GRandall-Trip End Facilities for Cyclists (SAICE Journal)
1. End-of-Trip Facilities for Cyclists and Realignment of
Current South African Bicycle Legislation
G Randall, L Roodt
Globally cycling is on the increase. Cities are recognising the benefits that cycling can offer
as a sustainable solution to reduce congestion, improve the health of those who cycle
while at the same time reducing the impact on the environment. Cycling Cities have
become synonymous with improved quality of life and cycling is no longer seen as
transport for the poor, but rather transport for all. Since the 1940’s cycling has slowly
declined in favour of private cars and cheap fuel. In the last two decades however,
regeneration and reurbanisation has helped citizens live closer to their destinations and
reducing the need to travel long distances. This desire to live in urban areas provides a
real opportunity to re-invent the bicycle as a primary mode of transport and the time has
come to ‘re-cycle’ cities.
The number of active cyclists in South African cities is growing, although the development
of bicycle-focussed guidance is reactive rather than proactive. The appetite for cycling is
apparent, with the number of bicycle shops and associated commercial activities on the
increase, e.g. bike hire, cycling tours, bicycle cafés. Increased congestion levels in the
primary cities as well as the operating costs of car ownership has lead to commuters
considering alternative modes such as public transport or cycling.
Traditional planning legislation requires all new developments to provide vehicular parking
to cater for the anticipated use. However, at present, little legislation exists to
encourage/compel new developments to provide bicycle parking and bicycle facilities,
which could greatly promote the use of NMT.
This paper therefore explores the current South African legislation relating to car parking
and bicycles and highlights potential inhibitors to creating a modal shift towards NMT. The
need to provide more End-of-Trip Facilities (EOTF) for cyclists (and/or other NMT users) is
highlighted, which (apart from travel distance) is believed to be one of the most important
criteria towards whether a commuter would chose to journey to the workplace by bicycle
versus continue to use their private vehicle.
A case study of an existing business complex without any EOTF’s is given, and the
behavioural change measured following the introduction of an EOTF is analysed.
INTRODUCTION
The current South African planning regulations require a Traffic Impact Assessment (TIA)
to determine the traffic impact of a land development proposal and whether such a
development can be accommodated by the transportation system. In terms of the
Municipal Systems Act (Act No 32 of 2000) Municipalities are empowered to govern, on it’s
own initiative, all local affairs of it’s community, subject to national and provincial
legislation. The Municipality is therefore responsible for the master planning required to
accommodate developments (TMH 16, Vol2, 2012).
2. Within any TIA, parking provision and design is discussed as it is an essential requirement
for most developments. In South Africa, parking is required at a minimum rate, based on
the characteristic of the particular land use, typically size or number of employees in the
case of Office developments. These minimum rates vary greatly between municipalities
and most do not mention bicycle parking. It is apparent that the current parking guideline
documents used by Municipal Officials are out of sync with international best practice as
they exclude parking provision for commuters using alternative modes
(motorcycle/bicycle/electric car). No incentives currently exist for developers to provide
parking/facilities for these alternative modes and, as a consequence, they are mostly
ignored. This paper therefore explores the current guidelines and recommends possible
changes to include minimum bicycle parking provision together with the appropriate EOTF.
WHAT IS AN END OF TRIP FACILITY (EOTF)?
Within the context of this paper, an EOTF includes bicycle parking in the form of a secure
lockup (ideally non-intrusive and within the main building structure), lockers and
showers/changing rooms. It is a designated place that supports cyclists and joggers who
travel to work via alternative means of transport rather than driving or taking public
transport.
EOTF’s are typically located within the
workplace for use by people who cycle or
run/walk to work and the inclusion of such
facilities are becoming more commonplace
in new office buildings. Internationally,
EOTF’s are being implemented either
through building regulation requirements or
commercial (marketing) opportunities. In
South Africa, however, EOTF’s are mostly
implemented for commercial gain where
developers use EOTF’s as a differentiator
to their competitors or as an opportunity to
gain additional “Green” credentials, which
can also result in marketing opportunities.
Studies has shown that the type and
quality of an EOTF would influence their
modal choice (Morse, 2014). For example,
having a secure, covered bike rack and
shower at work could encourage an
employee to cycle instead of using his/her
private car. Alternatively, an employee
who currently enjoys cycling, could choose
a place of employment based on both the
ability to cycle to work, and the quality of
the bicycle facilities. The quality of the
EOTF could, for some employees, be the
deciding factor between choosing a
particular employer, should the EOTF be
significantly better than the other. (Morse,
2014)
Photo by Laurent Hermant
Photo by Laurent Hermant
Secure Bicycle Lockup at Queensland Government Building, Brisbane
Secure Lockers at Queensland Government Building, Brisbane
3. WHY SHOULD EMPLOYERS DEVELOP BICYCLE END-OF-TRIP
FACILITIES?
There are several benefits to both employers and employees in having bicycle parking and
appropriate EOTFs in the workplace. Some benefits include:
A potential reduction in overall
parking provision for new
developments (assuming the
relevant parking policies are in
place and adopted). Up to 10
bicycles can be parked in the
equivalent space of 1 car.
(Cyclehoop, 2015) Bicycle
parking can therefore easily be
retrofitted utilising available
space or occupying 1-2 parking
bays;
Attracting and retaining healthy and environmentally conscious employees. Cycling,
in general offers significant health benefits. Studies have shown that cycling
regularly can reduce or prevent heart disease, obesity, high blood pressure, Type 2
diabetes, osteoporosis and depression;
Environmental benefits due to reduced vehicle trips. TomTom’s annual global traffic
index for 2013 ranked Cape Town as the most congested city in South Africa and
33rd in the world (TomTom, 2014). The increasing levels of congestion within cities
is not a unique issue and the bicycle continues to play an important role in kerbing
this problem; and
Projecting a positive and environmentally conscious image. Awards such as the
Green Star SA developed by Green Building Council of South Africa recognises and
rewards environmental leadership in the property industry which encourages
sustainable buildings, of which EOTF forms an integral part.
CURRENT SOUTH AFRICAN STANDARDS
Photos by Laurent Hermant
Good Signage at Queensland Government Building, Brisbane Shower Facilities at Queensland Government Building, Brisbane
Image source: www.cyclehoop.com
4. Vehicle parking is an important and integral part of the transportation system in any
metropolitan area. The provision of parking is expensive and the importance of providing
the correct allocation has been well documented. Over provision encourages the use of
the private car, which ultimately places additional pressure on the road network. Under
provision, on the other hand, can result in overflow, which could lead to increased illegal
parking on the sidewalks and in the road reserve. Internationally, there has been a change
from minimum to maximum parking standards for vehicles and the inclusion of minimum
bicycle parking and EOTFs (Planning Policy Guidance 13: Transport, 2006). These
revised parking standards are therefore aligned with overarching NMT strategies/policies
and actively discourage private car use while at the same time incentivising other
sustainable modes, including bicycles. A summary of the current parking (vehicle and
bicycle) standards for the four largest metropolitan areas (viz. Cape Town, Durban,
Pretoria and Johannesburg) within South Africa is given below:
City Planning
Authority
Guideline
Document
Relevant Car and Bicycle Guidance
National Department of
Transport
Department of
Transport
Parking
Standards,
1985
No mention of bicycle parking or facilities.
Cape Town Transport for
Cape Town
(TCT)
City of Cape
Town Zoning
Scheme
Regulations,
2014
Council may require that parking be provided
for motorcycles and bicycles;
For every four motorcycle and six bicycle
parking spaces provided, a reduction of one
parking bay may be given (up to a maximum
of 2.5% of the total provision).
Durban eThekwini
Transport
Authority (ETA)
Town Planning
Regulations,
2010
A reduction of car parking provision is
permissible (maximum 10%);
No mention of bicycle parking or facilities.
Pretoria City of Tshwane Tshwane
Town Planning
Scheme, 2008
A reduction of car parking provision is
permissible;
No mention of bicycle parking or facilities.
Johannesburg City of
Johannesburg
Consolidated
Johannesburg
Town Planning
Scheme, 2011
A reduction of car parking provision is
permissible;
No mention of bicycle parking or facilities.
Table 1 - Summary of Car and Bicycle Parking Guidelines
A summary of the research showed that only the City of Cape Town currently makes
provision for bicycle parking, although no cities provided any guidance on the provision of
EOTF's.
END-OF-TRIP CASE STUDY
In order to establish the willingness of commuters to cycle to work, it was necessary to
conduct commuter observations in a typical office environment. Based on several
screening criteria, Hatch Goba (Pty) Ltd, an engineering consultancy firm, situated within
the business complex was selected for the survey. The Cape Town Hatch Goba (Pty) Ltd
office comprises of 58 employees and is approximately 18km east of Cape Town Central
Business District (CBD). The location of the building in relation to the surrounding area is
shown in Figure 1 along with the existing cycle network.
5. Figure 1 – Office Location and Existing Bicycle Network
Prior to the start of the survey no employees cycled to work, with 92% using their private
car to travel to work, with a further 5% being a car passenger. Motorcycles accounted for
the remaining 3% of employees.
The survey commenced on Friday, 1st of August 2014 following an email to all Hatch
Goba (Pty) Ltd employees encouraging them to use the dedicated male and female
shower and changing facility. The survey terminated on Thursday the 30th of April 2015
and the results are shown in Figure 2.
Office Park Location
N
Legend
Recommended Bicycle Route
Existing Class 3 Cycle Route
Image Source: Google Earth
6. Figure 2 – EOTF Monthly Usage (August 2014 – April 2015)
During the 9-month long survey a total of 13 unique EOTF users were identified, 8 of
which were Hatch Goba (Pty) Ltd employees who only started making use of the facility
after the announcement that an EOTF was available for use. It indicates that through
positive marketing the usage of the EOTF increased by 2.6 times.
The case study provides clear evidence that without the existence of an EOTF, these trips
would have been made by a private vehicle.
Influence of Weather
The maximum and minimum temperatures, wind speed and precipitation were obtained for
all weekdays throughout the survey period and Figure 3 shows the temperature extract for
the month of October 2014. The results indicate that no cycle trips were made on the
coldest days (9th and 17th October 2014) and generally indicates that cyclists prefer to
cycle on warmer days.
7. Figure 3 – Temperature Variance October 2014
A similar exercise was undertaken for wind speed and precipitation and the results
indicated that the days with highest wind speeds generally coincided with days when no
cyclists were observed. During the month of October 2014, precipitation occurred on 4
working days and similarly no cycle trips were made on those days.
Distance to Work
Figure 4 shows the office location together with the home locations of Hatch Goba
employees. The red dots indicate employees who never cycled to work, the yellow dots
refer to employees who cycled occasionally (once a month) and the green dots are
employees who cycled regularly (once a week). The figure indicates that 8 of the 58 (14%)
employees live within a commutable cycle distance (<5km) to the office (red shaded area).
Of the 8 employees within the shaded area, 3 started to cycle to work (green dots).
NumberofCycleTrips
8. Figure 4 – Staff within 5km Radius of Office
In summary, the study indicated that through the introduction of an EOTF, 14% of
employees chose to cycle at least once during the survey period. Only 3 of the 8 cyclists
live closer than 5km to the office indicating that employees were prepared to cycle further
than 5km to work.
CONCLUSIONS AND RECOMMENDATIONS
The research undertaken has identified shortfalls in the current South African planning
legislation with regard to NMT and bicycle provision. There is a need for stricter obligations
to be placed on municipalities to promote the cycling agenda where appropriate.
The following shortfalls were identified
South African car parking standards prescribe a minimum provision, despite
international best practice recommending a maximum provision as the primary
method to reduce the dependence on the private car;
Bicycle Parking Standards could only be found in one of the larger cities within
South Africa;
Currently it is not mandatory for new or extended office developments to provide
bicycle parking or associated EOTF's;
The case study undertaken highlighted that the introduction of a dedicated male and
female changing room and shower facility together with some marketing, 14% of staff
cycled to work at least once during the survey period. These trips would otherwise have
been made by private vehicle.
It is concluded that the introduction of the EOTF has benefited some employees who now
have an option to cycle to work.
9. The following recommendations is made:
EOTFs should be legislated as a mandatory requirement for all new office
developments. The level of provision should depend on the size of the development
and number of employees;
Appropriate guidance should be made available showcasing examples of good
practice together with minimum facilities to encourage high quality facilities;
It is essential that bicycle parking design and EOTFs be included in the early
planning stages of any new office development to ensure space requirements,
access by bicycle and integration within the building are considered;
Recommended and minimum EOTFs should be included in the Draft National NMT
Transport Policy and relevant municipal guidelines.
REFERENCES
Bester, CJ, 2012. Parking Standards that can work in South Africa.
Buehler, R. & Pucher, J., 2011. Cycling to Work in 90 Large American Cities: New
Evidence on the Role of Bike Paths and Lanes. Volume 39, Issue 2, pg 409-432.
Committee of Transport Officials, 2012. South African Traffic Impact and Site Traffic
Assessment Standard and Requirements Manual.
Communities and Local Government, 2006. Planning Policy Guidance 13: Transport.
City of Cape Town, 2013. Draft Parking Policy for the City of Cape Town.
City of Cape Town, 2014. Zoning Scheme Regulations.
City of Johannesburg Metropolitan Municipality, 2011. Consolidated Johannesburg Town
Planning Scheme.
City of Tshwane, Part 5 - Parking and Loading Facilities
Cycling SA, 2010. Long Term Athlete Development – Cycling – Volume 1.
Department of Transport, 1985. Parking Standards, second edition.
eThekwini Municipality, 2010. Town Planning Regulations – Schedule of Guidelines for off-
street Parking.
Morse, A, 2014. Why we Need More End of Trip Facilities, Australian Institute of Traffic
Planning and Management
Queensland Department of Housing and Public Works, 2014. End-of-trip facilities.
TomTom, 2014. Global Traffic Index - http://www.tomtom.com
The National Treasury, 2000. Municipal Systems Act No32.
10. Author Information
Contact Details:
13 Hiddingh Square
Edgemead
Cape Town
7441
Tel: +27 (21) 558 8074
Email: grandall01@gmail.com
Glen Randall is a Civil Engineer specialising in Traffic Engineering and Transport Planning
and a member of the South African Institution of Civil Engineering.
Glen graduated from the University of Cape Town in 1998 and worked the bulk of his
career in the United Kingdom where he has gained extensive knowledge on Non-
motorised Transport. He returned to South Africa in 2009 and has since been involved in a
variety of transportation projects in Cape Town and Durban.
Glen’s transport interests lie in improving walking and cycling facilities and to reduce the
dependence on the private car for short trips by promoting cycling initiatives. Having a
sound engineering background, he is well positioned to identify practical transport
solutions to promote sustainable developments and infrastructure improvements.