Opinion of the European Economic and Social Committee on the Promotion of cross-border cycle transport
Date: 2007-04-25
Institutions: European Economic and Social Committee
Subjects: ESC opinion, common transport policy, sustainable development, transport infrastructure, two-wheeled vehicle, urban transport

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Calls for action by the municipalities

4.13
Ensuring effective and attractive LPT and easing the
burden on urban areas arising from private motor vehicle trans-
port and road haulage requires integrated spatial and traffic
planning, which on the one hand is geared to preventing traffic
and on the other emphasises environmental transport modes.
To this end, it is essential to take the various types and purposes
of transport into account and evaluate them in regional coop-
eration with outlying areas.

4.14
Once objectives have been prioritised in a coordinated
way and strategies have been worked out accordingly, a wide
range of measures should be implemented by municipalities
through a process of political decision-making and communica-
tion.

Brussels, 25 April 2007.

Local authorities should set

4.15
themselves goals clearly
defining the means and the extent to which they intend to
increase the share of LPT and the environmental alliance of
cycling and walking, with a reduction in absolute terms of
private motor vehicle transport. For this to happen, it is impor-
tant to integrate planning and financing competences.

4.16
Forward-looking public transport planning as part of
interest must also take into
municipal services of general
account land acquisition policies e.g. for public transport routes
and stations.

citizens

Involving

and user

in planning
4.17
for successful public transport
processes is very important
systems. The EESC therefore recommends that local authorities
closely involve local people in developing their local public
transport systems.

groups

The President

of the European Economic and Social Committee

Dimitris DIMITRIADIS

Opinion of the European Economic and Social Committee on the Promotion of cross-border cycle
transport

(2007/C 168/18)

In a letter dated 7 November 2006, the German Federal Ministry of Transport, in the context of the German
EU Presidency, asked the EESC, under Article 262 of the Treaty establishing the European Community, to
draw up an opinion on The promotion of cross-border cycle transport.

On 21 November 2006 the Committee Bureau instructed the Section for Transport, Energy, Infrastructure
and the Information Society to prepare the Committee's work on the subject.

Given the urgent nature of the work, the European Economic and Social Committee appointed Mr Simons
as rapporteur-general at its 435th plenary session, held on 25 and 26 April 2007 (meeting of 25 April),
and adopted the following opinion by 128 votes to two, with eight abstentions.

1. Conclusions

1.3
In Europe every train, including high-speed international
trains, should be obliged to make space available for trans-
porting, among other things, bicycles.

1.1
There is (still) no European cycling policy. The European
Commission does support, by means of subsidy programmes,
research, development and the implementation of projects as
part of policy on sustainable mobility and energy use.

1.4 Minimum quality standards should be introduced for
cycling infrastructure built with the aid of European subsidies.

The EESC recommends that cycling be integrated into
1.2
transport and infrastructure policy in general and in particular
be given substantial attention in the forthcoming Green Paper
on urban transport.

The EESC recommends that EU subsidy budgets also be
1.5
made available for the development and maintenance of cycling
infrastructure. Good-quality infrastructure already exists in some
European cities and countries.

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1.6
The European Commission should start and/or continue
to subsidise the exchange of information, good practices and
public awareness campaigns for cycling and should require
cycling policy (for example, intermodality between bicycle and
public transport) to be integrated into all transport projects
which it subsidises.

Encouragement should also be given at European level to
1.7
the drawing-up and implementation of adequate safety regula-
tions covering both cyclists and their bicycles as well as cycling
infrastructure and other traffic.

1.8
Cycling policy must also be integrated into the further
development of European policy in the fields of spatial planning
(including urban development policy),
the
economy, health, training and education.

the environment,

1.9
The European Commission must properly organise the
monitoring and collection of data on cycling in Europe and
encourage the harmonisation of research methods.

1.10
The European Commission must continue to subsidise
the creation of Euro Velo Routes so that a complete European
Network of Cycle Routes, a TEN (Trans-European Network) for
cycling, comes into existence.

1.11
It is recommended that a European organisation, subsi-
the
dised by the European Commission, should take over
administrative and secretariat role for the Euro Velo projects
and the various completed Euro Velo routes. This is to ensure
continued maintenance of
the infrastructure and the central
provision of information to cyclists.

2. Introduction

2.1
The German Federal Ministry of Transport, in the context
of the German EU Presidency, asked the EESC to draw up an
exploratory opinion on cross-border cycle transport. The
Ministry raises three questions.

2.2
This exploratory opinion first examines the current state
of play on cycling policy in the EU (ministerial question No 3),
with the focus on cycling as a mode of transport in daily life. It
then discusses the possibilities for improving cross-border infra-
structure for cycle transport (ministerial question No 2) and
European cooperation on extending the route network (minis-
terial question No 1). Cycle tourism is a central focus in relation
to the last two questions.

3. The state of play on cycling policy in the EU

3.1
Until now cycling policy has scarcely been a separate
topic. In the past, cycling has come up for discussion at Euro-
pean level mainly in the context of environmental issues after
the environmental movement in particular called for a better
cycling policy because of the detrimental effects of increasing

road traffic. Thus,
the EU
Commissioner for the Environment, Ritt Bjerregaard, called on
local authorities in Europe to adopt a cycling-friendly policy.

in a 12-point programme (1),

3.2
The 2001 Transport White Paper and its 2006 Mid-term
review focuses on other modes of transport. The reaction of the
European Parliament (2)
to the White Paper does, however,
include a call to the European Commission to invest more in
improving access to public transport for cyclists.

3.3
In his speech at the 2005 Euro Velo-City conference in
Dublin the Commissioner for Transport, Jacques Barrot, empha-
sised that, despite the application of the subsidiarity principle,
the European Commission had a role to play in promoting
bicycle use across Europe. Cycling could play a greater role in
attaining the proposed objective of re-balancing the modes of
transport. The Commissioner sees the European Commission as
having a role to play: funding programmes,
improving road
safety and information to decision-makers, and cooperation.

The European Commission supports the CIVITAS (CIty
3.4
VITAlity Sustainability) Initiative in the context of research and
development. Up till now projects aimed at a more sustainable
urban transport system have been implemented in 36 cities in
17 countries. One of the eight categories of integrated solutions
drawn up relates to the promotion of a less car-intensive lifestyle
and more use of bicycles (3). In the Intelligent Energy-Europe
Programme the European Commission supports STEER projects
aimed at promoting sustainable energy use in transport. Two
projects focus on the exchange of information in the field of
cycling policy (4).

In the Green Paper Promoting healthy diets and physical
3.5
activity: a European dimension for the prevention of overweight,
obesity and chronic diseases, (5) the European Commission calls
for answers to the questions: How can public policies ensure
that daily physical activity is built into daily routines and what
measures, for instance in the planning of residential areas, are
required for
that can
encourage physical activity?

the development of an environment

3.6 Many answers to these questions have already been
worked out in the ‘cycling world’. Experts are linking cycling
more and more with health, and not just because it can contri-
bute to a healthy amount of daily physical activity.
In the
context of environmental policy, cycling can also help reduce

(1) European Commission, DG XI: ‘Cycling: the way ahead for towns and

cities’, Luxembourg, 1999.

(2) Resolution of 12 February 2003 — EP Committee on Regional Policy,
Transport and Tourism, Rapporteur: Juan de Dios Izquierdo Collado,
9 December 2002. REPORT on the Commission White Paper ‘Euro-
pean transport policy for 2010:time to decide’, FINAL A5-0444/2002;
http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//
NONSGML+REPORT+A5-2002-0444+0+DOC+WORD+VO//
EN&language=EN.

(3) See www.civitas-initiative.org.
(4) See www.http//ec.europa/energy/intelligent/projects/steer_en.htm#po-

licy.

(5) COM(2005) 637 final.

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the particle content of the air in urban areas, and yet the poor
image of air quality in urban areas is actually discouraging
people from cycling.

3.7 With the development of increasingly integrated mobility
increased attention has also been paid to the
management,
advantages that the bicycle offers in solving traffic congestion.
In addition to daily journeys between home and work,
it
appears that social-recreational traffic also plays a large part in
causing congestion. Other factors include economies of scale
(such as mergers of hospitals, and large out-of-town shopping
centres) and the longer distances arising from this. Cycling is in
danger of becoming less attractive.

3.8
A frequent problem is that new or expanded infrastruc-
ture cuts across existing or planned cycle routes. This creates
insurmountable or troublesome obstacles for cyclists, also for
the recreational cyclist who is, as it were, confined to his resi-
dential area or town by major transport infrastructure. This
problem needs attention and solutions must be found when
new infrastructure, especially road and rail, is built. Wherever it
is technically possible, a cycle path should also be constructed at
the same time as such new infrastructure.

3.9
It should also be mentioned in this connection that
instruments such as minimum quality standards should be
introduced for cycling infrastructure built using European subsi-
dies. In order to create a pleasant living environment, cities can
use good, comfortable and safe cycling infrastructure, including
cycle routes and parking facilities for bicycles in the inner city,
as incentives.

3.10 Within Europe the Netherlands is regarded as the
leading country for cycling and thus as a model for other coun-
to the
tries. The Netherlands owes this reputation not
highest rate of cycling mobility in Europe, but also to the
Bicycle Masterplan (1990 — 1997). Other European countries
have followed the Dutch model and have been persuaded by the
Dutch government's attention and commitment
(including
financial) to a good cycling policy.

just

The Dutch Bicycle Masterplan clearly demonstrated, by
3.11
thinking in terms of journeys, that a good cycling policy must
not only ensure good (comfortable, fast and safe) cycle paths,
but also pay attention to the ability to park bicycles safely and
conveniently in or outside the home, at the station, at public
transport interconnections and bus stops and at the final desti-
nation.

3.12
of Transport

A few years ago, the European Conference of Ministers
(ECMT) commissioned a survey on national

transport policy in the ECMT member states (6). It appears from
this survey that only a few countries do not have any national
policy for cycling (7). Of course, the scope, status and impact of
the national policy differ in the various countries. The average
proportion of the total number of journeys made by bicycle in
Europe is, according to the ECMT, 5 %. But countries such as
Denmark (18 %) and the Netherlands (27 %) prove that a much
greater share is possible (8).

These differences at national level, with further differ-
3.13
ences at local level, show that bicycle use can be influenced by
government policy. The main growth potential
lies in people
switching from private car use to cycling for trips of up to 5 to
8 km. In Europe cars are used for more than half of these short
trips. Even for trips of less than 2 km car use is still 30 % (9).

The main aim of cycling policy is to encourage people
3.14
to make short journeys by bicycle. But attention is now also
being paid to longer-distance travel; consideration is being given
to fast, direct, long-distance cycle paths in metropolitan areas.

3.15
The growth potential of bicycle use for short distances
is the basis for calculations of the contribution that a good
cycling policy can make
change.
According to recent calculations, for example, short journeys by
car (< 7.5 km) account for about 6 % of total emissions from
cars (10).

to combating climate

3.16
The bicycle, whether owned, borrowed or hired, can
contribute to greater use of public transport. The bicycle
extends the radius around the station, bus stop or home within
which the traveller can reach a stop or vice versa without a car
within minutes.

3.17
The differences between the various European countries
regarding the proportion of journeys made by bicycle cannot be
explained by purely social, geographical, climatic and cultural
circumstances, although they naturally play a role (11). A signifi-
cant factor in cycling countries appears to be the important role
of associations which work to promote a good cycling policy.
They are often responsible for initiatives that lead to national
strategies.

(6) ECMT, National Policies to Promote Cycling, (Implementing sustainable
urban travel policies: moving ahead), OECD Publications Service, 2004.

(7) ECMT, National Policies to Promote Cycling, p. 43.
(8) ECMT, National Policies to Promote Cycling, p. 20.
(9) ECMT, National Policies to Promote Cycling, p 24.
(10) See http://www.fietsersbond.nl/urlsearchresults.asp?itemnumber=1.
(11) Research carried out in the Netherlands over the past few years
suggests that immigrants (including second-generation immigrants)
from, for example, Morocco, on average cycle substantially less than
the native Dutch. See ‘Het fietsgebruik van allochtonen nader belicht’,
Fietsberaad publication number 11a, November 2006. See: http://
www.fietsberaad.nl.

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3.18 Monitoring and assessment of cycling policy at Euro-
pean level are unfortunately hindered by the lack of useful and
accessible statistics. Not only the associations but also the ECMT
argue for better gathering of data on cycling policy and bicycle
use (12). The decision no longer to include important statistics
on the use of bicycles in the Statistical Pocketbook ‘EU Energy
and transport in Figures’ was greeted with incredulity.

3.19 Whereas GPS navigation systems for cars are now quite
common, navigation systems covering all cycle routes have been
more difficult to launch because digital maps generally do not
cover cycle routes, which have not been listed or digitalised.
However, considerable progress is being made in this field in
cycling countries, such as the availability of cycle route planners
on the Internet (13).

3.20
The European bicycle manufacturing and spare parts'
industry has an estimated turnover of EUR 8 500 000 000 and
employs (directly or indirectly) approximately 130 000 people.
To this figure must be added the more than 25 000 shops and
distributors and their staff (14). This still does not take into
consideration high-tech research. The economic importance of
cycle tourism is growing, especially in economically disadvan-
taged regions where small-scale businesses along the long-
distance routes are profiting from cycle tourism (15).

3.21
Up to now there has been no European policy on
cycling. The Green Paper on urban transport that the European
Commission is preparing will — according to the Commission
— also address cycling. This offers an excellent opportunity to
compensate for the lack of a European cycling policy and its
integration into other policy areas by starting to include cycling
in the Green Paper as an important form of urban transport.

The exploratory opinion ‘Transport

3.22
in urban and
metropolitan areas’ — TEN/276, CESE 273/2007 — also exam-
ines the coordination of the planning of transport and housing
structures (point3.3) in addition to encouraging people to cycle
and walk (point 3.3.3). The integration of cycling policy into
land-use planning should be developed.

4. Improvement of cross-border cycling infrastructure

4.1
Problems arise in cross-border cycle transport within
Europe, especially when the cyclist wishes to take his own
bicycle abroad with him using international high-speed trains,
which are an important infrastructure component for cycle tour-
ists. In Europe it is usually impossible to transport bicycles on
such trains, however.

(12) See ECMT, National Policies to Promote Cycling, p. 24.
(13) For examples, see: www.radroutenplaner.nrw.de and http://www.fiet-

serbond.nl/fietsrouteplanner.

(14) According to an estimate for 2003 by COLIBI (Association of the
European bicycle industry) and COLIPED (Association of the European
Two-Wheeler Parts' and Accessories' Industry).

(15) Source: Presentation by Les Lumsdon at the final conference of the
North Sea Cycle Route, 9 November 2006, on tourism, economic
regeneration and European subsidies; see: http://www.northsea-cycle.
com. and http//www.uclan.ac.uk/facs/lbs/research/institutes_and_cen-
tres/transport/docs/Northseacycleconf.doc.

regions,

important

4.2 While cycle tourism is growing and is being specifically
promoted by the European Commission and national and
regional authorities as a sustainable and, especially for econom-
tourism, cyclists
ically weaker
wishing to travel by train to their holiday destination or the
starting point of their international cycling holiday are likely to
encounter serious problems. Whereas airlines are happy to
transport bicycles, and facilities for transporting bicycles on
ferries are good (although routes for cyclists to and from ports
and signposting are not always satisfactory), rail operators refuse
to allow them onto international high-speed trains.

form of

4.3
A solution to this problem in cross-border cycle trans-
port is in sight, however, following the European Parliament's
vote in January 2007 (16), carried by a large majority to require
all trains in Europe to have a multifunctional section for wheel-
chairs, skis and bicycles, for example. It is recommended that
every train in Europe, including international high-speed trains,
be obliged to make available space for transporting bicycles.

4.4
Road safety for cyclists differs greatly in European coun-
tries. This is above all a result of the lack of a specific cycling
infrastructure in countries where cyclists have to share the road
with cars and lorries travelling at 50kph, 80kph or even higher
speeds. This discourages people from cycling. Encouragement
should also be given at European level to the drawing-up and
implementation of adequate safety regulations covering both
cyclists and their bicycles as well as cycling infrastructure and
other traffic.

Also the quality of

4.5
the existing infrastructure varies.
Cycle tourists are less likely to go to countries which they
consider unsafe if they are used to safer infrastructure at home.
It is recommended that minimum quality standards (for example,
width of cycle paths, also for other non-standard bicycles (17);
signposting) be introduced for cycling infrastructure built with
the aid of European subsidies, and that subsidy budgets be made
available for the establishment of cycling infrastructure of the
kind which has already proved effective in some European cities
and countries.

4.6
Although the great differences in the proportion of jour-
neys made by bicycle in the various European countries and
cities are also a consequence of social, geographical, climatic
and cultural differences, the main reason is differences in trans-
port policy. Therefore the exchange of information, good prac-
tices and public awareness campaigns for cycling is of great
importance. It is recommended that the European Commission

(16) See

http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//

TEXT+TA+P6-TA-2007-0005+0+DOC+XML+V0//EN.

(17) For example:

tandems, delivery tricycles, aerodynamic reclining

bicycles and three-wheeled covered bicycles.

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should start and/or continue to subsidise this exchange of infor-
mation, good practices and public awareness campaigns and
that an integrated cycling policy (for example intermodality
between bicycle and public transport) be made mandatory in all
transport projects subsidised by the European Commission.

4.7
Cycling is a popular activity which can be promoted, as
part of a healthy and sustainable lifestyle, by integrating cycling
policy into policy areas other than just transport. It is recom-
mended that cycling policy be integrated into the further devel-
opment of European policy not only in transport and infrastruc-
ture policy but also in the fields of spatial planning (including
urban development policy),
the economy,
health, training and education. It is also recommended that the
European Commission should properly organise the monitoring
of and collection of data on cycling in Europe and encourage
the standardisation of research methods.

the environment,

5. European cooperation on the extension of the EuroVelo

route network

5.1
EuroVelo is a project initiated by the European Cyclists'
Federation (ECF) in 1995 (18). The goal is to develop 12 interna-
tional long-distance cycle routes across Europe, both within and
outside the EU Member States. The total length of the proposed
routes is 66 000 km. The routes are largely based on existing
local and regional routes. The continental perspective of the
project and the vision of a pan-European network of cycle
routes have proved a major asset since the start of the project.

This has inspired local, regional and national authorities
5.2
to cooperate on establishing international
long-distance cycle
routes. Last year EuroVelo 6, from the Atlantic Ocean to the
Black Sea, was opened. INTERREG funds have played a major
role in the establishment of these routes. That also applies to
the North Sea Cycle Route which was completed as an
INTERREG project at the end of 2006 and is considered by the
ECF as EuroVelo 12.

5.3
The idea behind Euro Velo is to develop and maintain a
recognised Trans-European Cycle Route Network as a TEN
(Trans-European Network), comparable to the rail and road
network. Obviously this is desirable not so much as part of
European transport policy but rather for the benefit of tourism
and regional development in Europe. In addition to long-term
route coordination and information, another
management,

Brussels, 25 April 2007.

major task is of course the further development of the network.
The publication in 2002 of guidelines on all major aspects of
the establishment of a Euro Velo route has proved of great value
in preventing disinvestment. The European Commission should
continue subsidising the establishment of Euro Velo routes with
a view to the development of a complete Euro Cycle Routes
Network, a TEN for bicycles.

Discussions between the partners of the North Sea Cycle
5.4
Group on ways of ensuring the future continuity of the route,
its marketing and cooperation between the large number of
project partners (approximately 70 regions in eight countries)
have not yet produced a conclusion. This question is also of
importance with regard to other international
long-distance
cycle routes set up with project
funding (often 50 % EU
money), where no solution has been found for the management
of cooperation and joint marketing.

level,

One much discussed possible solution to the problem,
5.5
following the pattern of organisations at national
is to
entrust a European organisation such as the European Cyclists'
Federation (ECF) with the management, route coordination and
administration of a Route once the work on infrastructure and
signposting is complete. According to the ECF, the long-term
maintenance of the quality of routes, once complete, is a major
issue that needs to be solved at an international, European level.
A European organisation should take over the administrative
and secretariat role for the Euro Velo projects and the various
completed Euro Velo routes. This is to ensure continued mainte-
nance of
the infrastructure (including signposting) and the
central provision of information to cyclists (including informa-
tion on where help may be obtained in the event of a break-
down or emergency). As with many European initiatives and
cooperation projects, EU financial support will be needed.

5.6
Despite its limited resources, the ECF has itself stepped
up its efforts on behalf of the EuroVelo project in order to work
out and implement a solution to this problem. This includes
cooperating on the further development of a system of sign-
posting for the Euro Velo 6 project that is unambiguous but can
be applied and adapted in all countries, and pressing for recog-
nition of this signposting system by the UNECE (19). Formal
recognition should be given to the signposting system drawn up
by the ECF in the framework of the Euro Velo 6 partner group
and its implementation should be encouraged.

The President

of the European Economic and Social Committee

Dimitris DIMITRIADIS

(18) See http://www.ecf.com/14_1.

(19) See http://www.unece.org/trans/main/welcwp1.html.