation Study
DFID Department of Foreign and International Development
DPR Detailed Project Report
EIRR Economic Internal Rate of Return
FIRR Financial Internal Rate of Return
FS Feasibility Study
GoI Government of India
GPS Global Positioning System
HCBRT High Capacity Bus Rapid Transit
IRC India Road Congress
IT Information Technology
ITS Intelligent Transport Systems
IUT Institute of Urban Transport
JNNURM Jawaharlal Nehru National Urban Renewal Mission
LRT Light Rail Transit
MoUD Ministry of Urban Development
MRT Mass Rail Transit
MRTS Mass Rapid Transit System
NMT Non-Motorized Transport
NMV Non-Motorized Vehicle
NURM National Urban Renewal Mission
NUTP National Urban Transport Policy
O-D Origin-Destination
PHPD Peak Hour per Direction
PPP Public Private Partnership
SPV Special Purpose Vehicle
TA Technical Assistance
TDM Transport Demand Management
TOD Transit-Oriented Development
UMTA Unified Metropolitan Transport Authority
V/C Vehicle/Capacity
VGF Viability Gap Funding

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Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

SECTION I INTRODUCTION
Use of the Guidelines
Background
These guidelines focus on the detailed tasks required for the planning of Non-Motorised
Transport (NMT) projects within the context of an overall transport strategy. NMT covers not
only non-motorised vehicles (NMVs) such as bicycles, tricycles, cycle-rickshaws, but also
pedestrians. As the needs of both types of road user can be very different, they are treated
separately within these guidelines. European or Australian mixed facilities not be appropriate
for many Indian cities, where the large number and mix of NMVs may overwhelm dedicated
pedestrian facilities.

Consequently, these guidelines present two types or categories of project. One is for
NMV-Focused Projects, the other for Pedestrian-Focused Projects. Although they may be
combined, this should be done with care as many of the objectives and resulting measures for
each category differ

FAQs on NMT Planning

Why do we need to provide NMT facilities?

Conventional traffic/transport studies focused on vehicular movement rather than NMT. While
large investment was made to improve vehicular traffic flow, except in a few cities, minimal
budget has been allocated to improve the convenience/safety of NMT. The importance of
pedestrians and NMVs in Indian cities has largely been neglected in planning for mobility
improvement. Mechanized trips, however, also involve walking as feeder or transfer. A high
percentage of trips below 3 to 4 kilometers in urban areas are performed solely by walking or
NMVs, such as bicycles and rickshaws and there is an acute need to improve NMT facilities and
safety considerations.

Do we need to remove NMVs to become a modern city?

Pedestrians and NMVs should not be considered as a ‘nuisance’ to motor vehicles. A number of
modern cities in developed countries such as the Netherlands, Germany and Japan are pioneers
in facility improvements for pedestrians and NMVs. Most of the remaining modern cities are
designed also in an NMT-friendly manner.

What types of NMV facilities do we have to consider?

Types of NMV facility to be considered include footpaths (sidewalks), pedestrian crossings,

pedestrian signals, pedestrian overbridges and subways, NMV lanes, NMV signals, NMV
parking, NMV standing areas, and relevant signs and marking. This module provides options
and examples for such facilities.

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What should we do when pedestrians do not use pedestrian facilities?

Some city officials complain that they cannot force the use of pedestrian facilities such as
pedestrian crossings. Pedestrians are vulnerable and therefore should be protected. Cities must
re-examine the possibility of improving the design and location of pedestrian facilities.
Pedestrians do not use crossings if they have to make long detours. Pedestrian signals can be
provided at crossings with busy traffic. Driving manners and regulations (if necessary) must be
improved to give priority to pedestrians. Pedestrians will use improved facilities and if they feel
respected.

How can we introduce NMV lanes on narrow streets?

If traffic speed is low, NMT can mix with other vehicles. Provision of dedicated lanes is
preferable, but clear marking alone also functions as ‘NMT priority’ facilities. There are a
number of cases in developed countries where narrow streets are closed to vehicular traffic and
dedicated as NMT-only streets. In encouraging increased use of NMT, it is particularly
important to provide safe and comfortable facilities which form a continuous network.

Where in the city are NMV parking facilities most required?

Bicycle parking facilities are required at almost all major destinations such as schools, offices,
railway stations, shops and markets. Rickshaw stands are necessary particularly around railway
stations, shops and markets. If adequate parking space and waiting areas are provided, traffic
disturbance caused by uncontrolled NMV parking will be minimized.

What types of bicycle parking are available? What types of new technology are available for
bicycle parking?

Technologies for bicycle parking are advanced in some countries. There are multi-story bicycle
parks and some fully computerized ones, with some privatized facilities. However, these
facilities may not be suited for medium cities in India, as the hi-tech facilities are capital
intensive and costly to operate. Space for bicycle parking may be easily found in cities where
land use densities are relatively low. In such situations, however, ‘bicycle racks’ may be used to
make efficient use of space, or for security reasons (i.e., prevention of theft).

Can we charge parking fees for bicycles, or should we provide free parking?

In principle, bicycle parking should be provided free of charge, but a minimal charge can be
levied to make the facilities operationally sustainable. Provision of secure parking space with a
minimum charge is preferable to not providing facilities.

Would the Ministry support NMT projects?

Yes. As stated in the NUTP, the Ministry would support: (i) construction of bicycle lanes and
pedestrian paths; (ii) the construction of pedestrian crossings at busy intersections and road
sections with busy traffic; and (iii) formulation and implementation of pilot projects for NMT
improvement. Bicycle parking facilities are relatively less costly and may not be proposed as a
stand-alone project. They can be included as part of other projects, such as BRT, terminal
improvements, and traffic management packages.

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Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

SECTION II
NMT POLICY AND STRATEGY
NMT Policy
India’s National Policy on Non‐Motorized Transport
NMT measures proposed by an Indian city should conform to existing policy at national, state
and city level. The National Urban Transport Policy for India (published by the Ministry of
Urban Development, Government of India, April 2006) refers to priority for non-motorized
transport in paragraphs 27 – 32. A summary is shown in Box 1.

Box 1 Priority for Non‐Motorized Transport (NUTP) – excerpt

• The safety concerns of cyclists and pedestrians must be addressed by encouraging the construction
of segregated lanes for bicycles and pedestrians. Segregation of vehicles moving at different
speeds would improve traffic flow.
• Segregated NMV paths are required not only along arterials but also access roads to public
transport terminals. This will increase the use of the public transport system particularly when
combined with the construction of NMV parking.
• It is essential that NMT facilities be designed and constructed by consulting experts and
community (i.e., potential users).
• Activities on footpaths such as street vendors must be properly controlled to secure pedestrian
safety.
Source: National Urban Transport Policy for India, Ministry of Urban Development, Government of India, April
2006.

The NUTP recognises the important role of para-transit, particularly for occasional trips, as well
as its increasing, but inadvisable use as a substitute for deteriorating public transport services.
Ideally, general improvements in public transport will restore the role of para-transit (including
rickshaws) to its original position in the transport hierarchy, and this should be borne in mind
when considering NMV facility improvements, so that improvements do not conflict with other
strategies.

NMT Best Practice

Five Guiding Principles for NMT Facilities
It is internationally recognized that the five main requirements for providing effective NMT
facilities are those listed below. These provide the basic or fundamental advice note or guideline
for NMT scheme design. Whilst the type and use of NMTs in India may be different from other
countries, these principles still apply.

Safety: Maximise the safety of users in relation to other road users as they have a high degree
of vulnerability
Coherence: Form a coherent and continuous network linking all origin and destination points for
users, and not ad hoc facilities that end abruptly

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Directness: Form a direct route from origin to destination without significant detour that will
cause the users to ignore the facility
Attractiveness: Plan and implement NMT facilities to make NMT travel attractive both by day and
night
Comfort: Ensure a smooth, quick and comfortable flow of NMT traffic without excessive
gradients or uneven surfacing

European Best Practice

The Netherlands is frequently referred to as a model country for promoting high levels of
cycling and subsequently restraining motor vehicle use. Typical Dutch methods take into
consideration many aspects of infrastructure planning. For example, traffic calming measures
are incorporated into housing developments, which themselves incorporate or encourage cycling
by specific infrastructure, low vehicle speeds, and low motor vehicle volumes. Urban
infrastructure is constructed in an open manner, without hard borders between public and
private premises e.g. minimal use of walls, fencing, dead-end streets, so that continuous, direct
cycle routes can be provided. Public space is designed to integrate greenery with walking and
cycling facilities, and local authorities allocate annual budgets for maintaining public utilities,
including cycle infrastructure. City centres are divided into sectors with borders that can be
crossed by pedestrians and cyclists whilst motor vehicles are forced to make detours. Housing
developers must contribute financially to area-wide services including cycle-friendly streets.
Finally, a wide variety of secure cycle parking facilities are provided, sometimes obligatory with
building permits.

Asian Best Practice

Asia typically shows high levels of NMV use. In Tokyo, the national Bicycle Law, enacted in
1980, encouraged local governments to provide bicycle lanes, paths, and parking facilities near
railway stations in order to promote the use of bicycles as a feeder mode for rail services. Other
factors that contributed to high cycle use include the development of the Japanese bicycle
industry, low bicycle prices in relation to income, the shared use of sidewalks and footpaths
with pedestrians. Examples of Asian facilities (particularly from Japan) are presented
throughout this Module.

NMT Measures Applicable to the Indian Environment

In many low income Asian cities there are large numbers of NMVs, which assert their own
right-of-way and it may be considered that there is little need to create an NMT network.
However, with increasing motorization and congestion and decreasing inclination to use
non-motorised methods, it is becoming increasingly necessary to design appropriate facilities
for non-motorised traffic. High density Indian cities present a very different environment to the
relatively low density urban environments in Europe, such as in the Netherlands. Also, the lack
of road user education and erratic driving environment in some Asian cities suggests the
necessity for segregated facilities for NMVs on safety grounds alone. It is noticeable that in
many western countries with high rates of motor vehicle ownership and use, the NMV is viewed
by planners as a preferable alternative and is fully encouraged to the practical extent. However,
many Asian cities with historically high volumes of NMVs view the effectiveness of NMT less
favourably as it is seen as a slow mode that obstructs the smooth movement of traffic, causing
congestion. These differences render a global guideline less effective though best practice
lessons can still be applied.

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Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

In the case of India, the issues relating to non motorised vehicles and pedestrians need to be
addressed separately as the nature of their movement and requirements are different. Whilst
countries such as Japan and parts of Europe tend to mix pedestrian and cycle movements, the
characteristics of Indian NMT makes this more difficult. For example, certain categories of
NMT cater to hawkers and social activities within cities whilst the ubiquitous cycle-rickshaw
needs to be accommodated in areas separate from pedestrians. For this reason, this Guideline
addresses NMVs and pedestrians as separate components.

There is no single correct solution to providing suitable infrastructure for NMVs: much will
depend on the broader traffic, environmental and planning objectives and on available funds.
Measures are likely to be more easily funded and implemented if they benefit the wider
community, not just NMVs. Strategies that emphasize traffic restraint, speed reduction and
promotion of environmentally-friendly modes will tend to benefit NMVs. Different scenarios
for NMVs require the consideration of techniques for managing them. In the end, the success of
the chosen scenario will depend on the effectiveness of the techniques for implementing it. An
overview of techniques relevant to the Indian case is given below providing the backdrop to the
scenarios and guidance in selecting them. It is important to regularly review NMV transport in
order to monitor flows and usage characteristics for future planning and for evaluating the
effectiveness of any measures.

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Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

SECTION III DESIGNING MEASURES FOR

NON MOTORIZED VEHICLES
Overview of the Planning Process
The selection and subsequent design of appropriate NMV measures requires a number of stages,
summarized below. Each stage is described in the following paragraphs.

DIAGNOSE NMV DEMAND

PROFILE OF INVENTORY OF NMV
STEP 1 EXISTING SITUATION ANALYSIS AND
NMV USERS FACILITIES
PROJECTIONS
Ð
CONSIDER POLICY ADVISORY OR MIXED OR
PROMOTION OF
STEP 2 OPTIONS MANDATORY SEGREGATED
NMV USERS
MEASURES MEASURES
Ð
CONSIDER POTENTIAL NMV DEMAND INTERNATIONAL
STEP 3
MEASURES LEVELS BEST PRACTICE
Ð
SELECT APPROPRIATE FINANCIAL POLICY‐DRIVEN
STEP 4
MEASURES CONSIDERATIONS AIMS
Ð
DESIGN
CONSULTATION WITH LOCAL DESIGN
Step 5 APPROPRIATE
STAKEHOLDERS STANDARDS
MEASURES

Figure 1 Stages in Designing an NMV Scheme

Step 1 – Diagnose Existing Situation

The first step is to undertake a diagnosis of the existing situation for NMVs. This involves a
profile of NMV users as well as trip characteristics. It is anticipated that much of this
information may be drawn from the Comprehensive Mobility Plan.

Profile of NMV Users

The variety of NMVs is a significant factor in the planning and design of appropriate facilities.
Target users will tend to be from the poorer sectors of society and typically include the following:

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Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

Table 1 Typical NMV Use in Indian Cities

Type Use
Bicycle owners Commuters; working bicycles for delivery of goods and services
Tricycle owners Working tricycles used for the delivery of goods
Cycle-rickshaw owners Public transport service preferred by women who may not wish to use
buses; delivery of goods
Rickshaw owners/pullers Public transport — hand-pulled rickshaws now in decline in most
Indian cities (except Kolkata)
Animal cart owners Used for deliveries (but now in decline)

These users reflect a situation very different to that of developed countries and in other Asian
countries, such as China, where NMVs are essentially personal passenger vehicles. In Indian cities,
NMVs are working vehicles providing public passenger and cargo delivery services, but rarely
used for personal passenger use (mainly bicycles). Trip characteristics may vary between types of
NMV user, such as their origins and destinations, average trip lengths, timing of their trips, and
journey speeds.

Existing NMV Facilities

A plan of the city should identify existing infrastructure that may be classified as facilities for
NMVs. Though it is anticipated that few facilities will be currently installed, the inventory may
include:

• Lanes reserved for NMVs (cycles or rickshaws);

• Footpaths allocated for both pedestrians and NMVs;
• NMV crossings at junctions;
• NMV management at markets and in shopping areas;
• Areas allocated to NMV parking

NMV Demand
At an early stage it is important to identify existing and potential NMV demand. This may be
obtained from information or data on the origins and destinations of NMV users, and traffic
counts. A plan should be developed showing:

• numbers of NMVs on key routes and classified by type;

• desire lines of NMVs showing most popular routes (derived from either O-D surveys or
known routes such as residential to school routes);
• NMV growth showing NMV and MV data over the past five years with annual growth
rates;
• ownership and use (if available): NMVs/1,000 population;
• likely future trends; transition between different types of NMV; transition to motorised
transport

Data should be collected to the extent practical. Whilst origin-destination (O-D) data is useful to
determine popular routes of NMVs and therefore the areas for implementing facilities, it is
appreciated that the collection of such data may not be cost-effective. An understanding of
movements based on known generators and attractors may be sufficient to plan routes and
planners should use their discretion in this respect. However, volume of demand is still likely to
be an important consideration to justify capital investment.

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Social Aspects
Social aspects may include the relation of NMVs to employment and poverty. Also,
considerations may be social and cultural attitudes, costs, affordability, manufacturing and spare
parts etc.

Safety Aspects of NMVs

NMVs are vulnerable road users and safety aspects should be identified, including accident and
casualty data related. To the extent possible, ‘black spots’ may be identified where relatively
high accident rates occur. Plans may be drawn up indicating rate of accidents, typically over a 3
year period. Problem areas will require priority measures.

Regulation and Enforcement

Existing NMV registration and licensing arrangements should be described as well as traffic
regulations and bylaws that relate to NMV use. This may include legislation related to licensing
and training of rickshaw drivers, enforcement issues, as well as requirements for NMVs, such as
night reflectors for safety.

Summary of Key Issues

Following the diagnosis stage, a list of key issues can be drawn up. This list will assist in the
subsequent stages. The list may include the following.

• positive factors of NMV use e.g. environmental, employment;

• factors affecting ownership and use of NMVs;
• impact of NMVs on congestion; reduction in V/C ratios on links and degree of saturation at
junctions;
• safety concerns in specific areas;
• severance (where NMV users have difficulty accessing areas better served by MVs);
• cultural issues, such as low image of NMVs and aspirations for motorization;
• low priority given to NMVs in the travel hierarchy;
• lack of NMV facilities;
• poor enforcement;
• poor road user education (RUE);
• inadequate and inappropriate regulations related to NMVs

Step 2 – Consider Policy Options

Following the identification of key issues, policy options for NMVs should be considered. Such
policy should concur with national policy, such as the NUTP, as well as state and city level
directives or strategy. Globally, NMVs are viewed positively in helping to create a sustainable
city environment, whilst contributing to the health of the populous. Therefore, most types of
NMV are encouraged.

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Aims for Promotion of NMVs

NMVs may be promoted through the following initiatives.

• providing better facilities to accommodate existing NMV use and encourage more NMVs
through visible infrastructure;
• developing a strategic NMV plan including a network of routes available to NMVs
throughout the city;
• segregating NMVs/MVs to improve safety and smooth passage of NMVs;
• promoting freight NMVs for the transport and delivery of small goods to markets and
shopping areas;
• identifying sub-projects which make positive, pro-active provision for NMVs as part of a
balanced approach to traffic planning;
• giving NMVs priority over MVs on selected routes and in selected areas;
• strengthening Road User Education (RUE) programmes for NMV users to improve
behaviour and road safety;
• rationalising and improving NMV registration, licensing for use as a PT or freight vehicle,
regulation and enforcement

Mandatory or Advisory Measures

NMV measures can be implemented either as mandatory or advisory. Mandatory measures are
‘formal’ and require to be backed up by appropriate traffic regulations. For example, part of the
highway may be designated for NMVs only. Advisory measures are usually designed to
encourage NMV use, or where mandatory measures are difficult to implement due to the
requirement of traffic regulations or the practicalities of accommodating motorized vehicles
within limited road space. For example, part of the highway may be allocated for NMVs, but
MVs would be allowed to encroach for side accesses or when traffic volume is high. Even
advisory measures can incur costs such improved road surfacing or removal of physical
obstructions to ensure that NMV passage is smooth and comfortable.

The advantages and disadvantages of mandatory and advisory measures are summarized below.

Table 2 Advantages and Disadvantages of Mandatory and Advisory Measures

Advantages Disadvantages
Mandatory • Provide maximum benefit and • Require regulations, which may need
encouragement to NMV users, such public consultations, and therefore
as physical segregation (protection) take time to implement
• Requires enforcement resources to
ensure compliance
• Can be more difficult to design due to
higher level of restriction on access
by other vehicles
Advisory • Do not require formal regulations • Such measures are usually only
• Can be introduced quickly indicative, so may not always be
• Usually relatively cheap effective
• Do not require enforcement

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Mixed or Segregated NMV Measures

There are two main options that city authorities can pursue to better manage NMV and MV
movements:

Option 1: Segregate NMVs and MVs as far as possible

Option 2: Allow NMVs to mix with MVs and reduce MV speeds

It is usually recommended that the first option be practiced as much as possible. The second
option relies heavily on traffic calming and there are many examples in the Netherlands,
Australia and Japan, though frequently in low-volume streets.

Segregated NMV measures can take the form of dedicated lanes within the highway (with
physical dividers or simple line demarcation) either with-flow or contra-flow, and streets that
prohibit motor vehicles. Mixed flow measures allow all types of traffic to mix within the
highway and are typically a do-nothing or minimum case, though some treatments can be
implemented to improve the comfort level of NMVs or provide priority, e.g. at intersections.

The table below compares the mixed and segregated approaches.

Table 3 Comparison Between Mixed and Segregated Approach

Mixed Segregated
Definition Utilises streets and areas for mixed Measures that segregate vehicles and
NMV/MV use pedestrians; such as dedicated lanes.
Segregation can be in terms of time or
space
Conditions Appropriate on low–flow roads and Preferable when traffic flows are heavy
NMVs can mix safely with vehicular or speeds are above 50km/h and there are
traffic below 30km/h. NMVs can also few side roads. Above 65km/h
mix safely with vehicular traffic at segregation is necessary for the majority
speeds between 30km/h and 50km/h of NMVs. Segregation is best suited to
unless volumes are high or there are new areas and developed early in the
significant numbers of trucks planning process, though can be applied
at later stages
Advantages Relatively easy and inexpensive to • Provides a safe and efficient network
implement using existing road space for NMVs
• gives priority to NMVs
• suitable for areas with high volumes of
NMVs
Disadvantages • mixing slow modes with motorised • expensive to implement (especially in
traffic can reduce road capacity existing urban areas where there is a
• safety issues for NMVs due to lack of road space)
presence of motorised vehicles • difficult to enforce
• does not visibly promote pro-active
NMT policy

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Trunk or Feeder Routes

NMVs measures can be implemented either on main
transport corridors or on feeder routes to interchanges,
after which transfer to a different mode such as public
transport, would take place.
The feeder route approach is advantageous when the
network requires relatively long origin-to-destination
trips, such as within large or elongated cities, and NMV
use for the entire route are less feasible. Segregated
facilities for NMVs on feeder routes is unlikely to be
necessary or cost-effective as they are often in outlying
suburban areas where traffic volumes and congestion are
relatively low.
NMV measures on main corridors provide continuous
multi-destination facilities for intra-city travel. They
assist NMV use and effectively display a visible message
that NMVs are being strategically accommodated within
the transport environment. Figure 2 Trunk Cycle Route

Ad Hoc or Area‐Wide Facilities

Facilities for NMVs can be implemented either on an ad hoc basis to ameliorate specific
problems or as an area wide plan. The latter option is usually preferred to ensure a consistent
strategy and that routes are comfortable from origin to destination. It is often considered that an
NMV route is only as effective as its weakest link. Therefore an area-wide plan should be
designed that accommodates targeted users on actual travel desire lines. Ad hoc improvements
can be implemented to ameliorate safety problems at specific points within the network.

Step 3 – Consider Potential Measures

Measures that may be suitable for NMVs can be categorised under institutional/regulatory and
physical measures.

Institutional/Regulatory Measures
• Development of an NMV policy and strategy for the long term;
• Development of a 3–5 year rolling program of measures, subject to review and if necessary
change, given the rapid pace of development in cities;
• Institutional strengthening and capacity building by exposure to international and domestic
experience, and by in-situ training courses;
• Establishing the foundations for better regulation and enforcement by:
¾ equipping the traffic police
¾ establishing an NMV vehicle and rider database linked to registration and licensing
¾ updating traffic regulations

Suitable traffic regulations can promote NMV usage and enforcement of measures. For example,
the allocation of highways for NMV use needs to be backed up by regulations so that the
allocation can be enforced.

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NMV ownership management techniques can be introduced or improved, such as registration,

annual licensing and inspection, and “deregistering” of unused or scrapped NMVs. This will help
to provide better data on actual “active” ownership and usage.

Physical Measures
NMV Lanes

NMV lanes are a popular and highly visible measure for accommodating NMV traffic. In
general, NMV lanes within carriageways allow NMVs to overtake slow moving or congested
traffic without obstruction. They also safely separate vulnerable NMV users from motorised
traffic. NMV lanes may be segregated by median, barrier or road markings and can be with-flow
(in the same direction as general traffic) or contra-flow.

Figure 3 Road Area Allocated for NMVs Figure 4 Road Area Allocated for Cycles
with Physical Segregation (Indonesia) with Physical Segregation (China)

Contra-flow NMV lanes carry NMV traffic in the opposing direction to a one-way MV lane. In
this way, the NMV gains an access advantage over motorized vehicles, such as the means to
‘short cut’ the motorized route. They need to be carefully designed; to avoid the risk of collision
and physical separation may be preferable unless traffic speeds are very low.

NMV Separators: Several types of separators can delineate NMV lanes. The simplest is to
provide a single solid line with a minimum width of 10–15cm to ensure visibility. Solid lines
usually delineate mandatory lanes whilst broken lines delineate advisory lanes, though it may be
acceptable and preferable to provide solid lines even if encroachment and enforcement cannot
be guaranteed. However, if violation rates significantly reduce the practical capacity of the cycle
lane, it may be necessary to upgrade the separator to a physical barrier. To augment the lines,
symbols and word markings can be provided. In most cases, physically separated NMV lanes
(Type III) are more appropriate to the high NMV environment of Indian cities, though they are
more expensive to implement. Physical barriers can take the form of steel railings, vertical posts,
or raised curbs and can utilize local labour and materials. Such materials should be carefully
selected so that they do not cause hazard if struck by an NMV or MV. Physical barriers can
either by implemented with spacing at intervals, such as for use during certain times only, or
continuously. The spacing is recommended to be 1.5–3.0m, to discourage MVs from entering
the lane.

Allocation of Footway for NMVs: Footways converted to shared use with NMVs in urban
areas rarely provide a good quality NMV facility and may inconvenience pedestrians. Space
should first be sought within the carriageway. If footways are converted they should have light

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pedestrian flows, few driveways or minor road crossings and good visibility. NMV tracks away
from the carriageway will have different characteristics, but should still conform to high
standards of safety and design, particularly regarding sightlines, personal security and
maintenance .Where they are intended as main routes, lighting is desirable.

Road Access Restrictions

Vehicle access restrictions can be applied to streets or lanes within a street and at certain times
of the day, though adequate enforcement of time-based restrictions may be problematic for
many Indian cities. These restrictions on motorized vehicles effectively offer access advantages
to NMVs. The access restrictions should be well-defined, through the installation of visible and
legible road signs. Movable barriers, such as drums or concrete blocks can be utilized to prevent
MV access.

Figure 5 Road Prohibiting Motorized Figure 6 Road Prohibiting Entry of

Vehicles at Certain Times of the Day Motorized Vehicles from One Direction
(China) (UK)

The above figures show examples from China and from the UK of a road with a restriction on
access for motorized vehicles from one direction. In the UK case, cycle parking is provided on
one side of the street and pedestrian crossings with surface dressing have been implemented at
the street entrance to calm traffic and aid pedestrians.

Intersections

Traffic signals offer designers various possibilities for installing features to assist NMVs
including:

• dedicated phases for NMVs;

• extra clearance time to allow NMVs to cross;
• tighter junctions so that clearance time is minimized;
• advanced stop lines for NMVs to enable them to position themselves ahead of MVs thus
reducing conflicts between left-turning vehicles and straight-ahead or right-turning NMVs.

The position of the approach NMV lane (nearside or central) needs to be carefully considered
and there is no evidence that advanced stop lines reduce the capacity of the junction. On roads
with three or more lanes, a two stage, “jug handle” turn will assist less confident NMV users to
turn right. “Staggered stop–lines”, where the NMV lane is continued one or two metres ahead of
the main stop line, but without a widened reservoir, can also be beneficial to NMVs. These help

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to place NMVs in the driver’s view. Staggered stop lines may be appropriate where the right
turn is not available or where, for some local reason, a standard advanced stop line cannot be
accommodated.

“Cycle by–passes” may also be incorporated into signal-controlled junctions to enable NMVs to
bypass the signals, particularly for NMVs turning left or going straight ahead at T-junctions.
NMV speed and manoeuvres should be considered when determining signal phasing, cycle
times and linking of sets of signals. The length of the green time on staggered junctions is
particularly important. Traffic signals are generally preferred to roundabouts by NMV users for
safety reasons and because their rights of way are better respected.

Other NMV Facilities

Ramps: In order to reduce the obstructions to

NMVs caused by pedestrian steps in streets or
subways, ramps can be provided. These allow
NMV users (typically cyclists, but also
wheelchairs, prams, carts) to push their
vehicles over the stepped area. Such ramps
can be implemented as an addition to existing
steps or be designed at an early stage within
the stairs.

Figure 7 Cycle Ramp at Steps

Aesthetic considerations: In order to

encourage NMV use, measures should be
designed to provide socially attractive routes.
Designers should consider aspects such as
landscaping, surfacing, and lighting to provide
routes that are attractive to NMV users.
Routes across parks are likely to have high
aesthetic value. Such considerations are
extensively utilised in European countries to
promote NMV use as an attractive and healthy
mode. Leisure routes are also developed to
promote cycle use. Figure 8 Attractive Cycle Route

Signs and Road Markings: Signing can be either mandatory or advisory. For example, signs
can indicate where only NMVs may enter streets or provide advice on a suitable NMV route
which uses relatively quiet streets that avoid heavy motorized traffic. Signing can also visibly
indicate areas for NMV parking.

Traffic Calming

Traffic calming facilities aim to reduce the speed of motor vehicles, thereby creating a safer
environment for NMVs and pedestrians. At speeds up to 20mph, motor vehicles and NMVs can
generally mix with comfort, however at higher speeds, dedicated traffic calming facilities may
be considered. Traffic calming measures can include signing such as speed limits, but physical
measures tend to be more effective. Such measures can include vertical or horizontal deflections

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to the carriageway.

Vertical Deflections: speed humps (raised areas across the carriageway); speed tables (flat
topped speed humps); raised sidewalks (speed tables that also indicate pedestrian crossing
areas).

Horizontal Restrictions: realigned intersections (to reduce the approach speed of motor
vehicles); pinch-points (build outs on both sides of the carriageway that reduce carriageway
width); chicanes (build outs staggered on alternate sides of the carriageway); central islands
(islands within the carriageway that reduce carriageway width).

Such facilities are especially beneficial to NMVs if their needs are considered within the design.
For example, the above horizontal restrictions are most effective to NMVs if they include NMV
‘bypasses’ allowing the NMV, such as a cycle, to circumvent the restriction at its side and
proceed smoothly without interruption. Textured or colored surfacing can also be beneficial as a
means to increase driver awareness when entering areas of NMV activity.

NMV Parking Facilities

The strategic location of parking for NMVs is an important consideration. NMV parking
facilities should be located at markets, transport hubs (rail, bus and metro stations), institutions
such as schools and hospitals, and where NMV users gather to seek work. Where there is high
cycle parking demand, extra land space may be necessary and innovative measures could be
considered such as multi-storey or basement parking. Some cycle parking facilities have theft
prevention devices, while others are basic stands or security staff on site. The wheel holding
parking loop is no longer recommended as it can cause damage to the bicycle wheel. Parking
facilities that attach to the bicycle frame are now preferred.

Figure 9 Wheel Holding Cycle Parking Figure 10 Basement Cycle Parking Area
Facility Concept

In addition to NMV parking facilities, cities may also provide waiting areas e.g. for cycle
rickshaws. The allocation of dedicated space for cycle rickshaw waiting helps to reduce road
congestion and avoid obstruction to pedestrians on sidewalks. However, the measure may
require frequent enforcement, as the allocated area may not be in the ideal place for patronage
and therefore not be fully utilised.

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Step 4 – Select Appropriate Measures

Following consideration of policy and design options, appropriate measures can be selected.
The city authorities should determine the optimum facilities considering the profile of NMV
users and the city environment. Measures should be selected that are practical and cost-effective
and consider the expected user demand.

Route Choice
NMV networks and the location of NMV facilities should be planned on the basis of NMV trip
origins, destinations and desire-lines. Information on actual and suppressed demand, including
leisure trips, should be collected. As mentioned in Step 1, this can be obtained from surveys or
from a transport model (if the city has one) of journey-to-work data, classified traffic counts,
specific surveys and consultation with local NMV owners.

Route-choice criteria must be taken into account. NMV users will usually choose the quickest
route for most journeys. They are reluctant to accept detours, unless there are significant
compensating advantages. NMVs will avoid routes that are hilly, perceived as dangerous or
have bad riding surfaces. Once the pattern of demand has been established, opportunities for
traffic management or construction measures should be assessed. In practice, this will be an
iterative process. It is important that physical opportunities alone do not determine which
measures come forward, in isolation from knowledge about NMV users’ desire-lines. A network
proposal plan should be produced, that shows speed limits, traffic calmed routes/areas, traffic
management and accident remedial schemes, NMV lanes/tracks and NMV parking locations.

Selection of NMV Lane Measures

Following identification of key NMV routes, the physical characteristics of the NMV facility
should be determined. For example, the figure below (adopted for London, England) provides
guidance on the type of cycle measure required for traffic conditions in terms of all vehicle flow
and traffic speed. Generally, higher traffic flows and vehicle speeds require a greater degree of
facility, such as traffic calming or segregated lanes.

Traffic calming is particularly common in developed European cities. In Asian cities, ‘alley
systems’ are created which provide NMV networks in narrow roads or spaces between buildings,
which have less motorized traffic and can provide short cuts to longer motorized routes.

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Source: London Cycling Design Standards

Figure 11 Required Cycle Measures According to Vehicle Flow and Travel Speed

Selection of Parking Facilities

The areas for implementing NMV parking facilities should be strategically considered. Typically,
they should encourage both origin-to-destination trips and feeder trips for modal transfer to
public transport. Therefore, facilities should be provided or encouraged close to shopping
centers, employment areas, schools, leisure facilities, rail stations, and bus interchanges. Areas
should also be socially attractive to encourage use and dissuade theft. Within existing parking
areas for motorized vehicles, some space should be allocated for NMVs.

Space should be sought and allocated for rickshaw parking/waiting to reduce obstruction to
vehicles and pedestrians on the road or sidewalk. It is advisable to make use of local knowledge,
so that the allocated parking areas are close to the areas frequently used by rickshaw owners.
Generally, in selecting appropriate areas for NMV parking it is important to bear in mind where
there is existing parking activity. This will help to ensure that investments are successful.
Provision of facilities per se can help to manage existing demand and encourage NMV usage to
some extent, but not generate significant new demand.

There are a number of types of NMV parking facilities used worldwide ranging from simple
stands to elaborate locking facilities and devices for bicycles. The choice of such facilities
depends largely on availability of hardware from local suppliers, the level of budget for NMV
facilities from the city authority, whether revenue is expected from parking, and the level of
maintenance that may be necessary. Where NMV use is being encouraged as the preferred
alternative to motorized modes and public affordability is low, it is recommended that relatively
simple, free facilities are implemented at strategic locations throughout the city.

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Financial Analysis
The selection of measures should include a financial analysis, including a breakdown of all
capital and recurrent costs. Benefits are likely to include savings in vehicle operating costs and
travel time savings, however it is generally considered that selection and implementation of
NMV measures should be policy driven, rather than based on detailed economic calculations.

Step 5 – Design Appropriate Measures

Once appropriate measures conforming to a city’s cycle policy have been selected, they should be
designed appropriately. Most cities worldwide tend to adopt and develop their own detailed
design guidelines, however the following section provides guidance on the basic design of
common measures and can be used as advisory design notes.

NMV Lanes
NMV lanes can generally be classified into four main categories as listed below.

Table 4 Types of NMV Lane

Type Cross Section
Type I NMV Lane
NMB
NMV lanes shared
with MVs and
designated by signs

Shared NMV and MV Lanes Pedestrian Path

Type II NMV Lane

NMB
NMV lanes
designated by lane
markings (e.g.
striping) and within
MV Lane NMV Lane Pedestrian Path
the highway
right-of-way

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Type Cross Section

Type III NMV Lane
NMB
NMV-exclusive lanes
physically separated
from MVs by barriers
(e.g. concrete blocks, Pedestrian Path
MV Lane NMV Lane
steel railing, raised
curb) and within the
highway right-of-way

Type IV NMV Lane

NMV-exclusive lanes
within an independent
right-of-way (often
referred to as NMV Pedestrian Path
Pedestrian Path
paths) NMV Lane

Minimum recommended widths for bicycle lanes vary from country to country, however they
typically fall within the range of 1.2–2.0 metres, which allows for the physical width of a
bicycle’s handlebar plus a margin of safety. For different NMV types, recommended lane widths
are provided in Table 5.

Table 5 Recommended NMV Lane Width

NMV Type Type II Lane Type III & IV Lanes Increment Increase
Minimum Standard Minimum Standard Minimum Standard
Bicycles 1.2 1.4 1.5 1.5 1.0 1.0
Cycle-Rickshaws 1.8 2.3 2.3 2.5 1.5 1.7
Animal Carts 2.0 2.4 2.5 2.7 1.7 1.8
Note: These NMV lanes are considered to operate as one-way facilities

In cities with high use of one or more NMV types, these lanes should be widened to provide
sufficient capacity. The recommended increment to increase the width of the facility is also
provided in the Table.

The recommended maximum gradient of NMV lanes should be no greater than 5%. This is the
maximum slope that would still allow safe downhill speeds and reasonable climbing effort for
NMV operators.

If Type II, III, or IV NMV lanes are to be provided, a certain percentage of expected (or
observed) NMV traffic volume during the peak hour should be used to determine the number of
NMV lanes that would be required to meet demand. An indication of volume/hour that could be
accommodated by type of lane is shown in Table 6.

Table 6 Maximum NMV Demand by Type of NMV Lane

Type II Types III & IV
Bicycles 1,210 2,070
Cycle-Rickshaws 640 1,120
Animal Carts 310 570
Note: These NMV lanes are considered to operate as one-way facilities

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SECTION IV
DESIGNING MEASURES FOR PEDESTRIANS
Overview
Pedestrian travel is categorized as a form of NMT. The STEP 1 DIAGNOSE
appropriate national policy as advocated by the NUTP EXISTING SITUATION
is described in the NMV section of this Module. Ð
The steps in designing measures for pedestrians are STEP 2 CONSIDER POLICY OPTIONS
similar to those for NMVs, commencing with a Ð
diagnosis of the existing situation to ascertain the STEP 3 CONSIDER POTENTIAL
baseline condition, followed by consideration of MEASURES
policy options, then potential measures and finally Ð
selection and design of appropriate facilities. STEP 4 SELECT APPROPRIATE
MEASURES
Facilities for pedestrians should also take into account
Ð
the needs of disabled persons to create a barrier free
environment accessible by all sectors of society. Step 5 DESIGN
MEASURES

Step 1 – Diagnosis
The first step is to undertake a diagnosis of the existing situation for pedestrians. This involves a
profile of pedestrians as well as their trip characteristics. It is anticipated that much of this
information may be drawn from the Comprehensive Mobility Plan. To the extent possible, plans
showing existing pedestrians facilities should be compiled including information on sidewalk
width, condition, and occupation by hawkers and main pedestrian areas. The diagnosis should
include the components listed below. The level of detail of this first step should reflect the level
of investment planned.

Profile of Pedestrians in the City

A profile of pedestrians within the city should include an analysis of the existing situation and
trends covering the following topics:

• descriptions of the typical types of pedestrian in the city including commuters, passengers,
traders, and their place in society (e.g. poorer sectors of society)
• main origins and destinations and average trip lengths
• pedestrian volumes in selected areas — especially transport hubs and market/shopping areas
and an indication of route desire lines
• identification of peak periods of pedestrian activity
• proportion of walking trips as part of the person-trip modal split
• likely future trends for pedestrian activity, such as an increase or decrease and the reasons
• comments and key issues with regard to pedestrian trends

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Existing Pedestrian Facilities

Existing pedestrian facilities may include the following:

• crossings (at-grade signalised / non-signalised), grade-separated (overbridges/subways);

number and location; issues of design and location;
• pedestrian safety facilities: physical reserves, safety islands, barriers;
• segregation of pedestrians from vehicles;
• pedestrianised areas and areas not formally pedestrianised but predominantly used by
pedestrians (transport hubs, shopping areas);
• sidewalks: percentage of roads with sidewalks, sidewalk widths, sidewalk condition;
• occupation of sidewalks by hawkers and illegal markets;
• urban design and street furniture for pedestrians;
• a description of pedestrian management at markets

Social Aspects of Pedestrians

• employment issues;
• poverty issues;
• attitudes towards pedestrians by sectors of society: types of pedestrian and desired routes;
• social attitudes; other cultural factors;
• land use influencing pedestrian activity

Safety Aspects for pedestrians

• accident and casualty data; pedestrians involved in accidents; pedestrians causing accidents;
pedestrian casualties

Regulation and Enforcement

• traffic regulations for (or affecting) pedestrian activity

Summary of Key Issues

A summary of key issues should be presented, which typically include the following:

• pedestrians neglected in infrastructure planning;

• inadequate sidewalks; occupation of sidewalks by hawkers and illegal markets;
• dispersion from transport hubs, especially rail and bus stations;
• congestion; use of shared carriageway;
• impact of pedestrians on congestion; reduction in V/C ratios on links and degree of
saturation at junctions;
• safety;
• severance;
• low priority given to pedestrians;
• lack of pedestrian facilities;
• land use issues;
• poor enforcement of pedestrian areas;
• poor Road User Education (RUE);
• inadequate or inappropriate regulation

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Step 2 – Consider Policy Options

Level of Provision for Pedestrians
The level of provision for pedestrians in the transport network is an important early consideration in
the planning process. City policy-makers should determine how much capacity and road space
should be allocated to pedestrians in the short and long term to achieve the goals of the Mobility
Plan. Much will depend on the trip characteristics of pedestrians and the city land use. Existing and
future pedestrian volumes and patterns will also need to be examined.

Aims for Promotion of Pedestrian Trips

Appropriate pedestrian policy should achieve both short term and long term aims. Once aims
are identified, potential measures to achieve those aims can be determined.

Short Term Aims

• To provide a high standard of pedestrian facilities including greater sidewalk space with less
encroachment by hawkers, illegal markets, and parked vehicles;
• To minimise changes of level on continuous pedestrian routes;
• To improve at-grade crossing facilities for pedestrians by installing pedestrian traffic
signals;
• To remove obstacles on sidewalks, such as NMV and MV parking, and unauthorised
hawker activity;
• To implement pedestrian-only areas on a trial basis

Long Term Aims

• To provide city-wide facilities providing a high level of mobility, accessibility, convenience

and comfort for pedestrians;
• To establish a podium level network at 2nd floor levels in areas of heavy pedestrian use and
in new business and shopping districts;
• To provide protection from weather by building arcaded sidewalks in shopping areas;
• To implement overbridges across main motorised routes;
• To minimise severance between areas of the city;
• To implement formal pedestrian only areas with appropriate street furniture and aesthetic
value

Step 3 – Consider Potential Measures

Potential pedestrian measures should seek to give priority to pedestrians in selected areas and
separate them from motor vehicles. A variety of measures that are popular worldwide is
presented below.

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Footpaths
Footpaths (pavements, sidewalks) should be
provided to the extent possible to safely segregate
traffic from pedestrians. This is particularly
important in Indian cities which typically have
accident records in pedestrian/vehicle conflicts.
Even in narrow streets, delineation can be
implemented to provide a visible demarcation of
pedestrian space. This alerts motorists to space
that is allocated for pedestrian activity. The
additional provision of zebra crossings provides
areas for pedestrians to cross and a form of traffic
calming. Figure 12 Pedestrian Demarcation
and Crossing (Tokyo, Japan)
Pedestrian Crossings and Signals
At-grade crossing facilities for pedestrians can be improved by installing pedestrian crossings
and traffic signals. This will not only improve conditions and safety for pedestrians, but can also
improve capacity for MVs. In addition to traffic signals (with or without dedicated pedestrian
phases), other types of pedestrian crossings are defined below.

Table 7 Types of Pedestrian Crossings

Type of Crossing Description
Zebra: black and white demarcated areas in which vehicles are to give way to
pedestrians
Pelican: typically uses green and red person icons to instruct pedestrians to cross or wait
Puffin: detects the presence of pedestrians and adjusts the timing for pedestrian crossing
Toucan: joint pedestrian and bicycle crossings
Note: UK terminology

Figure 13 Pedestrian Crossings with Dedicated Phase for Pedestrians (Tokyo, Japan)

Pedestrian Bridges and Underpasses

Pedestrian overbridges and underpasses provide the safest means to cross busy roads whilst
maximising the road traffic capacity. They may be provided at intervals to be decided by the city
authority. Whilst the interval length will vary according to the situation, in commercial areas it

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is recommended that a crossing facility at least every 300m be provided and every 500m for
other areas. Underpasses should have sufficient headroom and should also consider social
concerns, such as lighting to ensure that they do not promote anti-social behaviour. In both cases
of overbridges and underpasses, due care should be taken to ensure that the facilities are fully
utilised by pedestrians and that they do not continue to cross at-grade, which undermines the
capital investment and perpetuates safety concerns. Pedestrian barriers may need to be
implemented.

Pedestrian Zones
Pedestrian-only areas and zones are frequently implemented in cities of developed countries and
increasingly as trials in developing countries, usually by road closure and often during particular
times only, such as weekends. They may be formal pedestrian spaces or temporary market areas.
When implementing pedestrian zones, consideration should be given to access for delivery
vehicles to ensure that commercial activity can be maintained. This may require extensive
consultation with local businesses. Access for emergency vehicles should also be considered.

Figure 14 Pedestrian Zones (Cambridge, England)

Facilities for Disabled Pedestrians

During the planning and development of
pedestrian facilities adequate consideration
should be given to accommodating disabled or
less mobile users. Typically, this includes
wheelchair users and the visually impaired. Such
facilities can include provision of ramps,
elevators, at-grade crossings without steps,
tactile surfacing, audible crossings and other
detectible warnings. Care should also be given
to the location of street furniture so that it does
not cause obstacles. Other considerations may
include lighting and use of non-slip materials. Figure 15 Ramps for Wheelchairs Users
(Tokyo, Japan)

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The pictures below shows yellow tactile (dimpled) surfacing that is comprehensively
implemented on walkways and pavements throughout cities in Japan, both indoor and outdoor.

Figure 16 Tactile Coloured Surfacing for Visually Impaired Pedestrians (Tokyo, Japan)

Upper Level Pedestrian Areas

New commercial and office buildings can
incorporate space at the second floor level for
integrated pedestrian walkways through the
buildings, linked by external walkways and
overbridges. These also help to standardise the
level heights of building floors. Such vertical
development helps to maximise inter-modal
facilities, such as transfers from public transport
or other vehicles, and maximises commercial
activity. Figure shows the provision of steps,
escalators, and elevators to access such
pedestrian areas.
Figure 17 Pedestrian Walkways
Connecting Buildings

Figure 18 Access by Escalator and Elevator to 2nd Level Pedestrian Areas (Tokyo, Japan)

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Aesthetic Considerations
In order to encourage pedestrian use, areas should be designed to provide socially attractive
routes. Designers should consider aspects such as landscaping, surfacing and lighting to provide
routes that are attractive to pedestrians. Routes across parks are likely to have high aesthetic
value.

Figure 19 Pedestrian Area with Lighting Figure 20 Landscaping Adjacent to

and Covered Walkway for Shelter Pedestrian Path (Tokyo, Japan)
(Tokyo, Japan)

Step 4 – Select Appropriate Measures

Following consideration of policy and design alternatives, appropriate measures can be selected.
The city authorities should determine the optimum facilities considering the profile of
pedestrians and the city environment derived from Step 1. Measures should be selected that are
practical and cost-effective and accord with the expected pedestrian demand. Some
considerations for selecting measures are summarized here.

Identification of Pedestrian Priority Areas/Sections

Each city usually has areas or sections with high pedestrian activity, such as railway stations,
bus terminals, markets and schools. As these generally have high demand for vehicles and
parking, which often threaten pedestrian safety, it is essential to provide necessary facilities for
pedestrians. The city authorities should identify such pedestrian priority areas/sections.

Location of Pedestrian Crossings

When investigating where to implement pedestrian crossings, the following factors should be
taken into account:

• Number of pedestrians crossing the road within a certain distance of the proposed facility
(typically 50m either side);
• Two-way traffic flows;
• Accident record of the site, particularly accidents involving pedestrians;
• Speed of vehicles;
• Special circumstances, such as proximity of schools

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In terms of quantifiable indicators, a calculation can be made to justify the crossing based on
demand. For example, some countries use a PV2 calculation, in which pedestrian (P) and vehicle
(V) flows are recorded for the four busiest hours to give a combined value. If this value exceeds
a minimum requirement, the crossing is justified. This formula also allows potential sites
throughout a city to be ranked in terms of priority, though other aspects such as accident rates
should also be taken into account.

Financial Analysis
The selection of measures should include financial analysis including a breakdown of all capital
and recurrent costs. Benefits are difficult to quantify and it is generally considered that selection
and implementation of pedestrian measures should be policy driven rather than based on
detailed economic calculations.

Step 5 – Design Appropriate Measures

The next step is to design the selected facilities and care should be taken to ensure that the final
product will achieve the original objectives. Cities typically develop their own design standards
for pedestrian facilities based on international best practice and national guidance. Some
standards from Japan for footpath design are provided below. The UK Transport Research
Laboratory produces guidance notes (TRL Notes) on cycle and pedestrian facilities. In the case
of India, further advice notes on the appropriate design of pedestrian facilities are set out within
the ‘Pedestrians FIRST’ publication.

Footpath Design
According to Road Design Requirements practiced in Japan, the minimum space (width)
required for one pedestrian to walk is 0.75 m. and in the case of a wheelchair 0.9 m. For this
reason the minimum width of a sidewalk should be 2.0 m. With this width, two persons walking,
or one person walking with another in a wheelchair, will be able to proceed along the sidewalk
comfortably. If a bench is provided on the sidewalk, an additional 1.0 m. should be added and
1.5 m. for the planting of roadside trees. The Japanese standard for Road Structure states
minimum width of sidewalk according to road location / class as shown in Table 8. A class 4
road is located within an urban area and is administrated by the Municipality. Category A refers
to desirable width, and B is for low pedestrian flows. The unique characteristic in Japan is that
bicycles can be allowed to pass on sidewalks upon police approval of the passable section. The
above standard does not take into account pedestrian volume and the Japanese government is
currently in the process of revising this to include actual volume. These standards are expected
within a year and an approximate outline is 3.5 m. for high volume area and 2 m. for others.

Table 8 Japanese Standards for Footpath Width

Required width of sidewalk where
Class Vehicles (AADT) Required width of footpath
bicycle are allowed to pass
A (m) B (m) A (m) B (m)
1 Over 10,000 3.5 2.75 3 2.25
2 4000 – 10,000 3.5 2 3 1.5
3 500 – 4000 2 1.5 1.5 1
4 Less than 500 2 1.5 1.5 1

For comparison, the UK IHT guidelines on ‘Providing for Journeys on Foot’ quotes absolute
minimum footway width as 1.8 m., desirable minimum width of 2.0 m. and preferred width of
2.6 m.

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SECTION V ANNEXES
Annex 1 International Case Studies
Tokyo, Japan – Safe Bicycle Riding Promotion Plan
The Tokyo Metropolitan Region has a population of 12.8 million and the number of bicycles
owned is 8.4 million, which equates to 1 out of 1.5 persons owning a bicycle. Those bicycles are
used for various purposes including shopping, commuting, working, leisure and exercises. Some
trips by bicycle are from origins to final destinations while others are from origins to transport
hubs, such as railway stations. In the Central Tokyo Metropolis, consisting of 23 wards, the
modal share of bicycle itself is 8%, and that of the combination of bicycle and public transport
(e.g. railway) is also 8%, so 16% of trips contain the bicycle mode (Census 2000).

This relatively high bicycle usage has contributed to reducing the environmental burden and
traffic congestion caused by motorized transport modes, not only by taking short trips, but also
by promoting public transport usage for longer trips through easy access at hubs. In Tokyo
Metropolitan Region, bicycle parking facilities have been developed around most of the heavy
rail stations to encourage such trip patterns.

Despite the above, the environment to promote appropriate bicycle usage is still in the process
of development and requires a number of factors to be improved. For example, although some
stations allow bicycle parking facilities nearby, others keep them a little far away (e.g. 300m
from the station), which generates illegal parking of bicycles on the street close to the stations.
Another issue is that the proportion of bicycle path length to road length in Japan is lower than
other (western) developed countries. This causes a mixture of bicycle use with motorized
vehicles on roads, which causes traffic accidents.1

With those issues in mind, Tokyo Metropolitan Government formulated the “Safe Bicycle
Riding Promotion Plan” in January 2007. This plan includes four main measures as follows:

• Reducing illegally-parked bicycles

• Developing bicycle paths
• Improving bicycle traffic manners
• Improving bicycle mechanics

Under these measures, the Metropolitan Government has been conducting actions for each area
one by one, considering different situations of various areas in Tokyo, cooperating with other
stakeholders.

Regarding reduction of illegally-parked bicycles, the Metropolitan Government has been

promoting the provision of parking facilities in the areas close to the stations under cooperation
with railway companies. Responding to their request, many railway companies have provided
land for those facilities or developed parking areas by themselves. Some of them, who do not
have appropriate land on the ground level, have offered underground land within the station

1
At the same time, it is recognized that Japanese pedestrians are very tolerant to allowing cycle use on city
pedestrian areas, where congestion allows, and it is actually more common to see bicycles on sidewalks than roads.

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square or other station facilities. In addition, taking advantage of the Road Law revised in 2005,
which allows development of bicycle parking facilities on public roads, the Metropolitan
Government has been promoting development of facilities on wider public roads and sidewalks
nearby the stations to reduce illegally-parked bicycles randomly occupying narrow sidewalks.

Source: Ministry of Land, Infrastructure, Transport and Tourism, Japan

Figure 1 Bicycle Parking on Public Highway Land

Another approach of the government is to promote development of multilevel bicycle parking

tower on or under ground for effective utilization of the land in areas in front of the stations or
commercial areas where land value is high.

Source: Tokyo Metropolitan Government

Figure 2 Image of Underground Multilevel Bicycle Parking at Kasai Station, Tokyo

The Municipal Government has also been implementing segregated paths to promote bicycle
usage by creating a safe and convenient environment for bicycle users. Though the most
appropriate method is to provide exclusive paths for the three categories of transport modes
(pedestrian, bicycle and motorized road transport), whose speeds are different, it is not easy to
do so on all roads due to the restrictive road widths in Tokyo. Subsequently, the government
considers use of either existing sidewalks or vehicular roads to locate new bicycle paths.

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Physical block

Private
land

Sidewalk Bicycle path Vehicular road

Source: Ministry of Land, Infrastructure, Transport and Tourism, Japan

Figure 3 Image of Exclusive Bicycle Path

Bicycle path divided

from footpath by color
pavement etc.

Private
land

Vehicular Sidewalk
road
Physical block

Source: Ministry of Land, Infrastructure, Transport and Tourism, Japan

Figure 4 Bicycle Path on Sidewalk

The metropolitan government is now considering regulation of vehicular traffic on roads around
railway stations by prohibiting entry of motorized vehicles or restricting them to one-way routes
especially during peak hours. This approach promotes bicycle usage and walking by securing
the safety of pedestrians and bicycle users as well as reducing traffic congestion on the routes
for non motorized transport.

The Tokyo Metropolitan Government is planning to develop bicycle paths as an entire bicycle
network and provide a cycle network map in each major area of Tokyo to promote bicycle use.

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Station

Motorized Traffic
Regulation Zone

Source: Tokyo Metropolitan Government Source: Tokyo Metropolitan Government

Figure 5 Image of Motorized Traffic Figure 6 Bicycle Path Provided by

Regulation during peak hours Restricting Vehicles to One‐way Route

For the improvement of bicycle traffic manners, the government is revising educational
curriculums and regulations. Also, they have been developing systems to improve safety of
bicycle mechanics, including a security symbol system for bicycles. This plan was approved in
2007 to improve and promote bicycle usage, after when each municipality adopted it. Though it
is too early to evaluate the impact of this plan, it is considered an effective policy measure.

Source: Safe Bicycle Riding Promotion Plan, Tokyo Metropolitan Government, January 2007

Mexico City, Mexico – Bicycle Planning

Transportation-related issues present a serious challenge to improving the quality of life for
Mexico City’s 19 million residents. Of the 2.5 million tons of pollutants emitted into the city’s
air each year, more than 80% is from cars and other motorized vehicles.

Though only 20% of all daily trips in Mexico City are by car, 80% of its physical space is
dedicated to travel by car. Seven out of ten Mexican citizens are overweight or obese.(NOTE: is
this comment really appropriate)

ITDP is working with the Mexico City government to develop a Bicycle Master Plan that will
strengthen cycling as a safe, attractive, healthy and convenient travel option for city residents.
The goal of the Master Plan is to increase bicycle trips as a proportion of all trips to 2% by 2010
and to 5% by 2012.

To achieve this goal, the Master Plan project is undertaking a number of key actions:

• Mobility: design bicycle path networks with an eye for safety, attractiveness, and
convenient access to higher-demand destinations and mass transit services; implement
measures to calm automobile traffic;
• Universal access: facilitate easier door-to-door trip-making by strengthening connections
between travel modes (e.g., bicycle parking at transit stations);
• Promotion: implement public campaigns that encourage bicycle use and raise its social
status;

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• Managing travel demand: provide disincentives for excessive car travel, such as congestion
and parking pricing measures;
• Legal application: enforcing laws governing urban transportation

Cycle-Ride Sundays

Thousands enjoy car-free streets as Mayor Marcelo Ebrard moves Mexico’s capital into a select
group of cities taking bold action to improve the quality of public life.

On Sunday May 13th the Mexico City government, headed by Chief of Government Marcelo
Ebrard, began the Ciclo-Paseos, or “Cycle-Rides” program in designated streets. The program
encourages city inhabitants to walk, skate, or use bicycles to enjoy the city and promote
non-polluting forms of transportation.

The streets chosen consist of a circuit of 14km along the well known Reforma Avenue and
others close to the historic city center so that the public can enjoy some of the cultural sites and
activities along the ride. Motor vehicles are not allowed on those streets between 7:00 AM and
2:00 PM on Sundays. Many cities in the world have similar programs. Perhaps the best known
is Bogotá, Colombia, with its more than 120km of streets that undergo this transformation every
Sunday.

The response in Mexico City to the first six Cycle-Ride events has been positive with no serious
accidents to report and with an attendance of around 10,000 people. As many as 50,000 people
participated when the ride was extended to other streets and had its name changed to
“Cycle-thon”. ITDP Mexico has been involved in planning the Cycle-Ride concept and is
currently supporting the city government in projects aimed at improving conditions for cyclists
and pedestrians.

The challenge for the program now is to keep the good momentum going and to take other
integrated actions to promote non-motorized transport as one of the priorities in Mexico City’s
Sustainable Mobility Agenda.

Source: [Link]

São Paulo, Brazil – Bicycle Planning

With 20 million inhabitants in its metropolitan region, São Paulo is the fourth largest city in the
world. With only under 30km of bike paths, the city is currently vastly underserved in terms of
road space for bicycles, despite an estimated 400,000 bicycle users in greater São Paulo. Large
volumes of aggressive traffic and car-oriented street design make cycling in São Paulo a
dangerous proposition today.

With ever-worsening traffic jams and an automobile fleet that grows at 10% a year, the city
government is beginning to look to other solutions for mobility, including the bicycle. The
global discussion on global warming has also reached municipal politics, thanks in part to the
strong presence of the Clinton Climate Initiative, giving the bicycle even better visibility.

ITDP’s main contribution to promoting cycling in São Paulo is focused on a pilot bicycle path
in the neighbourhood of Butantã. This 15km bike path goes by some of the city’s wealthiest
neighbourhoods, strongly middle and working-class areas, and connects to one of the largest
favelas – Paraísopolis. The bike path passes in front of the legendary Morumbí soccer stadium

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and goes to the Cidade Universitaria (University City), giving it excellent visibility and
increasing its potential impact on other parts of the city.

ITDP also commissioned a report for a feeder network, which identified 58km of shared streets,
sidewalks and bikeways to lead cyclists to the trunk bike path.

Given the high visibility of Butantã, this bike path represents a unique opportunity to promote
cycling throughout the Mega-City. If successfully implemented, the network could be extended
to surrounding neighbourhoods and throughout the city, thereby lowering emissions, and
improving mobility and quality of life in the economic engine of Brazil.

Source: [Link]

Surabaya, Indonesia – Bicycle Network

By international standards, Surabaya has an extremely high mode share of private motorized
trips (predominantly motorcycle) relative to per capita incomes, despite the fact that average trip
distances “as the crow flies” are extremely short.

Non-motorized trips are nonetheless a critical part of the transportation system, while collective
forms of transport are much less important than in other regional cities of similar income and
density. Motorized travel speeds are currently high for a central urban area, indicating a
relatively efficient long distance travel system. Short distance travel, by contrast, is quite
inefficient, as indicated by exceptionally high detour factors for short urban trips (under 3km).

This is due primarily to the one-way traffic system, but complicated by the weak secondary
street network, safety problems on the main arterials, and lack of infrastructure for
non-motorized traffic. Access problems resulting from inhibited short to medium distance trips
are addressed somewhat by the presence of vendors along major arterials, greatly improving
access for small commodities, but creating conflicts with both motorized and non-motorized
traffic flow in some locations.

However, even low income people are forced to use motorized travel even for extremely short
trips, leading to conditions where the working poor spend an estimated 20% of their household
income on transport. Improved conditions for non-motorized travel in the study area would
yield $250,000 in benefits to these low income families each year. The vehicles they rely on,
predominantly two-stroke engine motorcycles, are also extremely polluting.

If the modal split for trips under 3km just in the two study areas in Surabaya were brought to the
same level of non-motorized trips as in Germany, CO2 emissions could be reduced by 680 tons
per year. Reducing the reliance of the poor on motorized travel, meanwhile, would reduce
political resistance to tighter tailpipe emission standards and the removal of oil subsidies.

Finally, even with available data, Surabaya has one of the most unsafe traffic systems in the
world, and the data is underestimating deaths and dramatically underestimating accidents. The
one-way system creates extremely wide roads with no traffic islands, making it extremely
difficult for pedestrians to cross safely. Heavily obstructed sidewalks or lack of sidewalks, very
poor visibility at night, the absence of any traffic calming measures, the lack of traffic lights
particularly for left-turning vehicles, and the high traffic speeds also contribute to extremely
unsafe conditions which are inhibiting travel.

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Design features of a non-motorized transportation network in the two pilot areas are suggested
and partially developed. These design features would facilitate safe non-motorized trips in
two-directions on both sides of one-way arterials, greatly reducing detour factors and hence
vehicle kilometers traveled between short to medium distance origins and destinations.
Extremely modest widening of some kampung streets in some strategic locations would also
make possible the reduction of detour factors and the bypassing of major arterials for some trips.
These interventions would also encourage a shift from motorized trips with low capacity/flow
ratios and high levels of emissions to pedestrian and bicycle trips with much higher capacity
flow ratios and no emissions. Measures to improve pedestrian and non-motorized vehicle
(NMV) users safety are also proposed. If the one-way system is to be retained, traffic islands for
pedestrian protection are necessary both at intersections and points of heavy NMT crossing
activity mid-block. Increasing the number of signalized intersections, and introducing a phase
which stops left-turning vehicles to allow NMT to cross is also critical. Improving street
lighting at pedestrian crossings, and raising the pedestrian cross-walks is also suggested.

Source: [Link]

Tokyo, Japan – Barrier‐free Pedestrian Facility Development Measures

In Tokyo Metropolitan Region, the number of elderly has been increasing year by year as well
as the number of accidents involving them. Under this condition, the Metropolitan Government
placed emphasis on transport safety for the elderly in the Transport Safety Promotion Plan of
Tokyo Metropolitan Region of Fiscal Year 2006. In this Plan, they explained various barrier-free
pedestrian facility development measures not only for the elderly, but also for the handicapped
or mobility disadvantaged. Funding is from multiple authorities within the Tokyo Metropolitan
Government and Regional Development Bureau of the Ministry of Land, Infrastructure,
Transport and Tourism, Japan.

One of the measures is development of barrier-free footpaths. For this measure, sidewalk
widening alongside arterial roads (7.9km) and other main roads (7.8km) was proposed utilizing
a budget of over US$10 billion in order to increase sidewalks which wheelchair users and
elderly could proceed along comfortably. Depending on the availability of the road space, some
parts of the sidewalks are planned to have sufficient width for two wheelchairs to go by each
other. Also, they proposed budgets for development of pedestrian bridges, including installation
of lifting devices or ramps for wheelchair users. Tactile colored surfacing for visually impaired
pedestrians was added on sidewalks to the extent of 2.8km.

Another measure was improvement of pedestrian signals and

installation of lighting. Although many pedestrian signals in
Japan have an acoustic device (with a melody to alert
visually impaired pedestrians of the green signal after they
push a button), many are yet to be installed. In addition,
many have not been developed to have a green signal
extension to provide more time for the elderly or
handicapped to cross. Within the Fiscal Year 2006, an
additional 100 acoustic devices and 25 green signal extension
devices were proposed as well as 220 lighting improvements
in the Tokyo Metropolitan Region.
Source: Tokyo Metropolitan Police Dept

Figure 7 Acoustic Device on

Pedestrian Signal

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The government has also focused on the promotion of barrier-free footpaths connecting
underground or elevated railway stations/platforms to ground level footpaths so as to improve
usability of public transport system for elderly and handicapped. In Tokyo Metropolitan Region,
though 2nd level or underground pedestrian areas around many railway stations have been
developed, not all of them have installed escalators and
elevators. Within 2006, the government has funded
elevator installations or improvements at 37 private
railway stations and escalators at 7 stations, as well as
installation of 40 elevators and 13 escalators at the
stations of Tokyo Metropolitan Transport Authority. In
addition, they subsidized installation of additional tactile
colored surfacing for visually impaired pedestrians,
double handrails for both visually impaired pedestrians
Source: Social Welfare Corporation Minato
and wheelchair users, and larger public toilets for Municipality Volunteer Center
wheelchair users at the railway stations of not only public
transport authorities, but also private railway companies. Figure 8 Double Handrail

Furthermore, the Metropolitan Government identified four municipalities as those to develop

local universal design project models (of Fiscal Year 2006) and then funded them. Within the
four municipalities, routes around major railway stations and those connecting institutions for
the elderly or handicapped to stations were defined as priority routes. The development
measures consisted of improvement of pedestrian signals, increase in pedestrian crossings, and
installment of stop signs for pedestrian safety on the priority routes. The significant advantage
of such local projects was to improve facilities considering local demanded networks and
consistency with local traffic regulations in each area, under cooperation with each municipality.

Source: Transport Safety Promotion Plan of Tokyo Metropolitan Region of Fiscal Year 2006

Yogyakarta, Indonesia – Pedestrianization

With Asian downtowns becoming clogged with traffic, wealthy shoppers and tourists are
leaving urban markets for outlying, highway-side hypermarkets and multiplexes. Some Mayors
are fighting back with new pedestrian zones that offer a more environmentally-friendly,
attractive alternative that improve the quality of life and generating economic development.

ITDP has been working with the Municipality of Yogyakarta, Indonesia to help pedestrianise
Malioboro Road. Yogyakarta is the centre of Javanese culture, and Malioboro Road is an ancient
street that traditionally served as the ceremonial access road to the Sultan’s Palace (Kraton). For
decades it has been an important commercial street, home to many of Yogyakarta’s most
important markets and an important tourist destination.

With support from USAID and the Toyota Foundation, ITDP focused on work in the following
three areas, in close cooperation with Instrans and Gadjah Mada University’s Centre for
Transportation Studies (PUSTRAL):

• analysis of the traffic impact of closing the Malioboro to automobiles and preparing a traffic
mitigation plan;
• modernization of the becak (see below);
• outreach to the various interest groups to move the pedestrian zone forward politically

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In the summer of 2005, the street structure along Malioboro was rerouted to divert the
through-traffic, cutting traffic by about 30%. Several elevated crossings were also built to help
make it possible for pedestrians to reach the area safely. ITDP also sent world-famous urban
designer Jan Gehl to meet with municipal authorities to explain how Copenhagen, Denmark had
pedestrianized large parts of its city centre, and the impact it had.

Based on ITDP’s success modernizing the traditional cycle rickshaw in India, we’ve also
worked with our partners in Yogyakarta to similarly revitalize the becak as a mode of
transportation through improvements to its weight, manoeuvrability, and passenger and operator
comfort. (The becak is a non-motorized, three-wheeled rickshaw, distinct from the Indian
rickshaw because passengers sit in front of the driver.)

The Yogyakarta Tourism Department directly ordered 50 of the modernized becaks to serve as
special tourist vehicles. During 2005, the modernized becak model was further refined and
updated to address the suggestions of the drivers and passengers who used the 2004 model, the
Bisma. ITDP also provided modernized becaks to transport participants at the Better Air Quality
conference held by the Clean Air Initiative for Asia in Yogyakarta in December, 2006. Efforts
are currently focused on marketing the current model to reach a wider audience.

With help from Instran, a local non-governmental partner organization, a dialog was begun with
various parking, becak, and street vendor interest groups to develop a Malioboro
pedestrianization plan that could incorporate their concerns without sacrificing the public
interest. Opposition from these groups, however, has proven to be a significant obstacle to
further pedestrian improvements to Malioboro Road.

Source: [Link]

Plymouth, England – Morice Town Home Zone

Scheme Description
One of the largest Pilot Projects, this covers an area adjacent to Devonport naval base with a
mix of private, council and social housing. It covers around 2.2km of road network. The scheme
has developed from a road safety intervention into a comprehensive regeneration initiative.

Scheme Type
Retrofit

Housing Type/Other Land Use

155 terraced houses, 253 flats, five public houses, three public businesses, Morice Town Junior
school, a Salvation Army Hall and a derelict playground now in the process of refurbishment.

Community
• Consultation and partnership working have been the cornerstones of the home zone building
process;
• Partnership with the local community and local businesses has been established and
nurtured. Proposals originally instigated by the City Council (not the residents) were at first
greeted with suspicion. However the partnership is growing in strength, with residents
rowing in confidence in working with the Council, and addressing problems beyond the
scope of the home zone project. Initially three large community meetings were held to

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introduce the concept and scope of the pilot and to seek representatives to guide and inform
the community;
• Public meetings are held as necessary but the representatives meet on a monthly basis. Door
to door surveys plus a more targeted follow–up survey and Planning For Real exercises
were conducted to establish background information and community concerns;
• Community design workshops took place throughout 2000, resulting in a detailed plan of
the home zone.

Scheme Objectives
This is a very mixed area, with some private owner–occupied housing but also some severe
deprivation with high crime rates, and a lack of facilities. Until recently there was no bus service
in the home zone area and certain roads suffered from rat running and excessive speed. Issues
for the residents included excessive speed, parking, security and safety, dog fouling, vandalism,
anti social behaviour, litter, lack of play areas and community facilities and quality of life issues.

Key Measures
Features include:
• Raising of the carriageway to a single level over much of the area;
• Vertical and horizontal traffic calming;
• Use of planters and planting;
• Environmental enhancements;
• On–street play facilities;
• Community space;
• Pro–active attention to parking issues

A phased approach has been adopted for implementation starting with nine gateway features and
those measures which will do most to reduce speed and change the nature of the area.

Source: Home Zone Design Guidelines, IHIE, London 2002

London, England – Whitechapel Traffic Calming

Scheme Description
The design was developed through a series of community workshops held during evenings and
weekends, where residents were encouraged to work closely with engineers and urban designers.
In order to make best use of the street space and protect parking, residents chose to make the
street one way. Subsequent feedback from the community is positive, however, and local
residents are seeking the extension of the concept into neighbouring streets.

Scheme Type
Retrofit.

Housing Type/Other Land Use

Wholly residential

Community Scheme Objectives

No formal objectives set, but key local concerns included security, parking and speed of traffic.

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Key Measures
• Street made one–way;
• Reorganisation of parking;
• Strong lateral shift with speed table in the centre of the street;
• Designation of the street as 30km/h zone;
• Speed tables at entrances, exits and within scheme;
• New street trees;
• Improved fencing of open stairwells to flats;
• Traffic calming on adjacent major routes

Source: Home Zone Design Guidelines, IHIE, London 2002

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Annex 2 Indian Case Studies

India – Rickshaw Modernization
Unlike many transport initiatives that aim only at improving the environment, ITDP’s Indian
Cycle Rickshaw Modernization project also cleaned the air and increased employment and
income among the poor.

In collaboration with local experts, ITDP developed a series of design innovations that made
India’s traditional cycle rickshaw lighter, more comfortable, and easier to handle. ITDP’s
modern rickshaw design reduced the weight of the vehicles by more than 30% and a multi-gear
system made pedalling much easier.

Surveys among rickshaw operators showed that incomes increased by 20% to 50% because
operators were able to work longer, attract new passengers, and because customer satisfaction
rose in response to the improved comfort and safety. The project also demonstrated that the
modernized cycle rickshaw could attract 19% of its riders from highly polluting, motorized
rickshaws, making its impact on greenhouse gas emission reduction quantifiable.

Today, over 300,000 modernized cycle rickshaws are operating in nine of India’s major cities,
including Delhi, Agra, Bharatpur, Brindavan, Mathura, Jaipur and Chandigarh

Based on ITDP’s success in India, we’ve also worked with our partners in Yogyakarta to
similarly revitalize the becak as a mode of transportation through improvements to its weight,
manoeuvrability, and passenger and operator comfort. (The becak is a non-motorized,
three-wheeled rickshaw, distinct from the Indian rickshaw because passengers sit in front of the
driver.) The Yogyakarta Tourism Department directly ordered 50 of the modernized becaks to
serve as special tourist vehicles.

During 2005, the modernized becak model was further refined and updated to address the
suggestions of the drivers and passengers who used the 2004 model, the Bisma. ITDP provided
modernized becaks to transport participants at the Better Air Quality conference held by the
Clean Air Initiative for Asia in Yogyakarta in December, 2006. Efforts are currently focused on
marketing the current model to reach a wider audience.

Source: [Link]

Jaipur, India – Modern Rickshaw Credit Plan

ITDP recently unveiled a new revolving credit fund to support the purchase of modern cycle
rickshaws in Jaipur, India. The fund will allow rickshaw operators to purchase modern vehicles
at a very low interest rate. The first 20 vehicles sold under this program, which were
co-financed by a local charity organization, were distributed during a public event in Jaipur.

• The modern cycle rickshaws were first produced two years ago, after local engineers
teamed with ITDP to design a rickshaw that is 30 percent lighter, easier to steer and more
comfortable for passengers and drivers. The modern vehicle costs about the same as a
traditional rickshaw and lasts three times as long. Rickshaw operators report earning up to
double their income because of increased customer satisfaction and improved efficiency.

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• The modern vehicles have spread from Agra, to Delhi, Jaipur, Lucknow, Mathura and
Vrindavan. In Vrindavan, modern rickshaws have completely replaced the traditional
vehicles. The number of modern cycle rickshaws sold in India is now over 20,000.

• The vehicles distributed in May were the first modern rickshaws assembled in Jaipur,
although two rickshaw producers in the city have been incorporating some improvements
into their traditional vehicles. At the event, one local manufacturer committed to producing
the completely modernized vehicle, which will be available to more local drivers through
the payment plan

Source: [Link]

Nanded, Maharashtra – Street Design Project

Nanded is a small sized town by Indian standards. It has a population of about half a million and
an area of a little over 50 sq. km. The city has an important Gurudwara-a Sikh temple, and is
one of the five most important holy places for Sikhs. Celebrations are planned in 2008 to mark
300 years of the setting up the Gurudwara and 2.5 million pilgrims from all over the world are
expected to visit Nanded in the week around these dates.

The city of Nanded has been included in the JNNURM program and a major investment in
upgrading the physical infrastructure is currently under way. The projects undertaken include:

• Riverfront development project;

• A new sewerage system and sewage treatment plant;
• Water supply network;
• Upgrading existing airstrip into full-fledged airport;
• Upgrading of the existing railway station and construction of a new additional railway
station for freight traffic;
• Hospital/Trauma care centre;
• A museum;
• Campsite development (for the celebrations, to accommodate 1 million people)

A major initiative to improve the streets of the city is also underway. About 50 Km. of streets in
Nanded are being redesigned and built. These include:

• The important roads in Nanded’s old, dense city-centre;

• About half of the main roads in the northern part of Nanded (north of the railway);
• A number of partly connected roads in the still undeveloped south of Nanded (south of the
river)

The roads range from Right of ways from 9 M. to 30M. with varying configurations. The details
of the road widths are:

• metre wide proposed pedestrian road near the Gurudwara (Rd. 11)
• 15 metre-wide roads, proposed for one way traffic (1x2 lanes)
• 15 metre-wide roads, proposed for two-way traffic (2x1 lanes)
• 18 metre-wide roads, proposed for one-way traffic (1x2 lanes)
• 18 metre-wide roads, proposed for two-way traffic (2x1 lanes)
• 22 metre-wide roads, two-way traffic (2x1 lanes)

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• 24 metre-wide roads, two-way traffic, two lanes per direction (2x2 lanes)
• 30 metre-wide roads, two-way traffic, two lanes per direction with median (2x2)

Design Objective

The designs of roads has been prepared on the principle of equitable space allocation for all road
users with a “focus on people rather than automobiles.

The Nanded Roads Project is an extraordinary project. Its scale in terms of the number of roads
to be re-engineered and the commitment to provide appropriate facilities for cycling and
walking on these roads are unique for India. The project, when properly executed, could become
a model for hundreds of similar-sized Asian cities that aspire to develop a sustainable, safe and
pleasant, people friendly street atmosphere.

The road cross sections are being designed keeping in mind the chaos and confusion that exist
in a typical Indian street as of today. The main source of this chaos is the mixed traffic
conditions prevailing in our streets with a range of vehicles such as bullock carts, cycles,
cycle-rickshaws, auto-rickshaws, two wheelers in huge quantity, cars, buses and trucks. Detailed
activity studies and traffic counts were carried out at important parts of the existing streets and
these were translated into the plans. The design approach has been to find space for all the
activities that exist.

Figure 1 Typical Activity Analysis‐ Activities on Necklace Road at 11.30 am.

The most important component of the design has been to segregate the Motor Vehicle traffic
from the Non Motorised (Cycle rickshaws, hand pushed carts, vendor’s carts along with cycles).
Adequate space has been provided for the pedestrians since they form the majority of the users.
A separate ribbon has been provided on one or both sides of the road depending on the space

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Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

available. We are calling it the Multi Utility Zone (MUZ). This zone has been detailed out to
carry the following functions:

• Bus Stops
• Street Lighting
• Trees
• Parking for cars, two wheelers and cycles
• Auto Rickshaw stands
• Hawker platforms
• Public Toilets
• Electrical and telecom distribution panels and package type transformers
• Garbage bins
• Advertising structures
• Signages etc.

Provision of designated areas for these areas should allow for better enforcement of traffic rules
as these activities tend to spill onto the movement areas and become a bottleneck as well as a
hazard. We anticipate that the traffic will flow better due to the design interventions.

The designs are completely accessible and traffic calming details are being incorporated to
make the streets safer.

Provision of high quality cycle lanes is likely to result in encouragement of this sustainable and
greener mode of transport in the city.

Figure 2 Typical Lane Segregation

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Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

Details of the key components of the streets are:

Foot Path:
The footpath widths have been allocated differently for different streets depending upon their
usage. A minimum of 1.8m width to 3.5m width has been assigned to footpaths.

NMV Lane:
Like all smaller Indian cities the roads in Nanded also caters to all modes of Non Motorized
traffic in huge numbers. This includes hundreds of milkmen on cycles delivering their daily
supplies to shops early in the morning, cycle rickshaws in the older part of the cities densest
residential areas, bullock carts, hand push carts in commercial areas and so on. In order to
segregate and formalize their movement, the NMV lane has been given in almost every one of
the roads being undertaken leaving a few residential areas where the road right of way does not
permit it.

The minimum lane width assigned for a one way lane is 2.0m
The minimum lane width assigned for a two way lane is 2.8m

Multi Utility Zone:

The multi utility zone (MUZ) as the name suggest is a very versatile space catering to such
activities as - on road parking for both MV and NMV, Avenue trees for greening the city and
also street lighting poles. A width of of 2.25m to 2.5m has been allocated for the MUZ.

Figure 3 Car Parking in Multi Utility Zone

MV Lane:
The MV Lanes have been assigned their widths according to the function of the particular street
and the volume it is expected to carry. Widths ranging from 3.15m to 3.5m per lane have been
allocated.

The road designs are being developed by the New Delhi based design consultants Pradeep
Sachdeva Design Consultants (PSDA) and IL&FS (Infrastructure Leasing and Financial
Services Ltd) as the program managers.

To enable current international best practices into the designs, national and international experts
have been brought on board for the project. The experts providing detailed inputs are:

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Guidelines and Toolkits for Module 5 Guidelines for Non‐Motorised Transport
Urban Transport Development Measures: Policy and Options

1. Transport Research and Injury Prevention Program at IIT Delhi

2. Interface for Cycling Expertise, (I-CE) the Netherlands who have deputed their
transport planner Mr. Jeroen Buis to the offices of PSDA.
3. Dr. L R Kadiyali of LR Kadiyali and Associates, New Delhi. Dr. Kadiyali is a foremost
transport expert and is on the panel of various IRC committees.

To get feed back as well as to generate awareness about the design approach, a workshop was
conducted in Nanded for the following objectives:

1. Discussions on the specifics of traffic planning in the city

2. Understanding of different functions in different areas and arriving at required road
sections
3. Issues and inputs for design of proposed road sections
4. Arriving at a Vision and a mobility network for the city of Nanded

Figure 4 Proposed Bicycle Lane Segregation Figure 5 Proposed Traffic Calming

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