Joining the Dots - A Critical Analysis of Cycling Policy in Belfast

Joining the Dots:A Critical Analysis of Cycling Policy in Belfast

Plagiarism Statement/Declaration of Authorship

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Name: Thomas McConaghie

Student Number: 40043104

Supervisor: Dr John Barry

Degree Program: International Politics and Conflict Studies

School: Politics, International Studies and Philosophy

Date: 24th April 2013

Word Count: 11,444

1. I confirm that this submitted work is all my own work and is in my own

words.

2. I confirm that I have cited all the sources, including books, journals,

websites etc. from which I have quoted or from which I obtained a

substantial amount of information in completing this work.

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Acknowledgements

I would like to firstly thank Dr John Barry for his guidance and tutelage over the

past year. He helped me to understand the importance of finding my own voice

and perspective, both in relation to this dissertation and also beyond the realms

of academia. I would like to thank the three interviewees who gave up their time

to be questioned on the relevant issues. Their cooperation was greatly

appreciated. My mother-in-law’s help and advice in transcribing went along way

so my gratitude is extended to her too. My final word of gratitude is to my ever-

patient wife. Her unerring patience and grace over these last 9 months have

been nothing short of saintly. I am grateful beyond words for the support she

has shown me.

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Abstract

This dissertation will make an argument for cycling to be a supported and

recognised form of transport in Belfast. The first chapter will examine the

validity of the bicycle in terms of the health and economic benefits it brings to

both individuals and the city in general, before looking specifically at Belfast as

an ideal city to host a broad cycling infrastructure. The second chapter will

explore city policies on transport and sustainability to understand any current

provision for cycling and critique them using the relevant literature. The third

chapter involves the analysis of interviews of key stakeholders in regards to

transport in Belfast. From this analysis, three reasons will highlight why Belfast

is currently struggling to support cycling in the city with a fourth section that

evaluates potential emerging issues regarding cycling. The fourth and final

chapter will then make recommendations based upon the scrutiny of policy

documents, evaluation of the literature, and the critique of the opinions and

arguments of the interviewees. The conclusion of this dissertation emphasises

that cycling infrastructures are an integral part of modern healthy cities.

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Table of Figures

Figure 1 - Belfast % Population Access to Car or Van. (NISRA, 2011a)...................13

Figure 2 - Radius of Belfast Metropolitan Area (Coulter, 2012).................................16

Figure 3 - A “Bicycle Scaled City” (Coulter, 2012).............................................................17

Figure 4 - Comparing precipitation levels in Belfast, Copenhagen and

Amsterdam with bicycle percentage modal share of traffic (Coulter, 2012)........19

Figure 5 - Population decline in Belfast between 1951 and 1990 (Plöger, 2008,

p. 16)......................................................................................................................................................33

Figure 6 - Albertbridge Road approaching the Lagan (NI Greenways, 2012)......37

Abbreviations

BCC Belfast City Council

BMA Belfast Metropolitan Area

BotM Belfast on the Move

DRD Department for Regional Development

MLA Member of Local Assembly (in Northern Ireland)

NISRA Northern Ireland Statistics and Research Agency

OECD Organisation for Economic Co-operation and Development

QUB Queen’s University Belfast

RDS Regional Development Strategy

SDLP Social Democrat and Labour Party (of Northern Ireland)

UU University of Ulster

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Table of Contents

ACKNOWLEDGEMENTS.................................................................................................. 3

ABSTRACT.......................................................................................................................... 4

Table of Figures............................................................................................................................. 5

Abbreviations................................................................................................................................ 5

CHAPTER ONE: BIKIN’ BELFAST..................................................................................8

Introduction.................................................................................................................................. 8

A Case for Cycling.......................................................................................................................... 9

Health Benefits.................................................................................................................................9

Economic Benefits..........................................................................................................................11

Sustainability & Climate Change....................................................................................................13

A Case for Belfast......................................................................................................................... 14

Land Use & Population...................................................................................................................14

Congestion.....................................................................................................................................18

Climate...........................................................................................................................................18

CHAPTER TWO: POLICY AND LITERATURE REVIEW.........................................21

Looking for Cycling Policy in Northern Ireland..............................................................................21

Literature on Cycling Policy..........................................................................................................24

Conclusion................................................................................................................................... 26

CHAPTER THREE: ENGAGING OPINION..................................................................28

Introduction................................................................................................................................. 28

Interview Analysis........................................................................................................................ 32

1. Car Dependency as a Legacy of ‘The Troubles’....................................................................32

2. Fragmentation of Government from the Legacy of ‘Direct Rule’........................................34

3. A Lack of Recovery..............................................................................................................36

4. Emerging issues...................................................................................................................39

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Conclusion................................................................................................................................... 42

CHAPTER FOUR: RECOMMENDATIONS..................................................................46

Introduction................................................................................................................................. 46

Recommendations....................................................................................................................... 46

An Initial List of Recommendations................................................................................................46

The Student Factor.........................................................................................................................49

What Would Jesus Drive?...............................................................................................................51

Advocating for Change...................................................................................................................53

Infrastructure.................................................................................................................................54

Conclusions.................................................................................................................................. 55

Further recommendations for study..............................................................................................56

BIBLIOGRAPHY.............................................................................................................. 58

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Chapter One : Bikin’ Belfast

Introduction

Cycle tracks will abound in Utopia – H.G Wells

(2009, p. 58)

As the world grows, the spaces in which we exist become ever smaller. The

population of Northern Ireland, while significantly lower than its peak

population1 due to ‘The Troubles’, will continue to grow and as such our

governments will have to make decisions that encourage the most effective use

of the relatively small amount of land that we live in and on. The first of three

parts to this chapter will contend that cycling is a valid mode of transportation

by looking at three key arguments. The first of which contends cycling to be vital

for the health of a city in terms of both the individual and society as a whole.

The second argument will look at the benefits that cycling brings to both the

individual and the entire community in terms of the economy. Thirdly, the role

of sustainable development and its significance for cities – Belfast in particular –

in learning how to reposition many values to preserve and protect the

environment for both the current and future generations will be argued for. The

second part of this chapter will look specifically at Belfast and argue why it is a

perfect example of a city to have an extensive cycling infrastructure. This will

lead into the second chapter which will examine the official government policies

of transport, sustainability and regional development to outline the policy

landscape and the official attitudes towards cycling. Through an analysis of

official policy this chapter will highlight and critique how cycling is not

1 See Figure 5 for further details.

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currently on the agenda, despite the claims that NI is moving in a direction

towards sustainability. The analysis will be informed by a portion of the

expansive range of literature which argues for political support for cycling. The

concluding remarks of the second chapter will claim that the implementation of

cycle lanes is actually not the answer to the problem. The solution is found in

understanding that we need more sustainable, functional and environmentally

friendly cities. When this becomes the focal point of our political leaders, it is a

benefit to all of society, both human and non-human; cycling then becomes a

small but significantly accepted mode of transport in that society.

A Case for Cycling

“No other single activity can simultaneously improve general health and

fitness; reduce pollution and carbon dioxide emission; while helping to

tackle congestion.” (SWQ, 2007, p. 1)

This chapter will proceed to outline the health benefits associated with cycling

to provide the first argument for embracing it as a mode of transport within the

context of Belfast.

Health Benefits

The Individual

There is strong evidence that cycling has the potential to make a significant

contribution to improving public health. (Cycling England, 2007, p. 29) Perhaps

one of the most obvious benefits enjoyed by cyclists are those related to

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personal health. It is no profound secret that chronic diseases can be prevented

through engaging in physical activity. (SWQ, 2007, p. 29) The contributions

towards an individual’s weight management and mental health have also been

officially recognised. (Department for Transport, 2012)

On average, the estimated health benefits of cycling were substantially

larger than the risks of cycling relative to car driving. For society as a

whole, this can be even larger because there will be a reduction in air

pollution emissions and eventually fewer traffic accidents. (de Hartog et al.

2010, p. 1115)

When individuals embrace the bicycle as a viable form of transport they are

heaping upon themselves numerous benefits. Furthermore, as more and more

motorists exchange four wheels for two, the air quality of any given city will

increase as toxic fumes decrease (Cook, Skimming and Stanford, 2009), which in

turn might lead to more motorists deciding to cycle. A similar effect can also be

seen through the number of accidents decreasing as cycling replaces motoring

(Gaffney, 2008).

The Society

The relevance of health benefits applies to the wider community too. A truly

modern global epidemic is the fact that the world is more overweight today than

it ever has been before (Kenny, 2012). Figures from the UK perpetuate the

global trend - 60% of adults and 30% of children are overweight (BBC, 2011). It

also extends to the island of Ireland. A recent island-wide study claims 59% of

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our adults to be either overweight or obese (Safefood, 2012) and these trends

are growing. Being overweight significantly increases the likelihood of heart

disease, diabetes, high blood pressure and some cancers. Not only is the

individual harmed by obesity, the rest of society is too. The report by Safefood

also claimed that weight problems cost the Northern Ireland economy more

than £1 million a day. As mentioned in the previous paragraph - cycling is one

way of managing a healthy weight. It is an obvious conclusion then that

investing in the bicycle, on both individual and societal levels, transportation

provides an opportunity to encompass exercise into busy lifestyles and embrace

healthier lives.

Economic Benefits

Economic Benefits for Society

A second argument in favour of cycling outlines the economic benefits cycling

brings to both the individual and a society. Undoubtedly there are inextricable

connections between economic benefits and the health benefits as discussed

above. Governments pour billions into health services for the health and

wellbeing of their citizens. Regular cyclists take less sick days compared to

motorists saving the economy £128 million a year in reduced absenteeism.

Inactivity costs the UK over £700 million a year while the total annual cost of

treating obesity is topping £4 billion (Grous, 2011). Not only does cycling

reduce the cost of treating an unhealthy society, it proactively generates money.

Grous (2011) claimed over £2 billion was generated towards the economy in

2012 from bicycle sales, services and accessories. In the general sense it is very

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difficult to argue against the bicycle as a viable form of transport. “The provision

of walking and cycling infrastructure is amongst the least expensive elements in

changing land use and transport patterns.” (International Energy Agency, 2009,

p. 240) It is a logical progression to calculate that a city, and indeed a country,

which possesses strong numbers of people cycling will have to spend less

money tackling illnesses like heart disease and cancer.

Economic Benefits for the Individual

The economic benefits enjoyed by individuals are remarkable, compared to

investing in motorised transport. The price of a decent bicycle, proper supplies

and parts and appropriate weather apparel pales in comparison to the costs of a

car: fuel, parts, insurance, vehicle tax, regular servicing & MOTs and car parking.

The Bureau of Transportation Statistics2 in the USA claim that the average

annual operating cost of a bicycle is $308 – versus operating costs of $8,220 for

the average car (Sierra Club, 2012, p. 1). That isn’t to say that some may struggle

to find the resources to invest in cycling, but considering that 48,321 (or

40.07%) of Belfast’s households do not have access to a car; those who struggle

to pay for motorised transport would mathematically find it simpler to pay for

cycling equipment.3

2 An office mandated by the US Department of Transportation3 See page 32 for more details

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Figure 1 - Belfast % Population Access to Car or Van. (NISRA, 2011a)

Sustainability & Climate Change

Global warming will affect just about every aspect of life on the planet both

human and non-human. […] Climate change is perhaps the first truly global

problem of environmental sustainability that human society has ever had

to face (Low and Gleeson, 2003, p. 15).

One of the most pressing issues on hand in global politics is that of climate

change. There is pressing evidence that we our currently living at an

unsustainable rate and without radical change, future generations of humanity

will suffer. The most simplistic form of the common argument outlines a

domino-like effect. It contends that we rely far too heavily on fossil fuels which,

when burned, produces carbon dioxide, which acts in a greenhouse manner on

the globe, warming the earth’s surface, causing the ice caps to melt and rivers to

dry up, thus changing the geography of earth. “The time of fossil fuel is rapidly

coming to an end both because of the environmental consequences of returning

fossil carbon to the atmosphere and because fuel itself is running out.” (Low and

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Gleeson, 2003, p. 21) Motorised mobility perpetuates our dependency on fossil

fuels. It is one of the leading causes of carbon dioxide emissions across the

globe. Our dependency on the car has been well documented and many cities

have taken action to implement large scale, mainly successful, cycling

infrastructures in an effort to reduce their carbon footprint. Belfast, as one of

the most car dependent cities in the United Kingdom (Cooper, Ryley and Smyth,

2001), has failed to adequately invest in sustainable forms of transport to

reduce our dependency on peak oil and therefore reduce our carbon dioxide

wastage. Peak oil requires radical government policies to diversify our energy

sources, and in particular, our transport choices.

A Case for Belfast

Despite the validity of the previous arguments it remains that Belfast is one of

the least friendly cities in Europe towards cycling. Before moving on to

analysing the relevant policy and literature this dissertation will now argue why

Belfast possesses the traits of an ideal cycling city by debunking the excuses

often given for the lack of cycling uptake.

Land Use & Population

Belfast in the 1970s was dogged with conflict and violence leaving the city with

a low population density. The city centre rarely saw much of the action with

most of the Belfast related incidents occurring in the North and the West of the

city. The result is that the city centre became a lifeless neutral zone after retail

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outlets closed. The city planners subsequently reinforced dramatic levels of

suburbanization to the point where the Belfast metropolitan area is now “one of

the most sprawling in the UK.” (Plöger, 2008, p. 17) The regeneration of the city

centre has been slow and found wanting. Despite the levels of sprawl, Belfast’s

size and population density lends itself to a being a cycleable city. Figure 1

depicts the compact nature of Belfast’s Metropolitan Area which has a

population of 280, 000 (NISRA, 2011d). Figure 3 highlights what Coulter

(2012) names a “bicycle scaled city.” Both it and Figure 2 are helpful

illustrations of Belfast’s relatively small area as a city and therefore it’s potential

to be a city with a strong cycling culture.

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Figure 2 - Radius of Belfast Metropolitan Area (Coulter, 2012)

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Figure 3 - A “Bicycle Scaled City” (Coulter, 2012)

Despite the extensive decline in the city centre population, census data (NISRA,

2001) shows 77,341 of the 99,644 people who work in Belfast also live in BMA

meaning most journeys will be less than 10km. Further data (NISRA, 2011b)

highlights that at the time; roughly 75,000 Belfast City Council residents

(aged16-24) worked in Belfast City Council area. These statistics include a

portion of the 69,0004 students found in third level education in the city. The

emerging picture suggests that there are a significant amount of people, in

particular those younger than 25, who could avail of effective cycling

infrastructure.

4 Including the 14,000 UU students due to move from Jordanstown to York Street in the next few years

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Congestion

The road is king in Belfast (Ellis, 2005, p. 262).

Comparing Belfast to any other European capital is frankly embarrassing.

‘Campaign for Better Transport’ (2011) as an independent charity concluded

that Belfast was the second most car dependent city in Europe. More recent

studies show that Belfast is the United Kingdom’s most congested city (Hewitt,

2013). Both of these discredit the DRD’s solution to keep building roads to deal

with traffic. The DRD need to consider alternative approaches to engineering

road space as the current solution is simply not working. This dissertation will

make proposals in the third chapter which provide alternative answers to

dealing with Belfast’s growing congestion issues. There is a sense, Ellis (2005, p.

264) notes, that the city planners are “unable to see their primary role as one to

improve the wellbeing of Belfast’s citizens, tackling its social problems or

inching towards sustainable development.”

Climate

There is an old Scottish proverb which says ‘there is no such thing as bad

weather, just inappropriate clothing.’ Perhaps one of the most vocalised

arguments made in defence of not cycling is related to climate. There are

however many ways to devalue this claim. Firstly, Figure 4 shows that the two

Scandinavian cities are rather similar to Belfast when it comes to rainfall. Yet

both Copenhagen and Amsterdam boast healthy modal shares of traffic in their

respective cultures, making Belfast’s 0.6% look remarkably feeble. A second

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way to discredit this argument is found again in emphasising the economic

benefits when it comes to cycling. Money saved from reduced personal spending

on motorised transport can be used to buy decent weatherproof clothing.

Figure 4 - Comparing precipitation levels in Belfast, Copenhagen and Amsterdam with bicycle percentage modal share of traffic (Coulter, 2012)

Belfast has wide-ranging reasons why it should boast an extensive cycling

infrastructure and a health cycling culture. Its size, topography, and with as

many as 66% of trips taken in Northern Ireland being less than five miles

(Department for Regional Development, 2013a), the utility of a broad cycling

network is easy to see.

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Chapter Two: Policy and Literature Review

Looking for Cycling Policy in Northern Ireland

This chapter will now proceed to look at the relevant official government

policies related to cycling. Following that, it will then analyse and critique the

policy according to the literature on cycling policy.

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The prevailing sense from reviewing the Northern Ireland policies on transport

and sustainable development is that cycling is not considered a viable method of

transportation, stemming mainly from the limited discussion on cycling.

Throughout the policies there are many times that the government outline

economic growth to be the most important factor of Northern Ireland’s future,

yet there is a significant amount of attention placed upon the idea of

sustainability. This can be taken to be not as a bold, progressive statement of

intent to move away from unsustainable development, but a token gesture

towards the sentiment of climate change. This chapter proposes that the lack of

action regarding cycling as an adequate mode of transport renders the policy

makers unaware of the importance of sustainable development. The DRD’s

‘Ensuring a sustainable transport future’ (2012) emphasises that a growing

economy is the first priority of the Northern Ireland executive (p5). The

Minister further highlights that our “modern, mobile lifestyles place an

increasing demand on our transportation networks, a demand that is currently

met by increased car use. We need to recognise that our high level of car

dependency is no longer sustainable.” (p5) This is a good place to start –

realising that we are living at an unsustainable rate and understanding that we

must change our attitudes and behaviour. These good sentiments continue in

page 11: “Sustainable transport arrangements will require significant changes

in travel behaviour and difficult decisions as to how we prioritise and maximise

the use of finite road space.” (p11) There are similar statements of needing to

acknowledge the environmental concerns of our city relying so heavily on cars

(p11), minimising the environmental impact of the transport infrastructure

(p25), understanding that over a quarter of the greenhouse gas emissions from

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Northern Ireland is from road traffic (p27) and that for a need to promote other

forms of transport as an alternative towards employing the car. (p39) The issue

is that the bicycle isn’t mentioned as a viable alternative to the car until page 14.

It is no wonder why there has been “a much lower increase in cycling than the

2002 strategy had anticipated.” (p11) If there is no overarching government

support for anything, then the likelihood of it being embraced is greatly

diminished. In order to effectively prioritise the movement of people and goods

rather than movement of vehicles a city-wide implementation of a cycling

network needs to be considered as it lead to healthier, safer cities. The Regional

Development Strategy 2035 (Department for Regional Development, 2010)

articulates more clearly the need to move towards a sustainable way of living.

The document envisions a “modern, sustainable, safe transportation system

which benefits society, the economy and the environment and which actively

contributes to social inclusion and everyone’s quality of life.” (p18) This is not

simply a utopian dream but an achievable fact. A city with a broad cycling

infrastructure embodies this perfectly. The document sets out its eight aims and

objectives to achieve by 2035 and from that list, points 4 to 7 (p19) can be

associated with a cycling city.

4. Promote development which improves the health and wellbeing of communities.

5. Improve connectivity to enhance the movement of people goods energy and

information between places.

6. Protect and enhance the environment for its own sake.

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7. Take actions to reduce our carbon footprint and facilitate adaptation to climate

change.

Belfast would enjoy the fruits of all these achievable goals with an extensive

cycling infrastructure. The wellbeing that is enjoyed through embracing cycling

as a viable transport alternative has been discussed previously, as have aims 5,

6 and 7. It seems natural for investment to flow from Stormont yet it doesn’t.

The document notes the population of Belfast as 268,000. It goes on to state

fewer than 50% of those who live in City council area work in that area. Why is

there not a subsequent drive by the government to create a better environment

for those who choose to work and live in the same city?

The RDS discusses tourism through mentioning the importance of gateways.

These are the places where “first impressions are formed and [as such] should

provide a high quality experience for the traveller.” (p83) When landing in

Amsterdam’s Schiphol Airport, or the Central Train Station, the amount of

bicycles seen parked outside is remarkable. It immediately paints the

Netherlands to be a progressive country who take seriously the claims of

climate change and sustainability. In comparison, Belfast’s Central Station or

George Best City Airport might be pushed to find a single bicycle locked up

anywhere. Cycling is the most obvious answer to both the RDS’s concerns of

moving people while reducing pollution (p43) and reducing greenhouse gases

through relying less on the car. (p44) Sustainability is discussed in great length

throughout this document yet it remains that arguably the most sustainable

form of transport in a small city is barely mentioned.

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The final document reviewed was the ‘Sustainable Development Strategy’

(Northern Ireland Executive, 2010). It considers to a greater extent compared to

the previous two policy documents the importance of a shift towards a

sustainable way of living. The main critique of this chapter unsurprisingly does

not differ from that of the two previously – a solution to the concerns raised

could be in part answered by accepting cycling as viable form of transport and

as such implementing a city wide cycle infrastructure. The rhetoric in this

document is strong throughout. Pages 2, 8 and 23 serve as examples of how the

Executive recognise the need to adapt to new forms of travelling, encouraging

cooperation between levels of government and understanding that we need to

move away from fossil fuels.

Literature on Cycling Policy

This chapter will further the critique the previous policy documents through the

work of appropriate academic literature on cycling policy. The solution to the

issue is not simply the implantation of cycling infrastructure, but the

acknowledgement by governments to want better cities for their people to exist

in. Transport plays an important part of how cities function. It literally allows

for the movement of citizens. As the assumed desire of the city planners is to

create a sustainable city built for people and not cars it is consequentially vital

to have a sustainable transport network. It would be one in which it is safe for

children to exist in because if it is safe for children, it is safe for the whole

population. By designing a transport system which improves the “inherent

safety of the traffic system, not simply securing cyclists in an inherently unsafe

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system,” (International Transport Forum, 2012, p. 10) it allows citizens to enjoy

cities as places with less noise and air pollution, fewer accidents and more

people compared to cars. “Cycling policies […] are, an important element of a

comprehensive package of policy tools designed to improve the sustainability of

the whole transport network.” (European Conference of Ministers of Transport,

2004, p. 9) The implementation of cycling infrastructure as a part of redesigning

cities to make them more sustainable relies on a high level of commitment from

the government. The OECD report notes several levels of commitment in that

regard. In countries like the Netherlands, Denmark and Germany, where high

levels of commitment are found, there are “official government policies on

cycling which set forth the overall goal of raising levels of cycling for daily travel

while improving cycling safety.” (Pucher and Buehler, 2008, p. 509) The lowest

level of commitment would see cycling policy found in the responsibility of

regional and local authorities with limited or no commitment at a national level.

The challenges which the OECD (2012) claims governments will face, paint an

accurate picture of Northern Ireland’s position on cycling. It remains marginal

in transport policy discussions and the budget allocated to it reflects as such;

there is a lack of co-ordination of different ministries to achieve anything of

substance; there is a poor infrastructure and a skewed image which prevents

cycling from being recognised as a feasible transport alternative rather than an

activity enjoyed either by children or fanatics. Commitment to cycling at both a

national and regional level is the only way it seems that encourages change and

that comes through substantial investment by the Executive. The influence of

government policy on the situation proves to be important as seen in the

Netherlands, Denmark and Germany. In the mid 70s transport and land-use

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policies in all three countries shifted dramatically to favour walking, cycling and

public transport over the private car. The policy reform was a reaction to the

increasingly harmful environmental, energy and safety impacts of rising car use.

A visit to any of these places shows the embedded nature of cycling within the

culture and emphatically provides evidence of the powerful impact policy with

adequate financial support can achieve in regards to travel behaviour (Pucher

and Buehler, 2008, p. 502).

Conclusion

The crux of this chapter argues that the implementation of cycling lanes alone

across Belfast is not necessarily the answer. It’s in understanding that cycling

infrastructure is in the DNA of modern healthy cities. “It’s not about the bike or

car – it’s about better cities.” (Toderian, 2012). Belfast does not need more

bicycle lanes but needs to be re-designed so as to function better in the future

(Mickleburgh, 2012). Bicycles and bicycle infrastructures are great for the entire

community of a city, not just for bicycle users. Toderian (2012) points out that

“they are part of a multi-modal city, a critical part of the city working well in the

future.” With a national level of commitment, and integration, coherence and

cooperation between policies and stakeholders Belfast could yet become a city

for sustainable transport. The next chapter engages with some of the key

stakeholders regarding cycling in Belfast.

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Chapter Three: Engaging Opinion

Introduction

In this third chapter, three interviews were conducted with key stakeholders in

order to gain a fuller understanding of the current state of cycling policy in

Belfast. The first interviewee was a representative from a UK wide sustainable

transport charity. The second interviewee from the Urban Development

Department of Belfast City Council was interviewed as a representative of local

government. The third and final interviewee was with a prominent blogger and

activist who advocates for stronger governmental action to promote and

support cycling in Belfast. Analysis and evaluation will be conducted through

correlating the opinions of the key stakeholders into three subheadings.

Throughout the chapter there will be explicit comparisons with Cambridge,

England as a city with a comparable population, area and culture to Belfast.

Firstly this chapter will proceed by outlining and critiquing the general

arguments made by the interviewees. It will secondly look specifically at four

points which explain Belfast’s lack of support towards cycling followed by

concluding remarks.

The core issue of the dissertation’s first chapter highlighted Belfast as an ideal

city to have an extensive and thorough cycling infrastructure, but is significantly

underprovided for as proved in the second chapter. While Interviewee 1 agrees

with these claims, this dissertation will seek to critique his opinion (further in

the chapter) on a few particular points he raised. The most interesting facet to

this interview was the degree of positivity shown towards the progress

Northern Ireland as a whole has made towards sustainable transport over the

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last decade. This dissertation contends with this as evidence from the previous

chapters, such as Belfast being named one of the most congested cities in

Europe, suggests otherwise. The interviewee was not entirely naive as there

was an acknowledgement of the lack of infrastructure in Belfast both by its own

merit and by comparison to other cities with similar sizes, climates and cultures.

Nevertheless, this Interviewee’s positivity and patience allowed for an

encouraging optimism for the future through outlining the “impressive

greenway network found across the country”, “the recent Belfast on the Move

developments” and the planned bicycle hire scheme for the city centre in the

next few years.

The second interview was with the representative from the Urban Development

department of Belfast City Council who too agreed with most of the claims made

in the first chapter, without much reservation. From both theirs, and the

council’s, point of view there was an agreement that Belfast is not a city which is

greatly catered for in regards to cycling, although they were convinced that

cycling is moving up the agenda in terms of city priorities (which the analysis

from the second chapter directly disagrees with). This was from his personal

observation of more cyclists on the road, and a corporate support for cycling

which can be seen in the likes of the Council’s involvement in the Belfast on the

Move project. This project was a DRD initiative to “reorganise traffic

management within Belfast city centre to facilitate a reduction in general traffic

levels and encourage greater walking, cycling and public transport use.”

(Department for Regional Development, 2013b)

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The council takes a keen interest in the city and it’s wellbeing despite not having

a statutory obligation towards transport in the city. Interviewee 2 here

inadvertently drew attention to the curious nature of local government in

Northern Ireland. Belfast City Council has no statutory obligation to participate

in anything other than issues relating to births, deaths, marriages and bins since

the 1972 Local Government Act as local government in Northern Ireland were

stripped of powers by Westminster and left with few responsibilities. The

current Review of Public Administration did not, according to this interviewee,

do anything to address planning issues either. The City Council as the

governmental body situated in the area of discussion are the ideal branch to

have authority on planning. Instead of a local agency - such as BCC – dealing

with short urban journeys made in and around Belfast, we have one singular

regional agency – DRD - who has authority for the entire country. The result is

that Stormont’s 11-strong committee for Regional Development (only one of

which is a Belfast resident) who have very little local buy in and as such, apply

regional solutions to the City Centre, leaving it incompetent to deal with city life.

Such an issue is not prevalent in Cambridge as the city council has powers of

road planning. BCC is very active in partnerships regarding the projects outside

of its statutory obligations – for example, the Belfast on the Move project - but it

should be the instigator of such moves, not merely a partner. It makes logical

sense that the body of government who conducts its affairs within physical

boundaries should have a degree of authority in decision making regarding local

infrastructure development.

The third and final interview was with a prominent cycling activist and blogger.

Over the last two years Interviewee 3 has gained a significant following and now

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has a significant voice in the cycling landscape in Belfast. The overarching sense

from this interview was one of tremendous motivation and will. Interviewee 3

concurred that Belfast does not have the adequate infrastructure that cycling

should have. There was talk about the need to collect and mobilise the

increasing number of supporters for alternative transport than the car. The

stance was similar to Interviewee 1’s in that they were both optimistic, but

different in that there wasn’t the same degree of positivity about the current

and future state of cycling in Belfast. This interviewee was not overly negative

but placed an emphasis on the work which needed to be done in the immediate

future. He also acknowledged the significance of the Belfast on the Move plans

which will be discussed later in the chapter. Change will not happen through

persistent negativity but through optimism and positively reinforcing the image

of cycling and sustainable transport, much like how Cambridge City Council

articulates their vision. In the eight statements of their chief aims, cycling is

directly mentioned as an important mode of transport and is related to two

other statements. “A city where getting around is primarily by public transport,

bike and on foot.” (Cambridge City Council, 2013) A vision such as this would

look rather out of place in Belfast, yet Interviewee 3 believes there are several

reasons to be optimistic; the increasing numbers of cyclists found on Belfast’s

roads; the approaching cycle hire scheme; and the Belfast on the Move plans

currently reshaping the city’s roads.

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Interview Analysis

The interviewees were each asked for reasons for the current state of cycling in

Belfast at the minute. Their answers have been correlated into three

explanatory categories; car dependency, fragmentation of local government and

a lack of recovery from a troubled past. Unquestionably these reasons are

interrelated; addressing one would no doubt have a significant effect on the

other. The fourth subheading, on page 38 collated the responses given by the

interviewees to the emerging issues in Belfast regarding cycling.

1. Car Dependency as a Legacy of ‘The Troubles’

In all the interviews, the most common reason given for Belfast's lack of cycling

infrastructure was due to its over-dependence on the car. A number of reasons

can be given for why Belfast depends on the motorised car. It is difficult to

accurately and soundly compare this detail to other cities across the United

Kingdom and beyond as each city has its own character and identity. As it is

with every city, the identity of modern Belfast has been considerably shaped by

the history of those who have called it home. Over four or five decades Belfast

arguably experienced some of the worst conflict seen in a Western democracy

post World War II. The geographical divisions that subsequently emerged

created a neutral city centre which was vacant of much life once the banks and

businesses closed up. In those days, walking or cycling to work, pedestrian

shopping or simply an evening stroll in the city centre could be considered a

potentially dangerous activity. To preserve personal safety then it made sense

to drive into the city, and drive out as quickly. It also made sense to not live in

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no-man’s land. The drop in population in the city centre, as shown in Figure 5 is

evidence of this. Interviewee 2 noted that Belfast was the only place in the

United Kingdom to have a drop in population when the other major United

Kingdom cities were experiencing the opposite. Belfast’s car dependency

exponentially increased as a result of these events.

Figure 5 - Population decline in Belfast between 1951 and 1990 (Plöger, 2008, p. 16)

In Belfast, many of the best bars, clubs, and restaurants are found a few miles

out of the city centre. Areas like Stranmillis, the Lisburn Road and

Ballyhackamore would enjoy a “night-time economy” as Interviewee 3

suggested, more than their city centre counterparts due to higher population

density in these areas. There have been attempts to rectify this situation which

have been quietly successful. The recent resurgence of the ‘Cathedral Quarter’ is

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a dense cosmopolitan forest of galleries, cafes and bars with its very own

festival once a year. The lack of people in the city centre can therefore be

attributed to our dependency on the car, which is a legacy of the ‘Troubles’. It

could be more specifically claimed that the lack of a comprehensive city centre

regeneration programme with incentives to entice a repopulation of the city

centre - to help create the ‘night-time economy’ which Interviewee 3 discussed -

has left the city centre a place that most people have to travel to instead of it

being a place that people live and this, as Interviewee 2 said, has reinforced the

car culture. It is far too easy to drive into Belfast, he claimed, with the Westlink

as an example of that. Cars went from being the safest mode of transport, to the

most convenient form and for that reason, why would anyone change? A

regeneration initiative which valued cycling would see numerous cycle lanes.

One will take the path of least resistance, and in this case, driving in Belfast faces

little resistance. Certain measures which are applicable and proper for times of

conflict are not necessarily proper for times of peace.

2. Fragmentation of Government from the Legacy of ‘Direct Rule’

“The legacy of ‘Direct Rule’ has left local authorities with weak local government

structures.” (Plöger, 2008, p. 47) A second theme which emerged in the

interviews was the nature of Northern Ireland’s fractured state of politics. Again

this can be viewed as a legacy of the Troubles, or more precisely a legacy of

Direct Rule, yet it holds an interesting point in the conversation regarding

inadequate cycling provision. The Review to Public Administration provided the

perfect opportunity for more powers to be devolved back to the councils – yet it

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was missed. According to Gosling (2008), the SDLP’s hesitancy in regaining

previously removed responsibilities left the councils with a fraction of what the

Review of Public Administration recommended with councils crucially missing

out on local road planning and maintenance. This dissertation suggests that an

opportunity such as that was formative in perpetuating the unhealthy culture of

regional ministers being responsible for roads across the nation. Interviewee 3

claimed that for both governmental departments, and political parties “nobody

owns cycling”, a point which was echoed by Interviewee 1 listing the different

agencies responsible for the different aspects related to cycling. It sums up the

disconnect between policy makers themselves, and between policy makers and

the people.

There are many different bodies and departments which have a say when it

specifically comes to road issues, yet very few of these have cycling in their

interests. Interviewee 1 outlined that in England and the Republic of Ireland,

different agencies take care of different journeys whereas in Northern Ireland

they are all under the same roof i.e. the Department for Regional Development.

“We are applying regional solutions led by engineers from roads and building

lobby to city solutions.” Interviewee 2 highlighted one of the most important

points as to why Belfast comes up short regarding cycling infrastructure –

“Perhaps cycling gets lost [in transport planning]. A piecemeal process isn’t

something that’s needed for cycling; a strategic plan would be more useful.”

Cycling has fallen through the cracks of government policy making, and

government has privileged the promotion of the car over all the other forms of

transport. The fractured nature of government can be seen through the City

Council’s lack of powers to do anything with the roads that lie within their very

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borders. The key stakeholders in Belfast’s infrastructure should surely consider

making amendments to the Council’s statutory duties. Local ‘buy in’ by relevant

stakeholders is essential when it comes to making local policies. It is true that

motorists are the majority of the road users, but this neglects the importance of

the environment, public health, safety and other road users. If air quality is

diminished because of car use everybody loses out. Likewise if it takes people

an extended amount of time to travel due to road congestion. Locally made

decisions, in consultation with those who inhabit the area should be the norm.

3. A Lack of Recovery

The third theme of answers which this chapter will discuss is yet again tied to

the former two. It relates to the lack of recovery from the ‘Troubles’, or at best,

the lack of speed when it comes to recovering. This theme will focus more on

what specifically deters the average person from getting on a bicycle rather than

the inherent failures of the infrastructure. Arguably the biggest deterrent for

would-be cyclists is the fear which arises from seeing cyclists “struggling for

road space” as Interviewee 2 agreed. The busy arterial routes which lead into

the city centre are often the most dangerous for cyclists. An example of that

would be the Albertbridge Road heading westward into the city. Two wide lanes

and a separate bus lane merge into two narrow lanes when going over the

bridge onto East Bridge Street leaving a very precarious gap for cyclists to join

the fast moving car traffic (Figure 6) to show the lack of consideration given to

cyclists. No doubt safe cycling requires a degree of awareness and confidence.

Cyclists should not have to face such issues as their vulnerability could lead to

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potentially fatal accidents. The phrase “as easy as riding a bike” does not seem

to apply to this pinch point and the many more like it around the city. In

Scandinavia, cyclists rarely come into contact with motorised transport for all

the segregated cycle lanes across the city. This has led to a Department of

Regional Transport which is run by MLAs with little relation to such small but

dangerous and widespread issues across the city.

Figure 6 - Albertbridge Road approaching the Lagan (NI Greenways, 2012)

Those who do cycle this route often fall into a narrow demographic of men in

their 20s to 50s. To see a woman, a child or an elderly person cycling such a

route would be utterly against the norm. Cycling at the moment is therefore a

social exclusion as both Interviewee 1 and Interviewee 3 suggested. One of the

most fundamental nuances about cycling is that it can span divides of social

class. As a significantly cheaper option to the car it can allow those without

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means to own motorcars to be able to travel across the city freely while

enjoying the added health benefits that are not present in public transport

usage. Teaching children to ride bicycles can help create a sense of

independence and responsibility from a young age as well as helping to develop

ideas of sustainable modes of transport. A similar tone can be adopted for the

elderly who too can be restricted from motoring. For those individuals who are

recovering from injury, cycling is a viable form of rehabilitation, allowing them

to travel around the city without depending on others. Interviewee 3 also drew

out an important point regarding bicycle ownership. According to the NI Travel

Survey (Department for Regional Development, 2011) 61% of households have

no bicycles, with less than a quarter of households having more than one.

Perhaps then there needs to be incentive schemes set up in order to provide the

public with access to inexpensive bicycles. The impending cycle hire scheme can

be argued to be a vessel by which the council and Stormont are achieving this.

An appropriate measure provided there are widespread quality installations of

bicycle hire hubs.

A question could be asked of this issue of demographic exclusion. Is it because of

fear that children, woman and the elderly do not cycle? Fear from having to

navigate the city’s difficult unwelcoming road infrastructure. Perhaps if cycling

was a part of our culture then there would be the provisions that cycling so

desperately needs in Belfast. To illustrate the point, one may take a look at a

typical ‘school run’ in Amsterdam (Schwartz, 2012). The sheer volume of

bicycles alone hints at a culture where cycling to school is the norm. A journey

which typifies two of the three demographics often excluded due to the state of

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cycling in Belfast, is dominated by mothers and their children on bicycles in

Amsterdam.

Interviewee 3 is persistently dismayed at the lack of facilities for bicycles in

regards to shopping, whereas in Amsterdam (Colville-Andersen, 2011), it is

entirely normal to bring home the shopping by bicycle. Interviewee 3 noted the

difference between politicians at Stormont and Westminster. In London,

politicians often use the ‘Boris Bikes’ as a photo opportunity and a badge of

honour. It is a choice that shows environmental awareness and an

understanding of the importance of cycling for everyone. Our elected

representatives at Stormont however are only ever on a bicycle when launching

a new proficiency scheme or such like. Cyclists in Belfast are treated as an ‘odd

minority’ rather than as normal people who consider the bicycle as a legitimate

form of transport.

4. Emerging issues

Despite the lack of provision for cyclists in Belfast, when each of the

interviewees were asked about the emerging issues that Belfast would face in

the next five to ten years, each of them agreed that cycling will gain increased

prominence in the public sphere through two particular issues; a cycle hire

scheme and the Belfast on the Move developments. The DRD, with the City

Council and the relevant stake holders in the transport infrastructure in Belfast

City Centre embarked on the BotM project (Department for Regional

Development, 2013) of which the main aim is to “reorganise traffic management

within Belfast city centre to facilitate a reduction in general traffic levels and

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encourage greater walking, cycling and public transport use.” This move is one

of the first of its kind in Northern Ireland yet would not be uncommon in the

likes of Cambridge and even more so in Western Continental Europe. It will see

more space allocated to sustainable transport solutions with an emphasis on the

impending Belfast Rapid Transit system – a new public transport utility due to

be installed in the next five years. While the project should be applauded for its

valiant attempt to engineer Belfast from the past; the fact is that Belfast is the

most congested city in the UK (Hewitt, 2013). The ‘Belfast on the Move’ project

is long overdue and, while a positive development, it is not enough by itself to

promote cycling in Belfast.

Cities in Europe have been taking strides towards city centre pedestrianisation

for decades now (Tan, 2006), realising that it creates more desirable cities to

live in. The local government in Seville are an example of a big scale investment

in bicycle infrastructure and pedestrianisation resulting in a significant uptake

in cycling. There does however need to be strong steps taken towards favouring

pedestrians yet Belfast on the Move missed the opportunity. Instead of actively

pursuing and encouraging Belfast citizens into positively considering

alternatives to motorised transport, cycling has been given a token gesture in

that bus lanes are the extent of infrastructure granted. The newly finished

Titanic Quarter is a prime example of ‘what could have been’. The installation of

extensive accommodation, colleges and attractions in a new urbanised area

would have warranted significant bicycle infrastructure had the area been in

Denmark or the Netherlands. As it is, there are very few provisions or

encouragements to encourage citizens to consider cycling as a viable

alternative.

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Interviewee 3 pointed out that bus lanes are currently cyclists’ best form of

infrastructure and protection against motorised transport and if this limited

form of infrastructure is not guarded, cyclists will suffer. Whilst this is a positive

step towards environmental responsibility, it could potentially be at the

expense of cyclists if there is no consultation with the key stakeholders.

Interviewee 1 correctly states that it “won’t make cycling dramatically better …

but it make will car use more difficult in the city.” With the University of Ulster

planning to move some 14,000 students to a new city centre campus from North

Belfast (Magee, 2012) there is a tremendous opportunity to install significant

and culture changing infrastructure. If managed well, the students could bring a

much needed vibrancy to the city centre. Along with the new cycle hire scheme

there lays the potential for Belfast to develop a budding cycling culture. “The top

cycling cities in most countries are university cities” claims one prominent

blogger (Hembrow, 2011). The movement of UU students to the city centre is

exactly the type of regeneration Belfast needs for its revitalisation. This issue

will be discussed later in chapter four.

The impending cycle hire scheme has the potential to have a tremendous effect

on cycling in Belfast if it is managed in a good and proper way. Major cities

around the world have been enjoying cycle hire schemes as they provide many

benefits with very few drawbacks. They provide an environmental and cost

effective form to move people quickly around the city; they are an incredibly

cheap piece of infrastructure compared to every other possible public transport

alternative; and they provide numerous benefits to the individuals using them.

The respective schemes in Paris, London and Dublin have been remarkably

successful, the latter most in particular.

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Dublin’s success can be attributed to several reasons claims Daly (2011); a

subscription of 10 Euros per year per person is a relatively cheap investment;

the positive reception from the population; and the time taken by Dublin City

Council to find the best location for each station. The council’s expectation of

5,000 subscriptions in the first year was met twice over in the first fortnight.

Belfast will hope to emulate that success in implementing its own in the near

future. Interviewee 3 said it is vital that there are bicycle hire hubs outside the

main gateways to the city. Great Victoria Street train station is an example of a

main gateway which upon exiting shows Belfast’s lack of commitment to cycling

– taxi’s parked in advisory contraflow cycle lanes. What does this say about

Belfast? That it is dangerous, unsustainably car-reliant and possesses no culture

or infrastructure for sustainable transport.

Conclusion

Belfast faces a number of obstacles to overcome in order to be in a position to

implement infrastructure of a sustainable nature. The legacy the ‘Troubles’ has

left on the city centre is evident and continuous. A lack of population density

and a night time economy due to a once real danger of being caught in the no-

man’s-land of the city centre is still visible today. What then can Stormont do to

combat this? The reallocation of the University of Ulster students is a significant

opportunity for positive governmental planning. The population drop Belfast

has experienced over the last half century has led to a greater car dependency.

The movement of 14,000 students to UU’s York Street campus brings Belfast’s

total third level student population up to 70,000. With UU’s students housed in

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the city centre, their presence will lead to greater calls for the safety of

pedestrians, and therefore more opportunity for lobbying for cycling

infrastructure.

The second issue of fragmentation due to the legacy of ‘Direct Rule’ in Northern

Ireland has also left a considerable legacy on today’s political landscape. The

evidence of such can be found in a lack of leadership dealing particularly with

cycling as a solution to several city-wide problems including air quality,

sustainable transport and pedestrian safety. The result is a fragmented

piecemeal approach to cycling which renders it disconnected and inept. The

Belfast on the Move scheme has the potential to be a small part of the solution

towards improving cycling issues in Belfast provided there is adequate

cooperation among key stakeholders. Interestingly when asked whether ‘Dutch-

style’ segregated cycle lanes would be an appropriate solution to the issues

Belfast faces both Interviewee 1 and Interviewee 3 suggested not. The former

took a realistic approach suggesting that in the next five to ten years that it isn’t

a practical solution for Belfast. Instead he suggested extending the greenway

network and directing cycling traffic away from motor traffic. Interviewee 3 also

had a realistic take on the idea of widespread segregated lanes. His suggestions

focused on specifically addressing and finding solutions to the ten or twenty

worst areas for cyclists. Unfortunately these solutions would fall into the same

trap as before – while not lacking merit, they lack ambition.

As argued earlier in this chapter, piecemeal infrastructure is not an optimistic

way to deal with a city-wide issue. It results in a disconnected, fragmented

infrastructure which adds to the perception that the government does not

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consider cycling a legitimate form of transport, but something that can be

addressed by the painting of some advisory cycle lanes and advanced stop

boxes, thereby reinforcing negative stereotypes surrounding the issue.

Segregated bicycle lanes is a bold ask in a place which struggles to give cycling

any time, but they are the safest available option (European Cyclist's Federation,

2010). The reality is that cycling needs to be given a higher priority from the

very highest levels of government. It may seem like extreme advice, but

evidence shows that when any issue is given a high ranking in government, it

filters down into the smaller facets of government. Cambridge City Council

deemed it of significant importance and thus included it directly in their vision

for the city ensuring that any action taken in the city must be to the benefit of

pedestrians and cyclists. The local government in Seville also made the issue a

city policy, regardless of party preference thus leading to the successful

implementation of 120 kilometres of cycling infrastructure.

The overarching sense from each interviewee was that Belfast needs to have

something different to the rest of the world, to solve our unique problems.

Something intrinsic that is organically grown in Belfast. Disappointingly, both

Interviewee 1 and Interviewee 3 suggested underwhelming and unambitious

strategies to deal with the ongoing issues of cycling infrastructure. Addressing

small scale problems individually, while adding the accessibility for cyclists at

each specific location, does not change the grand narrative of cycling in Belfast.

It is crucial for Stormont to implement a strong policy towards cycling which

will in turn allow for many junction improvements for cyclists, not just ten or

fifteen hotspots. There needs to be an action plan, a forum for consultation and

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coordination, a separate budget for cycling and local champions to keep the

cause in the public eye and the ear of the policy makers.

The final chapter will take the critique of the stakeholder’s opinions, as well as

the discussed policies and literature to formulate recommendations for cycling

in Belfast.

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Chapter Four: Recommendations

Planning is too important to be left to planners-especially those who do not

ride bikes. (Batterbury, 2003, p. 166)

Introduction

The dissertation has looked at the limited role cycling has played in the

narrative of Belfast’s roads. This chapter will suggest proposals using the

arguments from chapter one which claim that Belfast is an ideal candidate for a

wide cycling infrastructure for numerous reasons despite its current

inadequacies. It will also use chapter two’s critique of current policy and the

third chapter’s analysis of the interviews with key stakeholders in cycling and

transport which asserts the need for a blanket approach to implement cycling

infrastructure in the city. An initial list will be presented with numerous

recommendations to be considered. Following that this chapter will further

outline four of these proposals. Throughout this chapter, there will be further

comparisons to Cambridge as a city similar to Belfast, yet with two entirely

different transport policies and practices in terms of cycling.

Recommendations

An Initial List of Recommendations

Revisiting the Review to Public Administration.

o The stuttering effects of the previous Review left the councils

crucially devoid of local powers of government. Were powers to

be devolved to the council, it could be appropriate to ask

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questions of bringing in democratic elections to appoint a mayor.

It would allow a city leadership which perpetuated values of

sustainable transport, much like how Boris Johnson as London

City Mayor is responsible for the city’s cycle hire scheme.

Emphasis on students.

o With a population of 69,000 - a quarter of the population of

Belfast – could there be incentives and policies to influence

students into choosing sustainable forms of transport?

The importance of marketing.

o While infrastructure is of paramount importance, the image of

cycling needs to be addressed from a niche, middle-class hobby to

that of the everyday person who uses the bicycle not just at the

weekend but in daily commutes. “Proper communications

campaigns help give positive image systems utility and emphasise

the minimal marginal effects.” (Castillo-Manzanoa and Sánchez-

Brazaa, 2012, p. 12)

A national and regional commitment to cycling.

o Evidence in the Netherlands, Denmark, and even in Cambridge

have shown the value of having a high level governmental

commitment to cycling as it corresponds down to the most local

level. This is a difficult one as it relies on devolving powers of road

planning to Belfast City Council. Even without that however, a

commitment from Stormont on delivering an extensive cycling

network would still be influential.

What would Jesus drive?

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o The influence of established religious institutions is significant in

the decision making of many believers within Northern Ireland,

despite the recent decline in church attendance.

Advocacy and lobby groups.

o The importance of lobby groups cannot be understated. The

recent news from London shows the value of organised

campaigning and lobbying. Dublin and Cambridge have seen

advocacy groups celebrate significant anniversaries too, while

Belfast’s groups seem to have generally faded over time.

Governments will not introduce these measures without

substantial support from an organised body of advocates

Providing local forums for public to voice opinions.

o Creating spaces where the public can have their say regarding

issues of transport is vital. Those who traverse the cities roads

often know the streets as well as anyone and their opinions are

both valid and valuable.

Attaching cycling to economic regeneration.

o Does the best chance for cycling exist as an attachment to

economic regeneration? Politicians often are swayed by

arguments around economic growth; so to speak their language

could see the best results for cycling.

Links with public transport.

o A coherent strategy of sustainable transport should be

overlapping.

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The need for recognising cycling infrastructure implementation as a “city

project, and not a political project.” (Castillo-Manzanoa and Sánchez-

Brazaa, 2012, p. 11)

o Northern Ireland’s history of partisan voting could lead to a

stalemate if one particular party adopts it as their own policy so it

is paramount that an issue such as this should be constructed by

policy makers as one which benefits the whole city.

Infrastructure (International Transport Forum, 2012).

o This dissertation asserts that infrastructure is the single most

important factor when it comes to encouraging cycling use.

This chapter will proceed to look specifically at four of these issues and develop

them into proposals to be considered for policy makers in Belfast.

The Student Factor

This dissertation has discussed cycling in general terms taking into account the

varying demographics and emphasising the importance of it being a normal

form of transport for all. The current infrastructure encourages only those

brave enough to face congested roads, with little help for the young or the

elderly. This chapter will focus specifically on students and their role to play in

embracing cycling.

Belfast has the privilege of hosting three centres of third level education (UU,

QUB and Belfast Met). The combined population of all three almost reaches

70,000, which amounts to roughly a quarter of Belfast’s entire population. A

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significant proportion of these students live nearby to both their place of study,

and their place of play. At Queen’s University in the south of the city, 17,000

students are enrolled with a large amount living in the nearby areas, namely;

the Holylands, the Lisburn Road, the Malone Road and Stranmillis. The looming

arrival of 14,000 University of Ulster students into the York Street campus will

present the planning authorities with the difficult task of efficient housing

solutions. Belfast Metropolitan College as one of the largest colleges of its kind

in the UK boasts of 37,000 students enrolled across the different campuses.

The student population in Cambridge has a rather unique restriction placed on

them in that the respective universities do not permit them to bring cars to the

city. (University of Cambridge, 2012) Falling in line with the council’s

regulations on traffic in the city, the universities are active in their advice which

challenges students to either walk, cycle or use public transport or risk being

fined £175 for breaking the rules (Univserity of Cambridge, 2011). It perhaps

leads to perceptions that the universities in Cambridge are simply authoritarian

institutions preventing their students from engaging in civic life by prohibiting

car ownership. This dissertation would argue that this is not the case. By

limiting car access to students, the universities are taking potentially 110,000

(The Complete University Guide, 2011) cars out of the city centre in one piece of

legislating. Does this reduce the student experience to be had by those reading

at the respective universities? On the contrary, the university policies promote

active, sustainable travel as a ‘normal’ everyday mode of transport. It is not

simply for those who engage in a niche sport, but a legitimate and respected

way to simply get from A to B.

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The first substantial proposal that this dissertation will make is that Stormont,

and Belfast City Council should instigate incentives for students who choose to

cycle around campus, as opposed to driving in. The imminent cycle hire scheme

will permit students in all three campuses in Belfast to avail of the bicycles. The

success of the Dublin Bikes, as mentioned in the second chapter, can be

attributed to the cheap subscription available. Ten Euros per annum is fantastic

value and no doubt one of the reasons why the hire scheme has been so

successful. Were BCC or DRD to offer subsidised costs for the upcoming cycle

hire scheme, students could be the front runners of cycle advocacy in Belfast.

What Would Jesus Drive?

The steady decline of church attendance over the last number of years has been

well documented (Ross, 2011; Butt, 2011; Schwartzstein, 2012). However, the

influence of the church cannot be underestimated, particularly in Northern

Ireland where religion plays a more significant role in the lives of the general

population than elsewhere in the UK and Ireland. Despite the decline of the

institutionalised church, only 16.86% of Northern Ireland did not state, or

claimed to have no religion (NISRA, 2011c). In contrast, 32.3% in England and

Wales did not state, or claimed no religious affiliation (ONS, 2011). Northern

Ireland, perhaps due to the connotations of past political and religious fighting

has allowed the residue of religion to hold a higher authority in political and

social life compared to the rest of the United Kingdom. Regardless of opinion on

these issues, the inexorable influence of organised religion must be recognised.

Perhaps then churches in Northern Ireland could be used to promote

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sustainable development? Such a proposal is not out of the question as there is a

growing body of work by prominent Christians advocating sustainable

development in a variety of ways. The Church of England's diocesan

environment officers (Christian Today, 2012), stated “our biblical heritage

pushes us towards radical action to care about the whole created world and to

share more equitably the resources God offers to all life.” The Christian

argument for sustainable development is similar to that of a ‘Green’ perspective

as Vogt (2012) argues; “from a Christian point of view, sustainability is a

categorical imperative of a modern creation responsibility.”

The second proposal of this dissertation then calls for church leadership in

Northern Ireland to advocate for sustainable development, and to encourage the

attentive and impressionable congregations to steward the earth as Genesis

instructed, and in living in anticipation of the kingdom by bringing it to earth

now (Hardly, 2013). In the Christian Bible’s first chapter, man was instructed to

exercise dominion over the earth. Buktus (2002, p. 17) says; “this does not mean

to exploit, but to exercise care and responsibility for God’s domain particularly

in the interest of those who are poor and marginalized.” Were the church in

Northern Ireland to get on board with cycling as a form of ‘stewarding the earth’

by committing to reduce its carbon footprint, the results would be tremendous

for Belfast and the entire island.

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Advocating for Change

Ten people who speak make more noise than ten thousand who are silent.

(Napoleon Bonaparte, 2008, p. 12)

The third proposal is not directly aimed at the policy makers, but to encourage

those who support cycling in Belfast. Advocacy groups are key to modern

democracies. They allow concerns to be raised with people who have the power

to make changes. In Belfast, cycling advocacy groups over the last few years

have had very little influence regarding road infrastructure. The number of

cycling organisations is not the problem, it’s their effectiveness. Discovering

them takes a degree of research when they should be ever-present on the roads

and cycle networks.

News from London earlier in 2013 showed the value of persistent campaigning

with almost £1 billion pledged to revitalise urban cycling over the next decade.

The capital will enjoy extensive ‘Dutch-style’ infrastructure with further

restrictions on traffic beyond the congestion charge, and better facilities for

bicycle users. “In every city where we have seen big increases in expenditure on

cycling there has been a vibrant community of advocates driving the change,”

(Mayne, 2013). Bloggers in London were dogged and stubborn in their pursuit

of governmental commitment to cycling, and the results paid off. Edward’s

suggested that a “usually split and disconnected” (2013) cycling group managed

to find coherence to their voice proving the necessity of effective campaigning.

Since 2008, cycling advocacy groups in London, Seville and Dublin have

celebrated significant milestone birthdays; 30, 25 and 20 years campaigning for

greater cycling commitment. These are lessons which Belfast can learn from, as

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even smaller cities like Cambridge have strong advocacy groups. The third

proposal then is for the campaigners and advocates of Belfast to align their

visions and strategies and pursue coherent goals together to persist in pressing

the policy makers on the importance of implementing significant cycling

infrastructure.

Infrastructure

The fourth and final proposal this dissertation will put forward is the most

important. The implementation of cycling infrastructure is a fundamental

necessity for Belfast. With growing numbers of cyclists, it is important that they,

as vulnerable road users, are protected in a city dependent on cars. Cycling can

no longer be seen as a children’s recreational activity, or a niche middle-class

sport, but as a legitimate and accepted form of transport in the city.

Implementing segregated cycle lanes across the city shows that a government is

serious about tackling the effects of climate change, economic hardships, obesity

and other issues, congestion problems and oil dependency while creating a safe

and clean city. There is no other single policy which carries so much weight in

terms of by-products.

Cambridge is often referred to as “the city of cycling” (Laker, 2011) and is so for

good reason. Aldred (2010) highlighted a few of the structural changes

Cambridge has made; narrower streets, limited parking, parts of the city centre

closed to traffic and one way systems are but a few of the successful changes

employed to reduce car dependency in the city.

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Belfast on the Move is a step in the right direction, however it is not enough. A

vigorous move towards sustainable transport, with a significant emphasis on

the bicycle is required. The final proposal from this dissertation is for Stormont,

either directly or through further devolved powers to Belfast City Council, to

disregard the piecemeal style of cycling infrastructure which as mentioned in

Chapter 2, does more harm than good, and to move towards a rigorous and

extensive infrastructure which encourages cycling as a viable form of

transportation.

Conclusions

This dissertation has used the evaluation and analysis from the previous

chapters to suggest four proposals for cycling in Belfast. This chapter suggested

the third level student population of Belfast as potential front runners in the

approaching cycle hire scheme and recommended financial incentives to reduce

the amount of cars in and around the campuses and the city centre. The second

recommendation was directed towards the church as an institution of

tremendous influence. The number of people affiliated with religion in Northern

Ireland is still significant for the church to be able to suggest for its members to

embrace sustainable forms of transport in line with their faith. The third

recommendation focussed on the need for interlinked, aligned and loud

advocacy groups in Belfast. The voice of campaigning groups in the UK and the

Republic of Ireland led to significant investment in cycling infrastructure. The

final and most important of these recommendations is the high governmental

commitment needed to provide an extensive cycling network.

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The recommendations in this chapter are in line with the core argument of this

dissertation – that cycling infrastructure, as part of a broader commitment to

creating healthier, cleaner cities, can act as a tool to combat many of the

problems that a city faces such as congestion and climate change and that

Belfast is an ideal city to boast an extensive cycling network. The first chapter

made arguments which highlighted the value of cycling and how Belfast is an

ideal city – in terms of its area, demographic and topographic factors – to boast

a healthy cycling infrastructure. Chapter two drew attention to the hegemony of

motorised transport in Belfast and the lack of support towards cycling as an

important mode of transport. The third chapter of this dissertation analysed the

opinions of the key stakeholders in Belfast. Representatives from the council; a

sustainable transport lobbying group; as well as a significant ‘blogger’ and

activist were questioned on their perceptions of cycling in Belfast, particularly

on their reasons for why cycling is currently under-provided for and their

solutions to this issue.

Further recommendations for study

Naturally, the dissertation leaves many further questions to be answered which

do not fit in the confines of this particular work. Further study should be

considered in regards to the importance of navigating political parties in a post-

conflict society when formulating sustainable policies for a city. Having looked

mainly at the student and religious populations of Belfast, there could be further

study in to the effects of cycling infrastructure in areas of socio-economic

deprivation and underdevelopment, namely in West or East Belfast. One final

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suggestion for further study would look at the importance of marketing and

advertising regarding cycling in Belfast as it is important to move away from the

image of the cyclist in Lycra, hi-visibility coats and helmets towards the

everyday image of cyclists in other parts of the world.

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Joining the Dots - A Critical Analysis of Cycling Policy in Belfast

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